China's path to less polluting economic growth is full of hurdles

People waiting for the skies to clear may have to hold their breath a little longer.

The State Council's national action plan delivered on Thursday to address the country's air pollution crisis fell short of hopes held by many air quality experts and environmentalists.

Rather than the "toughest measures ever" promised by some central government officials, the final plan offered a series of modest, incremental goals. The plan illustrates the difficulties the world's largest carbon emitter faces in trying to put itself on a clean growth path.

"The new leadership has talked much about how the country will enhance environmental protection and force industrial upgrading to transform the growth model," said Li Yan, Greenpeace's regional climate and energy campaign manager.

"This painful negotiation for a clean air action plan was a good try … only the result was not very satisfying," Li said.

Since taking power in March, the government under President Xi Jinping and Premier Li Keqiang has repeatedly pledged to make environmental protection a higher priority. Xi and Li have said they want economic growth that does not cause ecological damage.