The Civil Drone (Promotion & Regulation) Bill, 2025 — Policy Reset or Continuity with Teeth?

The Civil Drone (Promotion and Regulation) Bill, 2025 ('The Bill') is a welcome step in the transition to a dedicated ecosystem of regulations for drones (i.e. Unmanned Aircraft Systems or UAS). Given that The Bill will be followed by various rules that will govern different aspects of manufacturing, owning and operating drones, The Bill naturally dials back on how prescriptive it’s language is in comparison to The Drone Rules, 2021 ('The Rules'). 

However, it leaves way too many aspects to be provided for, by the Central Government at a later date and this may cause a longer time to be taken for the new regime to actually come into effect. Till the rules under The Bill (when enacted) are brought into force, The Rules will continue to be in force, so industry stakeholders will do well to expect transition over the next few years. 

The Bill lays great emphasis on insurance, safety and claims, with Sections 8 to 22 focused on these. Interestingly, Section 22 enables State Governments to make rules for effecting provisions in Sections 12 to 21. These are likely to cause conflicts in cases of accidents which take place across state boundaries. 

Along with safety, penalties are now more detailed and divided into administrative penalties which may be notified through rules, severe criminal offences like violation of airspace restrictions and lesser regulatory offences such as non-registration, etc. A detailed compounding provision is provided for, along with mechanism and timelines.

Below, we analyse provisions of The Drone Rules, 2021 and The Civil Drone (Promotion and Regulation) Bill, 2025 and trace the differences. The first column details provisions from The Rules and The Bill, and the second contains our comments:

