The Politburo's Conclusion 99-KL/TW, issued on September 28, identifies low-altitude airspace as a national resource, a new space for economic development, and a special domain of national sovereignty. The policy seeks to develop strategic technologies while strengthening governance, national defense, security, and safety.

The move marks a shift from viewing low-altitude airspace primarily as an area for managing aircraft and flight activities toward developing an economic ecosystem covering aviation technologies, unmanned aerial vehicles (UAVs), data, infrastructure, and related services.

By 2030, Vietnam aims to have three national-level flight testing zones in operation across different geographical conditions, as well as at least one national research and testing center for UAVs.

By 2045, the low-altitude economy is expected to become an important economic and technical sector, with strong regional competitiveness and a contribution of about 1.5% of GDP. Vietnam also aims to raise the domestic content ratio of key UAV models used in production to more than 30-40% by 2030 and above 85% by 2045.

The Ministry of Science and Technology (MoST) said the targets go beyond expanding the market for UAV applications. They are intended to support technological self-reliance, build domestic industrial capacity, and gradually establish local supply chains.

The policy also links the development of low-altitude airspace with national capabilities in technology, critical infrastructure, and strategic data, creating opportunities for domestic companies to participate more deeply in emerging technology value chains.

State to lead early market development

The government will play a leading role in establishing the initial market through public procurement, pilot programs and the use of UAVs in public-sector applications, while encouraging companies, research institutes and universities to participate in research, development, manufacturing and commercialization.

Under the policy framework, the state will focus on developing legislation and governance systems, technical standards, essential infrastructure and an initial market. Businesses will serve as the main force in research, development, manufacturing, and commercialization of products and services.

Low-altitude airspace is expected to support a wide range of applications, with priority given to logistics, agriculture, natural-resource management, environmental protection, infrastructure monitoring, disaster prevention, search and rescue, emergency medical services and smart cities.

Creating an initial public-sector market could give domestic UAV companies an opportunity to develop technologies, improve production capabilities, and reduce costs before expanding into broader commercial markets.

The policy also calls for stronger coordination between central and local authorities, defense and security forces, and other relevant bodies to ensure unified and effective management of low-altitude activities.

Balance innovation with risk management

For an emerging technology sector, waiting until regulations are fully developed before allowing new applications could cause Vietnam to miss development opportunities, MoST noted. But opening the market too quickly without adequate safeguards could create risks involving safety, national defence, security, data and people's lawful rights and interests.

Conclusion 99 therefore calls for a unified and modern national governance model based on data, digital platforms, and risk management.

Activities in low-altitude airspace are to be managed according to operating areas, altitude levels, types of activity and risk levels. Management is also expected to cover the full operational cycle, from registration and identification to licensing, operation, monitoring, inspection, and enforcement.

The policy also calls for controlled testing, or sandbox mechanisms, for new technologies, products, services, and business models. Such programs would need clearly defined operating boundaries, time limits, evaluation criteria, monitoring mechanisms, and conditions for termination or expansion. The approach is designed to create room for innovation while maintaining national sovereignty, defense, security, and safety.

A sandbox, in this context, does not mean weaker regulation. Instead, it allows new technologies and business models to be tested within defined parameters and for a limited period. Authorities can then assess their effectiveness, identify risks, and refine regulations before considering wider deployment, the ministry noted.

The policy also calls for Vietnam to develop national technical standards and regulations, strengthen testing, inspection and certification capacity and gradually participate in international mechanisms and initiatives related to low-altitude airspace governance.

According to the MoST, Vietnam's low-altitude economy is forecast to record an annual growth rate of 13% to reach $500 million by 2035.