Japan’s Policies ofFluorocarbons
Management
Takashi Shimokyoda

Fluoride Gases Management Office
Ministry of Economy, Trade and Industry
November 2019

1. Overview of Legislations andRegulations for Fluorocarbons in Japan.
2. Control measures of Manufacture andImport of Fluorocarbons(Revised Ozone Layer Protection Law in accordance with
the Kigali Amendment)

3. Emission Control of Fluorocarbons(Enhancing Recovery of Fluorocarbon refrigerants at thetime of equipment disposal)Overview of Legislations and Regulations for Fluorocarbons
 Act on the Protection of the Ozone Layer Through the Control of Specified Substances andOther Measures (Ozone Layer Protection Law): enacted in 1988.
In order to implement
obligation to reduce production and consumption of fluorocarbons based on Montreal Protocol,
manufactures and imports of fluorocarbons are controlled. Pursuant to the Kigali amendment,
HFCs become among those subject to be controlled from 2019.
 Act on Rational Use and Proper Management of Fluorocarbons (Fluorocarbons Emission
Restraining Law): The Fluorocarbons Recovery and Destruction Law (enacted in 2001) was
amended in 2013.
Aiming for restraining emission of fluorocarbons, the Act provides
comprehensive approaches throughout the lifecycle of fluorocarbons, including periodical
inspection of commercial refrigeration and air-conditioning equipment using fluorocarbons, inaddition to recovery of fluorocarbons from these equipment at the time of disposal.
Ozone Layer Protection Law (Amended in 2018)

 Control over Manufacture and Imports ofFluorocarbons (CFCs, HCFCs and HFCs)
Fluorocarbons
Manufacturer

Fluorocarbons Emission Restraining Law
Product Manufacturers
Using Fluorocarbons

・Reduction of Environmental Impact
of Fluorocarbons Used to
Designated Products

RecycleRefrigerator and Air
Conditioner Users

Destruction/
Recycling
Operator

 Comprehensive Approaches
throughout the Lifecycle ofFluorocarbons

Filling/Recovery
Operator

Recovery of
Fluorocarbons at
Equipment Disposal

・Periodical Inspection of Equipment
and Report of Leakage Amount・Recovery of Refrigerant
Fluorocarbons at Equipment
Disposal・Appropriate Destruction or Recycleof Recovered Refrigerant
Periodical
Fluorocarbons
Inspection
Report Leakage
Amountand Others

(Note) The Relevancy of Ozone Layer Protection Law andFluorocarbons Emission Restraining Law
Ozone Layer Protection Law

 Protection of Ozone Layer
 Appropriate and Smooth
Implementation of the Montreal
Protocol Restraining Emission of Fluorocarbons into the
Atmosphere Rationalization of Use and Optimization of
Maintenance/Management of Fluorocarbons

Step Manufacture and Import Manufacture and Import/Use, Maintenance, andDisposalGases

 Fluorocarbons(CFCs, HCFCs, HFCs)

 Fluorocarbons (CFCs, HCFCs, HFCs)

Scope ofControl

Legal Objective

Equipment

Control Measures

Fluorocarbons Emission Restraining Law－

 Equipment Using Fluorocarbons

Minister
Publication

 Baseline Limitation

 Estimated Use of Fluorocarbons

Manufacture Permission System Reduction of Domestic Shipments ofFluorocarbons【Striving Provisions】

ImportManufacture of
Equipment
Equipment Use,
Maintenance,
and Disposalof Equipment

 Approval System (According toForeign Exchange Control Law)－

 Reduction of Environmental Impacts ofFluorocarbons Used in Products【Striving Provisions】－

 Obligation to Equipment Inspection and
Maintenance Obligation to Report on Leakage ofFluorocarbons
 Obligation to Recover Fluorocarbons During
Equipment Disposal1. Overview of Legislations and Regulations
for Fluorocarbons in Japan.
2. Control measures of Manufacture andImport of Fluorocarbons(Revised Ozone Layer Protection Law in accordancewith the Kigali Amendment)

