Guiding Opinions of the State Council on Resolving the Contradictions of Serious Overcapacity
Guofa [2013] No. 41
The people's governments of all provinces, autonomous regions and municipalities directly under the Central Government, ministries and commissions under the State Council, and their respective agencies:
Resolving the contradiction of serious overcapacity is the focus of work to promote industrial restructuring in the current and future period. In order to actively and effectively resolve the contradiction between the overcapacity of steel, cement, electrolytic aluminum, flat glass, shipbuilding and other industries, and to guide other industries with overcapacity to resolve the work, this opinion is formulated.
First, fully understand the importance and urgency of resolving the contradiction of serious excess capacity
Under the conditions of market economy, the supply is more than demand is the premise that the market competition mechanism plays a role, which is conducive to regulating supply and demand and promoting technological progress and management innovation. However, when the production capacity of the product seriously exceeds the effective demand, it will cause huge waste of social resources, reduce the efficiency of resource allocation, and hinder the upgrading of the industrial structure.
Affected by the deepening of the international financial crisis, the international market continued to slump, the growth of domestic demand slowed down, and the contradiction between oversupply in some industries in China became increasingly prominent. The traditional manufacturing capacity was generally overcapacity, especially high consumption and high emissions such as steel, cement and electrolytic aluminum. The industry is particularly prominent. At the end of 2012, China's steel, cement, electrolytic aluminum, flat glass, and ship capacity utilization rates were only 72%, 73.7%, 71.9%, 73.1%, and 75%, respectively, significantly lower than the international average. The profits of steel, electrolytic aluminum, shipbuilding and other industries have fallen sharply, and enterprises are generally difficult to operate. It is worth noting that there are still a number of projects under construction and proposed construction in these industries with severe overcapacity. The overcapacity is intensifying. Failure to take timely measures to resolve it will inevitably exacerbate vicious competition in the market, causing the loss of the industry to expand, the unemployment of enterprise employees, the increase of non-performing assets of banks, the intensification of bottlenecks in energy resources, and the deterioration of the ecological environment, directly jeopardizing the healthy development of the industry and even affecting The overall improvement of people's livelihood and social stability.
At present, the serious overcapacity in China is mainly affected by various factors such as the development stage, development concept and institutional mechanism. In the development stage of accelerating industrialization and urbanization, market demand is growing rapidly. Some enterprises are too optimistic about market expectations. Blind investment has intensified capacity expansion. Some industries have extensive development methods, weak innovation ability, low industrial concentration, and no formation. The pattern of industrial development led by excellent and strong enterprises has led to serious disorderly competition and repeated construction in the industry; some places are too aggressive in their development speed, relying too much on investment, and attracting investment through low-cost land supply, tax reduction, and low-cost allocation of resources. At the same time, the reform of resource elements market is lagging behind, the guidance and constraints of policies, planning, standards, and environmental protection are not strong, the investment system and management methods are not perfect, and supervision and inspection and accountability are not in place, resulting in The price of production factors is distorted, the market environment for fair competition is not perfect, the role of market mechanisms has not been effectively utilized, the channels for exiting backward production capacity are not smooth, and the contradiction of overcapacity has intensified.
The serious overcapacity has become the root cause of the prominent contradictions and many problems in China's economic operation. Business difficulties, fiscal revenue decline, and financial risk accumulation are all closely related to the overcapacity. Resolving the serious overcapacity of production capacity will inevitably bring pains. Some industries will even hurt the bones. However, in the overall and long-term perspective, the containment of contradictions will be further aggravated, the investment direction will be guided, the adjustment of industrial structure will be accelerated, and industrial transformation and upgrading will be promoted. Systemic financial risks are of great significance in maintaining the sustained and healthy development of the national economy. Therefore, it is necessary to resolutely control the increment, optimize the stock, deepen the system reform and mechanism innovation, and accelerate the establishment and improvement of a market-oriented long-term mechanism for resolving the serious excess of production capacity. This is a complicated system project. The task is very arduous. It must be carefully planned, deployed, and coordinated, and actively and steadily promoted.
Second, the overall requirements, basic principles and main objectives
(1) General requirements.
Fully implement the spirit of the 18th National Congress of the Communist Party of China, take Deng Xiaoping Theory, the important thinking of the "Three Represents" and the scientific development concept as the guide, adhere to the transformation of development mode as the main line, and resolve the serious overcapacity of production capacity as the focus of industrial restructuring. Respecting the rules, dividing the policies, multi-pronged approach, and treating the common principles of both the symptoms and the root causes, based on the current, focusing on the long-term, focusing on strengthening macro-control and market supervision, resolutely curbing the blind expansion of production capacity; focusing on the role of market mechanisms, improving supporting policies, "digesting A batch, transfer a batch, integrate a batch, eliminate a batch of "overcapacity"; focus on innovation system and mechanism, accelerate the transformation of government functions, establish a long-term mechanism to resolve the serious overcapacity of production capacity, and promote industrial transformation and upgrading.
(2) Basic principles.
-- Adhere to the principle of respecting the market and improving macroeconomic regulation. Give play to the role of the main body of the enterprise market, strengthen the sense of corporate responsibility; strengthen the market supply and demand trend research and information guidance, comprehensively apply the law, the economy and the necessary macro-control measures to strengthen policy coordination, form a synergy to resolve the serious excess of production capacity and guide the healthy development of the industry.
-- Adhere to the combination of market demand and industrial transformation and upgrading. Maintain a reasonable growth of investment, foster new consumption growth points, expand the scale of the domestic market, consolidate and expand the international market, and digest domestic excess capacity. Strengthen the orientation of demand upgrading, foster high-end product market, promote the optimization of production capacity structure, and promote industrial transformation and upgrading.
-- Adhere to the combination of strict control increments and adjustments to optimize stocks. Strict factor supply and investment management, curb blind expansion and redundant construction; promote mergers and acquisitions, integrate and compress excess capacity; implement overseas investment and industrial restructuring, transfer domestic excess capacity; strengthen resource and energy and environmental constraints, accelerate the elimination of backward production capacity; Regional coordinated development and optimization of industrial layout.
-- Adhere to the combination of improving policy measures and deepening reform and innovation. Improve and refine the supporting policies and measures to resolve the contradiction of overcapacity, establish a central and local linkage mechanism, strengthen coordination services, give play to the joint efforts of departments, implement local responsibilities, deepen reform of key areas and innovation of institutional mechanisms, and form a role in promoting market competition. Effectively resolve the institutional and institutional environment for a serious overcapacity.
(3) Main objectives.
Through five years of hard work, significant progress has been made in resolving the contradictions of overcapacity:
——The scale of production capacity is basically reasonable. The total capacity of steel, cement, electrolytic aluminum, flat glass, shipbuilding and other industries is compatible with environmental carrying capacity, market demand and resource security. The spatial layout is coordinated with regional economic development, and the capacity utilization rate has reached a reasonable level.
-- The quality of development has improved significantly. The merger and reorganization achieved substantial progress, the production capacity structure was optimized; the level of clean production and pollution control was significantly improved, the comprehensive utilization level of resources was significantly improved; the economic benefits were improved, the profitability level returned to a reasonable level, and the industry average debt ratio remained within the controllable range of risks. The core competitiveness has been significantly enhanced.
-- The long-term mechanism was initially established. The market environment of fair competition has been perfected, and the role of the main body of the enterprise market has been fully exerted. The early warning system and supervision mechanism for excess industry capacity have been basically established, and important reforms in key areas such as resource factor price, fiscal and taxation system, and accountability system have made important progress.
Third, the main task
(1) Resolutely curb the blind expansion of production capacity.
Construction of new capacity projects is strictly prohibited. Strictly implement the national investment management regulations and industrial policies, and strengthen the project management of industries with severe overcapacity. All localities and departments shall not approve or record new capacity projects in industries with severe overcapacity in any name or in any way. All relevant departments and agencies may not handle land. (Sea area) supply, energy assessment, EIA approval and new credit support and other related businesses.
