17 April 2025, Paris, France – The ozone layer is not visible to the naked eye, and similarly, the enforcement of the Montreal Protocol often takes place behind the scenes, yet its impact is undeniable. As a landmark global legally binding instrument, it unites countries in protecting the ozone layer by phasing out ozone-depleting substances (ODS) and, through the Kigali Amendment, phasing down hydrofluorocarbons (HFCs) – potent greenhouse gases driving climate change.
Enforcement of global treaties is key. This is where Operation DEMETER comes in—a global Customs initiative that turns the Protocol’s goals into action. By targeting illegal shipments of ODS, HFCs, other controlled substances, and hazardous wastes regulated under the Basel Convention, DEMETER showcases the critical role of Customs in safeguarding the planet for future generations.
UNEP OzonAction has been a committed partner in DEMETER operations since 2019, when the Montreal Protocol was added to the scope of the operation, providing technical expertise, capacity-building support, and networking opportunities among national Customs and ozone officers, particularly to developing countries under the Montreal Protocol, also called Article 5 countries. UNEP OzonAction provides assistance with clearinghouse functions as per Article 10 (3)(b) of the Montreal Protocol, including facilitating and monitoring multilateral, regional, and bilateral cooperation available to Article 5 countries. For these countries, DEMETER operations are more than an enforcement exercise. By curbing illegal trade, the operation helps Article 5 countries meet their hydrochlorofluorocarbon (HCFC) phase-down and HFC phase-out commitments, protects their markets, and ensures equitable progress toward global climate goals.
The 10th edition of Operation DEMETER marked a major milestone, with 110 Customs administrations participating—including growing engagement from African countries. Coordinated by the World Customs Organization (WCO) Secretariat, the operation received technical support from a Virtual Operational Coordination Unit (OCU), led by the WCO Environment Programme, the WCO Regional Intelligence Liaison Office for Asia and the Pacific (RILO A/P), and China Customs.
The following results were striking:
- 450 seizures were reported by 42.7% of participating administrations—a 28.2% increase from 2023.
- 99 seizures involved ODS, HFCs, or equipment containing controlled substances, reported by 17 Members—a 70% rise in reporting administrations and a 115% surge in seizures compared to DEMETER IX.
- 344,625.9 kg of ODS & HFCs were intercepted, alongside 24,198.9 kg and 11,620 pieces of non-compliant equipment.
Why Are HFCs and ODS Still Being Smuggled?
The data reveals a troubling trend: HFCs are now the most-seized illicit commodity, reflecting disparities in phase-down schedules between developed and developing countries. High demand, coupled with attempts to bypass licensing systems, has created a lucrative black market. Smugglers exploit countries with remaining production quotas, shipping banned substances to regions where quotas are dwindling.
Additionally, Customs officials noted a rise in seizures of older equipment containing phased-out ODS/HFCs, as well as newer non-compliant devices. Equipment with obsolete refrigerants may fall under both the Basel Convention (as e-waste) and the Montreal Protocol, requiring close collaboration between Customs and environmental authorities to classify and act. During DEMETER X, eight administrations reported 27 seizures of illegal equipment, weighing over 24 metric tons, plus an additional 11,620 individual units.
Challenges and the Path Forward
Despite the surge in seizures, illegal trade remains widespread, with shipments originating from and destined for diverse locations, making patterns difficult to track. Most interceptions occurred during import and more than half involved transit points indicating the complexity of the routes, though inspections at warehouses, markets, and means of transport also proved effective.
The growing participation in DEMETER signals stronger global awareness of Customs’ role in combating environmental crime. Yet, as smugglers adapt, so must enforcement strategies. With each iteration, DEMETER strengthens international collaboration- ensuring the Montreal Protocol’s success is not just written in policy but enforced on the ground.
The efforts of Parties to the Montreal Protocol, including Article 5 countries, in contributing to the success of the DEMETER operations are highly commendable. Your commitment plays a critical role in closing loopholes within the global supply chain and safeguarding vulnerable markets. We encourage all Parties to join future DEMETER operations. Together, we can turn the tide against illegal trade and accelerate progress toward a healthier, more sustainable planet.
For more information, see the WCO press release in English and French.