3. Emission Control of Fluorocarbons(Enhancing Recovery of Fluorocarbon refrigerants at thetime of equipment disposal)

Key Points in the Kigali Amendment to Montreal
Protocol In October 2016, the Montreal Protocol was amended in Kigali, Republic of Rwanda.
The amended Protocol states obligation to reducing (phase-down) production
and consumption of HFCs with high greenhouse effect, which in turn havepotential impact on global warming.
 Japan determined to amend the Ozone Layer Protection Law in June 2018 as anational collateral measure to reflect the Kigali Amendment, and to implement
measures such as controlling manufactures and imports of HFCs.
 Japan accepted the Kigali Amendment in 2018. The control has entered into
force on January 1, 2019.

high GWPs

ODS(CFCs, HCFCs)

HFCs

KigaliAmendment

Low-GWP
alternatives

(Note) Overview of the Kigali Amendment
Developed Countries※1

Developing Countries
Group 1※2

Developing Countries
Group 2※3

BaselineYears

2011-20132020-2022

2024-2026

Baseline
Calculation（HFCs＋
HCFCs）

Average
Production/Consumption of
HFCs in 2011, 2012, and 2013
Plus 15% of HCFC Baseline
Production/Consumption

Average
Production/Consumption of
HFCs in 2020, 2021, and 2022
Plus 65% of HCFC Baseline
Production/Consumption

Average
Production/Consumption of
HFCs in 2024, 2025, and 2026
Plus 65% of HCFC Baseline
Production/Consumption

None

2024

2028※４

2019: ▲10%2029: ▲10%2032: ▲10%2024: ▲40%2035: ▲30%2037: ▲20%2029: ▲70%2040: ▲50%2042: ▲30%2034: ▲80%2045: ▲80%2047: ▲85%

FreezeReduction
Schedule※５2036: ▲85%
※1: Belarus, the Russian Federation, Kazakhstan, Tajikistan, and Uzbekistan which are categorized as developed countries areprovided with different control measures (as to baseline calculation, the entry amount of HCFCs is 25% of the baseline
calculation; as to the reduction schedule, the first phase – Step 1 will be 5% reduction in 2020, and the second phase –Step 2 will be 35% reduction in 2025).
※2: Developing Countries - Group 1 are developing countries which are not categorized as Group 2※3: Developing Countries – Group 2 are India, Pakistan, Iran, Iraq, and the Gulf Countries※4: Group 2 countries are to conduct a technical assessment 4 to 5 years prior to the freeze (2028), and the year to freeze
will be discussed to be delayed for two years.
※5: All Parties will conduct a technical assessment in 2022 and once in every 5 years thereafter.

(Note) HFCs Subject to Control According to the Kigali Amendment(List of 18 HFCs are Specified by a Government Ordinance in the Revised Ozone
Layer Protection Law)

Substances

GWP

Substances

GWP

HFC-134

1,100

HFC-245ca

693

HFC-134a

1,430

HFC-43-10mee

HFC-143

353

HFC-32675

HFC-245fa

1,030

HFC-125

3,500

HFC-365mfc

794

HFC-143a4,470

HFC-227ea

3,220

HFC-41

92

HFC-236cb

1,340

HFC-152

53

HFC-236ea

1,370

HFC-152a124

HFC-236fa

9,810

HFC-231,640

14,800※GWP: Global Warming Potential (A Value Indicating Intensity of Global Warming Impact,with CO2 being 1)

Summary of 2018 Revision of Ozone Layer ProtectionLaw Under the revised law, the manufactures and imports of HFCs are controlled
in accordance with the Kigali Amendment to fulfill the obligation to the phasedown of production and consumption of HFCs.
※The same regulatory framework have been applied to manufactures and imports of
CFCs and HCFCs.

 The Law was enacted in 2018, and came into force on January 1, 2019.

Principal Measures○The Ministry of Economy, Trade and Industry(METI) along with the Ministry of theEnvironment(MOE) determine and publish the limit of production as well as
consumption of HFCs which Japan should comply in accordance with the Protocol.
○Manufactures and imports of HFCs should be accorded the following:
・Who seeks to manufacture must receive permission and be assigned a quota from the
METI.
・Who seeks to import must receive permission and be assigned a quota from METI in
accordance with provisions of Foreign Exchange and Foreign Trade Act.
※HFCs are used mainly for refrigerants in freezers and air conditioning equipment (approximately 90%), inother cases for foam agents, cleaning agents, and so forth.

