Source: Low-Altitude Flight Division
Implementation Opinions of the National Development and Reform Commission, the National Financial Regulatory Administration, and the Civil Aviation Administration of China on Promoting High-Quality Development of Low-Altitude Aviation Insurance
Development and Reform Commission Low-Altitude [2026] No. 123
Development and Reform Commissions of all provinces, autonomous regions, municipalities directly under the central government, cities with separate planning status, and the Xinjiang Production and Construction Corps; all Financial Regulatory Bureaus; and all Regional Civil Aviation Administrations:
Low-altitude insurance is a form of insurance centered on safeguarding low-altitude flight activities, providing risk coverage for the manufacture and operation of low-altitude aircraft, the construction of low-altitude infrastructure, and various specialized services. It plays a significant role in establishing a low-altitude safety management system, laying a solid foundation for the safe development of the low-altitude economy, and promoting the high-quality development of the low-altitude economy. In accordance with the decisions and arrangements of the Central Committee of the Communist Party of China and the State Council, and based on laws and regulations such as the *Insurance Law of the People’s Republic of China*, the *Civil Aviation Law of the People’s Republic of China*, and the *Interim Regulations on the Management of Unmanned Aircraft Operations*, these Implementation Guidelines have been formulated.
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 and all plenary sessions of the 20th Central Committee. We will adhere to systematic planning, key breakthroughs, coordinated advancement, and steady implementation to accelerate the formation of a low-altitude insurance system characterized by broad coverage, robust protection, professional services, and market standardization, thereby better serving the safe and healthy development of the low-altitude economy. By 2027, a mandatory liability insurance system for unmanned aerial vehicles will be preliminarily established, and the range of low-altitude insurance products will continue to expand to better meet the protection needs of various application scenarios; by 2030, the policy framework for low-altitude insurance will be fundamentally in place, and its role in safeguarding the safe and healthy development of the low-altitude economy will continue to strengthen.
II. Improve the Low-Altitude Insurance Policy Framework
(1) Strengthen planning guidance.Relevant authorities should incorporate insurance into the overall planning and institutional framework for the development of the low-altitude economy and work to improve relevant laws and regulations. They should guide local governments to fully leverage the functions of insurance—including loss compensation, risk management, and ecosystem optimization—in the development of the low-altitude economy, and encourage local governments to integrate insurance into their local low-altitude economic development policy frameworks, while introducing support policies tailored to local conditions to promote the development of low-altitude insurance.(Led by the National Development and Reform Commission, with participation from the National Financial Regulatory Administration and the Civil Aviation Administration of China. All of the following measures are to be implemented by relevant provincial-level departments and will not be listed separately.)
(2) Incorporation into safety regulatory rules.The relevant industry regulatory authorities should refine industry oversight rules and take effective measures to utilize insurance as a key tool for strengthening safety oversight of operational scenarios and improving accident handling systems, thereby promoting the orderly expansion of low-altitude economy applications.(Led by the National Development and Reform Commission, with participation from relevant industry departments)
(3) Encourage the use of insurance mechanisms.The relevant industry regulatory authorities should actively promote the alignment of supply and demand and foster an ecosystem for the development of low-altitude aviation insurance. Low-altitude aviation enterprises—particularly manufacturers and operators of low-altitude aircraft—are encouraged to treat the purchase of insurance as an integral part of improving their internal safety management systems. Efforts should be made to encourage leading enterprises in the low-altitude aviation industry chain to use insurance to coordinate with upstream and downstream businesses, thereby reducing risk costs across the industry chain. Support should be provided to small and medium-sized enterprises (SMEs) in utilizing insurance to enhance their risk mitigation capabilities for innovation and development. Entities using micro and light unmanned aerial vehicles for non-commercial flight activities are encouraged to purchase liability insurance.(Led by the National Development and Reform Commission, with participation from the Ministry of Industry and Information Technology and the Civil Aviation Administration of China)
III. Accelerate the Establishment of a Mandatory Liability Insurance System for Unmanned Aerial Vehicles
(4) Strengthen end-to-end management.For unmanned aerial vehicles (UAVs) that are required by law to be insured, efforts should be made to incorporate mandatory insurance requirements as a prerequisite in the review process for flight activity approvals and other administrative procedures; verification of insurance status should be strengthened in flight operations management; and during accident response, insurance status must be verified in every case. Research should be conducted to establish institutional provisions regarding the responsible parties, liability determination, and response procedures related to mandatory insurance.(Led by the Civil Aviation Administration of China, with participation from the National Financial Regulatory Administration and other relevant departments)
(5) Formulate implementation measures.Formulate implementation measures for mandatory liability insurance for unmanned aircraft in accordance with the law; clarify the basic scope of liability and minimum coverage limits based on the principle of controllable risk; and establish and improve a supporting institutional framework for mandatory liability insurance for unmanned aircraft.(Led by the Civil Aviation Administration of China, with participation from the National Development and Reform Commission and the National Financial Regulatory Administration) Issue model provisions for liability insurance for unmanned aircraft and study and develop service guidelines. (Led by the National Financial Regulatory Administration)
IV. Strengthening the Development of the Service Support System
(6) Optimize insurance coverage across the entire industrial chain.Guide insurance companies to proactively adapt to trends in the low-altitude aviation economy and gradually establish a comprehensive insurance product system covering the entire industry chain—including low-altitude R&D and testing, manufacturing, flight operations, and supporting infrastructure. Explore product development and service innovation to address new risks in low-altitude aviation, such as flight safety, technical safety, network and data security, environmental and facility safety, and human operational safety. Expand the supply of insurance for medium- and large-sized unmanned aerial vehicles (UAVs) and further optimize and improve the supply of insurance for traditional manned aircraft to foster a protection system characterized by adequate coverage and efficient service. Actively leveraging emerging technologies, insurers will gradually achieve convenient, intelligent, and fully online operations for insurance related to micro, light, and small unmanned aircraft. By integrating specialized resources and optimizing underwriting and claims settlement processes, they will enhance customer satisfaction. Insurers will also increase support through export credit insurance, export product liability insurance, and reinsurance to facilitate the low-altitude industry’s expansion into overseas markets.(Led by the National Financial Regulatory Administration)
(7) Application scenarios for targeted services.Targeting a wide range of application scenarios—including agricultural and forestry operations, low-altitude inspections, surveying and mapping, low-altitude logistics, low-altitude transportation, urban governance, emergency management, medical rescue, low-altitude tourism, and aviation sports—we provide tailored insurance coverage based on each scenario’s stage of development, risk types, and risk management needs, thereby promoting the improvement of accident response and loss-sharing mechanisms.(The National Development and Reform Commission, the National Financial Regulatory Administration, and the Civil Aviation Administration of China shall be responsible in accordance with their respective duties.)