The classification properly handles violations under construction. For projects that fail to comply with the relevant procedures or procedures that are not in accordance with laws, regulations, such as land, environmental protection, and investment management, the local government shall conduct a comprehensive clean-up according to the requirements. All illegal projects that have not started construction shall not be constructed; any illegal projects that do not meet the industrial policies, access standards, and environmental protection requirements shall be suspended; the projects that are necessary to be constructed shall meet the requirements of layout planning and environmental carrying capacity, and On the basis of the principle of equal or reduced replacement, the local government will submit an application report to the Development and Reform Commission, the Ministry of Industry and Information Technology, and copy the relevant functional departments such as the Ministry of Land and Resources and the Ministry of Environmental Protection, the Development and Reform Commission, industry and information. The functional departments of the Ministry of Land Resources and the Ministry of Environmental Protection and other functional departments shall issue confirmation opinions on the basis of the evaluation of the entrusted consulting institutions, and all relevant departments shall complete the relevant procedures in accordance with the law. Unauthorized projects under construction shall not be renewed and shall be properly managed by the local government; if the project is concealed and not reported, the project shall be suspended immediately after the investigation is completed, and the financial institution shall stop issuing loans. The land and environmental protection departments shall be based on land management. Laws, environmental protection laws and other laws and regulations will be dealt with, and serious investigations will be taken on issues involving dereliction of duty and power and money transactions, and those responsible for supervision should be seriously investigated. At the same time, in accordance with the principle of who is responsible for violations, do a good job in debt, personnel placement and other after-care work. The results of all violations under construction should be disclosed to the public.
(2) Clean up and rectify and build illegal production capacity.
Thoroughly clean up and rectify. The provincial people's governments rely on the administrative licensing law, the land management law, the environmental protection law and other laws and regulations, as well as the energy consumption total control indicators, industrial structure adjustment guidance catalogue, industry norms and access conditions, environmental protection standards, etc. In the surplus industry, the illegal project will be completely cleaned up, and after the rectification plan is proposed and publicized, it will be reported to the Development and Reform Commission, the Ministry of Industry and Information Technology, the Ministry of Land and Resources, the Ministry of Environmental Protection and other departments for the record; for those who do not meet the requirements for filing, the relevant departments It is necessary to provide timely feedback.
Strengthen the management of standards. Governments at all levels should strengthen the standardized management of the establishment of illegal production capacity, the industrial authorities to strengthen industry norms and access management, the national and environmental protection departments to strictly supervise and inspect, the quality inspection department to conduct comprehensive evaluation of quality assurance capabilities, and issue product production licenses according to law. For projects with backward technological equipment, unqualified product quality, energy consumption and emissions, the project will be phased out and eliminated.
(3) Elimination and withdrawal of backward production capacity.
Resolutely eliminate backward production capacity. Decompose and implement the annual target, and complete the target of eliminating the backward production capacity in key industries such as “12th Five-Year Plan†steel, electrolytic aluminum, cement, flat glass, etc. one year ahead of schedule, and implement the equal or reduced replacement plan by improving the financial reward standard. Measures to encourage local governments to eliminate backward production capacity standards. Before the end of 2015, they will eliminate 15 million tons of ironmaking, 15 million tons of steel, 100 million tons of cement (clinker and grinding capacity) and 20 million weight boxes of flat glass. During the "Thirteenth Five-Year Plan" period, combined with the actual industrial development and environmental carrying capacity, through the improvement of energy consumption and pollutant discharge standards, strict implementation of special emission limit requirements, increase law enforcement penalties, and accelerate the elimination of a number of backward production capacity. Central enterprises should play a leading role in eliminating and withdrawing backward production capacity.
Guide the orderly exit of production capacity. Improve the incentive and restraint policies, study the establishment of a legal system for the withdrawal of excess capacity, and guide enterprises to take the initiative to withdraw from surplus industries. The industry has revised and strictly enforced the mandatory energy consumption limit standard, and implemented differentiated price policies such as differential electricity prices and punitive electricity prices and water prices for enterprises that exceed the energy consumption limit standards and environmental protection standards. In the construction of industrial projects with severe overcapacity, it is necessary to formulate a capacity replacement plan, implement equal or reduced replacement, and implement reduction reduction in environmentally sensitive areas such as Beijing-Tianjin-Hebei, Yangtze River Delta and Pearl River Delta. The provincial people's government where the project is located shall formulate a capacity reduction or reduction replacement plan and publicize it to the public. The competent department of the industry shall confirm and announce the capacity replacement plan, and at the same time, put the replacement capacity into the elimination list and supervise the implementation. Encourage all localities to actively explore government-led, voluntary, and market-oriented capacity replacement index transactions, and form a benign interactive mechanism to eliminate backwardness and develop advanced.
(4) Adjusting and optimizing the industrial structure.
Promote mergers and acquisitions. Improve and implement fiscal, taxation, finance, land and other policy measures to promote mergers and acquisitions. Coordinate and solve major problems of cross-regional mergers and acquisitions of enterprises, rationalize the distribution relationship between regions, and promote the integration of excess capacity among advantageous enterprises in the industry. Support mergers and acquisitions to integrate internal resources, optimize technology and product structure, and reduce excess capacity. Encourage and guide non-public enterprises to participate in mergers and acquisitions through various means such as equity participation, holding, and asset acquisition. Research and development guides to promote enterprises to be better and stronger, promote superior and strong enterprises to lead the development of the industry, support and foster the development and growth of superior and strong enterprises, improve industrial concentration, and enhance the coordination and self-discipline of industry development.
Optimize the layout of the industrial space. Scientifically formulate industrial layout plans, and rectify the adjustment and optimization of industrial layout in an orderly manner under the premise of resolutely curbing the blind expansion of production capacity and strictly controlling the total amount. In accordance with the overall strategic requirements of regional development, adapting to the needs of urbanization development, combined with local environmental carrying capacity, resource and energy endowment, industrial base, market space, logistics and transportation, etc., orderly promote industrial gradient transfer and environmental relocation, and retreat into the park to prevent Lagging production capacity. Support cross-regional capacity replacement, guide domestic effective production capacity to advantageous enterprises and regions with more comparative advantages, and promote the formation of regional economic and industrial development patterns with reasonable division of labor, complementary advantages and unique characteristics.
(5) Strive to develop domestic market demand.
Expand domestic effective demand. Adapt to the needs of industrialization, urbanization, informationization, and agricultural modernization, and tap the potential of the domestic market to digest some of the excess capacity. Promote the application of steel structures in the construction field, increase the proportion of steel structures used in public buildings and government investment and construction, and promote earthquake-resistant buildings such as light steel structure integrated houses in areas with high natural disasters such as earthquakes; promote building materials to the countryside and steadily expand steel products (3606) , -6.00, -0.17%), cement, aluminum profiles, flat glass and other market demand. Optimize the shipping capacity structure and speed up the elimination of old and old shipping ships.
Focus on improving the demand structure. Strengthen the orientation of demand upgrading, implement green building materials projects, develop green safe and energy-efficient buildings, revise relevant standards and standards, improve the use standards of steel, concrete and glass for construction, and promote product upgrading. Promote energy conservation, material saving and lightweight, promote the application of high-quality steel and aluminum, meet the needs of advanced manufacturing development and traditional industrial transformation and upgrading. Accelerate the cultivation of marine engineering equipment and offshore engineering facilities market.
(6) Actively expand the space for external development.
Consolidate and expand the international market. Encourage enterprises to actively participate in various trade promotion activities and innovate international trade methods. Expand the field of foreign engineering contracting, improve the quality and efficiency of foreign contracted projects, actively undertake major infrastructure and large-scale industrial, energy, communications, mineral resources development and other projects, drive domestic exports of technology, equipment, products, standards and services, and cultivate "China" Building an international brand. Adapt to the requirements of new international norms, new conventions and new standards, enhance the design and manufacturing capacity of energy-saving and environmentally-friendly ships, and stabilize the ship export market.
