Original Title: Notice from the Office of the Jiaxing Municipal People’s Government on Issuing the Implementation Plan for Promoting the High-Quality Development of the Low-Altitude Economy in Jiaxing (2024–2027)
To the People’s Governments of all counties (cities, districts), and all departments and directly affiliated units of the Municipal Government:
The “Implementation Plan for Promoting the High-Quality Development of the Low-Altitude Economy in Jiaxing (2024–2027)” has been reviewed and approved at the 51st Executive Meeting of the 9th Municipal People’s Government. It is hereby issued to you for earnest implementation in accordance with local conditions.
Office of the Jiaxing Municipal People’s Government
September 6, 2024
(This document is publicly released)
Implementation Plan for Promoting the High-Quality Development of the Low-Altitude Economy in Jiaxing City
(2024–2027)
To promote the high-quality development of the low-altitude economy in our city, this plan is formulated in accordance with the spirit of the Central Economic Work Conference and the relevant work arrangements of the provincial government, and in light of the actual conditions of our city.
I. General Requirements
Guided by Xi Jinping Thought on Socialism with Chinese Characteristics for a New Era, we will fully implement the spirit of the 20th National Congress of the Communist Party of China. Focusing on the development of new-quality productive forces, we will seize the strategic window of opportunity presented by intensive innovation and rapid growth in the low-altitude economy sector to promote its high-quality development. We aim to establish a “3+2+2+X” overall development framework, build Jiaxing into a hub for low-altitude economic development in the Yangtze River Delta region, and provide strong support for establishing Jiaxing as a key central city within the Yangtze River Delta urban agglomeration.
(1) Deploy the construction of the “Three Networks.” We will advance the infrastructure network, air route network, and flight service network in a phased and tiered manner. By 2027, we aim to construct more than 150 takeoff and landing sites for various types of low-altitude aircraft, commence construction of the Pinghu General Aviation Airport, open more than 100 low-altitude air routes, and establish a unified city-wide public service platform for low-altitude flight and management, thereby achieving basic full coverage of the “Three Networks” across the city.
(2) Establish two low-altitude industrial clusters. Launch initiatives to strengthen and extend industrial chains, intensify efforts to attract leading enterprises, and foster high-quality, promising companies. By 2027, prioritize the development of low-altitude industrial clusters in Pinghu City and Haining City. Attract a group of leading enterprises, key-link enterprises, and chain-related enterprises in the low-altitude economy across the city, striving to expand the scale of the low-altitude economy beyond 2 billion yuan and generate a clustering effect.
(3) Advance the development of two low-altitude pilot projects. Make every effort to secure designation as a national pilot demonstration for low-altitude economic development, and encourage all counties (cities and districts) to undertake provincial-level pilot initiatives, prioritizing the establishment of two low-altitude application scenario demonstrations in Nanhu District and Haining City. By 2027, strive to be included in provincial-level pilot programs related to low-altitude (aviation equipment) industrial development and low-altitude economic application scenarios, thereby generating a set of replicable and scalable pilot experiences.
(4) Expand Diverse Low-Altitude Application Scenarios. Focusing on public services, logistics and transportation, and cultural, sports, and tourism sectors, vigorously promote low-altitude applications. Prioritize the development of application brands such as “Low-Altitude + Public Services,” “Low-Altitude + Medical Rescue,” and “Low-Altitude + Logistics Delivery,” while accelerating the exploration of new business models like “Low-Altitude + Passenger Transport.” By 2027, the city’s annual low-altitude flight volume will exceed 450,000 hours.
II. Work Tasks
(I) Plan Low-Altitude Infrastructure with Moderate Foresight.
1. Establish a low-altitude infrastructure network. Conduct planning studies on new low-altitude infrastructure and build a tiered and categorized low-altitude infrastructure system. Commence construction of the Pinghu General Aviation Airport and plan for general aviation airports in Haining, Tongxiang, Haiyan, and Nanhu. Construct various low-altitude aircraft landing sites (points) and test sites in phases to form a network of landing points that accommodates multiple scenarios, stakeholders, and levels, as well as both manned and unmanned aircraft.By 2027, complete the construction of more than 150 takeoff and landing sites for various types of low-altitude aircraft (including at least 15 public drone landing sites) and at least two test flight sites.(Responsible Units: Municipal Transportation Bureau, Municipal Development and Reform Commission, Municipal Bureau of Natural Resources and Planning, Municipal Ecology and Environment Bureau, Municipal Construction Bureau, Municipal Industrial Group, Jiacheng Group, Jiatong Group, Municipal Railway Investment Group, China Tower Jiaxing Branch, and relevant county [city, district] governments. The unit listed first is the lead unit; the same applies below.)