Phase-Down of HFCs in Accordance with the Revised Ozone Layer
Protection Law
 After January 1, 2019, the national baselines of production and consumption of HFCs areto be cut back step by step (phase-down), in accordance with the Kigali Amendment.
 Japan will be well-prepared in advance by promoting development and introduction oftechnologies of low-GWP refrigerant and equipment to accomplish the target-baselines
set each year, in which 2029 will be especially challenging year with (2.145 Mt-CO2).
 In addition, our commitment to supporting fluorocarbons management with leading lowGWP refrigerant technologies will ensure the contributions to the world.
Scheduled Phase-Down of Baselines of the Consumption Based on the Kigali Amendment(Million CO2-t)

Baseline –71.5▲10％ 64.4

Total Sum –
49.0
43.4

▲40％ 42.9

36.5▲70％ 21.5

Estimated Amount of consumption of
HFCs in Japan2017cy2019cy 2020fy 2024cy 2025fy（estimated）（estimated）

2029cy▲80％
14.3▲85％ 10.72034cy 2036cy

CY – Calendar Year(January to December), FY – Financial Year(April to March)※ Baseline is extracted from average values calculated with actual results between 2011-2013.

(Note) Operational Concept of Quota System of HFCs
 To ensure progress of consumption reduction while maintaining sustainability ofsupply and businesses, individual business operator is to be assigned with an upper
limit (hereinafter called as applicable baseline) which is based on the consumption
amount (= manufacture – exports + imports; i.e., total domestic shipping).
 The applicable baseline for 2019 is to be calculated based on actual results, and thelevel of the baseline will be reduced every year.

 The year-on-year baseline reduction is to be impartial in principle to establish thefair system among the business operators.
＜A View of Applicable Baselines among Individual Business Operators＞

Actual Consumption

n＋One Year

Assigned Amount Based on Consumption

Actual Consumptionn YearAssigned Amount Based on Consumption

Actual Consumption

Assigned Amount Based on Consumption

Applicable Baseline※Reduction Rate is
Imposed Each Yearn＋2 Years

Situation of Introducing HFCs and Low-GWP Refrigerants※Blue Letters: Slightly Flammable
Red Letters: Flammable

Areas①
Conversion
completed orin progress

FieldsHome Freezer Refrigerators
Vending Machines

Automotive Air Conditioners

Current Alternative Fluorocarbons(HFCs) Refrigerants (GWPs)（HFC-134a（1,430））

Low-GWP Refrigerants to be Used
Instead of HFCs
Isobutane（HFC-134a（1,430））（HFC-407C（1,770））

CO2,
Isobutane,
HFO-1234yf

HFC-134a（1,430）

HFO-1234yf※Refrigerants
For All Newly
ShippedItems are
Already
Converted
into Low-GWP
substances※Replacement is in Progress.

②
Alternativerefrigerants
available but
withchallenging
issues toensuredissemination③
Alternativerefrigerants
in search

Ultra-Cold Freezer Refrigerators

HFC-23（14,800）

Air
NH3, CO2

Large Size Commercial Freezer
Refrigerators
Medium Size Commercial
Freezer Refrigerators(Separately Installed Showcasesetc.)

HFC-404A（3,920）
HFC-410A（2,090）

Small Size Commercial Freezer
Refrigerators

HFC-404A（3,920）
HFC-410A（2,090）

Commercial Air Conditioners

HFC-410A（2,090）
HFC-32（675）Home Air Conditioners

HFC-32（675)CO2(Replacement Candidates being
Searched)※GWP: Global Warming Potential (A Value Indicating Intensity of Global Warming Impact, with CO2 being 1)※HFC-407C: Mixed Refrigerant of HFC-32, 125, and 134a (23:25:52)
HFC-404A: Mixed Refrigerant of HFC-125, 143a, and 134a (44:52:4)
HFC-410A: Mixed Refrigerant of HFC-32 and 125 (1:1)