Drone Rules, 2021 (‘The Rules’) vs.  Draft Civil Drone Bill, 2025 (‘The Bill’)	Comments
Applicability
The Rules Applies to all persons owning/operating/maintaining UAS in India; all registered UAS in India; and all UAS operated in or over India.  Exempts military UAS and UAS > 500 kg as governed by Aircraft Rules, 1937 (Rule 2). The Bill Applies widely (Indian citizens, foreign citizens, persons involved in exporting/manufacturing, registered UAS globally). Exempts military UAS as well as police force.  UAS having all-up weight above 500 kgs are governed by the Bharatiya Vayuyan Adhiniyam, 2024 (Section 2(3)).	The Bill significantly expands the scope of regulation compared to The Rules by explicitly including citizens (Indian and foreign) and activities covering the entire lifecycle of the drone, such as exporting, importing, designing, developing, manufacturing, and trading.  The Bill exempts UAS used by army, navy, air force and now notably, the central armed police forces of the Union Government (i.e. CRPF, CISF, ITBP, BSF, etc.) while requiring registration by these forces of the UAS with their parent ministries (i.e. the Ministry of Defence and Ministry of Home Affairs).  UAS used by state police departments or any armed forces raised by States will continue to be subject to The Bill.
Definitions
The Rules  Accident defined as any accident associated with operation of UAS where person is fatally/seriously injured or UAS sustains significant damages/goes missing/ is completely inaccessible. (Rule 3(1)(b)) Defines ‘digital sky platform’ as the online platform hosted by the DGCA for UAS activities (Rule 3(1)(g)). The Bill Definition of accident widened to include ‘any damage caused to any property’. Aerodrome has now been defined as an area for use by ‘industry UAS’. ‘Remote pilot station’ and ‘manufacture’ are now additionally defined. (Section 2) Refers to a ‘specified Online Platform’ for publishing the airspace map (Section 28(1)) Introduces specific definitions for ‘Mandatory safety features’ and ‘Mandatory security features’ (Section 6(m) & 6(n)).	Additional and wider definitions are seen in The Bill. It introduces two crucial new concepts: Mandatory safety features and Mandatory security features [6(m), 6(n)], which are central to its Type Certification and operational requirements. The core function of an official online portal remains, shifting terminology from the specific "digital sky platform" of The Rules to a generic "specified Online Platform" in the Bill.
Classification of Drones
The Rules Specifies five classes based on maximum all-up weight: Nano (≤ 250g), Micro (> 250g to ≤ 2kg), Small (> 2kg to ≤ 25kg), Medium (> 25kg to ≤ 150kg), and Large (> 150kg) (Rule 5). The Bill Does not list specific weight classifications in the provided excerpts. Delegates the power to make rules for classification and categorization of UAS to the Central Government (Section 5).	Section 45 of The Bill empowers the Central Government to make rules on various aspects provided. Any changes or new regimes sought to be put in place will become clear when those rules are published for comments after The Bill itself is promulgated.
Type Certification
The Rules Required unless exempted. Issued by DGCA based on recommendation from Quality Council of India or authorized organisation. (Rule 8).  Exempted for manufacturing/ importing and for operating model RPAS and Nano UAS (Rule 13). The Bill Now also required for manufacturing, assembling, sale, transfer unless exempted (Section 7). Required for operation unless exempted (Section 25(1)).  No Type Certificate shall be issued if the UAS is not fitted with Mandatory safety and security features (Section 25 Proviso). Mandatory safety and security features incorporated in Type Certificate can not be modified, tampered with or impaired. (Section 8).	The Bill introduced significant requirements by making manufacturing subject to type certification, which was exempted specifically under The Rules. Import of UAS will also now require Type Certificates which was earlier not the case, although separately restricted.  The Bill now links Type Certification approval to the mandatory incorporation of Mandatory safety and security features into the UAS design, formalizing these requirements in the certification stage. The Bill is silent on the exemptions granted to Nano drones, and this will likely be dealt with in rules that come to be issued.
Registration & UIN
The Rules Required for operation (Rule 14(1)).  Procedures detailed for registration, transfer (sale, lease, gift), and deregistration (permanently lost/damaged) via Digital Sky Platform (Rules 15, 17, 18). The Bill No person shall own or operate a UAS unless registered and issued with a UIN. (Section 6(1)) No UAS shall be sold or purchased or transferred unless registered and has been issued with a UIN. (Section 6(2))  The procedure for transfer and de-registration shall be as prescribed by the Central Government. (Section 6(3))	The Bill places a strict restriction on the sale and purchase of unregistered UAS, unlike The Rules where the restriction was only on operation of UAE without registration.  The Bill also goes on to criminalise any violation of the provisions regarding registration. This is a major step towards control of UAS trade. More on this below.  Procedure itself is delegated to future rules.
Remote Pilot Licensing/Training
The Rules Requires a valid remote pilot licence (Rule 31).  Training must be completed through an authorised ‘remote pilot training organisation’ (Rule 34(1)).  Nano UAS and Micro UAS for non-commercial purposes are exempted (Rule 36). The Bill  Requires a valid remote pilot certificate issued by the DGCA or empowered officer (Section 23(1)).  Training must be imparted only by an ‘authorised organisation’ (Section 24(1)).	The terminology for the operating authorisation shifts from 'licence' (Rule 31) to 'certificate' (Section 23(1) of the Bill), while maintaining the requirement for accredited training. The Bill does not require re-registration and the licenses issued under the current regime will likely continue to hold into the new regime as well.
