EPA Proposes Reforming Biden Technology Transitions Rule to Lower Costs for American Families at the Grocery Store, Make Refrigerants Affordable, Safe and Accessible Again

September 30, 2025 

Contact Information 

EPA Press Office (press@epa.gov) 

WASHINGTON — Today, U.S. Environmental Protection Agency (EPA) Administrator Lee Zeldin issued a Notice of Proposed Rulemaking to reform the Biden-Harris 2023 Technology Transitions Rule, a new action the agency is taking to continue meeting its statutory obligations under the American Innovation and Manufacturing (AIM) Act without compromising economic growth or safety. If finalized, the proposed rule will balance the AIM Act mandated phasedown of hydrofluorocarbons (HFCs) with ensuring American families have access to functioning air conditioning systems. In doing so, businesses will also be able to install the refrigeration systems that work best for them and companies can continue making semiconductor chips that power everyday life. Specifically, EPA is proposing to extend the compliance deadlines on the use of HFCs in a number of subsectors, including residential air conditioning, retail food refrigeration, cold storage warehouses, and semiconductor manufacturing.

“Hardworking Americans have made their voices and frustrations heard about the lack of availability of refrigerant alternatives during hot summer months and regulations that increase the cost of living for families. Today, the Trump EPA is heeding the call for change,” said EPA Administrator Zeldin. “With this proposal, EPA is working to make American refrigerants affordable, safe, and reliable again.”

The 2023 Technology Transitions Rule forced companies to switch to specific refrigerants like designer HFC blends for residential air conditioning, ammonia or carbon dioxide for supermarket and cold storage refrigeration equipment, contributing to an increase in consumer costs and shortages. Shortages of these HFC blends meant families were left without air conditioning during hot weather. Not only has this left Americans unable to afford or access the necessary refrigerants to install critical equipment, but it has also put public safety and human health at risk as substances like ammonia are more toxic and flammable.

Furthermore, since the Biden EPA gave as little as 15 months’ notice before finalizing its rule, there is likely not sufficient time to safely meet compliance deadlines. This is particularly problematic for the semiconductor industry that needs precise temperature control because as little as a 0.1°C change could be disastrous for production. Concerns were raised that suitable substitute refrigerants won’t be ready by the compliance deadline. Furthermore, the estimated development and implementation of fit-for-purpose alternatives could take up to five years. Today’s proposed rule works to remedy this oversight while advancing Pillar 4 of the Powering the Great American Comeback initiative—Make the United States the Artificial Intelligence Capital of the World.

Additionally, to ensure EPA is accomplishing its core mission of protecting human health and the environment, the proposed changes would remove restrictions on certain intermodal containers that carry cargo transported at very cold temperatures, which include blood plasma and pharmaceuticals. Removing the restrictions will increase the efficiency, reliability, and reach of the medical supply chain helping to deliver life-saving medical products across America.

To address a request from the cold storage industry, EPA is proposing to raise the global warming potential (GWP) threshold for cold storage warehouses from 150 or 300, as applicable, to 700 starting January 1, 2026. EPA is also proposing a later adjustment to the GWP thresholds starting January 1, 2032.

EPA’s proposal preserves current flexibilities for residential and light commercial air conditioning and heat pumps manufactured or imported before January 1, 2025, by allowing them to continue to be installed indefinitely, protecting and lowering costs for homeowners and small businesses.

The proposed rule will be open for a 45-day public comment period after publication in the Federal Register. EPA will also hold a virtual public hearing for the proposed action 15 days after publication in the Federal Register. Further details about the public hearing, including registration, will be available here.

For more information on the proposal, click here.

Background 

On March 12, 2025, Administrator Zeldin announced that the agency was reconsidering the Technology Transitions Rule. This was announced in conjunction with a number of historic actions to advance President Trump’s Day One executive orders and Power the Great American Comeback. While accomplishing EPA’s core mission of protecting human health and the environment, the agency is committed to fulfilling President Trump’s promise to unleash American energy and lower the cost of living for Americans.

In August 2025, Administrator Zeldin joined Vice President J.D. Vance to tour Alta Refrigeration in Peachtree City, Georgia. While there, Administrator Zeldin highlighted the agency’s intent to increase access to safe, available refrigeration inputs.

The AIM Act, enacted on December 27, 2020, directs EPA to address HFCs in three main ways: (1) phasing down HFC production and consumption through an allowance allocation program, (2) promulgating certain regulations for purposes of maximizing reclamation and minimizing releases of HFCs from equipment and ensuring the safety of technicians and consumers, and (3) facilitating the transition to next-generation technologies through sector-based restrictions.

In October 2023, the Technology Transitions Rule placed restrictions on the use of high GWP HFCs in aerosols, foams, and refrigeration, air conditioning, and heat pump products, with prohibitions on manufacturing, distribution, sale, installation, import, and export effective January 1, 2025. In response to concerns about inventory stranding, a December 2023 interim final rule (IFR) amended the compliance date, allowing installation of higher-GWP HFC equipment manufactured or imported before January 1, 2025, until January 1, 2026, and clarifies exclusions for residential ice makers. Additionally, a December 2024 final rule further extended installation deadlines for higher-GWP HFC variable refrigerant flow systems, permitting installations until January 1, 2027, and for certain construction projects with permits issued before October 5, 2023, until January 1, 2028.