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The State Council recently released the "Guiding Opinions on Resolving the Contradictions of Severe Overcapacity," clearly stating that within five years, it will focus on addressing overcapacity in five key industries: steel, cement, electrolytic aluminum, flat glass, and shipbuilding. In response to this directive, Miao Changxing, Deputy Director of the Industrial Policy Department at the Ministry of Industry and Information Technology, emphasized that the government will take a comprehensive approach to manage existing overcapacity.
He explained that the plan includes properly handling illegal production capacity, eliminating outdated facilities, and guiding excess capacity out of the market. The goal is to accelerate enterprise mergers and reorganizations, improve industry standards, and promote rational and orderly industrial transfers. For each of the five industries with severe overcapacity, targeted solutions will be implemented based on their specific characteristics.
One of the key measures involves standardizing access requirements for projects in these sectors. The Ministry of Industry and Information Technology will clean up and unify specifications for steel, electrolytic aluminum, cement, and flat glass projects. Those that fail to meet the required standards will be rectified or phased out.
According to statistics, by the end of 2012, the utilization rates of steel, cement, electrolytic aluminum, flat glass, and shipbuilding were significantly below international averages. Many projects were still under construction or planned, leading to worsening overcapacity. Miao Changxing pointed out several reasons behind this issue, including overly optimistic market expectations, blind investments, and outdated development models that led to disorderly competition.
Luo Tiejun, Deputy Director of the Raw Materials Industry Department, added that strengthening industry norms and access management will become a critical tool in addressing overcapacity. This approach combines government oversight with market mechanisms, focusing on quality, environmental protection, and energy efficiency. It aims to align industrial policies with land use, environmental regulations, finance, energy, and export strategies, creating a fairer and more competitive market environment.
In recent years, the Ministry has been working on standardizing key industries, setting basic requirements for both existing enterprises and new projects regarding product quality and environmental compliance. For example, in May, 45 steel companies met the new standards. In the cement sector, after one year of access management, 312 new dry-process lines were announced, accounting for 27% of total capacity. In the flat glass industry, 116 production lines have been approved, representing 52% of float glass capacity.
Another major focus is curbing new capacity expansion. Steel production will be controlled in environmentally sensitive areas like Beijing and Tianjin, while electrolytic aluminum and cement will face restrictions in western provinces. Flat glass production will be regulated mainly in eastern coastal regions.
The "Guiding Opinions" also emphasize different approaches for each industry. For steel, the plan includes reducing total capacity in Shandong, Hebei, Liaoning, Jiangsu, Shanxi, and Jiangxi by consolidating dispersed production and relocating urban steel plants. Shandong’s steel restructuring plan has already been approved, and Hebei is currently studying its own plan, aiming to cut around 80 million tons of steel production capacity.
Moreover, the government is pushing for the replacement of low-quality steel with high-performance materials, especially in construction, shipbuilding, and electrical steel sectors. Environmental and energy consumption standards are being tightened, with penalties increased for non-compliance. For example, in the electrolytic aluminum industry, those exceeding energy usage thresholds will face higher electricity costs, encouraging technological upgrades and the elimination of outdated production units.
Finally, the policy emphasizes using development methods to resolve overcapacity. A system of capacity equalization or reduction will be introduced, helping local governments balance economic growth with the need to phase out outdated facilities. Equivalent replacement—where new projects must eliminate an equivalent amount of existing capacity—will ensure that total capacity does not increase. This approach aims to motivate both local governments and enterprises to actively participate in the process, promoting sustainable industrial development.