A permit to import is required for controlled substances & alternatives listed under the Kigali Amendment to the Montreal Protocol.
MONTREAL PROTOCOL
The Cook Islands are a party to the Montreal Protocol on substances that deplete the ozone layer.
The Montreal Protocol is a Multilateral Environment Agreement (MEA) that regulates and controls the production, trade and consumption of nearly 100 man-made substances referred to as Ozone Depleting Substances (ODS).
The most common ODS substances used globally are Chlorofluorocarbons (CFCs) and Hydrochlorofluorocarbons (HCFCs) which are found in cooling appliances – refrigeration, air-conditioning, heat pumps and foams.
The Cook Islands have taken extra measures to prohibit the importation of CFCs and HCFC refrigerants and based-equipment under the Environment (Montreal Protocol) Regulations 2021.
Table 1: Multilateral Environmental Agreements related to Ozone Depleting Substances and Climate Change to which Cook Islands is a Party
| Conventions/ Protocol/ Amendment | Adoption | Date of Ratification |
|---|---|---|
| Vienna Convention | 1985 | 22 December, 2003 |
| Montreal Protocol | 1987 | 22 December, 2003 |
| London Amendment | 1990 | 09 August, 2004 |
| Copenhagen Amendment | 1992 | 09 August, 2004 |
| Montreal Amendment | 1997 | 09 August, 2004 |
| Beijing Amendment | 1999 | 09 August, 2004 |
| Kigali Amendment | 2016 | 22 August, 2019 |
| United Nations Framework Convention on Climate Change | 1992 | 20 April 1993 |
| Kyoto Protocol to the UNFCCC | 1997 | 27 August, 2001 |
| Paris Agreement under the UNFCCC | 2015 | 01 September 2016 |
Kigali Amendment to the Montreal Protocol
The Kigali Amendment to the Montreal Protocol is an international agreement aimed at phasing down the production and consumption of hydrofluorocarbons (HFCs), which are synthetic greenhouse gases used in various applications, including air conditioning and refrigeration. HFCs are potent contributors to global warming when released into the atmosphere.
The Kigali Amendment, adopted in 2016, builds upon the original Montreal Protocol, which successfully phased out the production of ozone-depleting substances (ODS). The Cook Islands have implemented a HFC Licensing Permit System to monitor the importation of HFCs, ensuring compliance with the HFC phase-down timeline.
How the Cook Islands Receives Support Under the Montreal Protocol
The Cook Islands is an Article 5 country under the Montreal Protocol, which means it is eligible for financial and technical support to phase down harmful refrigerants like HFCs.
Funding is provided through the Multilateral Fund (MLF) of the Montreal Protocol. The MLF helps developing countries meet their international obligations by financing activities such as:
- Policy and regulatory development
- Licensing and quota systems for refrigerants
- Training for customs officers and RAC technicians
- Public awareness and data reporting
These funds are approved by the MLF Executive Committee and allocated to support agreed national activities.
UNEP’s Role as the Implementing Agency
The United Nations Environment Programme (UNEP) is the Cook Islands’ Implementing Agency under the Montreal Protocol.
UNEP works alongside the National Environment Service (NES), the national focal point to:
- Design and implement MLF-funded projects
- Provide technical guidance and international best practice
- Support reporting and compliance with the Montreal Protocol
- Strengthen national systems to meet Kigali Amendment commitments
In short, the MLF provides the funding, UNEP provides the technical support, and NES leads national implementation to protect the climate and the ozone layer.
Kigali Amendment: HFC Quota Allocation
BASELINE & PHASE-DOWN:
The amendment sets a baseline for HFC production and consumption, with a phased reduction schedule for each participating country. Quotas are based on historical data collected directly from importers of Hydrochloroflucarbon (HCFCs) and HFCs.
