On 9 April 2025, five central departments of China government—the Ministry of Ecology and Environment (MEE), the National Development and Reform Commission (NDRC), the Ministry of Industry and Information Technology (MIIT), the Ministry of Commerce (MOFCOM), and the General Administration of Customs (GAC)—jointly issued the “National Plan for the Implementation of the Montreal Protocol on Substances that Deplete the Ozone Layer (2025–2030)”. This document outlines China’s roadmap for fulfilling its obligations under the Vienna Convention, the Montreal Protocol, and the Kigali Amendment, with the goal of protecting the ozone layer and mitigating climate change.
National Plan includes 9 categories of controlled substances
The plan targets nine categories of substances listed in China’s Controlled Ozone-Depleting Substances (ODS) Catalogue:
- Chlorofluorocarbons (CFCs)
- Halons
- Carbon tetrachloride (CTCs)
- Methyl chloroform
- Hydrobromofluorocarbons (HBFCs)
- Bromochloromethane
- Methyl bromide
- Hydrochlorofluorocarbons (HCFCs)
- Hydrofluorocarbons (HFCs)
These substances are classified into “controlled-use” and “feedstock-use” categories. The former involves direct atmospheric emissions (e.g., refrigerants, foaming agents, fire extinguishers, solvents), while the latter refers to use as intermediates in chemical synthesis, where emissions are limited.
Montreal Protocol as a foundation for ODS and HFC management
Since China has joined the Montreal Protocol in 1991, it has eliminated over 628,000 tons of ODS. In 2021, China has also accepted the Kigali Amendment, targeting HFCs. The updated national plan aligns with recent legal reforms and aims to strengthen ODS and HFCs management.
Key measures for regulation and reduction of emissions
China’s national plan sets out a quota-based system to strictly manage the production and use of controlled substances such as HCFCs and HFCs. According to the plan, by 2025, HCFC production and use will be cut by 67.5% and 73.2%, respectively, and by 97.5% by 2030. HFC production and use will be reduced by 10% by 2029.
HCFC-141b as blowing agent will be phased out from 2026, and only registered users with quotas or proper filings can purchase controlled-use chemicals. Emissions from by-products like HFC-23 with a very high high-global warming potential (GWP) of 14800 will be monitored automatically and reduced through cleaner technologies.
Sales channels will be tightened. All vendors must register, and online platforms are required to block unauthorized sales and improve listing audits to prevent illegal transactions.
A clear and complete HCFC reduction roadmap is in place. Companies consuming over 100 tons per year must register or obtain quotas. By 2030, all controlled-use HCFCs will be phased out, except for essential servicing. Sector-specific timelines include:
- 70% HCFC reduction in household appliances by 2025 with a full ban by 2030;
- bans on multi-split air condition (AC) systems by 2027 and complete elimination by 2030;
- bans on HCFC-141b and solvent uses in foam and cleaning sectors by mid-2026.
HFC use will be reduced in key industries such as vehicles, refrigeration, and appliances. From 2026 to 2029, GWP refrigerants will be gradually banned, including GWP>150 in M1-category vehicle ACs by 2029. Low-GWP and natural alternatives will be promoted.
The plan also aims to strengthen end-of-life controls. Recycling, recovery, and destruction activities must be registered, with better oversight of refrigerant handling in servicing and appliance disposal. Traceability systems and regional destruction centers will be developed.
Imports and exports of controlled substances will require quota licenses. Enforcement will include stricter customs checks, real-time monitoring, inter-agency cooperation, and whistleblower reward mechanisms to fight illegal trade.
To support the transition, the government plans to promote green technology through updated energy labels, demonstration projects, and inclusion of substitutes in national industrial guidance catalogs. Regulations will be adjusted in line with phase-out schedules.
Finally, China will expand monitoring, emissions forecasting, and compliance systems, while intensifying inspections in key regions. Capacity building and scientific research will be strengthened to support long-term enforcement and innovation.
Success of the plan relies on integrated oversight and coordinated implementation
MEE will coordinate with other departments to oversee execution, guide local enforcement, and carry out public communication to ensure the plan’s success.
By combining regulatory controls with technical innovation, China’s 2025–2030 National Plan aims to ensure effective phaseout of ozone-depleting and high-GWP substances, thereby supporting both domestic environmental goals and international commitments.
