Marketization to overcapacity policy framework

**Abstract** It has been learned from official sources that the National Development and Reform Commission, in collaboration with other relevant departments, is preparing to refine a market-oriented policy framework aimed at addressing overcapacity. This includes implementing differentiated pricing mechanisms, enforcing stricter credit policies, and establishing clear industry standards. It has also been reported that industrial projects with severe overcapacity that have not followed proper legal procedures will be prohibited from obtaining loans, issuing bonds, or going public. Chen Bin, director of the Industry Coordination Department at the National Development and Reform Commission, who is involved in developing policies to tackle overcapacity, noted that while the government has introduced various control measures in recent years—such as restricting approvals in industries like steel, electrolytic aluminum, and cement—these efforts have not met their intended goals. "The main approach at the time was too reliant on administrative controls and restrictions on project approvals," Chen said. "We believed that limiting approvals would solve the problem of overcapacity, but in reality, it only made things worse." According to data from the National Development and Reform Commission and the Ministry of Industry and Information Technology, the utilization rates for China’s steel, cement, electrolytic aluminum, flat glass, and shipbuilding industries are 73%, 75%, 71.9%, 73.1%, and 75% respectively—significantly below the global average. Profit margins in these sectors have dropped sharply, and many enterprises are struggling financially. Notably, there are still numerous projects under construction or planned in these industries that face serious overcapacity issues, further intensifying the problem. Zheng Lixin, director of the Industrial Policy Department at the Ministry of Industry and Information Technology, mentioned that state agencies are studying international experiences in managing overcapacity and adhering to the principle of combining market regulation with government intervention. An expert involved in drafting the policy framework explained that future market-oriented policies will focus on three key areas: pricing, credit, and standards. In terms of credit, projects with severe overcapacity that lack legal approval will be barred from accessing loans, issuing bonds, or listing on stock exchanges. At the same time, commercial banks will be encouraged to support mergers, restructuring, and overseas expansion of overcapacity industries, provided they follow risk control and sustainability principles. A representative from the National Development and Reform Commission emphasized that future interdepartmental meetings will focus on distinguishing between advanced and backward production capacity within overcapacity sectors. Credit standards will be set based on scientific criteria, including profit margins, carbon emissions, safety performance, resource consumption, labor productivity, and technical benchmarks. Additionally, a unified credit management system will be improved, with central authorities overseeing credit approvals for new projects in heavily overcapacity industries. In the past month, regulatory bodies such as the China Banking Regulatory Commission and the China Securities Regulatory Commission held discussions on appropriate credit and capital market policies to address overcapacity. The China Securities Regulatory Commission released a special report stating that the capital market plays a vital role in resource allocation. Therefore, market mechanisms should be fully utilized in reducing overcapacity, with strict financial safeguards, rigorous bond issuance rules, and enhanced review processes for capital market financing. Regarding pricing policies, relevant departments plan to improve differential electricity pricing and eliminate preferential rates for industries with severe overcapacity. Zhu Hongren, chief engineer at the Ministry of Industry and Information Technology, stated that energy-intensive sectors such as steel, cement, and electrolytic aluminum that fail to meet industry standards will face higher electricity and water prices. By the end of 2015, if capacity standards are not met, electricity prices will increase by 10%. The government will also encourage electrolytic aluminum companies to sign long-term power purchase agreements and promote the use of lightweight aluminum in transportation. Domestic firms will be supported in building production bases in regions with abundant energy resources abroad. The Ministry of Industry and Information Technology is also working on setting technology and access standards for overcapacity industries, aiming to guide industrial upgrades and phase out outdated production capacity. For example, the shipbuilding industry will raise entry requirements and implement differentiated policies for companies failing to meet standards or receiving no new orders. Standards for flat glass and its products are being developed, encouraging the use of energy-efficient glass in new and renovated buildings. High-grade cement and high-performance concrete will be promoted to improve product quality. Mergers and acquisitions are seen as a critical strategy for resolving overcapacity. Relevant departments will focus on structural adjustments in key steel-producing regions such as Shandong, Hebei, and Liaoning, encouraging local governments to consolidate dispersed steel production, relocate urban steel plants, and optimize the industry layout. A total of over 80 million tons of steel capacity will be reduced. Efforts will also be made to develop glass processing hubs and accelerate structural adjustments in environmentally sensitive areas. Joint restructuring will be supported to form strong, integrated enterprise groups.

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