An expanded reaction kinetic model, including 17 surface reactions, is proposed to explain the yields of PCDD/F obtained in an experimental study of the reaction of 2-chlorophenol over a CuO/silica surface. The mechanism is loosely based on the gas-phase mechanism for PCDD/F formation widely discussed in the literature. The principal differences are the impact of chemisorption of 2-chlorophenols to metal oxides on radical formation and the steric hindrance of oxygen-centered radicals on the surface inhibiting radical-radical reaction pathways that lead to formation of dibenzo-p-dioxin (DD). Gas-phase molecule-surface-bound adsorbate reactions are the preferred route of DD formation, while radical-radical surface reactions are the main channel for dichloro-dibenzofuran (DCDF) formation. These results suggest that the Langmuir-Hinshelwood (LH) mechanism, involving radical-radical surface reactions, and the Eley-Rideal mechanism, involving a gas-phase molecule and surface-bound adsorbate, are responsible for PCDF and PCDD formation on surfaces, respectively. The calculated yields of DCDF and DD are in reasonable agreement with experimental results.