Discussion on civil aviation management in the development of low-altitude economy
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As an important track of strategic emerging industries, the low-altitude economy has begun to "accelerate its take-off". Nearly 30 provinces (autonomous regions and municipalities) across the country have written the low-altitude economy into the 2024 "Government Work Report". The development of the low-altitude economy is closely related to civil aviation. Recently, the first ICAO Advanced Air Traffic Conference was held in Montreal on September 9, incorporating low-altitude aircraft into the global aviation system. (hereinafter referred to as the "Conference") As the competent department of national civil aviation affairs, civil aviation has an unshirkable responsibility to promote the development of the low-altitude economy. It is of great practical significance to formulate systematic laws and regulations and scientific policies to provide legal protection for the low-altitude economy and point out the direction of development. This article discusses the management of civil aviation in the development of the low-altitude economy.
1. Civil aviation's systematic laws and regulations and scientific policies play a mainstay role
This "Conference" pointed out that when we develop advanced air traffic systems, the standard for measuring our success lies not only in technological progress, but also in our ability to create a truly global integrated advanced transportation ecosystem.
1. Formulate systematic regulations to safeguard the development of low-altitude economy
Formulating systematic regulations is an important part of the low-altitude economy ecosystem, and the focus here is "systematization". Since the low-altitude economy is not a simple industry, but a new industry characterized by an industrial chain, it is not only cross-industry, but also involves multiple fields. Although civil aviation has formulated some regulations and laws for the low-altitude economy, there is still a certain distance from the needs of the development of the low-altitude economy. We need to stand at the strategic height of the development of the low-altitude economy to shape the future. On the basis of existing laws and regulations, we will further improve the systematization of low-altitude economic regulations, ensure the connection and coordination between various regulations, and safeguard the development of the low-altitude economy.
① Formulate systematic regulations for airworthiness certification. Safety is the cornerstone and premise of the development of the low-altitude economy. Without safety, there is nothing in the low-altitude economy. Aircraft is the source of low-altitude economic safety, and airworthiness certification regulations are the first line of defense to ensure safety. At present, the civil aviation management department has formulated some airworthiness certification regulations for aircraft, including airworthiness certification for traditional manned aircraft and drones, and has also formulated and improved relevant technical specifications and standards. However, as an emerging field, the rapid development of low-altitude economy has put forward higher requirements for the regulatory system of civil aviation airworthiness certification, especially the characteristics of low-altitude flight activities determine that its safety risks are relatively high. At present, the safety supervision system for low-altitude flight is not perfect enough. There are differences in the division standards of low-altitude airspace in different regions and departments, resulting in unclear airspace use rights, lack of unified and clear safety standards and specifications, and increased The risk of flight conflicts. In addition, there are differences in laws and regulations on low-altitude management, and the lack of national unified standards makes it difficult to coordinate cross-regional low-altitude flight activities. The real-time monitoring means of low-altitude flight activities are relatively backward and the risk warning capabilities are insufficient. This also brings great difficulties and risks to the management of civil aviation. It is necessary to speed up the formulation and improvement of relevant standards and norms systems to improve the safety supervision capabilities and levels.
② Formulate systematic regulations on air traffic rules and route management. The rational allocation and efficient use of airspace resources are the key to the development of low-altitude economy. Civil aviation conducts scientific and reasonable airspace planning based on the distribution of national airspace resources and the needs of low-altitude economic development. Through planning, the scope of use, restrictions, flight time and altitude of low-altitude airspace can be clarified. For example, low-altitude airspace can be divided into controlled airspace, monitored airspace, and reported airspace, and corresponding management measures and flight rules can be formulated according to different types of airspace. Provide clear regulations for low-altitude flights to ensure the safety of low-altitude flights. However, as far as the current low-altitude airspace management mechanism is concerned, it still uses traditional general aviation management ideas and methods, which cannot meet the needs of innovative development of the low-altitude economy. Especially driven by dataization and artificial intelligence, new technologies and new business forms in the low-altitude economy continue to emerge, and various aircraft emerge in an endless stream. The existing air traffic rules and route management regulations cannot adapt to these changes in a timely manner. We need to keep pace with the times and formulate systematic regulations to keep up with the pace of development of the low-altitude economy.
③ Formulate relevant regulations and standards for the construction of systematic low-altitude economic infrastructure. The construction of low-altitude economic infrastructure is the foundation of safety protection. We need to formulate systematic regulations and standards for the construction of low-altitude economic infrastructure from the overall perspective of the development of low-altitude economy. These regulations and standards are not only for general airports in the current civil aviation system, but also for technical standards and safety requirements for infrastructure such as temporary take-off and landing points, while ensuring that the quality of facilities is reliable and the operation is safe. It should be pointed out that due to the great differences in the landing points of low-altitude economic aircraft, involving information functions, data sharing and data management, etc., this regulation needs to be more meticulous and rigorous when it is formulated. For example, the take-off and landing locations of eVTOL are not necessarily at airports. Some are on the top of high-rise buildings, some are on the ground, etc., which require perfect construction and operation standards to ensure that the aircraft has sufficient protection and support when taking off and landing at low altitudes.
