K1402938 061114

UNITED

NATIONS EP

UNEP/OzL.Pro.26/9

United Nations

Environment 

Programme

Distr.: General

13 October 2014

Original: English

Twenty-Sixth Meeting of the Parties to

the Montreal Protocol on Substances 

that Deplete the Ozone Layer 

Paris, 17–21 November 2014

Item 4 (f) (ii) of the provisional agenda for the preparatory segment*

Montreal Protocol issues: information submitted by 

parties on their implementation of paragraph 9 of 

decision XIX/6 to promote a transition from 

ozone-depleting substances that minimizes environmental 

impact (decision XXV/5, paragraph 3)

Summary of the information submitted by parties on their 

implementation of paragraph 9 of decision XIX/6 to promote a 

transition from ozone-depleting substances that minimizes 

environmental impact (decision XXV/5, paragraph 3)

Report by the Secretariat

I. Introduction

1. In paragraph 9 of its decision XIX/6, the Meeting of the Parties to the Montreal Protocol 

encouraged parties to promote the selection of alternatives to hydrochlorofluorocarbons (HCFCs) that 

minimize environmental impacts, in particular impacts on climate, as well as meeting other health, 

safety and economic considerations. In paragraph 3 of its decision XXV/5, the Meeting of the Parties 

encouraged parties to provide to the Secretariat, on a voluntary basis, information on their 

implementation of paragraph 9 of decision XIX/6, including information on available data, policies 

and initiatives pertaining to the promotion of a transition from ozone-depleting substances that 

minimize environmental impact wherever the required technologies are available. It also requested the 

Secretariat to compile such information for consideration by the Open-ended Working Group of the 

Parties to the Montreal Protocol at its thirty-fourth meeting. 

2. By the time of the thirty-fourth meeting of the Open-ended Working Group, held from 14 to 18 

July 2014, the Secretariat had received information from 14 parties pursuant to paragraph 3 of decision 

XXV/5. The Secretariat compiled that information in document UNEP/OzL.Pro.WG.1/34/INF/4 and 

its addenda for consideration by the Open-ended Working Group at its thirty-fourth meeting. At that 

meeting the Open-ended Working Group requested the Secretariat to prepare a summary of all 

information submitted by parties, including information already submitted and any additional 

information submitted by 30 August 2014.1 The Secretariat has prepared the present report in response 

to the request of the Open-ended Working Group at its thirty-fourth meeting. 

 

* UNEP/OzL.Conv.10/1/Rev.1-UNEP/OzL.Pro.26/1/Rev.1. 

1 UNEP/OzL.Pro.WG.1/34/6, para. 76.
UNEP/OzL.Pro.26/9

2

3. Following the thirty-fourth meeting, the Secretariat received information from six parties, two 

of which provided updates to their earlier submissions. One of those six parties was the European 

Union, which submitted information on regulatory measures applicable to its 28 member States and 

more specific information on behalf of five member States. The 23 parties that have provided 

information in response to decision XXV/5 and the request of the Open-ended Working Group are 

listed in table 1 below. As mentioned above, the original submissions by which those parties submitted 

the information prior to the Open-ended Working Group meeting are set out in document 

UNEP/OzL.Pro.WG.1/34/INF/4 and its addenda. The submissions received subsequent to that meeting 

are reproduced in document UNEP/OzL.Pro.26/INF/4. 

Table 1

Parties that have provided information to the Secretariat

a Contribution included in the submission by the European Union.

4. As requested in decision XXV/5, the parties listed in table 1 provided information on their own 

implementation of paragraph 9 of decision XIX/6. In addition, however, the United States of America, 

through a study conducted by the United States Environmental Protection Agency (USEPA), provided 

information pertaining to nine of the parties listed above (Australia, Canada, Denmark, Japan, the 

Netherlands, Norway, Poland, Switzerland and the European Union) and 24 other parties and the state 

of California in the United States. Those 24 parties are listed in table 2 below. This additional 

information is reproduced as submitted by USEPA in two information documents that were made 

available for the thirty-fourth meeting of the Open-ended Working Group 

(UNEP/OzL.Pro.WG.1/34/INF/4/Add.1 and 2). It is also reflected in the present summary. The 

amount of information provided varies considerably from party to party in terms of coverage or detail.

Table 2

Additional parties for which information was provided by USEPA

5. The present summary, consistent with the term “minimize environmental impact, including 

impacts on climate” focuses on measures to avoid high global-warming-potential (GWP) substances, 

such as hydrofluorocarbons (HFCs), while also taking into consideration energy efficiency. Most 

parties provided information on mandatory measures for dealing with HFCs such as legislation and 

regulations. A number of parties cited examples of voluntary initiatives that involve government, the 

private sector or both. Some parties also provided important information relating to energy efficiency 

activities and raised issues related to health and safety.