2. Improve the low-altitude air route network. Conduct citywide planning and research on low-altitude airspace and air routes. Based on airspace allocation, coordinate the utilization of citywide low-altitude airspace resources. In accordance with routine flight requirements, establish a network of air routes for manned and unmanned aircraft, and accelerate the formation of a low-altitude air route network serving urban, rural, and inter-city areas. By 2027, open more than 100 low-altitude air routes of various types.(Responsible Units: Municipal Transportation Bureau, Municipal Public Security Bureau, Municipal National Defense Mobilization Office)
3. Establish a low-altitude flight service network. Accelerate the construction of flight service stations and build a unified city-wide public service platform for low-altitude flight and management. Ensure interoperability with provincial-level platforms to facilitate functions such as low-altitude flight approvals, support services, and supervision and management.Strengthen oversight throughout the entire operational process and ensure low-altitude flight safety. Integrate technologies such as 5G/6G, BeiDou, and satellite internet; deploy smart base station networks and satellite internet facilities; promote the sharing of flight service data—including communications, surveillance, meteorological, and intelligence information; and increase the reuse of infrastructure resources such as communication towers.(Responsible Units: Municipal Transportation Bureau, Municipal Development and Reform Commission, Municipal Economy and Information Technology Bureau, Municipal Public Security Bureau, Municipal Emergency Management Bureau, Municipal Data Bureau, Municipal Meteorological Bureau, China Tower Jiaxing Branch)
(2) Cultivate and Improve the Low-Altitude Economy Industrial System.
4. Implement the Low-Altitude Industry Chain Supplementation and Strengthening Initiative. Support the development of the manufacturing sector for complete low-altitude aircraft and key components, improve related supporting industries, and accelerate the formation of a low-altitude industrial chain integrating R&D, manufacturing, final assembly, and testing. Support relevant enterprises in cooperating with foreign component manufacturers to establish domestic production lines, gradually build a complete domestic industrial chain, and enhance the resilience of the industrial chain. Compile a list of enterprises in the low-altitude economy industrial chain and clarify the key development directions for the city’s low-altitude economy industry.(Responsible Units: Municipal Bureau of Economy and Information Technology, Municipal Development and Reform Commission, Municipal Bureau of Commerce)
5. Intensify efforts to attract and nurture low-altitude enterprises. Strengthen engagement with key domestic and international enterprises, conduct full-industry-chain investment promotion globally, and prioritize attracting a group of leading enterprises with significant influence. Support high-quality, high-potential enterprises in expanding and strengthening their operations, and accelerate the cultivation of specialized, refined, distinctive, and innovative “Little Giant” enterprises in general aviation and drones, as well as manufacturing “Single Champion” enterprises with independent intellectual property rights. By 2027, cultivate at least four specialized, refined, distinctive, and innovative “Little Giant” enterprises.Guide and integrate the resources of operational enterprises across the city to foster market-oriented operational entities, and accelerate the introduction and cultivation of a group of supporting service enterprises in areas such as testing, training, maintenance, and leasing. (Responsible Units: Municipal Bureau of Commerce, Municipal Development and Reform Commission, Municipal Bureau of Economy and Information Technology, Municipal State-owned Assets Supervision and Administration Commission)
6. Build low-altitude industry clusters. Leveraging existing conditions for low-altitude economic development, intensify efforts to build industry clusters and accelerate the formation of industrial agglomeration effects. Pinghu City will focus on new aircraft sectors such as eVTOLs and new energy general aviation aircraft, conducting test flights and integrated R&D, while actively expanding related supporting industries such as low-altitude equipment manufacturing and operational services. Haining City will focus on the development of low-altitude flight control and air traffic management systems, incubating R&D and operational enterprises.Nanhu District will concentrate on the development of industrial-grade drones and airborne systems, as well as industry-specific application systems; it will innovatively develop integrated road-air operation management services and foster low-altitude safety and key component supporting enterprises. Xiuzhou District will focus on training operations for flight, cabin crew, and maintenance at COMAC, and strengthen customer service support capabilities for domestically produced commercial aircraft. (Responsible Units: Municipal Bureau of Economy and Information Technology, Municipal Development and Reform Commission, Municipal Bureau of Commerce; relevant county [city, district] governments)
(3) Continuously strengthen innovation support for the low-altitude aviation industry.