④ Formulate a systematic low-altitude service guarantee regulatory system. The core of the low-altitude economy is at low altitude, and the low-altitude service guarantee regulatory system is an important support and guarantee for the development of the low-altitude economy. In this regard, civil aviation is not only a manager of the low-altitude economy but also a service provider. From the perspective of civil aviation itself, by formulating a low-altitude service guarantee regulatory system, the service process can be optimized. For example, simplifying the approval procedures, improving the approval efficiency, providing "one-stop" services, etc., to improve the convenience and timeliness of low-altitude services. In addition, to ensure the important role of the low-altitude service guarantee system in promoting the development of the low-altitude economy, the civil aviation management department, as the provider of regulations, should take the initiative to work with local governments to jointly promote the formulation of a low-altitude service guarantee system based on local actual conditions, so that the issued low-altitude service guarantee system is in line with the actual situation and can indicate the development goals, paths and measures for the local low-altitude economy. For example, Shenzhen took the lead in issuing the country's first local regulation in the field of low-altitude economy, the "Regulations on the Promotion of Low-altitude Economic Industry in Shenzhen Special Economic Zone", which is the result of close cooperation between civil aviation and local governments.
2. Formulate scientific policies to guide the development of low-altitude economic industries
Scientific policies reflect the transformation of the concepts and modes of low-altitude and urban transportation, including fundamental rethinking in the fields of airspace use, aircraft design and air traffic management, and move towards a more flexible, sustainable and comprehensive low-altitude transportation system.
① Improve the cognitive height of formulating scientific policies. The cognitive height of policy formulation determines the success or failure of policy orientation. The height of cognition requires us not to indulge in the past, but to break through the original vision of sticking to the industry, and to recognize the importance of formulating scientific policies from the perspective of the overall situation and development strategy of the low-altitude economy. Emphasizing this point is not to elevate ourselves, nor is it to exceed our authority, but it is the objective law of the development of the low-altitude economy that requires civil aviation management. Therefore, when formulating policies, we must stand at the height of the overall situation of the low-altitude economy. From the perspective of time, we must see the current situation and be forward-looking; from the perspective of space, we must consider the horizontal and vertical relationships, and take care of the different needs of all parties from multiple dimensions to avoid one-sidedness and short-sighted behavior. Ensure that the policy has broad social recognition and feasibility, and guide the direction for the development of the low-altitude economy.
② The leadership of scientific policies. The leadership of civil aviation policies in the development of the low-altitude economy is very prominent. We need to be more cautious and rigorous when formulating, and should focus on the key points of promoting the development of the low-altitude economy. On the one hand, detailed development goals and paths should be set for the low-altitude economy. These development goals cover a clear roadmap in many aspects such as infrastructure construction, technological innovation, and market scale expansion. On the other hand, clarify market access policies, technological innovations and standards. At the same time, it provides guidance for cultivation and market expansion, as well as industrial integration and coordinated development. In addition, the focus of optimizing the development environment of low-altitude economy should be reflected in "helping", and various policy orientations should be clearly visible, including simplifying the approval process, reducing the operating costs of low-altitude economic enterprises, various incentive measures, etc., so that all links in the low-altitude economic industry chain can see the policy orientation at a glance, which can not only promote the development of low-altitude economic enterprises themselves, but also attract more enterprises and capital to enter the low-altitude economic field and promote the development of low-altitude economy.
③ The operability of scientific policies. The operability of scientific policies is its iconic feature. First, the policy goals are clear. Scientific policies should have clear goals and directions, so that the implementers know clearly what effects need to be achieved. This is a prerequisite for the operability of scientific policies. For example, the "Implementation Plan for Innovation and Application of General Aviation Equipment (2024-2030)" sets clear development goals and phased tasks for the low-altitude economy, and provides local governments and enterprises with a clear development direction for the direction and goals of low-altitude airspace management, improve the efficiency of airspace resource utilization, and ensure flight safety. Second, clarify specific implementation measures and steps to reduce ambiguity and uncertainty in the implementation process. For example, in recent years, the Civil Aviation Administration has made significant progress in promoting the low-altitude flight service guarantee system, including the basic completion of the three-level guarantee system of the national information system, regional information system, and flight service station. This policy not only improves the safety and efficiency of low-altitude flight, but also provides a basis for the realization of "one-stop" approval, and provides strong support for the development of the low-altitude economy.
