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China’s Industrial Surplus and the World Economy

Watercolour illustration of red-and-white container cranes loading a ship at Yangshan Port in morning haze, with a red pavilion and two workers on a hillside

China now produces more than a quarter of the world’s manufacturing value added, runs the largest goods trade surplus ever recorded, and holds a commanding share of global output in industries as different as steel, ships, solar modules, batteries and industrial robots. This essay sets out the scale of that capacity using recent official and industry figures, explains the economic and political causes behind it, and considers what it means for China’s trading partners, for countries that hope to industrialise, and for the balance of industrial power.

The scale of Chinese manufacturing

The usual measure of a country’s manufacturing weight is value added: what its factories produce, less the inputs they buy. On World Bank figures, China’s manufacturing value added was about $4.82 trillion in 2025, out of a world total of about $17.6 trillion, a share of roughly 27 per cent in current dollars. The European Union’s was about $3.03 trillion, Japan’s about $0.79 trillion in 2024, and that of the United States about $2.90 trillion in 2025 according to the Bureau of Economic Analysis. On this measure China produces more than either the United States or the European Union, and a little under three-quarters of the three largest advanced economies taken together.

Value added understates China’s position in one respect. Much Chinese output is in sectors such as electronics and machinery, where factories buy large volumes of parts from other factories, so that gross output is far larger than value added. Measured by gross production, Richard Baldwin, using OECD data for 2020, found that China accounted for about 35 per cent of world manufacturing. “China’s share now exceeds that of the next largest manufacturers combined,” he wrote, describing China as “the world’s sole manufacturing superpower”. On a gross basis, Chinese industry is roughly comparable in size to the manufacturing sectors of the United States, the European Union and Japan combined.

The sector figures are as striking. The World Steel Association reports that China produced 960.8 million tonnes of crude steel in 2025, about 52 per cent of the world total. China’s Ministry of Industry and Information Technology reports that Chinese shipyards completed 56.1 per cent of the world’s new tonnage in 2025, won 69.0 per cent of new orders and held 66.8 per cent of the global order book. China produced 16.6 million new-energy vehicles and exported 2.6 million, roughly double the previous year. The International Energy Agency estimates that global lithium-ion battery manufacturing capacity exceeded four terawatt-hours at the end of 2025, more than four-fifths of it in China, against deployment in electric vehicles of about 1.2 terawatt-hours. The China Photovoltaic Industry Association reports that Chinese factories had about 1,089 gigawatts of solar module capacity in 2025 and made 574.5 gigawatts of modules, while world installations were about 690 gigawatts. China made 45.0 million tonnes of primary aluminium, about three-fifths of world output, and about 1.7 billion tonnes of cement, close to 45 per cent of the world total on United States Geological Survey estimates. Cefic, the European chemical industry body, estimates that China accounted for 46 per cent of global chemical sales in 2024. TrendForce has projected that China’s share of mature-node semiconductor capacity will rise from 29 per cent in 2023 to about a third by 2027. The International Federation of Robotics records that 295,000 industrial robots were installed in China in 2024, 54 per cent of the world total.

Huaxia has written about several of these industries separately, including Baowu and the making of China’s steel industry, how China came to dominate shipbuilding and the numbers behind China’s EV battery dominance. The historical question of why China kept so much manufacturing at home while Britain did not is the subject of why China makes everything and Britain doesn’t.

Capacity, utilisation and prices

Capacity is not the same as output, and in China the gap between them has widened. The National Bureau of Statistics reports that industrial capacity utilisation, the ratio of actual output to the output existing plant could sustain, was 73.6 per cent in the first quarter of 2026, 73.0 per cent in the second and 73.1 per cent in the third, 1.5 points lower than a year earlier. In the third quarter vehicle manufacturers used 66.2 per cent of capacity, producers of non-metallic minerals such as cement and glass 61.2 per cent, and chemical makers 69.7 per cent. In some sectors the figures are lower still: Michael Pettis of the Carnegie Endowment has written that utilisation in polysilicon, the base material for solar cells, fell below 40 per cent in 2025, with Chinese producers supplying about 95 per cent of the world’s polysilicon, roughly twice world demand.