Table 1: Cook Islands HFC Phase down
Baseline Calculation (Tonnes Co2 eq)
- Average consumption of HFC's in 2020, 2021 & 2022
- Plus 65% of Hydrochorofluorocarbons (HCFCs) consumed in 2009 - 2010
| Step | Year | Reduction % from baseline |
|---|---|---|
| HFC Freeze | 2024 | |
| Step 1 | 2029 | 10% |
| Step 2 | 2035 | 30% |
| Step 3 | 2040 | 50% |
| Step 4 | 2045 | 80% |
Table 2: Cook Islands HFC calculation (Tonnes Co2 eq)
| HFC Consumption | Calculation |
|---|---|
| 2020 | 1,521 |
| 2021 | 6,647 |
| 2022 | 8,065 |
| Average | 5,411 |
| HCFC Consumption | |
| 2009 | 1,032 |
| 2010 | 2,197 |
| Total Consumption | 1,049 |
| Average HFC Consumption 2020, 2021 & 2022 | 65% of HCFC Baseline | Total |
|---|---|---|
| 5,411 | 1,049 | 6,460 |
| Detailed Quota Allocation | Tonnes Co2 eq |
|---|---|
| Obligations as per Kigali Amendment | 6,460 |
| The allocated HFC quota already distributed | 5,814 |
| Buffer for HFC for new importers (10%) | 646 |
How HFC Quota Metrics are Calculated and Allocated
HFC Quotas under the Kigali Amendment are reported internationally in tonnes of CO₂ equivalent (tCO₂e). The units reflect the climate impact of different HFC gases and allow consistent global reporting.
For national quota management and importer permitting, these figures are converted into kilograms of CO₂ equivalent (kgCO₂e). Using kilograms allows for more precise allocation and tracking of quotas across individual importers and import permits.
In summary:
- International reporting: Tonnes CO₂ equivalent (tCO₂e)
- National allocation to importers: Kilograms CO₂ equivalent (kgCO₂e)
1 tonne CO₂e = 1,000 kg CO₂e
How Quota Is Distributed to Importers
Example: Importer Quota Allocation
The “Allocated HFC quota already distributed” represents the portion of the national quota that has already been issued to existing importers. This amount is converted into kg CO₂e and distributed based on approved import permits.
Each importer receives:
- A quota allocation expressed in kg CO₂e
- A corresponding allowance linked to their approved HFC import.
If an importer is allocated 250 tonnes CO₂e under the national quota:
- 250 tonnes CO₂e × 1,000
= 250,000 kg CO₂e
This means the importer may import HFCs with a combined climate impact of up to 250,000 kg CO₂e during the quota year, subject to permit conditions.
Buffer for New Importers
To support market entry and ensure fairness, 10% of the national quota (646 tonnes CO₂e / 646,000 kg CO₂e) is held as a buffer.This buffer is reserved for new importers or special circumstances and is allocated on a case-by-case basis.
Institutional Strengthening Project (ISP)
The NES receives ISP funding under the Montreal Protocol to operate an effective and well-organized National Ozone Unit (NOU) to support the country’s compliance with the control measure and other obligations under the Montreal Protocol, in order to assist with the implementation of activities under the Protocol.
Expected results/outputs to be achieved:
- Capacity of NOU and other national stakeholders will be strengthened to effectively implement the Montreal Protocol through;
- Continuous enforcement of legislation and regulation to control and monitor trade of Montreal Protocol controlled substances and equipment to prevent illegal trade in order to meet and sustain compliance to the Montreal Protocol, and update progress on activities undertaken to enforce legislation and regulation;
- Continuous accurate and timely data collection and reporting of trade statistics of Montreal Protocol controlled substances through systematic data reporting and reconciliation process;
- Continuous strengthening collaboration with national agencies/stakeholders to obtain their cooperation to support objectives of the Montreal Protocol;
- Timely implementation of activities such as capacity building of technicians in servicing sector and customs and enforcement officers under any approved Multilateral Fund projects and update status report of the capacity building activities;
- Effective communication and awareness activities to educate consumers on relevant issues of the Montreal Protocol and encourage them to convert to ozone-friendly products and update status reports on the activities on communication and awareness;
- Continuous cooperation and participation in the regional network meetings and relevant Montreal Protocol meeting as well as the south-south cooperation activities; and
- Successful integration of Multilateral Fund gender mainstreaming policy in the implementation of the Multilateral Fund projects.