II. Challenges of the development of low-altitude economy to civil aviation management
Since the low-altitude economy is the product of information technology, big data and artificial intelligence, it is a new industry that integrates multiple fields and cross-industry industries. The implementation of scientific management by civil aviation is an unprecedented huge challenge in terms of management concepts and management methods.
1. The cross-field and cross-industry challenges of the low-altitude economy to civil aviation management. The new industrial chain of low-altitude economy involves various fields. From the perspective of the carrier aircraft of low-altitude economy, materials, information technology, and manufacturing technology; from the perspective of fields, it involves government, civil aviation, air force, enterprises, etc. These cross-fields and cross-industries increase the complexity of airspace management and bring many challenges to civil aviation management. One of them is how to coordinate and manage the low-altitude economic policies issued by local governments. For example, the recently released "Guiding Opinions on Shanghai's Information and Communication Industry Accelerating the Construction of Low-altitude Intelligent Network to Assist the Development of the City's Low-altitude Economy" clearly states that the Municipal Economic and Information Commission will take the lead and closely cooperate with the Municipal Transportation Commission, Municipal Public Security Bureau, Civil Aviation East China Bureau, Air Force Shanghai Base and other units to establish a military-civilian-local coordination mechanism, set up a specific working group, accelerate system planning, overall promotion, etc. This requires civil aviation to learn the art of coordination of cross-domain and cross-industry management.
2. The multi-level economic activities of low-altitude economy challenge civil aviation management. Low-altitude airspace is the place for the survival and development of low-altitude economy. From the ground to the air, the air and the ground form a multi-level three-dimensional economic operation, which is a world of difference from traditional civil aviation management. It is an unprecedented new topic for civil aviation management. On the one hand, the difficulty of airspace resource management has increased. Low-altitude airspace involves multiple fields such as military aviation, civil aviation, and general aviation, and the difficulty of coordinating airspace division and use rights has increased. In particular, with the increasing number and types of low-altitude aircraft, low-altitude airspace resources have become increasingly tight. How to reasonably plan and utilize limited airspace resources to avoid flight conflicts is a very serious challenge for civil aviation management. On the other hand, due to the flexibility and diversity of low-altitude economic activities, different types of low-altitude aircraft have different performance characteristics, requiring civil aviation management to have higher dynamic management capabilities to adapt to the real-time flight needs of different aircraft. In addition, the flexibility of low-altitude economic activities requires civil aviation management to be able to respond quickly to various emergencies and changes, which is an even more severe challenge to the dynamic management of low-altitude economy.
3. The diversity of low-altitude economic operation methods poses challenges to civil aviation management. Low-altitude economy is an emerging industry that integrates aircraft and various industrial forms into a variety of emerging industries. This diversity of operation methods, first of all, is the diversity of cross-field operation methods, such as "agriculture and forestry + aviation", "tourism + aviation", "passenger and cargo + aviation", "sports + aviation" and other integration models, requiring civil aviation management to have cross-field diversified management methods and regulatory means, which is a great challenge to civil aviation management. Another is the regional differences. The development of the low-altitude economy is different from the previous industrial development. It is based on small aircraft, short routes, small enterprises, etc., with the characteristics of narrow region, small scale, and close correlation between local environmental conditions and economic development. The differences between different regions are very obvious. These diverse economic methods and regional differences are indeed a great challenge to civil aviation management.
4. The challenges of supervision and technology to civil aviation management. Dataization and intelligence are the main themes of the contemporary era. At the regulatory level, with the increasing degree of dataization and intelligence of the low-altitude economy, civil aviation management departments are also required to have dataization and intelligence capabilities. In terms of the dataization of the low-altitude economy, regulatory information cannot be effectively shared and coordinated, forming data islands, and data sharing has become a barrier to management. This not only increases the difficulty of the work of civil aviation regulatory management departments, but also reduces regulatory efficiency. How to solve this problem has to be said to be a difficult problem for civil aviation to overcome. Technically, due to the rapid growth in the number of drone registrations in recent years, traditional regulatory means have been unable to meet actual needs, and the speed of technological updates cannot match the speed of low-altitude economic development, resulting in the difficulty of real-time tracking, monitoring and early warning of low-altitude aircraft in regulatory technology, forming regulatory gaps and loopholes, which is undoubtedly a severe challenge to civil aviation management. Therefore, it is imperative to accelerate the construction of intelligent management.
III. Discussion on civil aviation management under the conditions of low-altitude economic development
With the development of low-altitude economy, the demand for the use of low-altitude airspace has increased significantly. The traditional airspace management model is difficult to meet this change, and civil aviation needs to change its management concept to adapt to the development of low-altitude economy.