Persistent surplus capacity shows itself in prices. China’s producer price index fell year on year for 41 consecutive months, from October 2022 to February 2026. Export prices followed: Trivium China calculated that Chinese manufacturers cut export prices by 5.4 per cent year on year in the fourth quarter of 2025, the steepest fall in four quarters, so that export volumes grew faster than export values. The headline picture changed in 2026. The producer price index turned positive in March and was rising at 5.0 per cent a year by September. The statistics bureau attributed most of the increase to higher international oil, coal and metal prices following the conflict in the Middle East, though it also noted price rises for solar equipment and lithium batteries as regulators curbed price competition. Factory-gate prices for consumer goods were still slightly lower than a year earlier. Higher input costs have ended headline deflation without resolving the imbalance between what Chinese industry can make and what Chinese buyers will purchase.

Scale, clusters and skills

The first cause of China’s industrial strength is scale and the clustering of related producers. A manufacturer in the Pearl River Delta or the Yangtze River Delta can usually find suppliers of almost any component, tool, mould or material within a few hours’ drive, and switch between them when one fails. Clusters of this kind lower the cost of experiment and allow small firms to specialise narrowly. Huaxia’s account of how Dongguan became a manufacturing city describes one such cluster. China is also unusual in the breadth of its base; official sources describe it as the only country with every industrial category in the United Nations classification. Baldwin observed that China’s “wide and deep industrial base can help it gain a competitive edge in virtually all sectors”.

The second cause is human. China produces very large numbers of graduates in science and engineering, a subject Huaxia examined in how many STEM graduates China produces. Equally important is the practical experience accumulated over four decades of factory work by technicians, process engineers and managers. That experience shows in speed. AlixPartners estimated in 2025 that Chinese makers of new-energy vehicles take about 20 months to develop a new model, against about 40 months for established manufacturers elsewhere. Huaxia’s essays on how China built its own brands and on BYD’s move from batteries to cars trace the process in particular firms.

The state as investor

The third cause is policy. Chinese governments at every level treat manufacturing capacity as a strategic asset. The State Council’s Made in China 2025 plan of 2015 named ten priority sectors, among them new-energy vehicles, power equipment, robotics, aerospace and shipbuilding, and set targets for domestic content. The recommendations for the Fifteenth Five-Year Plan, adopted in October 2025, state that “the share of manufacturing in the national economy should be kept at an appropriate level, and a modernized industrial system should be developed with advanced manufacturing as the backbone.” Most advanced economies allowed manufacturing’s share of output to decline as incomes rose; China has made resisting that decline an objective of policy.

The instruments are numerous. An IMF working paper of 2025 estimated Chinese industrial policy support at about 4 per cent of GDP a year, comprising cash subsidies of about 2.0 per cent, tax benefits of 1.5 per cent, cheap land of 0.5 per cent and subsidised credit of 0.4 per cent in 2023. Government guidance funds, vehicles that use state money to draw private capital into favoured sectors, had a combined target size of about 12.8 trillion yuan by 2024 on one industry count, though far less had been paid in, and in December 2025 Beijing launched a national venture capital guidance fund intended to mobilise about one trillion yuan. State-dominated banks have been directed towards industry: the People’s Bank of China reports that medium- and long-term loans to industry grew by 22.6 per cent in 2021 and at double-digit rates through 2024, reaching 24.6 trillion yuan.

Local governments add a further layer. Provincial and city officials have long been judged largely on growth and investment, and they compete for factories with land, tax rebates, cheap power and equity stakes. A sector designated as strategic in Beijing can therefore attract investment from dozens of localities at once, each wanting its own champion and none eager to close a loss-making plant that employs local workers. The IMF paper estimated that the resulting misallocation of capital lowered aggregate productivity by about 1.2 per cent. Rhodium Group described the outcome as a “systemic bias toward supporting producers rather than households or consumers”, which “allows Chinese firms to ramp up production despite low margins, without the fear of bankruptcy that constrains firms in market economies.”