(Note) The Present Mapping to Depict Alternative Refrigerants③Alternativerefrigerants
in search

Ammonia（Several %)CO2 (Minimum)
CO2(Approximately 1%)

Air (Minimum)

Commercial Air
Conditioners

Large Size Freezer Storage
Medium Size
Warehouses/Ultra Cold
Commercial
Freezers
Freezers
and Refrigerators
Domestic Shipments:
Approximately Several
Thousand Units/Year

Domestic Shipments:
Approximately 800,000 Units/Year

Domestic Shipments:
Approximately
120,000 Units/Year

Amount of Filling
Refrigerant: Large
Introduction Cost:
High
Safety Risk: HighHome Air
Conditioners②Alternativerefrigerants available
but with challenging
issues to ensure
dissemination

Large

Domestic Shipments:
Approximately 8.5 Million Units/Year

Size of Equipment

Small Size
国内出荷：約10Freezers and万台／年
Refrigerators
Domestic Shipments:
Approximately
230,000 Units/Year

Isobutane
Home Freezer Refrigerators

Domestic Shipments:
Approximately 4.6 Million
Units/Year

Small

HFO

CO2

Automotive Air Conditioning Systems

Hot Water Supply Systems
Domestic Shipments:
Approximately 400,000 Units/Year

Domestic Shipments:
Approximately 4.5 Million Units/Year①Conversion
completed or inprogress

CO2
Isobutane
HFO
Vending Machines
Domestic Shipments:
Approximately 300,000 Units/Year

-60

-40
Industrial Freezing

-20

-10

0℃
Cooling

1020
Air Conditioning

40

Heating

60～

Amount of Filling
Refrigerant: Small
Introduction Cost:
Low
Safety Risk: Low

Promoting Development and Introduction of Low-GWP
Refrigerants Technologies

 Japanese government is set out to promote development and introduction of low-GWP
refrigerants, assigning the following task to each ministry:
METI – Research and development pertaining to fields in which no alternativetechnologies are expected at present.
MOE – Support to introduce equipment with low-GWP technologies in fields nearly atpractical use but with issues such as cost.

Development Project on the Next Generation Refrigeration and Air Conditioning Technologies,
and Assessment Methods (METI)
Draft Budget: 650 Million Yen in FY2019 (250 Million Yen in FY2018) Time Period: 5 Years (2018-2022)
・As many of the low-GWP alternatives are classified with some level of flammability,

their practical use should be assessed in terms of ignition risks depending on leakage.
・The goal is to establish assessment methods on flammability under industrialacademic cooperation. The methods are aiming for international standardization.
・ Furthermore, development of the low-GWP refrigerant and equipment
technologies to satisfy the balance between low greenhouse effect as well as
energy saving and safety, will be assisted to thereby accelerate the process topractical use.

Grant
Govern-ment①Contract

NEDO②Financial
Assistance (1/2)

Universities
andResearch
Institutes
PrivateCompanies
and Others

Project to Accelerate Introduction of Energy Saving-Type Natural Refrigerant Equipment To
Realize Fluorocarbon-Free and Low Carbon Society (MOE)
Draft Budget: 7.5 Billion Yen in the FY2019 (6.5 Billion Yen in FY2018) Time Period: 5 Years (2018-2022)
・Whereas the technologies of an energy saving-type natural refrigerant to replace
fluorocarbons equipment are available in some areas, introduction of thosetechnologies is limited due to high initial costs.
・For this reason, introduction of natural refrigerant equipment with highenergy-saving capacity will be assisted and accelerated, thereby we willproceed with fluorocarbon-free and low carbon society.
・In conjunction with this project, constant demands on energy-saving-baseequipment using natural refrigerant will be created, contributing to efforts toward
cost reduction among equipment manufacturers.

Grant

Govern-ment

Financial Assistance（1/3 or Less）
Business
Nonprofit
Operators
Corporationsetc.