Insurance & Liability
The Rules Provisions of the Motor Vehicles Act, 1988 (MV Act) and rules apply mutatis mutandis (as required) to third-party insurance and compensation (Rule 44(1)). Nano UAS are exempted specifically and may operate without third-party insurance (Rule 44(1) Proviso). Strict Liability Principle implied through the application of the MV Act mutatis mutandis. However, No specific monetary limits are defined; liability determined based on MV Act application (Rule 44(1)). The Bill Establishes a dedicated legal chapter (Chapter II) governing insurance and claims, utilizing the existing Motor Accident Claim Tribunals (MACTs) constituted under Section 165 of the MV Act, 1988, as the Claims Tribunal for drone accidents (Section 12). Explicitly establishes strict liability: The claimant is not required to plead or establish that the death or grievous hurt was due to any wrongful act or neglect or default of the owner or UAS (Section 11(2)). The owner/insurer is liable notwithstanding anything in the Act or any other law. The Bill sets fixed compensation amounts for strict liability cases: ₹2.5 lakh in case of death or ₹1 lakh in case of grievous hurt (Section 11(1)). An application for compensation must be made within six months of the occurrence of the accident (Section 13(3)). If a person accepts compensation under the fixed strict liability scheme (Section 11), their claims petition before the Claims Tribunal shall lapse (Section 13(1) Proviso).	The 2021 Rules provided a generalized borrowing of the MV Act. The 2025 Bill moves towards creating a specialized, institutional framework for drone claims by formally designating MACTs as the Claims Tribunal, integrating drones into an existing claims resolution structure. The Bill grants a broader power to the Central Government to define exemptions via rules, allowing greater flexibility for future UAS categories. It remains to be seen whether Nano UAS will continue to enjoy exemptions under the new regime.  The Bill statutory defines a strict liability framework, significantly easing the burden of proof for victims seeking compensation for death or grievous hurt caused by a UAS accident. The Bill introduces concrete, minimum statutory compensation amounts payable under the no-fault liability provision. Any compensation paid under another law must be reduced from this amount (Section 11(3)). The Bill introduces a specific limitation of six months for filing claims and clarifies the interaction between the strict liability compensation (Section 11) and the full claim process (Section 13).
Airspace Map & Zoning (green, yellow, red zones)
The Rules Central Government publishes an airspace map (Red, Yellow, Green zones) on the digital sky platform. Provides definitions based on altitude and airport proximity (Rule 3(1)(l)). Allows for Temporary Red Zones (Rule 24). No stringent punishment for non-compliance.  The Bill Central Government publishes the airspace map on a specified Online Platform (Section 28(1)).  Operation in Red and Yellow zones requires prior permission of both CG and red zone creating agencies (Section 27).  Temporary Red Zones can be declared by specified authorities (Section 28(3)).  Violation of zoning provisions is now a criminal offence. (Section 27)	While zoning principles remain consistent, the 2025 Bill introduces a stringent criminal penalty with imprisonment up to three years or fine which may extend upto Rs. 1 lakh, for unauthorized entry into restricted airspace zones, underscoring security focus. Notably, such violation has been stated to be cognizable and non-compoundable.  (Section 27(8))  Earlier in the Rules, an officer not below the rank of police superintendent was responsible for declaring the temporary red and yellow zones however in the Bill, Central Government, State Government or the agency authorized by Central or State Government, through an order may create a red zone. The authorisation for officers ‘not below rank of police superintendent’ may come to be seen again in the rules that will be promulgated. Slightly broader authority given in The Bill to impose Red Zones.  The Bill also does not restrict each Red Zone notification to a duration such as the ninety six hours provided for in The Rules. Such restrictions may come to be provided for in the rules that come to be issued.
Prohibited Carriage (arms, dangerous goods)
The Rules Prohibits carriage of arms, ammunition, explosives, and military stores without written permission (Rule 27).  Dangerous goods carriage were mandated to comply with the Aircraft (Carriage of Dangerous Goods) Rules, 2003 (Rule 28). The Bill  Prohibits carriage of arms, explosives, munitions, and dangerous goods without compliance/permission (Section 31(1)).  Also prohibits using the UAS as a weapon to commit any criminal offence or aid or assist in commission (Section 31(2)).  Violation is a cognizable and non-compoundable offence (Section 31(3)).	The Bill, in keeping with the general theme, imposes criminal liability for the violation of provisions regarding carriage of arms, ammunition, dangerous goods, etc.  Unlike The Rules, the scope is again broader with state governments and ‘any other law enforcement agency’ having the power to prohibit goods to be carried through UAS. This may result in states prescribing their own restrictions regarding e-commerce and other activities.  Important to note that there is a specific mention on restriction to use UAS as a weapon or to assist in commission of criminal offence, showing a broader thought process towards safety and wider adoption.