Households, savings and the property slump

The counterpart of high investment is low consumption. On World Bank figures, household consumption was about 40 per cent of China’s GDP in 2024, against about 53 per cent in the European Union and 68 per cent in the United States, while gross saving was about 43 per cent of GDP. The reasons are mainly institutional: a thin social safety net, a household registration system that limits migrants’ access to urban public services, low deposit rates, and a fiscal system that does little to shift income towards households. When an economy produces much more than its households consume, the difference must go into investment or net exports. Pettis describes the central difficulty as the economy’s “inability to align increases in domestic production with increases in domestic demand”. Brad Setser of the Council on Foreign Relations, writing with Michael Weilandt and Volkmar Baur, stated the external consequence: “It should go without saying that a large manufacturing surplus requires an offsetting deficit in manufactures elsewhere in the global economy.” Huaxia’s essay on how China came to export its excess capacity traces the mechanism back to the stimulus that followed the financial crisis of 2008.

For two decades the surplus of saving was absorbed mainly by property and infrastructure. That changed after 2020, when the government restricted developers’ borrowing and large developers such as Evergrande defaulted; the property sector crisis removed an outlet that had absorbed several percentage points of GDP a year. Beijing chose not to let total investment fall with it. Lending to developers stagnated and then contracted, while lending to industry grew at more than 20 per cent a year at its peak. Pettis wrote in 2025 that “Beijing chose to engineer a much larger shift in investment flows from property to manufacturing,” and that the acceleration in manufacturing investment “was not planned around any expected acceleration in Chinese or global demand. It was determined mainly by the need to keep investment growth from dropping.” Rhodium reached the same conclusion, noting that “distress in the property sector diverted credit to other industrial sectors”. Much of the new money went to the “new three” of electric vehicles, lithium batteries and solar products, which is why capacity in those industries ran so far ahead of demand.

Involution and the price wars

The Chinese term neijuan, usually translated as involution, first described a social condition of exhausting competition without progress. In economic policy it now describes price wars among producers with too much capacity and too little demand. Because local governments and state banks are reluctant to let weak firms fail, competition in an oversupplied sector takes the form of repeated price cuts rather than consolidation. Rhodium observed that firms in such conditions often add still more capacity, “in hopes of offsetting lower margins with higher volumes, and because they knew from prior episodes that if authorities ultimately forced a market consolidation, survival would be determined based on scale, not financial health.” Solar module prices fell below production cost for many manufacturers in 2024 and early 2025, and repeated rounds of price cuts in the car industry from 2023 pushed many manufacturers into losses. Pettis has argued that involution “is mostly a concentrated version of China’s persistent and structural problem of excess capacity”.

Energy and infrastructure

Manufacturing on this scale requires abundant and reliable power. Ember reports that China generated about 10,573 terawatt-hours of electricity in 2025, more than twice the 4,520 terawatt-hours generated in the United States and almost four times the 2,774 terawatt-hours of the European Union. Ultra-high-voltage transmission lines carry power from coal, hydro, wind and solar plants in the interior to the industrial coast, and industrial tariffs are set administratively and kept low for favoured users. Transport infrastructure plays a similar enabling role: the world’s largest high-speed rail network, dense expressways and many of the busiest container ports, a subject Huaxia covered in why China tops the container port rankings. Ports such as Yangshan off Shanghai and Ningbo-Zhoushan allow manufacturers far inland to reach world markets cheaply and predictably. Whatever the original motive, this infrastructure now lowers the cost of producing in China.

The trade surplus and the second China shock

The external result is a trade surplus without precedent. China’s customs administration reported exports of $3.77 trillion and imports of $2.58 trillion in 2025, a goods surplus of $1.189 trillion, a record and about a fifth larger than in 2024. Exports to the United States fell by about a fifth under American tariffs, but exports to South-East Asia, Africa, Latin America and Europe rose by more. In the first nine months of 2026 exports grew by a further 21.3 per cent in dollar terms and imports by 27.5 per cent, partly because of higher commodity prices, leaving a cumulative surplus of $938 billion and the year on course to exceed the 2025 record. Setser and his co-authors observed in 2024 that China’s manufacturing surplus “far exceeds the peak surpluses run by export powerhouses like Japan and Germany”.