Expand foreign investment cooperation. Encourage superior enterprises to “go out†in various ways, optimize the distribution of manufacturing origin and digest domestic production capacity. Establish and improve the trade and investment platform and the “going out†investment and financing comprehensive service platform. Promote the establishment of overseas economic and trade cooperation zones to attract domestic enterprises to enter the park. In accordance with the principle of complementarity, mutual benefit and win-win, we will bring into play the advantages of technology, equipment and scale of steel, cement, electrolytic aluminum, flat glass, shipbuilding and other industries, and integrate resources and value chains on a global scale; strengthen with neighboring countries and emerging markets. State investment cooperation, adopting various forms to carry out foreign investment, building overseas production bases, improving the level of transnational operations of enterprises, and expanding new space for international development.
(7) Enhance the driving force for innovation driven by enterprises.
Break through the core key technologies. The use of market mechanisms and economic leverage will force enterprises to enhance the internal driving force of technological innovation, promote enterprise transformation and industrial upgrading, and enhance market competitiveness with product quality, standards and technology as the core elements. We will focus on building a technological innovation system that takes enterprises as the mainstay, market-oriented, and combines production, education, and research, and concentrates on breaking through and mastering a number of key common technologies. Encourage enterprises to implement technological transformation, promote the application of more energy-efficient, safe, environmentally friendly and efficient steel, electrolytic aluminum, cement, flat glass process technology, and enhance the design and manufacturing capabilities of high-tech ships and offshore engineering equipment.
Strengthen enterprise management innovation. Deepen the reform of state-owned enterprises and guide the transfer of state-owned capital from industries with severe overcapacity to strategic emerging industries and public utilities. Encourage enterprises to strengthen strategic management, cultivate well-known brands, strengthen product innovation, organizational innovation, business model innovation, enhance effective supply, and create effective demand. Improve the level of enterprise management information and promote refined management. Focus on the development of entrepreneurial talents, strengthen the construction of innovative talents, and improve the people-oriented corporate talent incentive mechanism. Summarize and promote the outstanding achievements of enterprise management innovation, and implement the enterprise management innovation demonstration project.
(8) Establish a long-term mechanism.
Innovative government management. Strengthen coordination of industry, land, environmental protection, energy conservation, finance, quality, safety, import and export, strengthen land use, sea and shoreline review, strict environmental protection and quality supervision and management, adhere to independent bank lending, and form laws and regulations Clear market regulation mechanism with clear responsibilities. Deepen the reform of the investment system and strengthen the management of the matter and the post-mortem. Strengthen the dynamic monitoring and analysis of industries with severe overcapacity and establish an early warning mechanism for overcapacity information.
Create a fair environment. We will guarantee the equal use of production factors in all forms of ownership economy, participate in market competition fairly, and be equally protected by law. We will effectively reduce administrative interventions on production and business operations of enterprises, and resolutely clean up and abolish local governments' preferential policies for harming fair competition such as land, resources, taxes, and electricity prices in attracting investment, as well as restrictions on local protection and market segmentation. Strengthen the protection of intellectual property rights and quality systems, crack down on counterfeit and shoddy products, rectify and standardize market order, and form a market environment conducive to innovation and entrepreneurship.
Improve the market mechanism. Promote resource tax reform and environmental protection tax legislation. Rationalize the market formation mechanism of resources and factor prices, improve differentiated price policies, improve energy consumption, material consumption, water consumption and ecological environmental protection standards for industrial access, and give full play to the basic role of market allocation of resources. With the upper limit of resource and environment carrying capacity, it is forced to exceed the standard production capacity, achieve energy conservation and emission reduction standards and improve the natural environment. Improve the transfer payment system and establish an eco-environmental compensation responsibility system.
Fourth, the division of policy
For industries with severe overcapacity, it is necessary to carry out selective, focused and targeted solutions according to the characteristics of the industry.
Steel. Focus on promoting the structural adjustment of steel industry in Shandong, Hebei, Liaoning, Jiangsu, Shanxi, Jiangxi and other regions, giving full play to the enthusiasm of local governments, integrating the dispersion of steel production capacity, promoting the relocation of urban steel plants, optimizing the industrial layout, and compressing the total capacity of steel production by 80 million tons. the above. Gradually increase the standards for steel products such as hot-rolled ribbed steel bars, electrical steels, and marine steels, revise and improve the design specifications for steel use, and comprehensively promote the application of high-strength steel bars of 400 MPa and above in the longitudinal reinforcement of building structures, replacing 335 megabytes. Low-quality steel such as hot rolled ribbed steel. Accelerate the promotion of classification and certification management of high-strength steel products. Implement the fair taxation policy and cancel the import steel bonded policy under the processing trade.
cement. Accelerate the revision of cement and concrete product standards and related design specifications, promote the use of high-grade cement and high-performance concrete, eliminate 32.5 composite cement product standards as soon as possible, and gradually reduce the proportion of 32.5 composite cement. Encourage the use of existing cement production lines, comprehensive utilization of waste slag to develop high-grade cement and new products such as special cement that meet the needs of marine, port, nuclear power, tunnels and other engineering needs. Support the use of existing cement kiln harmlessly to co-dispose urban domestic waste and industrial waste, further improve the cost settlement mechanism, and the proportion of co-disposal production lines is not less than 10%. Strengthen the discharge of major pollutants such as nitrogen oxides and the energy and resource unit consumption indicators, and eliminate the production lines that are not up to standard.
Electrolytic aluminum. By the end of 2015, the pre-baked tanks below 160,000 amps will be eliminated. The electricity consumption per ton of aluminum liquid electrolysis will be more than 13,700 kWh, and the capacity of the standard conditions will not be reached after the end of 2015. The price of electricity will rise by 10% on the basis of the standard price. It is strictly forbidden to introduce preferential electricity price measures by themselves, and adopt comprehensive measures to promote the gradual withdrawal of production capacity that lacks the advantage of electricity price, and orderly transfer to areas with energy competitiveness, especially hydropower-rich areas. Support electrolytic aluminum enterprises and power companies to sign long-term contracts for direct purchase of electricity, and promote the development and application of lightweight aluminum products for transportation vehicles. Encourage domestic enterprises to build electrolytic aluminum production bases in areas rich in energy abroad.
plate glass. Revise the standard and application specifications of flat glass and products, use doors and windows that meet energy-saving standards in new buildings and existing building renovations, encourage the use of low-radiation insulating glass, support the upgrading of existing production lines, and improve the proportion of high-quality float glass. The development of functional glass, encourage the integration of the original film production and deep processing, the deep processing rate of flat glass reaches more than 50%, and cultivate the glass deep processing base. Accelerate the structural adjustment of key production areas and environmentally sensitive areas in Hebei, Guangdong, Jiangsu and Shandong. Support joint restructuring and form a group of enterprise groups with complete industrial chain and strong core competitiveness.
Ship. Improve the level of marine development equipment, strengthen the construction of marine security capabilities, fully tap the domestic demand potential of ship equipment in the fields of shipping, marine engineering, fishery, administrative law enforcement, emergency rescue, etc., and adjust and optimize the ship product structure. Increase the credit financial support for export vessels and encourage powerful enterprises to establish overseas sales and service bases. We will improve the R&D and construction capabilities of marine products that meet new international norms, new conventions, and new standards, encourage the transfer of existing shipbuilding capacity to the offshore engineering equipment sector, support the transformation and transformation of SMEs, and increase the proportion of high-end production capacity. Improve industry access standards and implement differentiated policies for shipbuilding companies that do not meet the entry requirements and have not accepted new ship orders for more than one year. Support enterprise mergers and acquisitions to improve industrial concentration.