1. Overview of Legislations and Regulations
for Fluorocarbons in Japan.
2. Control measures of Manufacture andImport of Fluorocarbons(Revised Ozone Layer Protection Law in accordance with
the Kigali Amendment)

3. Emission Control of Fluorocarbons(Enhancing Recovery of Fluorocarbon refrigerants atthe time of equipment disposal)

Current Situation of Fluorocarbons Recovery at the time of
Equipment Disposal Fluorocarbon recovery rates at the time of equipment disposal have been sluggish until
2014 at around 30%, and still remains low at below 40%.
 Any strategic approaches to strengthen of measures are in immediate need toenhance the recovery rate to accomplish the goal stated in the Plan for Global
Warming Countermeasures -Cabinet Decision adopted in May 2016.
12,000100%

フロン回収量: Amount of Freon Recovery

（ｔ）

90%

: Amount of Emission During Disposal
廃棄時排出量10,000

フロン回収率: Recovery Rate of Fluorocarbon Refrigerants

2030

70％

8,000

2020

70%

60%

50％
6,000

4,000

80%

50%

34%
29%

30%

31%

32%
27%

28%

30%

31%

34%

34%

29%

38% 39% 38%
32%

Goals to Achievewith the Plan for
Global WarmingCountermeasures

40%

30%

20%

2,000

10%

0

2002

2003

2004

Enactment of theFluorocarbons Emission
Restraining Law

2005

2006

2007

2008

2009

Enactment of the Revised Law

2010

2011

2012

2013

2014

2015

2016

2017

Enactment of the Revised Law

2020

2030

0%

Issues Identified by Factor Analysis
In order to analyze the factors behind unrecovered fluorocarbon refrigerants, METI
and MOE collaboratively conducted surveys(1,200 valid responses of the 3,500 business
operators as the subjects of the survey) and interviews.



The activities revealed that more than half of those unrecovered (over 60% of
fluorocarbon refrigerants remained in all equipment at the time of disposal) was due tothe fact that recovery was not done at the time of fluorocarbon equipment disposal,
violating the law.



The above-mentioned operations are the most obvious in the case where equipment
is disposed during demolishing buildings.

Besides, there has been no system to confirm whether fluorocarbon refrigerants
are actually recovered during equipment disposal before delivering scrap and/or
recycle operators. For this reason, it was highly likely that the fluorocarbons in theequipment were released into the air in such cases the refrigerants had not been
recovered.

※It should be noted that there is unrecovered fluorocarbon refrigerants even after the recovery process,especially with multi-split type air conditioning system (*) for buildings. With the assumption that theuncollected refrigerants are due to insufficient fluorocarbon recovery process, technological restrictions,and so forth, more surveys and analysis are planned accordingly.

(*) Multi-Split Type Air Conditioning System
An air conditioning system comprising multiple indoor
units to which refrigerant is supplied from a single outdoor
unit to individually control air conditions of respective
rooms of a building

(Note) Regulation on Designated Products Based on Fluorocarbons
Emission Restraining Law

 The aim of Regulation on Designated Products is promoting lower-GWP alternatives into
the products containing HFCs.
 In the regulation, manufacturing and import companies are required to meet a target of
GWP value to their products if specified as the designated products, such as residential air
conditioners, until the specified year. The target values are calculated by the weighted
average with each product type that is to be shipped by the manufacturing and importcompanies.
Designated
Products

Index Related to Environmental Impacts

High GWP
T
Y
P
E

a

・Fluorocarbon Refrigerants
GWP = A

(Large Size)

T
Y
P
E

b

(Medium andSmall Size)

 A target value is determined in view of arefrigerant having the minimum GWP value
at present (i.e. a Top Runner).
 Safety, economic efficiency, energy-saving
affordability etc. are considered.

