Source: Civil Aviation Administration of China

Release | 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 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 departments should incorporate insurance into the overall planning and institutional framework for the development of the low-altitude economy and promote the improvement of related laws and regulations. They should guide local authorities to fully leverage the functions of insurance—including loss compensation, risk management, and ecological optimization—in the development of the low-altitude economy, and encourage local authorities to integrate insurance into their local low-altitude economic development policy frameworks, while introducing support policies to promote the development of low-altitude insurance tailored to local conditions. (Led by the National Development and Reform Commission, with participation from the National Financial Regulatory Administration and the Civil Aviation Administration of China. The following measures are to be implemented by relevant provincial-level departments and will not be listed separately.)

(2) Incorporate into safety regulatory rules. The relevant industry regulatory authorities shall improve industry regulatory rules and take effective measures to treat insurance as a key means of strengthening safety oversight of application scenarios and improving accident handling systems, thereby promoting the orderly expansion of low-altitude economy application scenarios. (Led by the National Development and Reform Commission, with participation from relevant industry departments)

(3) Encourage the Use of Insurance Mechanisms. 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 collaborate with upstream and downstream enterprises through insurance to reduce risk costs across the industry chain. Support small and medium-sized enterprises in using insurance to enhance their risk mitigation capabilities for innovative 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 full-chain management. For unmanned aerial vehicles (UAVs) required by law to be insured, promote the incorporation of mandatory insurance requirements as a prerequisite in the review process for flight activity approvals and other management procedures; strengthen verification of insurance status in flight operations management; and ensure that “insurance status is verified in every case” during accident response. Research and develop institutional provisions regarding responsible parties, liability determination, and disposal procedures related to mandatory insurance. (Led by the Civil Aviation Administration of China, with participation from relevant departments such as the National Financial Regulatory Administration)

(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 under 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 clauses for unmanned aircraft liability insurance and study and formulate 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 industry chain. Guide insurance companies to proactively adapt to trends in the low-altitude aviation economy and gradually establish a comprehensive system of insurance products 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 the low-altitude sector, including flight safety, technical safety, network and data security, environmental and facility safety, and human operational safety. Increase the supply of insurance for medium- and large-sized unmanned aircraft, while further optimizing and improving the supply of insurance for traditional manned aircraft, to foster a protection system characterized by adequate coverage and efficient service. Actively utilize emerging technologies to gradually achieve convenient, intelligent, and fully online operations for insurance related to micro, light, and small unmanned aerial vehicles. Integrate professional resources, optimize underwriting and claims settlement, and enhance consumer satisfaction. Increase support through export credit insurance, export product liability insurance, and reinsurance to assist the low-altitude industry in expanding its overseas applications. (Led by the National Financial Regulatory Administration)

(7) Targeted Service Application Scenarios. For various 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—provide targeted insurance coverage based on the development stage of each scenario, risk types, and risk management needs, and promote 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) Advance data infrastructure development. Accelerate the construction 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 systems to facilitate the sharing of basic 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 intensify research on new risks associated with low-altitude flight, thereby enhancing their ability to identify and assess insurable risks; improve operational management, gradually build up data resources, and actively apply 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 specialized insurance intermediaries in utilizing their specific 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 General Administration of Financial Regulation and the Civil Aviation Administration of China, will coordinate and advance the implementation of low-altitude insurance. The National Development and Reform Commission will take the lead in establishing a routine liaison mechanism to guide local authorities in implementing relevant requirements, study and resolve key challenges encountered during the promotion of low-altitude insurance, and foster a collaborative effort; 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, from being carried out through the use of insurance. 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 accordance with laws and regulations, strengthen internal control management, expand their business in an orderly manner only after ensuring sufficient capital strength and fully assessing operational risks, and effectively protect the legitimate rights and interests of consumers.

(12) Strengthen Public Awareness and Promotion. Relevant industry regulatory authorities should intensify public education and outreach on low-altitude safety to raise awareness of low-altitude safety precautions. 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 low-altitude 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