A surplus of this size implies that, at the margin, factories elsewhere produce less than they otherwise would. David Autor and Gordon Hanson, whose research with David Dorn documented the effect of the first China shock on American manufacturing jobs after 2001, argued in the New York Times in July 2025 that a second shock would differ from the first because China is now “aggressively contesting the innovative sectors where the United States has long been the unquestioned leader”. The first shock fell mainly on labour-intensive industries such as furniture and textiles; the second falls on vehicles, machinery, chemicals and electronics, which employ skilled workers and account for much of the research spending of advanced economies. In Guangzhou in April 2024, the United States Treasury Secretary Janet Yellen said: “Overcapacity isn’t a new problem, but it has intensified, and we’re seeing emerging risks in new sectors.” She added that government support was “leading to production capacity that significantly exceeds China’s domestic demand, as well as what the global market can bear”, and that this “can lead to large volumes of exports at depressed prices.” Chinese officials reject the term, arguing that Chinese goods succeed because they are competitive and that the world needs more clean-energy equipment, not less. Both positions contain some truth: Chinese electric vehicles and solar modules are often technically excellent, but the scale of investment behind them was set by domestic political and macroeconomic needs rather than by expected demand.

Tariffs and trade defences

China’s trading partners have responded with a growing array of trade barriers. The United States raised its tariff on Chinese electric vehicles from 25 to 100 per cent in September 2024, with higher duties on batteries, solar cells, steel and semiconductors, and broader tariffs followed in 2025. The European Union imposed countervailing duties on Chinese battery electric vehicles from October 2024, at 17.0 per cent for BYD, 18.8 per cent for Geely, 35.3 per cent for SAIC and 20.7 per cent for other cooperating producers; since 2026 the Commission has begun to accept company-specific minimum-price undertakings. Brazil raised its duty on imported electric and hybrid cars in stages to 35 per cent by July 2026, while offering duty-free quotas for locally assembled kits to encourage firms such as BYD to build factories in the country. India imposed a 12 per cent safeguard duty on flat steel imports from April 2025. Mexico approved tariffs of up to 35 per cent on more than 1,400 products from countries without a trade agreement with it, and 50 per cent on cars, from January 2026, a measure aimed above all at China. Turkey added a duty of 40 per cent, or at least $7,000 a vehicle, on Chinese conventional and hybrid cars from July 2024. Rhodium noted that China’s surplus with developing economies more than tripled between 2019 and 2023, and predicted that “emerging market pushback will also likely intensify”, as it has. Tariffs have reduced direct exports to the countries that impose them, but much Chinese output has been redirected elsewhere or shipped as components to assembly plants in South-East Asia and Mexico, and Chinese firms have built factories in Hungary, Turkey, Thailand and Brazil to sell from inside tariff walls.

Pressure on established industrial economies

The economies most exposed are those that specialise in the industries China is now entering, and Germany is the most important. German industrial production has fallen by about 14 per cent from its 2017 peak, according to the state development bank KfW. The Bundesbank found that more than three-quarters of Germany’s loss of export market share between 2021 and 2023 reflected a deterioration in competitiveness, and observed that “since 2019, in dealings with its most important trading partners, the German export industry has tended to lose more market share in the very areas where China has gained ground.” Italy, Japan and South Korea face versions of the same pressure, as does Britain, whose remaining heavy industry is small but vulnerable, as the government’s emergency intervention at British Steel’s Scunthorpe works in 2025 showed. For these countries the question is less whether Chinese competition will persist than which industries they consider essential to keep, and at what cost.

The Global South: cheap equipment and local industry

For developing countries the effect is more ambiguous. Cheap Chinese solar panels, batteries and vehicles have made clean energy affordable where it was previously out of reach. Ember reported that Chinese solar panel exports to Africa rose by 60 per cent to about 15 gigawatts in the twelve months to June 2025, and that Pakistan imported more panels than the whole of Africa over the same period as households and businesses installed rooftop systems to escape unreliable grid supply. The same flow of goods, however, makes it harder to build manufacturing industries of their own. ArcelorMittal South Africa decided in 2025 to wind down its long-steel business, citing high energy and logistics costs and low-cost imports, with the loss of several thousand jobs, and Indonesian textile manufacturers have closed factories and laid off tens of thousands of workers in the face of cheap imports. Countries that hoped to follow the East Asian path, starting with labour-intensive exports and moving gradually upwards, now face a competitor present at every rung of the industrial ladder at once, which is why many of them impose their own duties even while welcoming Chinese investment and equipment.