1. Civil aviation's management concept of low-altitude economy needs to change from management to service low-altitude economy
The change of concept is a revolution. Civil aviation's management of low-altitude economy will shift its focus from management to service, which is not only to adapt to the rapid development and diversification of low-altitude economy, but also a revolutionary change in civil aviation management concept. First, change from single supervision to comprehensive service. Traditional civil aviation management often focuses on single supervision of aviation activities, while the development of low-altitude economy requires civil aviation management to change to comprehensive service. This includes providing services such as flight plan approval, airspace use coordination, flight safety supervision, etc. to ensure the smoothness and safety of low-altitude flights. Secondly, shift from simply formulating laws and policies to focusing on user needs and service experience. Civil aviation needs to keep pace with the times, shift from management to service, and improve user satisfaction and trust in low-altitude flights by optimizing service processes, improving service efficiency, and reducing service costs. Focus on user needs and service experience. The Civil Aviation Administration recently issued a new policy on low-altitude economy, emphasizing that airspace reform and key technologies of synaesthesia integration will lead the industry upgrade. It will abandon the original method of simply dividing reporting airspace, surveillance airspace and visual routes in the existing airspace structure, and instead adopt a new management model based on airspace classification, committed to comprehensively optimizing the use efficiency and utilization rate of low-altitude airspace resources, and greatly expanding the airspace area available for low-altitude flight activities to meet the actual needs of my country's vigorous development of low-altitude economy.
2. Civil aviation accelerates the use of data and intelligence to improve the management level of low-altitude economy
Data and intelligence are the engines that promote the development of low-altitude economy. Civil aviation should keep up with the requirements of the times in data and intelligent management. First, build a digital platform for low-altitude economic management. The core of building a digital platform is to realize the data management ecosystem. Through the digital platform, the low-altitude economic operation data is collected, and the various data in the enterprise operation process are analyzed in real time, and the data is used to speak and supervise, so as to improve management efficiency. Secondly, use intelligence to implement management. Establishing a data platform is only the first step for civil aviation to manage the low-altitude economy, and the implementation of intelligent management is the top priority. The reason for this is that the safety, operation, service, and management of the low-altitude economy ultimately rely on intelligent support and solutions. Civil aviation needs to accelerate the construction of intelligent management and low-altitude intelligent network, and realize the intelligent interconnection of "people, machines, and objects" in low-altitude airspace by integrating low-altitude communication network, low-altitude perception network, low-altitude computing network, etc., and use intelligent feature recognition technology to realize full-area monitoring, real-time tracking, security warning, identification and positioning, countermeasures and other functions in low-altitude airspace to ensure the safe and orderly operation of low-altitude aircraft.
3. Coordination and management have become the main theme of civil aviation low-altitude economic management
The management and coordination of low-altitude economy by civil aviation has become the main theme. This is not only the need for the development of low-altitude economy itself, but also the requirement for civil aviation to improve its management level and high-quality development.
First, optimize resource integration and optimal allocation with coordination as the core. The purpose of civil aviation management is to spare no effort to promote the development of low-altitude economy. Civil aviation management needs to coordinate with all parties, and scientifically and rationally plan, allocate and dynamically adjust airspace resources to meet the needs of different flight activities while ensuring safety, order and efficiency. In addition, through coordination, unnecessary links and processes can be reduced, the collaborative efficiency of each link can be improved, and the overall operating cost can be reduced. Secondly, ensure safety and stability with coordination as the core. Ensuring the safety of low-altitude economy depends not only on laws, regulations and supervision, but more importantly, prevention first. By coordinating all aspects to establish a sound safety management system and supervision mechanism, ensure the safety and reliability of low-altitude flight activities. Through coordinated real-time monitoring, risk assessment, emergency response and other measures, timely discover and eliminate safety hazards and ensure the stable development of low-altitude economy. Thirdly, maximize benefits or interests with coordination as the core. Without benefits, enterprises cannot survive. The development of low-altitude economy has become a castle in the air. The management of civil aviation needs to coordinate the interests of all parties. Including the government, enterprises, consumers, etc. The purpose of coordination is to balance the interests of all parties, ensure that all parties can obtain reasonable returns and benefits in the development of low-altitude economy, achieve maximization of interests and win-win, and promote the development of low-altitude economy.
In summary, the development of low-altitude economy has brought new opportunities and challenges to civil aviation management. Civil aviation management should grasp the pulse of the times, actively respond to challenges, drive development with innovation, take the rule of law as a guarantee, and guide scientific policies to promote the sustainable and healthy development of low-altitude economy and inject new impetus into my country's economic and social development.