In a recent development, the National Development and Reform Commission, along with ten other government departments, issued a newly revised "Administrative Measures for the Comprehensive Utilization of Fly Ash" through a joint decree. This update aims to redefine the concept of fly ash utilization, set clear requirements for its management, and encourage targeted support while clarifying the responsibilities of relevant authorities. The reporter spoke with an official from the National Development and Reform Commission to gain further insight into the background and implications of these changes.
Q: Could you briefly outline the current state of fly ash comprehensive utilization in China?
A: In 1994, six ministries including the former State Economic and Trade Commission, Ministry of Power, Ministry of Finance, Ministry of Construction, Ministry of Transport, and State Administration of Taxation jointly issued and implemented the "Administrative Measures for the Comprehensive Utilization of Fly Ash." These measures emphasized supporting investment policies, securing construction funds, and implementing tax reductions to promote fly ash utilization. Since then, under national industrial policy guidance and supportive financial and technological initiatives, China’s fly ash utilization rate has seen significant growth—from 35% in 1994 to over 68% by 2011.
Over the years, the comprehensive utilization of fly ash has steadily increased. During the "Tenth Five-Year Plan" period, China's energy consumption and coal production rose rapidly, leading to a sharp increase in fly ash generation. By the time of the "Eleventh Five-Year Plan," the utilization rate remained around 67%, surpassing that of developed countries like the United States.
The application areas of fly ash have also expanded significantly. China’s fly ash utilization has gone through three stages: relying on storage, combining storage with use, and finally focusing on active utilization. Today, fly ash is used in various sectors such as building materials (e.g., cement, concrete, bricks), road construction, agriculture (e.g., soil improvement, fertilizers), and even high-value material extraction. This has led to the emergence of specialized companies across multiple industries.
Technological advancements have further enhanced fly ash utilization. For example, it is now commonly used as an additive in concrete and mortar, and in the production of new wall materials like fly ash bricks and ceramics. Road base materials made from fly ash are also widely applied. Advanced technologies introduced from abroad have brought Chinese fly ash-based building material production up to international standards, with many large-scale production lines operating annually.
Additionally, high-grade alumina extraction from fly ash is included in the "National 11th Five-Year Plan for Science and Technology Support Program," and pilot projects for industrializing this process are progressing well. The use of fly ash to extract microbeads for refractory and insulation materials is also gaining traction.
Q: What were the main reasons behind the revision of the "Administrative Measures"?
A: The revision was primarily driven by four key factors.
First, there has been a rapid increase in fly ash production. With the expansion of thermal power generation, fly ash output has surged. During the Tenth Five-Year Plan, non-fly ash production reached 802 million tons, and by the end of the Eleventh Five-Year Plan, fly ash production had reached 480 million tons. It is projected to reach 570 million tons by the end of the Twelfth Five-Year Plan, creating a more urgent need for effective utilization.
Second, regional imbalances and the expansion of usage areas require stronger macroeconomic policy guidance. While some regions, particularly coastal and economically developed areas, have high utilization rates, others—especially those with abundant coal resources—still face challenges due to market and technical constraints. Environmental issues such as land occupation and pollution remain significant concerns. Meanwhile, the growing recognition of fly ash as a valuable resource has spurred greater interest from local governments and recycling companies.
Third, the original "Administrative Measures" no longer fully align with the evolving legal and regulatory environment. New laws, such as the "Cleaner Production Promotion Law" and the "Circular Economy Promotion Law," have raised the bar for resource utilization. The previous regulations lacked alignment with these updated standards, and adjustments to preferential policies and financial support mechanisms have also been necessary.
Fourth, changes in administrative structures have necessitated clearer roles and responsibilities. Over the years, institutional reforms have altered the landscape of fly ash management. The original six-department framework has been replaced, and local authorities often lack clear directives, resulting in inefficiencies. The revised regulations aim to address these gaps and establish a more effective and coordinated management system.
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