V. Policy measures
(1) Improve industry management. Give full play to the guiding and restricting role of industry planning, policies and standards, implement industrial transformation and upgrading plans and industry development plans, and revise and improve steel and cement industry policies and access conditions for aluminum, cement, flat glass and shipbuilding industries. Strengthen industry access and standard management, and announce the list of qualified production lines and enterprises. Timely release of information on capacity utilization, market supply and demand, etc. in industries with severe overcapacity. Regularly release the list of enterprises that have eliminated backward production capacity. Strengthen product quality management and implement product quality classification supervision in industries with severe overcapacity. Give play to the important role of industry associations in industry self-discipline and information services.
(2) Strengthening the supervision and management of environmental protection and hard constraints. Strengthen environmental access management, strictly control the total discharge of major pollutants in the region, and improve regional restrictions. We will promptly study and improve pollutant discharge and environmental quality standards, especially for environmentally sensitive areas such as Beijing, Tianjin and Hebei. We will carry out dynamic monitoring of environmental quality and discharge of key pollution sources, and implement measures such as limiting production and stopping production for enterprises with excessive pollutant discharge. Enterprises with serious overcapacity will strengthen law enforcement supervision and inspection, expose the list of environmentally illegal enterprises, increase penalties, and order rectification within a time limit. Enterprises with serious pollution discharges should stop production and rectification, and still do not meet pollutant discharge standards and special emissions after rectification and rectification. Enterprises with relevant regulations such as limits shall be closed down.
(3) Strengthening land and shoreline management. Strengthen the land use and shoreline management of the project, conduct comprehensive inspections on the land and shoreline of enterprises with serious overcapacity, clean up and rectify the use of land and shoreline for illegal construction projects, and investigate and punish the illegal activities of the discovered land. Strengthen the review of newly used land and shoreline in industries with severe overcapacity, and refuse to approve the use of land and shoreline for projects that have not been approved or filed. All localities should cancel preferential policies for land use projects with serious excess capacity. The government land reserve institution can recover the land for the environmental protection relocation, merger and reorganization, elimination of backwardness, etc., and the land compensation fee paid to the enterprise according to the regulations can be used to support the enterprise to do a good job in post-processing and transformation.
(4) Implementing a financial policy with insurance control. Implement targeted credit guidance policies for industries with severe overcapacity to strengthen and improve credit management. Construction projects that have not obtained legal procedures shall not be allowed to lend, issue bonds or go public. Protect financial claims in accordance with the law. Encourage commercial banks to increase credit support for mergers and acquisitions of overcapacity, transformation and transformation, product structure adjustment, technological transformation, and transfer of production capacity to overseas markets and market expansion in accordance with the principles of risk control and commercial sustainability. For enterprises integrating excess capacity, the M&A loan business will be actively and steadily carried out, and the interest rate of M&A loans will be reasonably determined. The loan term can be extended to 7 years. Vigorously develop various types of institutional investment, encourage innovation fund varieties, and explore corporate mergers and acquisitions financing channels. Increase the loan support of enterprises “going outâ€, appropriately simplify the examination and approval procedures, improve overseas investment insurance products, research and improve the “going out†investment and financing service system, and support the transfer of production capacity to overseas.
(5) Improve and standardize the price policy. Deepen the reform of resource product prices in accordance with the principle of reflecting resource scarcity and environmental costs. Continue to implement and improve non-resident water use quotas and environmental protection fees. We will improve the differential electricity price policy, and all localities will clean up and rectify the preferential electricity price policy for industries with severe overcapacity. It is forbidden to implement electricity price concessions and electricity subsidies. For high-energy-consuming industries such as steel, cement, electrolytic aluminum, and flat glass, energy consumption, power consumption, and water consumption do not meet industry-standard production capacity, and differential electricity prices and punitive electricity prices and water prices are implemented.
(6) Improve fiscal and tax support policies. The central government has increased its support for structural adjustment and industrial upgrading of industries with severe overcapacity, and local governments have arranged special funds to support them. The central government will use the existing capital channels such as eliminating backward production capacity incentive funds, appropriately expand the scale of funds, and support the overcapacity of industries with severe overcapacity. We will improve taxation policies that promote mergers and acquisitions, encourage corporate restructuring, and improve market competitiveness. For enterprises that transfer excess capacity overseas, their export equipment and products can enjoy the export tax rebate policy according to the current regulations. Revise and improve the comprehensive utilization of resources and taxation preferential policies, support the production of high-grade cement, high-performance concrete and the use of cement kilns to dispose of municipal waste, sludge and industrial waste.
(7) Implementing the staff resettlement policy. Governments at all levels must earnestly take responsibility and resolve the situation of enterprises with laid-off and unemployed people in the contradiction of serious overcapacity into the employment support policy system. We will implement policies to promote self-employment, encourage enterprises to absorb employment, and help employment of people with employment difficulties. We will strengthen services such as free employment introduction and career guidance for laid-off workers, provide vocational training, conduct entrepreneurial guidance and entrepreneurship training, and implement self-employment. Policies such as tax reductions and small guarantee loans, support laid-off and unemployed people to start employment through entrepreneurship. We will effectively carry out the social insurance relationship of laid-off workers and transfer them, implement their social security benefits in accordance with regulations, and properly handle employee labor relations in accordance with the law.
(8) Establish a project information base and open system. Establish a unified national investment project information base, and give full play to the role of informatization in market supervision. Combining the administrative examination and approval of cancellation and decentralization projects, as well as strengthening the requirements for post- and post-event supervision, we will take the lead in establishing an information database of industries with serious overcapacity such as steel and electrolytic aluminum, covering the current situation of existing projects under construction and approved or filed projects. . Strengthen the information disclosure and service of construction projects, and interconnect with the information systems of land, environmental protection and finance to form a coordinated supervision mechanism. At the same time, establish and improve the reporting and investigation system to encourage and guide the society to participate in supervision.
(9) Strengthen supervision and inspection. The work of resolving the contradiction of serious overcapacity is listed as an important part of implementing the central government's major decision-making deployment supervision and inspection, strengthening the supervision and inspection of the implementation of this opinion, and implementing the main responsibility of local governments. Seriously enforce the accountability, criticize and criticize the localities and departments that have failed to carry out their work, and establish a sound system of responsibility extension. Intensify the investigation and handling of cases, and fail to supervise illegal and illegal construction of industries with serious overcapacity, and investigate the relevant responsible persons' responsibilities in accordance with relevant state regulations. It will include the work of curbing redundant construction and resolving the serious excess of production capacity into the local government performance evaluation index system. Timely publicly resolve the progress of serious overcapacity, and play the role of public opinion guidance by the news media and the supervision of the public.
Sixth, implementation guarantee
All regions and departments should further raise their awareness, unify their thoughts and actions to the central government's decision-making and deployment, earnestly perform their duties, strengthen coordination and cooperation, and work together to promote the resolution of serious overcapacity with a high sense of responsibility, mission and innovation. Work. The land and resources department should further strengthen the management of land for land use and ensure the land barrier; the environmental protection department should continue to strengthen environmental supervision and manage the environmental protection threshold; the financial sector should improve and strengthen credit management and use credit gates. All relevant departments shall, in accordance with the requirements of this opinion, work hard to formulate supporting documents according to the division of responsibilities, improve supporting policies, and ensure that all tasks are implemented. The provincial people's governments have overall responsibility for the resolution of the overcapacity of overcapacity in the region, formulate specific implementation plans and organize implementation in light of the actual situation, attach great importance to and effectively prevent social risks, effectively strengthen organizational leadership, supervision and inspection, and steadily and steadily resolve the serious excess capacity. Work to ensure the smooth implementation of the tasks of this opinion. Strengthen publicity and guidance, do a good job of policy interpretation, and create a good social atmosphere to resolve the contradiction of serious excess capacity.