7. Cultivate high-level innovation platforms. Strengthen research and innovation platforms such as the Zhejiang Tsinghua Yangtze River Delta Research Institute, the Nanhu District Road-Air Coordination Three-Dimensional Transportation Industry Research Institute, the Beijing Institute of Technology Yangtze River Delta Research Institute, and the Haining Yangtze River Delta Aerospace Propulsion Research Institute, and support equipment development and technological breakthroughs. Accelerate the recruitment and construction of a batch of innovation platforms for basic and applied research in the low-altitude sector. By 2027, the city will have more than 15 innovation platforms and enterprise technology centers in the low-altitude sector.(Responsible Units: Municipal Science and Technology Bureau, Municipal Development and Reform Commission, Municipal Economy and Information Technology Bureau)
8. Conduct technological breakthroughs in key areas. Based on the low-altitude industry’s foundation and application needs, accelerate the upgrading of key technologies in areas such as complete aircraft systems, basic software, and low-altitude services.Implement a series of research and development projects, including the development of flying cars and eVTOLs, the research and development of vibration-damping and thermal insulation materials for aerospace applications, the establishment of a three-dimensional transportation operation system, the design of high-security communication systems, and chip integration design, while accelerating the commercialization of scientific and technological achievements. By 2027, the cumulative number of scientific and technological R&D projects implemented in the low-altitude sector will be no fewer than 20. (Responsible Units: Municipal Science and Technology Bureau, Municipal Development and Reform Commission, Municipal Bureau of Economy and Information Technology)
9. Strengthen the Cultivation of Innovative Talent. Enhance policy support for talent, recruit high-end and in-demand talent in the low-altitude sector, and attract a number of major scientific and technological innovation teams. By 2027, a cumulative total of at least 5 leading talents in the low-altitude sector will have been recruited. Support vocational colleges such as Jiaxing Vocational and Technical College in establishing low-altitude-related majors, and increase efforts to cultivate specialized and skilled talent. Encourage enterprises and universities to engage in industry-academia-research cooperation and exchange, jointly build talent training and practical training bases, and broaden talent cultivation channels.(Responsible Units: Municipal Human Resources and Social Security Bureau, Municipal Bureau of Economy and Information Technology, Municipal Education Bureau, Municipal Science and Technology Bureau)
(IV) Demonstrate Integrated Low-Altitude Application Scenarios.
10. Expand public service application scenarios. Support the deployment of UAV public service applications in sectors such as transportation, water conservancy, natural resources and planning, maritime affairs, and power through measures such as purchasing services. Promote “low-altitude + urban governance” application scenarios in urban management and law enforcement, urban traffic congestion mitigation, firefighting, and maritime traffic supervision. Support the use of UAVs and helicopters in emergency rescue and medical treatment, build an aviation emergency rescue network, establish “aerial emergency corridors,” and achieve a 30-minute rapid response for emergency rescue.(Responsible Units: Municipal Transportation Bureau, Municipal Public Security Bureau, Municipal Bureau of Natural Resources and Planning, Municipal Water Resources Bureau, Municipal Health Commission, Municipal Emergency Management Bureau, Municipal Comprehensive Law Enforcement Bureau, Jiaxing Maritime Safety Administration, State Grid Jiaxing Power Supply Company, Municipal Fire and Rescue Bureau, China Tower Jiaxing Branch)
11. Develop drone logistics applications. With the central urban area as the core, explore and promote drone logistics applications to gradually form a tiered low-altitude logistics delivery network. Strengthen cooperation between express delivery, e-commerce, and logistics companies and drone operators, and support the implementation of drone last-mile delivery in future communities, industrial parks, educational institutions, and parks.Prioritize the large-scale development of drone-based e-commerce logistics and build a drone e-commerce logistics brand centered on the Jiaxing Aerotropolis. Promote the integrated development of the drone industry with the construction of a world-class port, and explore the application of drones in sea-river intermodal transport. (Responsible Units: Municipal Transportation Bureau, Municipal Development and Reform Commission, Municipal Commerce Bureau, Jiaxing Maritime Safety Administration, Municipal Postal Administration)
12. Develop new consumption models in low-altitude culture, sports, and tourism. Tap into distinctive tourism resources to explore unique low-altitude projects—such as aerial sightseeing, tidal wave viewing, aviation sports, aviation training, and aviation exhibitions—in areas including the Jiaxing Canal, Wuzhen, Fengqiao, Yangguan, and Xindai. This will create new commercial consumption scenarios and establish a new “low-altitude + culture, sports, and tourism” business model.By 2027, establish at least 5 flight camps and launch at least 8 premium low-altitude tourism routes. (Responsible Units: Municipal Bureau of Culture, Radio, Television, and Tourism; Municipal Bureau of Commerce; Municipal Sports Bureau)
13. Actively explore potential application scenarios. Continue to identify low-altitude service application scenarios across various industries. Encourage the use of manned aircraft such as eVTOLs to explore and expand new urban transportation models, including urban-intercity flights, aerial shuttle services, connecting flights, and business travel. Explore cross-regional development of the low-altitude economy in the Yangtze River Delta, jointly promote the construction of low-altitude air route networks, and conduct pilot studies on low-altitude flight application scenarios between Shanghai and Jiaxing.(Responsible Units: Municipal Transportation Bureau, Municipal Development and Reform Commission, Municipal Commerce Bureau)
(5) Accelerate efforts to establish pilot programs in the low-altitude sector.