Shipyards, munitions and defence-industrial capacity

Industrial capacity has military implications, since a country that can build ships, vehicles, electronics and munitions quickly and in volume has an advantage in any prolonged conflict. A briefing slide from the United States Office of Naval Intelligence, made public in 2023, put China’s shipbuilding capacity at about 23 million gross tons a year against less than 100,000 tons for the United States, a ratio of more than 200 to one. A report by the Center for Strategic and International Studies in March 2025 found that China State Shipbuilding Corporation built more commercial tonnage in 2024 than the entire American shipbuilding industry had built since the end of the Second World War, and that many of its yards build both merchant and naval vessels; Huaxia discussed the commercial side in China’s shipyards and the race to catch them. A CSIS study by Seth Jones in 2023 warned that American stocks of some munitions could be exhausted within a week in a conflict over the Taiwan Strait, and cited United States government estimates that China was acquiring advanced weapons and equipment five to six times faster than the United States. Because civilian and military production draw on the same materials and skilled labour, governments in the United States, Japan, South Korea and Europe have announced programmes to revive shipbuilding and expand ammunition production.

Dependence and critical minerals

Concentrated production creates dependencies that can be used for political ends, and critical minerals are the clearest case. The International Energy Agency estimates that China accounted for about 60 per cent of the mining of the rare earth elements used in permanent magnets in 2024 and about 91 per cent of their refining, and it dominates the processing of graphite, lithium, cobalt and other materials essential to batteries, electronics and weapons. In April 2025 China introduced export licensing for seven rare earth elements and related magnets, and in October 2025 it announced much broader controls covering further elements, processing technology and foreign products containing Chinese materials. After the meeting between Presidents Trump and Xi in Busan at the end of October 2025, China suspended the October measures for a year, to November 2026, while keeping the April regime in place. Governments have responded with stockpiles and subsidies for refineries elsewhere, but new refining capacity takes years to build.

Beijing’s campaign against involution

Chinese policymakers recognise that excessive competition harms China itself, by eroding profits, discouraging research and weakening the balance sheets of banks and local governments. In July 2025 the Central Commission for Financial and Economic Affairs, chaired by Xi Jinping, called for efforts “to regulate enterprises’ disorderly price competition in accordance with laws and regulations” and to “regulate local governments’ investment attraction practices”. The Politburo made the campaign against involution one of its main priorities for the second half of the year. Regulators convened meetings with producers in the affected industries, and polysilicon producers discussed a fund of about 50 billion yuan to buy and close surplus plants. The government work report of March 2026 repeated the commitment. The campaign has had some effect: prices of solar equipment and lithium batteries rose in early 2026, and the statistics bureau credited improved “market competition order” for part of the change. Pettis doubts that administrative measures can resolve the problem, arguing that cutting capacity in selected sectors “doesn’t address the original problem created by the sharp fall in property investment”, and that “price wars may be suppressed in EVs, but they will flare up in batteries, ships, steel, or petrochemicals.” The same documents that call for an end to involution also call for manufacturing’s share of the economy to be maintained, which suggests that the underlying orientation of policy has not changed.

Possible futures

Three broad outcomes are possible, and elements of more than one may occur together. In the first, China raises household consumption substantially through larger transfers, a stronger safety net, reform of household registration and a larger share of national income for workers. Domestic demand would then absorb more of China’s output, the surplus would narrow and pressure on other countries’ industries would ease. Chinese policy documents endorse this direction, but progress has been slow. In the second, the present pattern continues: China keeps investing heavily in manufacturing, the surplus stays above a trillion dollars a year, and the rest of the world raises its barriers, so that trade becomes increasingly organised in blocs, with China selling more to developing countries and building factories abroad to get around tariffs. In the third, the costs of the model accumulate at home. Rising debt and low profitability eventually limit the financial system’s ability to fund new capacity and investment slows, with consequences for Chinese growth and for commodity exporters that depend on Chinese demand. Even then, the existing stock of plant would keep Chinese industry dominant in many sectors for years.

Whichever course events take, the scale of Chinese capacity has already changed the economic choices of other countries. Governments that once left the location of manufacturing to markets now subsidise factories, restrict imports and screen investment, partly in imitation of China and partly in response to it. Consumers and developing countries gain from cheaper equipment, while workers and firms in competing industries bear concentrated costs. The central question for the coming decade is whether China’s domestic economy can be rebalanced towards consumption quickly enough to make its manufacturing power compatible with an open trading system, or whether the rest of the world will adapt to that power by becoming less open.

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