State Council
October 6, 2013
(This item has been deleted)
Guofa [2013] No. 41
The people's governments of all provinces, autonomous regions and municipalities directly under the Central Government, ministries and commissions under the State Council, and their respective agencies:
Resolving the contradiction of serious overcapacity is the focus of work to promote industrial restructuring in the current and future period. In order to actively and effectively resolve the contradiction between the overcapacity of steel, cement, electrolytic aluminum, flat glass, shipbuilding and other industries, and to guide other industries with overcapacity to resolve the work, this opinion is formulated.
First, fully understand the importance and urgency of resolving the contradiction of serious excess capacity
Under the conditions of market economy, the supply is more than demand is the premise that the market competition mechanism plays a role, which is conducive to regulating supply and demand and promoting technological progress and management innovation. However, when the production capacity of the product seriously exceeds the effective demand, it will cause huge waste of social resources, reduce the efficiency of resource allocation, and hinder the upgrading of the industrial structure.
Affected by the deepening of the international financial crisis, the international market continued to slump, the growth of domestic demand slowed down, and the contradiction between oversupply in some industries in China became increasingly prominent. The traditional manufacturing capacity was generally overcapacity, especially high consumption and high emissions such as steel, cement and electrolytic aluminum. The industry is particularly prominent. At the end of 2012, China's steel, cement, electrolytic aluminum, flat glass, and ship capacity utilization rates were only 72%, 73.7%, 71.9%, 73.1%, and 75%, respectively, significantly lower than the international average. The profits of steel, electrolytic aluminum, shipbuilding and other industries have fallen sharply, and enterprises are generally difficult to operate. It is worth noting that there are still a number of projects under construction and proposed construction in these industries with severe overcapacity. The overcapacity is intensifying. Failure to take timely measures to resolve it will inevitably exacerbate vicious competition in the market, causing the loss of the industry to expand, the unemployment of enterprise employees, the increase of non-performing assets of banks, the intensification of bottlenecks in energy resources, and the deterioration of the ecological environment, directly jeopardizing the healthy development of the industry and even affecting The overall improvement of people's livelihood and social stability.
At present, the serious overcapacity in China is mainly affected by various factors such as the development stage, development concept and institutional mechanism. In the development stage of accelerating industrialization and urbanization, market demand is growing rapidly. Some enterprises are too optimistic about market expectations. Blind investment has intensified capacity expansion. Some industries have extensive development methods, weak innovation ability, low industrial concentration, and no formation. The pattern of industrial development led by excellent and strong enterprises has led to serious disorderly competition and repeated construction in the industry; some places are too aggressive in their development speed, relying too much on investment, and attracting investment through low-cost land supply, tax reduction, and low-cost allocation of resources. At the same time, the reform of resource elements market is lagging behind, the guidance and constraints of policies, planning, standards, and environmental protection are not strong, the investment system and management methods are not perfect, and supervision and inspection and accountability are not in place, resulting in The price of production factors is distorted, the market environment for fair competition is not perfect, the role of market mechanisms has not been effectively utilized, the channels for exiting backward production capacity are not smooth, and the contradiction of overcapacity has intensified.
The serious overcapacity has become the root cause of the prominent contradictions and many problems in China's economic operation. Business difficulties, fiscal revenue decline, and financial risk accumulation are all closely related to the overcapacity. Resolving the serious overcapacity of production capacity will inevitably bring pains. Some industries will even hurt the bones. However, in the overall and long-term perspective, the containment of contradictions will be further aggravated, the investment direction will be guided, the adjustment of industrial structure will be accelerated, and industrial transformation and upgrading will be promoted. Systemic financial risks are of great significance in maintaining the sustained and healthy development of the national economy. Therefore, it is necessary to resolutely control the increment, optimize the stock, deepen the system reform and mechanism innovation, and accelerate the establishment and improvement of a market-oriented long-term mechanism for resolving the serious excess of production capacity. This is a complicated system project. The task is very arduous. It must be carefully planned, deployed, and coordinated, and actively and steadily promoted.
Second, the overall requirements, basic principles and main objectives
(1) General requirements.
Fully implement the spirit of the 18th National Congress of the Communist Party of China, take Deng Xiaoping Theory, the important thinking of the "Three Represents" and the scientific development concept as the guide, adhere to the transformation of development mode as the main line, and resolve the serious overcapacity of production capacity as the focus of industrial restructuring. Respecting the rules, dividing the policies, multi-pronged approach, and treating the common principles of both the symptoms and the root causes, based on the current, focusing on the long-term, focusing on strengthening macro-control and market supervision, resolutely curbing the blind expansion of production capacity; focusing on the role of market mechanisms, improving supporting policies, "digesting A batch, transfer a batch, integrate a batch, eliminate a batch of "overcapacity"; focus on innovation system and mechanism, accelerate the transformation of government functions, establish a long-term mechanism to resolve the serious overcapacity of production capacity, and promote industrial transformation and upgrading.
(2) Basic principles.
-- Adhere to the principle of respecting the market and improving macroeconomic regulation. Give play to the role of the main body of the enterprise market, strengthen the sense of corporate responsibility; strengthen the market supply and demand trend research and information guidance, comprehensively apply the law, the economy and the necessary macro-control measures to strengthen policy coordination, form a synergy to resolve the serious excess of production capacity and guide the healthy development of the industry.
-- Adhere to the combination of market demand and industrial transformation and upgrading. Maintain a reasonable growth of investment, foster new consumption growth points, expand the scale of the domestic market, consolidate and expand the international market, and digest domestic excess capacity. Strengthen the orientation of demand upgrading, foster high-end product market, promote the optimization of production capacity structure, and promote industrial transformation and upgrading.
-- Adhere to the combination of strict control increments and adjustments to optimize stocks. Strict factor supply and investment management, curb blind expansion and redundant construction; promote mergers and acquisitions, integrate and compress excess capacity; implement overseas investment and industrial restructuring, transfer domestic excess capacity; strengthen resource and energy and environmental constraints, accelerate the elimination of backward production capacity; Regional coordinated development and optimization of industrial layout.
-- Adhere to the combination of improving policy measures and deepening reform and innovation. Improve and refine the supporting policies and measures to resolve the contradiction of overcapacity, establish a central and local linkage mechanism, strengthen coordination services, give play to the joint efforts of departments, implement local responsibilities, deepen reform of key areas and innovation of institutional mechanisms, and form a role in promoting market competition. Effectively resolve the institutional and institutional environment for a serious overcapacity.
(3) Main objectives.
Through five years of hard work, significant progress has been made in resolving the contradictions of overcapacity:
——The scale of production capacity is basically reasonable. The total capacity of steel, cement, electrolytic aluminum, flat glass, shipbuilding and other industries is compatible with environmental carrying capacity, market demand and resource security. The spatial layout is coordinated with regional economic development, and the capacity utilization rate has reached a reasonable level.
-- The quality of development has improved significantly. The merger and reorganization achieved substantial progress, the production capacity structure was optimized; the level of clean production and pollution control was significantly improved, the comprehensive utilization level of resources was significantly improved; the economic benefits were improved, the profitability level returned to a reasonable level, and the industry average debt ratio remained within the controllable range of risks. The core competitiveness has been significantly enhanced.
-- The long-term mechanism was initially established. The market environment of fair competition has been perfected, and the role of the main body of the enterprise market has been fully exerted. The early warning system and supervision mechanism for excess industry capacity have been basically established, and important reforms in key areas such as resource factor price, fiscal and taxation system, and accountability system have made important progress.
Third, the main task
(1) Resolutely curb the blind expansion of production capacity.
Construction of new capacity projects is strictly prohibited. Strictly implement the national investment management regulations and industrial policies, and strengthen the project management of industries with severe overcapacity. All localities and departments shall not approve or record new capacity projects in industries with severe overcapacity in any name or in any way. All relevant departments and agencies may not handle land. (Sea area) supply, energy assessment, EIA approval and new credit support and other related businesses.
