The rapid development of the low-altitude economy has expanded the utilization of low-altitude airspace and placed new demands on traditional governance models centered on safety control. Governance of the low-altitude economy relies on both legal regulations and policy instruments

and their configuration has become an important institutional issue affecting governance outcomes. From the perspective of institutional tools

this paper constructs a comparative framework based on the functional differences between policies and regulations and examines governance practices in different countries. The study identifies three main models: policy-driven

regulation-led

and coordinated policy-regulation approaches. These models differ in institutional objectives

governance tools

and implementation outcomes

and show a gradual shift from single instruments to combined governance

with increasing emphasis on both safety control and industrial development. In light of China’s institutional context

governance of the low-altitude economy should maintain policy flexibility while improving the legal framework and establishing a tiered governance structure through risk classification and institutional coordination.