Companies are
Implementing Efforts with
Their Original Ideas to
Aim for Conversion to
Low GWP Refrigerants
・Fluorocarbon Refrigerants
GWP = B

Target GWP
T
Y
P
E

a

・Lower-GWP Refrigerants
GWP = C < A

T
Y
P
E

b

・Lower-GWP Refrigerants
GWP = D < B

Low GWPAt the Time of Target Setting

Targeted Fiscal Year

(Note) Products Designated in the Current Regulation

 The following 9 areas are subject of the designated products in consideration of the situation oftechnology development and safety assessment of products in response to the respective alternative
nominations.
 A product that is exempt from its designation is under review to include whenever necessary as soon as
the requirements are set. For those already included in the list specified, their target values and years
for achievement are to be revised in a timely manner.
Sections (Types) of designated Products

Residential Air Conditioners (Excluding Through-the-Wall Types)

Currently Used Main
Refrigerants and GWPs

TargetGWPs

TargetYears(FY)

R410A(2090), R32(675)

750

2018

750

2020

750

2023

100

2023

R134a(1430)

150

2023

R404A(3920),
R410A(2090),
R407C(1770), CO2(1)

1500

2025

R404A(3920), NH3(1)

100

2019

HFC-245fa(1030),
HFC-365mfc(795)

100

2020

HFC-134a(1430),
HFC-152a(124),
DME(1)

10

2019Stores/Shop/Office Air Conditioners①Those with Legal Freezing Capacity of Less Than 3
R410A(2090), R32(675)
Tons, Excluding Floor Type
②Those with Legal Freezing Capacity of 3 Tons or
R410A(2090)
More Excluding ③ and Floor Type
③ Those Central Air Conditioners Using Centrifugal
R134a(1430),
R245fa(1030)
Chillers
Automotive Air Conditioners(Limited only to Those Listed as Passenger Vehicles (Excluding
Automobiles with 11 or More Passengers)

Condensing Units
Refrigerator UnitsandStationary

Type

Freezer(Excluding Condensing Units with Rated Output of 1.5kW or
Less)

Central System Freezer Refrigerator Equipment(Limited to Those Shipped for Newly Installed Freezer
Refrigerators with Freezing Capacity of 50,000m3 or More)

Insulating Material Using Rigid Urethane Foams(Limited to Those Used for House Building Material and Formed
at Building Sites)

Sprayer Exclusively Filled with Propellants(Excluding Uses That Require Non-flammability)

Amendment of Fluorocarbons Emission Restraining Law
 To improve fluorocarbon recovery rate at the time of disposal(nearly 40% in 2017),
regulations based on Fluorocarbons Emission Restraining Law was strengthened last month.
 Stakeholders(users, demolition operators and scrap and/or recycle operators) owe additional
obligations as following.
 According to this strengthened regulation, we improve fluorocarbon recovery rate morethan 70% in 2030.
Users (Disposers)
Certi-ficateDisposed
Equipment

Fluorocarbon
RecoveryOperators【At the time of Equipment Disposal】

 Adopt and impose a direct(non-probationary) penalty to a user with illicit behaviors
of not recovering fluorocarbons
 Obligate users to submit the certificate of fluorocarbon recovery at the time ofdelivery to scrap and/or recycle operators

Fluorocarbons【At the time of Building Demolition】

 Improve effectiveness of guidance and supervision by prefectural governments

Demolition Operators
Certi-ficate- Obligate demolition operators to preserve documents as a proof of presence/absenceof equipment- Define provisions related to request for submitting documents based on theConstruction Material Recycling Act- Expand the scope of on-site inspection【At the time of Delivery of disposed Equipment】
Scrap and/or
RecycleOperators

 Obligate scrap and recycle operators to check completion of fluorocarbon recovery
by checking a certificate at the time they receive equipment.
 Receiving Equipment without a certificate is prohibited and adopted a direct(nonprobationary) penalty.

Lifecycle Management of Fluorocarbon【Effect of the Life cycle management】

 We can achieve additional emission reduction of HFCs in accordance with theKigali Amendment by taking measures as follows: Measures to prevent leaks of HFCs in equipment use.
 Recovery and Destruction or Recycle of HFCs at Equipment Disposal【International application of the Life cycle management】
 Government of Japan hopes to share the view, and can provide
assistance based on our expertise to prevent leaks in equipment use,
and recover and destroy or recycle at equipment disposal.

Thank you for your attention.

https://www.meti.go.jp/policy/chemical_management/oz
one/index.html

http://www.env.go.jp/earth/furon/