The classification properly handles violations under construction. For projects that fail to comply with the relevant procedures or procedures that are not in accordance with laws, regulations, such as land, environmental protection, and investment management, the local government shall conduct a comprehensive clean-up according to the requirements. All illegal projects that have not started construction shall not be constructed; any illegal projects that do not meet the industrial policies, access standards, and environmental protection requirements shall be suspended; the projects that are necessary to be constructed shall meet the requirements of layout planning and environmental carrying capacity, and On the basis of the principle of equal or reduced replacement, the local government will submit an application report to the Development and Reform Commission, the Ministry of Industry and Information Technology, and copy the relevant functional departments such as the Ministry of Land and Resources and the Ministry of Environmental Protection, the Development and Reform Commission, industry and information. The functional departments of the Ministry of Land Resources and the Ministry of Environmental Protection and other functional departments shall issue confirmation opinions on the basis of the evaluation of the entrusted consulting institutions, and all relevant departments shall complete the relevant procedures in accordance with the law. Unauthorized projects under construction shall not be renewed and shall be properly managed by the local government; if the project is concealed and not reported, the project shall be suspended immediately after the investigation is completed, and the financial institution shall stop issuing loans. The land and environmental protection departments shall be based on land management. Laws, environmental protection laws and other laws and regulations will be dealt with, and serious investigations will be taken on issues involving dereliction of duty and power and money transactions, and those responsible for supervision should be seriously investigated. At the same time, in accordance with the principle of who is responsible for violations, do a good job in debt, personnel placement and other after-care work. The results of all violations under construction should be disclosed to the public.
(2) Clean up and rectify and build illegal production capacity.
Thoroughly clean up and rectify. The provincial people's governments rely on the administrative licensing law, the land management law, the environmental protection law and other laws and regulations, as well as the energy consumption total control indicators, industrial structure adjustment guidance catalogue, industry norms and access conditions, environmental protection standards, etc. In the surplus industry, the illegal project will be completely cleaned up, and after the rectification plan is proposed and publicized, it will be reported to the Development and Reform Commission, the Ministry of Industry and Information Technology, the Ministry of Land and Resources, the Ministry of Environmental Protection and other departments for the record; for those who do not meet the requirements for filing, the relevant departments It is necessary to provide timely feedback.
Strengthen the management of standards. Governments at all levels should strengthen the standardized management of the establishment of illegal production capacity, the industrial authorities to strengthen industry norms and access management, the national and environmental protection departments to strictly supervise and inspect, the quality inspection department to conduct comprehensive evaluation of quality assurance capabilities, and issue product production licenses according to law. For projects with backward technological equipment, unqualified product quality, energy consumption and emissions, the project will be phased out and eliminated.
(3) Elimination and withdrawal of backward production capacity.
Resolutely eliminate backward production capacity. Decompose and implement the annual target, and complete the target of eliminating the backward production capacity in key industries such as “12th Five-Year Plan†steel, electrolytic aluminum, cement, flat glass, etc. one year ahead of schedule, and implement the equal or reduced replacement plan by improving the financial reward standard. Measures to encourage local governments to eliminate backward production capacity standards. Before the end of 2015, they will eliminate 15 million tons of ironmaking, 15 million tons of steel, 100 million tons of cement (clinker and grinding capacity) and 20 million weight boxes of flat glass. During the "Thirteenth Five-Year Plan" period, combined with the actual industrial development and environmental carrying capacity, through the improvement of energy consumption and pollutant discharge standards, strict implementation of special emission limit requirements, increase law enforcement penalties, and accelerate the elimination of a number of backward production capacity. Central enterprises should play a leading role in eliminating and withdrawing backward production capacity.
Guide the orderly exit of production capacity. Improve the incentive and restraint policies, study the establishment of a legal system for the withdrawal of excess capacity, and guide enterprises to take the initiative to withdraw from surplus industries. The industry has revised and strictly enforced the mandatory energy consumption limit standard, and implemented differentiated price policies such as differential electricity prices and punitive electricity prices and water prices for enterprises that exceed the energy consumption limit standards and environmental protection standards. In the construction of industrial projects with severe overcapacity, it is necessary to formulate a capacity replacement plan, implement equal or reduced replacement, and implement reduction reduction in environmentally sensitive areas such as Beijing-Tianjin-Hebei, Yangtze River Delta and Pearl River Delta. The provincial people's government where the project is located shall formulate a capacity reduction or reduction replacement plan and publicize it to the public. The competent department of the industry shall confirm and announce the capacity replacement plan, and at the same time, put the replacement capacity into the elimination list and supervise the implementation. Encourage all localities to actively explore government-led, voluntary, and market-oriented capacity replacement index transactions, and form a benign interactive mechanism to eliminate backwardness and develop advanced.
(4) Adjusting and optimizing the industrial structure.
Promote mergers and acquisitions. Improve and implement fiscal, taxation, finance, land and other policy measures to promote mergers and acquisitions. Coordinate and solve major problems of cross-regional mergers and acquisitions of enterprises, rationalize the distribution relationship between regions, and promote the integration of excess capacity among advantageous enterprises in the industry. Support mergers and acquisitions to integrate internal resources, optimize technology and product structure, and reduce excess capacity. Encourage and guide non-public enterprises to participate in mergers and acquisitions through various means such as equity participation, holding, and asset acquisition. Research and development guides to promote enterprises to be better and stronger, promote superior and strong enterprises to lead the development of the industry, support and foster the development and growth of superior and strong enterprises, improve industrial concentration, and enhance the coordination and self-discipline of industry development.
Optimize the layout of the industrial space. Scientifically formulate industrial layout plans, and rectify the adjustment and optimization of industrial layout in an orderly manner under the premise of resolutely curbing the blind expansion of production capacity and strictly controlling the total amount. In accordance with the overall strategic requirements of regional development, adapting to the needs of urbanization development, combined with local environmental carrying capacity, resource and energy endowment, industrial base, market space, logistics and transportation, etc., orderly promote industrial gradient transfer and environmental relocation, and retreat into the park to prevent Lagging production capacity. Support cross-regional capacity replacement, guide domestic effective production capacity to advantageous enterprises and regions with more comparative advantages, and promote the formation of regional economic and industrial development patterns with reasonable division of labor, complementary advantages and unique characteristics.
(5) Strive to develop domestic market demand.
Expand domestic effective demand. Adapt to the needs of industrialization, urbanization, informationization, and agricultural modernization, and tap the potential of the domestic market to digest some of the excess capacity. Promote the application of steel structures in the construction field, increase the proportion of steel structures used in public buildings and government investment and construction, and promote earthquake-resistant buildings such as light steel structure integrated houses in areas with high natural disasters such as earthquakes; promote building materials to the countryside and steadily expand steel products (3606) , -6.00, -0.17%), cement, aluminum profiles, flat glass and other market demand. Optimize the shipping capacity structure and speed up the elimination of old and old shipping ships.
Focus on improving the demand structure. Strengthen the orientation of demand upgrading, implement green building materials projects, develop green safe and energy-efficient buildings, revise relevant standards and standards, improve the use standards of steel, concrete and glass for construction, and promote product upgrading. Promote energy conservation, material saving and lightweight, promote the application of high-quality steel and aluminum, meet the needs of advanced manufacturing development and traditional industrial transformation and upgrading. Accelerate the cultivation of marine engineering equipment and offshore engineering facilities market.
(6) Actively expand the space for external development.
Consolidate and expand the international market. Encourage enterprises to actively participate in various trade promotion activities and innovate international trade methods. Expand the field of foreign engineering contracting, improve the quality and efficiency of foreign contracted projects, actively undertake major infrastructure and large-scale industrial, energy, communications, mineral resources development and other projects, drive domestic exports of technology, equipment, products, standards and services, and cultivate "China" Building an international brand. Adapt to the requirements of new international norms, new conventions and new standards, enhance the design and manufacturing capacity of energy-saving and environmentally-friendly ships, and stabilize the ship export market.
