In a recent development, the National Development and Reform Commission, along with ten other departments, issued a newly revised version of the "Administrative Measures for the Comprehensive Utilization of Fly Ash" through a joint decree. This update aims to clarify the definition of fly ash utilization, set out comprehensive management requirements, encourage targeted support, and define the responsibilities of relevant authorities. A reporter from the media had an exclusive interview with an official from the National Development and Reform Commission.
Q: Could you briefly explain the current status of fly ash utilization in China?
A: In 1994, six ministries and commissions, 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 were designed to provide support for investment policies and construction funds for fly ash utilization projects, while implementing tax reductions and other supportive policies. Since the original regulations were introduced, China's fly ash utilization has seen significant progress under national industrial policy guidance, preferential policies, and scientific innovation funding. The overall utilization rate increased from 35% in 1994 to 68% by 2011.
Since the "Tenth Five-Year Plan" period, China's energy consumption has risen rapidly, leading to increased coal production and a surge in coal-fired power plants. Consequently, fly ash production has grown substantially, and its comprehensive utilization has continued to rise steadily. During the "Eleventh Five-Year Plan" period, the utilization rate remained around 67%, with a slight increase, surpassing that of developed countries like the United States.
The application areas of fly ash have also expanded significantly. Over time, China’s approach to fly ash utilization has evolved from "relying on storage" to "combining storage and use," and now primarily "using it." Today, fly ash is used in the production of cement, concrete, building materials, road construction, soil improvement, backfilling, bio-fertilizers, and high-value material extraction. It is now widely applied across sectors such as construction, metallurgy, chemical engineering, and agriculture, with numerous specialized enterprises emerging.
Technological advancements have also played a key role. Fly ash is commonly used as an admixture in concrete and mortar, and in the production of new wall materials like fly ash bricks and ceramics. Road base materials also benefit from fly ash usage. With the introduction of advanced foreign technologies, China has achieved international standards in fly ash-based building materials, with production lines capable of outputting over 100 million tons annually. High-grade alumina technology for coal ash has been included in the "National 11th Five-Year Plan for Science and Technology Support Program," and demonstration projects for industrializing alumina extraction are progressing well. Additionally, fly ash-derived microbeads are being used in refractory and insulation materials, forming a growing industry.
Q: What led to the revision of the "Administrative Measures"?
A: The revision was driven by four main factors.
First, there has been a rapid increase in fly ash production. Thermal power generation has grown significantly in recent years, leading to a steady rise in fly ash output. 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 that by the end of the Twelfth Five-Year Plan, fly ash production will reach 570 million tons, presenting a serious challenge for comprehensive utilization.
Second, regional imbalances and the expansion of usage areas require macroeconomic policy guidance. Despite progress, fly ash utilization remains uneven across regions. Areas rich in coal and thermal power plants often face limitations due to market conditions and technical constraints, resulting in lower utilization rates. Some regions also struggle with land occupation and environmental pollution issues. Meanwhile, coastal and urban areas have higher utilization levels, with fly ash increasingly viewed as a valuable resource. Local governments and waste recycling companies show strong interest, and in some places, fly ash is even in short supply. The development of high-tech technologies for coal ash extraction further demands more efficient and rational use of resources.
Third, the original "Administrative Measures" are no longer suitable for the current environment. With improvements in laws such as the Cleaner Production Promotion Law and the Law on Prevention and Control of Environmental Pollution Caused by Solid Wastes, and especially the implementation of the Circular Economy Promotion Law, the need for resource utilization has become more urgent. Many provisions in the original measures are outdated. Additionally, after the issuance of the Administrative Licensing Law, legal frameworks have become stricter, requiring updated guidelines.
Fourth, changes in management structures have necessitated revisions. Since the original measures were issued, two major institutional reforms have taken place. The original six departments have been restructured, and local authorities remain unclear, leading to fragmented management and reduced effectiveness. To improve this, the roles and responsibilities of relevant departments must be clarified, creating a more complete and effective management system.
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