UTM (Unmanned Aircraft Traffic Management)
The Rules  Central Government to publish a policy framework for the Unmanned Aircraft System Traffic Management System (UTM) to facilitate automated permissions and corridor development (Rule 43). National Unmanned Aircraft System Traffic Management (Utm) Policy Framework were published in October, 2021. The Bill The Airports Authority of India (AAI) or any other designated authority by the Central Government shall develop airspace traffic management systems (UTM) (Section 29(1)).	While the 2021 UTM Framework was published by the Ministry of Civil Aviation, The Bill specifically empowers the Airports Authority of India, or any other agency to develop the UTM, with such authority also empowered to impose temporary restrictions and prohibitions.
Record-keeping requirements
The Rules Implied requirements through forms and log-book rules. No single dedicated rule defining general mandatory record maintenance throughout the UAS lifecycle is present in the provided excerpts. The Bill Requires maintenance of all records and logs relating to manufacturing, transfer, ownership, operation, or maintenance, and mandates their production on demand to the DGCA or law enforcement agencies (Section 30).	The Bill includes a dedicated section mandating detailed record maintenance for all stages of a UAS lifecycle (manufacturing, transfer, ownership, operation, and maintenance) and ensuring these are accessible to enforcement agencies, showing increased thrust in record-keeping.  Sec. 45 of The Bill also specifically lists maintenance of logs and records in the list of items with respect to which rules may be made.
Accident reporting
The Rules The remote pilot must report the accident to the Director General through the digital sky platform no later than forty-eight hours after the accident takes place (Rule 30). The Bill Defines "accident" (Section 3(1)(b)).  Chapter II details the procedure for claims settlement following an accident through the Claims Tribunal and insurance company.	The 2021 Rules provided a concrete 48-hour timeline. The 2025 Bill defines the accident, but the reporting procedure is likely delegated to subsequent rules.
Penalties & Enforcement (administrative vs criminal, cognizable vs compoundable)
The Rules  Maximum administrative penalty of ₹1 lakh leviable by DGCA/authorized officer (Rule 50).  Contravention of rules regarding prior permission (Rule 22) and prohibited carriage (Rule 27) are explicitly cognizable and non-compoundable. (Rule 49(2)) The DG can cancel or suspend certificates/licences. The Bill Administrative Penalties: Rules may provide for a financial penalty not exceeding ₹1 lakh. Designated officers (Under Secretary rank or equivalent) adjudicate these penalties. (Section 36) Severe Criminal Offences: Violation of airspace restrictions (Sections 27(2), (3), (4)) and prohibited carriage/weapon use (Sections 31(1), (2)) are cognizable and non-compoundable offences, punishable with imprisonment up to three years or fine up to ₹1 lakh, or both. Lesser Regulatory Offences: Violation of provisions regarding registration (Section 6), manufacturing/sale (Section 7), mandatory features (Section 8), pilot certificate (Section 23), training (Section 24), Type Certification (Section 25), and disobedience of orders (Section 34) are non-cognizable and compoundable, punishable with imprisonment up to one year or fine up to ₹1 lakh, or both. The DG/authorised officer can restrict, suspend, or cancel certificates/approvals. Provides a dedicated section detailing the compounding mechanism. Violations of Sections 6, 7, 8, 23, 24, 25, 34 (regulatory offences) may be compounded by an officer authorized by the DGCA or an Executive Magistrate not below the rank of Sub-Divisional Magistrate. Compounding must be completed within 180 days and has the effect of an acquittal. (Section 39)	Structured Enforcement: The Bill provides a clearer categorization of offences. Severe operational and security violations (Airspace/Weaponization) are high-level criminal offences (Cognizable/ Non-Compoundable, up to 3 years imprisonment). Regulatory breaches (Registration/Certification/Training) are classified separately as Compoundable/Non-Cognizable offences with lower maximum imprisonment (up to 1 year), allowing for administrative resolution. Detailed Procedure: The Bill institutes a clear and detailed statutory framework for compounding specified regulatory offences, defining the authority (DGCA authorized officer or SDM-rank Magistrate), the timeframe (180 days), and the legal effect (acquittal). The Rules only designated certain severe offences as non-compoundable.
Repeal/Savings clause
The Rules  These Rules repealed the cumbersome Unmanned Aircraft System Rules, 2021 (Rule 55) which were in currency only for 5 months. The Bill  Repeals the Drone Rules, 2021, Drone (Amendment) Rules, 2022, and Drone (Amendment) Rules, 2023, after the promulgation of appropriate rules under the Bill. (Section 51(1)) Detailed Savings: Contains a detailed savings clause ensuring continuity. Any action taken (e.g., regulation, notification, licence, certificate, direction, penalty, or fine) under the previous rules or the Bharatiya Vayuyan Adhiniyam, 2024 is deemed to have been done under the corresponding provisions of the new Act, provided there is no inconsistency. (Section 51(2))	The Bill provides a comprehensive savings provision for legal continuity, explicitly ensuring that existing regulatory actions and certificates remain valid under the new law, referencing the framework of the Bharatiya Vayuyan Adhiniyam, 2024.

Authors: Abhinav Goyal and Nishika Godha 

Readers can direct their queries or comments to the authors.