Expand foreign investment cooperation. Encourage superior enterprises to “go out†in various ways, optimize the distribution of manufacturing origin and digest domestic production capacity. Establish and improve the trade and investment platform and the “going out†investment and financing comprehensive service platform. Promote the establishment of overseas economic and trade cooperation zones to attract domestic enterprises to enter the park. In accordance with the principle of complementarity, mutual benefit and win-win, we will bring into play the advantages of technology, equipment and scale of steel, cement, electrolytic aluminum, flat glass, shipbuilding and other industries, and integrate resources and value chains on a global scale; strengthen with neighboring countries and emerging markets. State investment cooperation, adopting various forms to carry out foreign investment, building overseas production bases, improving the level of transnational operations of enterprises, and expanding new space for international development.
(7) Enhance the driving force for innovation driven by enterprises.
Break through the core key technologies. The use of market mechanisms and economic leverage will force enterprises to enhance the internal driving force of technological innovation, promote enterprise transformation and industrial upgrading, and enhance market competitiveness with product quality, standards and technology as the core elements. We will focus on building a technological innovation system that takes enterprises as the mainstay, market-oriented, and combines production, education, and research, and concentrates on breaking through and mastering a number of key common technologies. Encourage enterprises to implement technological transformation, promote the application of more energy-efficient, safe, environmentally friendly and efficient steel, electrolytic aluminum, cement, flat glass process technology, and enhance the design and manufacturing capabilities of high-tech ships and offshore engineering equipment.
Strengthen enterprise management innovation. Deepen the reform of state-owned enterprises and guide the transfer of state-owned capital from industries with severe overcapacity to strategic emerging industries and public utilities. Encourage enterprises to strengthen strategic management, cultivate well-known brands, strengthen product innovation, organizational innovation, business model innovation, enhance effective supply, and create effective demand. Improve the level of enterprise management information and promote refined management. Focus on the development of entrepreneurial talents, strengthen the construction of innovative talents, and improve the people-oriented corporate talent incentive mechanism. Summarize and promote the outstanding achievements of enterprise management innovation, and implement the enterprise management innovation demonstration project.
(8) Establish a long-term mechanism.
Innovative government management. Strengthen coordination of industry, land, environmental protection, energy conservation, finance, quality, safety, import and export, strengthen land use, sea and shoreline review, strict environmental protection and quality supervision and management, adhere to independent bank lending, and form laws and regulations Clear market regulation mechanism with clear responsibilities. Deepen the reform of the investment system and strengthen the management of the matter and the post-mortem. Strengthen the dynamic monitoring and analysis of industries with severe overcapacity and establish an early warning mechanism for overcapacity information.
Create a fair environment. We will guarantee the equal use of production factors in all forms of ownership economy, participate in market competition fairly, and be equally protected by law. We will effectively reduce administrative interventions on production and business operations of enterprises, and resolutely clean up and abolish local governments' preferential policies for harming fair competition such as land, resources, taxes, and electricity prices in attracting investment, as well as restrictions on local protection and market segmentation. Strengthen the protection of intellectual property rights and quality systems, crack down on counterfeit and shoddy products, rectify and standardize market order, and form a market environment conducive to innovation and entrepreneurship.
Improve the market mechanism. Promote resource tax reform and environmental protection tax legislation. Rationalize the market formation mechanism of resources and factor prices, improve differentiated price policies, improve energy consumption, material consumption, water consumption and ecological environmental protection standards for industrial access, and give full play to the basic role of market allocation of resources. With the upper limit of resource and environment carrying capacity, it is forced to exceed the standard production capacity, achieve energy conservation and emission reduction standards and improve the natural environment. Improve the transfer payment system and establish an eco-environmental compensation responsibility system.
Fourth, the division of policy
For industries with severe overcapacity, it is necessary to carry out selective, focused and targeted solutions according to the characteristics of the industry.
Steel. Focus on promoting the structural adjustment of steel industry in Shandong, Hebei, Liaoning, Jiangsu, Shanxi, Jiangxi and other regions, giving full play to the enthusiasm of local governments, integrating the dispersion of steel production capacity, promoting the relocation of urban steel plants, optimizing the industrial layout, and compressing the total capacity of steel production by 80 million tons. the above. Gradually increase the standards for steel products such as hot-rolled ribbed steel bars, electrical steels, and marine steels, revise and improve the design specifications for steel use, and comprehensively promote the application of high-strength steel bars of 400 MPa and above in the longitudinal reinforcement of building structures, replacing 335 megabytes. Low-quality steel such as hot rolled ribbed steel. Accelerate the promotion of classification and certification management of high-strength steel products. Implement the fair taxation policy and cancel the import steel bonded policy under the processing trade.
cement. Accelerate the revision of cement and concrete product standards and related design specifications, promote the use of high-grade cement and high-performance concrete, eliminate 32.5 composite cement product standards as soon as possible, and gradually reduce the proportion of 32.5 composite cement. Encourage the use of existing cement production lines, comprehensive utilization of waste slag to develop high-grade cement and new products such as special cement that meet the needs of marine, port, nuclear power, tunnels and other engineering needs. Support the use of existing cement kiln harmlessly to co-dispose urban domestic waste and industrial waste, further improve the cost settlement mechanism, and the proportion of co-disposal production lines is not less than 10%. Strengthen the discharge of major pollutants such as nitrogen oxides and the energy and resource unit consumption indicators, and eliminate the production lines that are not up to standard.
Electrolytic aluminum. By the end of 2015, the pre-baked tanks below 160,000 amps will be eliminated. The electricity consumption per ton of aluminum liquid electrolysis will be more than 13,700 kWh, and the capacity of the standard conditions will not be reached after the end of 2015. The price of electricity will rise by 10% on the basis of the standard price. It is strictly forbidden to introduce preferential electricity price measures by themselves, and adopt comprehensive measures to promote the gradual withdrawal of production capacity that lacks the advantage of electricity price, and orderly transfer to areas with energy competitiveness, especially hydropower-rich areas. Support electrolytic aluminum enterprises and power companies to sign long-term contracts for direct purchase of electricity, and promote the development and application of lightweight aluminum products for transportation vehicles. Encourage domestic enterprises to build electrolytic aluminum production bases in areas rich in energy abroad.
plate glass. Revise the standard and application specifications of flat glass and products, use doors and windows that meet energy-saving standards in new buildings and existing building renovations, encourage the use of low-radiation insulating glass, support the upgrading of existing production lines, and improve the proportion of high-quality float glass. The development of functional glass, encourage the integration of the original film production and deep processing, the deep processing rate of flat glass reaches more than 50%, and cultivate the glass deep processing base. Accelerate the structural adjustment of key production areas and environmentally sensitive areas in Hebei, Guangdong, Jiangsu and Shandong. Support joint restructuring and form a group of enterprise groups with complete industrial chain and strong core competitiveness.
Ship. Improve the level of marine development equipment, strengthen the construction of marine security capabilities, fully tap the domestic demand potential of ship equipment in the fields of shipping, marine engineering, fishery, administrative law enforcement, emergency rescue, etc., and adjust and optimize the ship product structure. Increase the credit financial support for export vessels and encourage powerful enterprises to establish overseas sales and service bases. We will improve the R&D and construction capabilities of marine products that meet new international norms, new conventions, and new standards, encourage the transfer of existing shipbuilding capacity to the offshore engineering equipment sector, support the transformation and transformation of SMEs, and increase the proportion of high-end production capacity. Improve industry access standards and implement differentiated policies for shipbuilding companies that do not meet the entry requirements and have not accepted new ship orders for more than one year. Support enterprise mergers and acquisitions to improve industrial concentration.