14. Strive to establish pilot programs in the low-altitude sector. Actively apply to establish national-level pilot programs related to urban air traffic management and other areas to promote innovative breakthroughs in low-altitude airspace management and drive the development of the low-altitude economy industry. Seek support from the National Development and Reform Commission, the Civil Aviation Administration of China, and other relevant ministries and commissions to ensure that our city’s key low-altitude projects are incorporated into national planning.Establish county-level pilot demonstrations. Encourage all counties (cities, districts) to apply for provincial-level low-altitude economy pilot demonstrations, and accelerate the formation of a set of replicable, scalable, and referenceable practices and development models in areas such as low-altitude manufacturing and low-altitude applications. (Responsible Units: Municipal Transportation Bureau, Municipal Development and Reform Commission, Municipal Bureau of Economy and Information Technology; Governments of all counties [cities, districts])
(6) Enhance Urban Air Traffic Support Capabilities.
15. Explore and study low-altitude operation rules and standards. Strengthen research on rules regarding route management, flight access, and operational support, and actively participate in the formulation of provincial-level and higher standards and specifications related to the low-altitude economy. Support enterprises, universities, and research institutes in participating in the formulation and revision of relevant national, industry, local, and association standards, and strengthen the application and promotion of industrial standards for the low-altitude economy.(Responsible Units: Municipal Transportation Bureau, Municipal Development and Reform Commission, Municipal Bureau of Economy and Information Technology, Municipal Public Security Bureau, Municipal Justice Bureau, Municipal Market Regulation Bureau, Municipal National Mobilization Office)
16. Strengthen Safety Safeguards for Low-Altitude Operations. Implement safety supervision responsibilities by establishing a specialized module within the low-altitude flight and management public service platform that integrates safety supervision, early warning, and response functions, thereby improving the public safety supervision mechanism for low-altitude operations. Support Haining City in developing a model for the safety infrastructure of low-altitude economy cities. Strengthen defensive and countermeasures, crack down on various illegal flight activities in accordance with the law, and establish emergency management and response plans for unmanned aircraft flight safety, incorporating them into the emergency management system for public safety incidents.(Responsible Units: Municipal Public Security Bureau, Municipal Transportation Bureau, Municipal Emergency Management Bureau, Municipal Data Bureau, Haining Municipal Government)
III. Support Measures
Under the overall coordination of the Municipal Leading Group for Building a Strong Transportation City, and led by the Municipal Transportation Bureau and the Municipal Development and Reform Commission, a dedicated task force will be formed in collaboration with the governments of all counties (cities, districts) and relevant municipal departments. Responsibilities will be clearly defined to advance the cultivation of the low-altitude economy industry, infrastructure construction, and the development of application scenarios in our city. Strengthen tripartite coordination among military, government, and civilian sectors, establish a “military-government-civilian” collaborative management mechanism for low-altitude airspace, and effectively promote the implementation of all tasks.We will fully leverage national and provincial policies supporting low-altitude economic development, accelerate the research and formulation of our city’s supporting policies, and strengthen the provision of essential resources such as fiscal funding, financial support, talent, land, and scientific and technological innovation.