V. Enhancing the Capacity for Sustainable Insurance Operations
(8) Promote the development of data infrastructure.Accelerate the development of a low-altitude aviation insurance information platform, establish and refine data standards, and support actuarial pricing and risk monitoring. (Led by the National Financial Regulatory Administration) Explore the integration of the low-altitude insurance information platform with the low-altitude intelligent connected system to facilitate the sharing of foundational information—including insurance underwriting and claims data, flight operations data, credit information on operating companies, and records of illegal or non-compliant flight activities—as well as risk information such as geographic, meteorological, and electromagnetic data. Encourage the insurance industry to collaborate with low-altitude aircraft manufacturers and operators on data applications to enhance the level of financial services. Gradually strengthen the data foundation to provide data support for precise insurance underwriting and claims settlement, aircraft flight supervision, risk management, and accident handling.(Led by the National Development and Reform Commission, with participation from the Ministry of Industry and Information Technology, the Ministry of Natural Resources, the National Financial Regulatory Administration, the China Meteorological Administration, and the Civil Aviation Administration of China)
(9) Strengthen professional capacity building.Guide insurance institutions to collaborate with manufacturers and operators of low-altitude aircraft to strengthen research on new risks associated with low-altitude flight, and enhance their ability to identify and assess insurable risks; improve operational management, gradually build up data resources, and actively utilize risk quantification models and risk assessment tools to enhance the scientific rigor of product development and the accuracy of premium rate setting. Support reinsurance institutions in fully leveraging their functions in risk research, actuarial pricing, and risk diversification. Support professional insurance intermediaries in utilizing their specialized expertise to assist with underwriting and claims settlement. Intensify efforts to cultivate professional talent and strengthen the professional capabilities of industry practitioners.(Led by the National Financial Regulatory Administration)
VI. Strengthening Organizational Support
(10) Strengthen overall coordination.The National Development and Reform Commission, in conjunction with the National Financial Regulatory Administration and the Civil Aviation Administration of China, will coordinate the implementation of low-altitude aviation insurance. The National Development and Reform Commission will take the lead in establishing a regular coordination mechanism to guide local authorities in implementing relevant requirements, study and resolve key challenges encountered during the implementation of low-altitude aviation insurance, and foster collaborative efforts; The Civil Aviation Administration of China (CAAC) shall supervise and manage insurance coverage in accordance with the law and take the lead in establishing a mandatory liability insurance system for unmanned aircraft; the National Financial Regulatory Administration shall supervise and manage low-altitude insurance operations in accordance with the law, promote the improvement of insurance business operating rules, strengthen business and capital supervision, and regulate market conduct. Relevant departments shall advance institutional development and ensure the fulfillment of responsibilities in accordance with their respective duties.
(11) Strengthen risk prevention and control.The relevant industry regulatory authorities shall ensure that enterprises fulfill their primary responsibility for risk prevention and control, and strictly prevent illegal and non-compliant activities such as insurance fraud. Relevant departments shall deepen their understanding of insurance principles and promote the development of the insurance industry based on the principle of commercial sustainability. Financial regulatory authorities shall urge insurance companies to operate in compliance with laws and regulations, strengthen internal control management, expand their business in an orderly manner only after ensuring sufficient capital strength and thoroughly assessing operational risks, and effectively protect the legitimate rights and interests of consumers.
(12) Strengthen publicity and promotion.The relevant industry regulatory authorities should strengthen public education and awareness campaigns on low-altitude safety to enhance safety awareness. They should fully leverage the leading role of industry associations and key enterprises in the low-altitude sector to conduct educational training and public outreach on low-altitude insurance, promote the functions and benefits of such insurance, and summarize and disseminate best practices and effective experiences.
National Development and Reform Commission
National Financial Regulatory Administration
Civil Aviation Administration of China
January 28, 2026