V. Policy measures
(1) Improve industry management. Give full play to the guiding and restricting role of industry planning, policies and standards, implement industrial transformation and upgrading plans and industry development plans, and revise and improve steel and cement industry policies and access conditions for aluminum, cement, flat glass and shipbuilding industries. Strengthen industry access and standard management, and announce the list of qualified production lines and enterprises. Timely release of information on capacity utilization, market supply and demand, etc. in industries with severe overcapacity. Regularly release the list of enterprises that have eliminated backward production capacity. Strengthen product quality management and implement product quality classification supervision in industries with severe overcapacity. Give play to the important role of industry associations in industry self-discipline and information services.
(2) Strengthening the supervision and management of environmental protection and hard constraints. Strengthen environmental access management, strictly control the total discharge of major pollutants in the region, and improve regional restrictions. We will promptly study and improve pollutant discharge and environmental quality standards, especially for environmentally sensitive areas such as Beijing, Tianjin and Hebei. We will carry out dynamic monitoring of environmental quality and discharge of key pollution sources, and implement measures such as limiting production and stopping production for enterprises with excessive pollutant discharge. Enterprises with serious overcapacity will strengthen law enforcement supervision and inspection, expose the list of environmentally illegal enterprises, increase penalties, and order rectification within a time limit. Enterprises with serious pollution discharges should stop production and rectification, and still do not meet pollutant discharge standards and special emissions after rectification and rectification. Enterprises with relevant regulations such as limits shall be closed down.
(3) Strengthening land and shoreline management. Strengthen the land use and shoreline management of the project, conduct comprehensive inspections on the land and shoreline of enterprises with serious overcapacity, clean up and rectify the use of land and shoreline for illegal construction projects, and investigate and punish the illegal activities of the discovered land. Strengthen the review of newly used land and shoreline in industries with severe overcapacity, and refuse to approve the use of land and shoreline for projects that have not been approved or filed. All localities should cancel preferential policies for land use projects with serious excess capacity. The government land reserve institution can recover the land for the environmental protection relocation, merger and reorganization, elimination of backwardness, etc., and the land compensation fee paid to the enterprise according to the regulations can be used to support the enterprise to do a good job in post-processing and transformation.
(4) Implementing a financial policy with insurance control. Implement targeted credit guidance policies for industries with severe overcapacity to strengthen and improve credit management. Construction projects that have not obtained legal procedures shall not be allowed to lend, issue bonds or go public. Protect financial claims in accordance with the law. Encourage commercial banks to increase credit support for mergers and acquisitions of overcapacity, transformation and transformation, product structure adjustment, technological transformation, and transfer of production capacity to overseas markets and market expansion in accordance with the principles of risk control and commercial sustainability. For enterprises integrating excess capacity, the M&A loan business will be actively and steadily carried out, and the interest rate of M&A loans will be reasonably determined. The loan term can be extended to 7 years. Vigorously develop various types of institutional investment, encourage innovation fund varieties, and explore corporate mergers and acquisitions financing channels. Increase the loan support of enterprises “going outâ€, appropriately simplify the examination and approval procedures, improve overseas investment insurance products, research and improve the “going out†investment and financing service system, and support the transfer of production capacity to overseas.
(5) Improve and standardize the price policy. Deepen the reform of resource product prices in accordance with the principle of reflecting resource scarcity and environmental costs. Continue to implement and improve non-resident water use quotas and environmental protection fees. We will improve the differential electricity price policy, and all localities will clean up and rectify the preferential electricity price policy for industries with severe overcapacity. It is forbidden to implement electricity price concessions and electricity subsidies. For high-energy-consuming industries such as steel, cement, electrolytic aluminum, and flat glass, energy consumption, power consumption, and water consumption do not meet industry-standard production capacity, and differential electricity prices and punitive electricity prices and water prices are implemented.
(6) Improve fiscal and tax support policies. The central government has increased its support for structural adjustment and industrial upgrading of industries with severe overcapacity, and local governments have arranged special funds to support them. The central government will use the existing capital channels such as eliminating backward production capacity incentive funds, appropriately expand the scale of funds, and support the overcapacity of industries with severe overcapacity. We will improve taxation policies that promote mergers and acquisitions, encourage corporate restructuring, and improve market competitiveness. For enterprises that transfer excess capacity overseas, their export equipment and products can enjoy the export tax rebate policy according to the current regulations. Revise and improve the comprehensive utilization of resources and taxation preferential policies, support the production of high-grade cement, high-performance concrete and the use of cement kilns to dispose of municipal waste, sludge and industrial waste.
(7) Implementing the staff resettlement policy. Governments at all levels must earnestly take responsibility and resolve the situation of enterprises with laid-off and unemployed people in the contradiction of serious overcapacity into the employment support policy system. We will implement policies to promote self-employment, encourage enterprises to absorb employment, and help employment of people with employment difficulties. We will strengthen services such as free employment introduction and career guidance for laid-off workers, provide vocational training, conduct entrepreneurial guidance and entrepreneurship training, and implement self-employment. Policies such as tax reductions and small guarantee loans, support laid-off and unemployed people to start employment through entrepreneurship. We will effectively carry out the social insurance relationship of laid-off workers and transfer them, implement their social security benefits in accordance with regulations, and properly handle employee labor relations in accordance with the law.
(8) Establish a project information base and open system. Establish a unified national investment project information base, and give full play to the role of informatization in market supervision. Combining the administrative examination and approval of cancellation and decentralization projects, as well as strengthening the requirements for post- and post-event supervision, we will take the lead in establishing an information database of industries with serious overcapacity such as steel and electrolytic aluminum, covering the current situation of existing projects under construction and approved or filed projects. . Strengthen the information disclosure and service of construction projects, and interconnect with the information systems of land, environmental protection and finance to form a coordinated supervision mechanism. At the same time, establish and improve the reporting and investigation system to encourage and guide the society to participate in supervision.
(9) Strengthen supervision and inspection. The work of resolving the contradiction of serious overcapacity is listed as an important part of implementing the central government's major decision-making deployment supervision and inspection, strengthening the supervision and inspection of the implementation of this opinion, and implementing the main responsibility of local governments. Seriously enforce the accountability, criticize and criticize the localities and departments that have failed to carry out their work, and establish a sound system of responsibility extension. Intensify the investigation and handling of cases, and fail to supervise illegal and illegal construction of industries with serious overcapacity, and investigate the relevant responsible persons' responsibilities in accordance with relevant state regulations. It will include the work of curbing redundant construction and resolving the serious excess of production capacity into the local government performance evaluation index system. Timely publicly resolve the progress of serious overcapacity, and play the role of public opinion guidance by the news media and the supervision of the public.
Sixth, implementation guarantee
All regions and departments should further raise their awareness, unify their thoughts and actions to the central government's decision-making and deployment, earnestly perform their duties, strengthen coordination and cooperation, and work together to promote the resolution of serious overcapacity with a high sense of responsibility, mission and innovation. Work. The land and resources department should further strengthen the management of land for land use and ensure the land barrier; the environmental protection department should continue to strengthen environmental supervision and manage the environmental protection threshold; the financial sector should improve and strengthen credit management and use credit gates. All relevant departments shall, in accordance with the requirements of this opinion, work hard to formulate supporting documents according to the division of responsibilities, improve supporting policies, and ensure that all tasks are implemented. The provincial people's governments have overall responsibility for the resolution of the overcapacity of overcapacity in the region, formulate specific implementation plans and organize implementation in light of the actual situation, attach great importance to and effectively prevent social risks, effectively strengthen organizational leadership, supervision and inspection, and steadily and steadily resolve the serious excess capacity. Work to ensure the smooth implementation of the tasks of this opinion. Strengthen publicity and guidance, do a good job of policy interpretation, and create a good social atmosphere to resolve the contradiction of serious excess capacity.
State Council
October 6, 2013
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