As you're playing china, you can also (if you didn't already) lower your Inflation though focuses, improve Stability or hire a minister who gives -5% consumer goods. Also check your resources - it's possible you're buying something, then it can be reasonable to face lack of resources penalty, but return that factory.
I did myself a rule though that in every given state I should have two civ factories against one non-civ (military or naval). It worked like a charm.