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The State Council recently issued the "Guiding Opinions on Resolving the Contradictions of Severe Overcapacity," clearly stating that within five years, it will focus on addressing severe overcapacity in five major 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 the need for a comprehensive approach. He stated that the government would properly handle illegal production capacity, eliminate outdated facilities, and guide excess capacity out of the market. The goal is to accelerate enterprise mergers and reorganizations, improve industry standards, and ensure a rational and orderly transfer of production. For each of these sectors, targeted solutions will be implemented based on their specific characteristics.
One key measure involves the uniform cleanup of access specifications for completed projects in steel, electrolytic aluminum, cement, and flat glass industries. Any project that fails to meet the required standards will either be rectified or phased out. According to statistics, by the end of 2012, China’s utilization rates for these industries were significantly below international averages, with many ongoing and planned projects contributing to worsening overcapacity.
Miao Changxing pointed out that several factors have led to this situation. Some companies made overly optimistic market forecasts, leading to excessive investment and expansion. Others followed an extensive development model, lacking a clear industrial structure dominated by strong, efficient enterprises, which resulted in disorderly competition and redundant construction. Additionally, some regions prioritized rapid growth over sustainable development, relying heavily on investment-driven strategies that fueled repeated capacity expansions. Other contributing factors include lagging market reforms in resource elements and weak policy guidance.
Luo Tiejun, Deputy Director of the Raw Materials Industry Department, highlighted that strengthening industry norms and access management will play a crucial role in clearing outdated capacity. 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 protection, finance, energy, and export regulations, creating a fair and competitive market environment that promotes the survival of the fittest.
In recent years, the Ministry has worked on standardizing key industries, setting basic requirements for existing enterprises and new projects regarding product quality and environmental protection. For instance, in May, 45 steel enterprises 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 production. Similarly, in the flat glass industry, 116 lines were announced, representing 52% of float glass capacity. The newly revised "Aluminum Industry Standard Conditions" were also released in July and are currently being implemented.
To curb further capacity expansion, the focus will vary by region and industry. Steel production will be closely monitored in environmentally sensitive areas like Beijing and Tianjin, while electrolytic aluminum and cement will face stricter controls in western provinces. Flat glass will see tighter regulation in eastern coastal areas. The guiding opinions emphasize stopping new capacity projects, strictly controlling ongoing ones, and improving existing facilities.
For the steel industry, the plan includes reducing production capacity in Shandong, Hebei, Liaoning, Jiangsu, Shanxi, and Jiangxi through integration, relocation of urban steel plants, and optimizing the industrial layout. Structural adjustments in Shandong and Hebei are already underway, with expected reductions of around 80 million tons of steel capacity. Meanwhile, other provinces aim to maintain current production levels.
Looking ahead, the Ministry plans to promote high-performance steel materials and drive upgrades in sectors like construction and shipbuilding. Environmental and energy consumption standards will be tightened, with penalties for non-compliance and incentives for efficient operations. For example, in the electrolytic aluminum industry, higher energy consumption will trigger stricter regulations, pushing outdated facilities out of the market.
Finally, the "Opinions" encourage using development methods to resolve overcapacity, proposing a system of capacity replacement—where new projects must offset existing capacity. This approach aims to balance economic growth with industrial upgrading, ensuring sustainable development. By promoting voluntary and market-based capacity exchanges, local governments can better manage the transition from outdated to modern production.