| Status | Amount | Ending Dates |
|---|---|---|
| Active | $180,000 USD | 30 June 2027 |
Hydrochlorofluorocarbons (HCFC) Phase-out Management Plan (HPMP Stage II, Tranche 2)
The HPMP funding under the Montreal Protocol for Pacific Island Countries (PIC) through Regional Approach including the Cook Islands and collaboration between United Nations Environment Program is used to implement the following activities:
- Strengthening regulatory frameworks
- Delivering Customs and enforcement officer training workshops
- Delivering Customs brokers/importers training workshops
- Delivering Goods Practices in Servicing for Refrigeration and Air Conditioning (RAC) technicians.
- Conducting stakeholder training, and promoting the adoption of low-global warming potential (GWP) alternatives to HCFC-based refrigerants, particularly in the commercial refrigeration and air-conditioning sectors.
| Status | Amount | Ending dates |
|---|---|---|
| Implemented in 2025 | $105,000 USD | December 2030 |
Kigali Implementation Plan Stage I, Tranche I
The objective of the Stage I of the KIP is to assist the Cook Islands to meet the obligation to freeze HFC consumption by 1 January 2024 and to meet a 10% reduction from the baseline level by 1 January 2019. Given the project lifespan of the Stage I of the KIP, it is essential to have comprehensive data collection to enable the country to prepare the Stage I of the KIP that best suits the country’s context and needs.
Potential non-investment activities under KIP, which might need to be adjusted in accordance with HFC phase-down funding guidelines, can include but not limited to
- Policy and regulations to support HFC phase-down to prevent the growth and to phase down HFCs in relevant application, when feasible with the country context
- Capacity building of customs officers and prevention of illegal trade of HFCs
- Capacity building of refrigeration and air-conditioning (RAC)/mobile air-conditioning (MAC) training centers and technicians on good servicing practices (GSPs) including safe handling of alternatives, such as updating curricula of the training programs of Technical and Vocational Education and Training (TVET) to address GSPs and safety issues related to the flammability and/or toxicity of refrigerants being phased in, training the trainers and technicians, provision of equipment, competency-based certification with integrated GSP of RAC/MAC technicians programs etc.
- Public awareness activities
- Technical assistance to address safety issues associated with alternatives with low and zero GWP for various applications and energy efficiency related matters, such as promoting efficient and sustainable cold chain, adopting safety and energy efficiency standards
- Any others in accordance with the HFC phase-down funding guidelines
| Status | Amount | Ending dates |
|---|---|---|
| Implemented in July 2025 | $23,250 USD | 31 December 2027 |
Energy Efficiency Project
Increasing energy demands of the cooling sector by promoting energy efficiency in refrigerant management. Activities will include:
- Capacity-building workshops for technicians on energy-efficient cooling system installation and maintenance,
- Legislation on minimum energy performance standards (MEPS),
- Public awareness activities
- Encourage the uptake of energy-efficient appliances.
| Status | Amount | Ending Dates |
|---|---|---|
| Implemented in July 2025 | $36,500 USD | 31 December 2027 |
National Inventory Project
This project will support the development of a national inventory to identify and quantify banks of ozone-depleting substances and HFCs stored in unused equipment or containers.
- It aims to assess current recovery, recycling, and reclamation practices, evaluate existing policies and facilities for the destruction of unwanted substances, and address challenges in managing these controlled substances.
- The project will also guide the development of a national strategy and action plan for environmentally sound management, based on suitable business models.
- Execution of a nation-wide survey/desk study to collect and analyze data on recovery, reclamation, and destruction practices and facilities, banks of used/unwanted controlled substances & gaps and challenges in policy, regulatory, and institutional frameworks.
- Stakeholder engagement and validation meetings
- Mainstreaming Gender Policy
| Status | Amount | Ending dates |
|---|---|---|
| Implemented in July 2025 | $32,000 USD | 31 December 2026 |