6. The information provided by parties in response to decisions XXV/5 and the request of the 

Open-ended Working Group is summarized in sections II–VI of the present report. Section II 

summarizes information submitted by parties on legislation, regulations and other mandatory measures 

relevant to the transition from ozone-depleting substances to climate-friendly alternatives. An 

overview of those measures for ten parties is provided first before specific subject areas are presented 

1. Australia

2. Bangladesh

3. Belgium

4. Canada

5. Congo

6. Denmarka

7. El Salvador

8. European Union 

9. Irelanda

10. Japan

11. Mexico

12. Mozambique

13. Netherlands

14. Norway

15. Polanda

16. Republic of Moldova

17. Sloveniaa

18. Spaina

19. Swaziland

20. Switzerland

21. Togo

22. United States of 

America

23. Zimbabwe

1. Austria

2. Belize

3. Bosnia and Herzegovina

4. Brazil

5. Burkina Faso

6. China

7. Colombia

8. Croatia

9. Egypt

10. France

11. Germany

12. India

13. Italy

14. Maldives

15. Mauritius

16. Montenegro

17. New Zealand

18. Serbia

19. Sweden

20. Thailand

21. The Former Yugoslav Republic of Macedonia

22. Turkey

23. United Kingdom of Great Britain and Northern 

Ireland

24. Yemen
UNEP/OzL.Pro.26/9

3

in subsequent subsections. Section III summarizes information provided on economic incentives, 

including negative economic incentives, refunds and other positive incentives and emissions trading 

systems and compliance credits. Section IV summarizes information provided on the efforts of parties 

operating under paragraph 1 of Article 5 of the Montreal Protocol (Article 5 parties) to achieve a 

transition to climate-friendly alternatives through their HCFC phase-out management plans. Section V 

summarizes other initiatives, including on matters such as energy efficiency, voluntary agreements, 

industry initiatives, adoption of alternative technologies and awareness raising activities. Finally, 

Section VI provides a summary of health and safety issues raised by some parties. Following a general 

conclusion in section VII, a summary matrix of reported policy measures to promote a transition from 

ozone-depleting substances that minimizes environmental impact is set out in the annex to the present 

document. 

II. Legislation, regulations and other mandatory measures

7. A total of 10 parties provided information on their legislation, regulations and other mandatory

measures relevant to the selection of alternatives to ozone-depleting substances. Those parties are 

Australia, Canada, Denmark, the European Union, Japan, the Netherlands, Norway, the Republic of 

Moldova, Switzerland and the United States. A brief overview of such measures for each party is 

provided in subsection A below, followed by subsections B–F summarizing their application in the 

following specific areas: HFC production and consumption control; HFC emissions control; training 

and certification; recordkeeping and reporting; and labelling.

A. Overview of legislation, regulations and other mandatory measures for each 

party

8. Australia controls HFCs through its Ozone Protection and Synthetic Greenhouse Gas (SGG) 

Management Act 1989, which was enacted to protect the ozone layer and to minimize emissions of 

SGGs. The Act does this by controlling imports, exports and the manufacture of bulk ozone-depleting 

substances and SGGs and controlling imports of equipment containing ozone-depleting substances and 

SGGs. The Act and its associated regulations also place controls on the end use of ozone-depleting 

substances and SGGs used as refrigerants and fire suppressants.

9. In Canada, federal and provincial regulations prohibit the release of HFCs and ozonedepleting substances from specified sources and require their recovery from closed systems. A code of 

practice governs ozone-depleting substances and HFC refrigerants and is being updated to incorporate 

new technologies and best practices to reduce emissions.

10. Denmark introduced its national F-gas regulation (Statutory Order no.552 Regulating Certain 

Industrial Greenhouse Gases) in July 2002. It regulates consumption and emissions of fluorinated 

greenhouse gases (“F-gases”), including HFCs, perfluorocarbons (PFCs) and sulfur hexafluoride, and 

includes bans on certain uses, F-gas taxation and support for research and development of alternative 

technology. The regulation has led to a substantial decline in the consumption of F-gases, with bulk 

HFC consumption falling from approximately 700 tonnes per year in 2001 and 2002 to approximately 

360 tonnes in 2009.

11. The European Union provided information on seven pertinent mandatory measures: 

(a) F-gas regulation – Regulation (EU) No 517/20142– provides for HFC phase-down, 

restrictions on use and obligations of refrigerant management and containment. The regulation, 

effective 1 January 2015, is expected to reduce F-gas emissions by two thirds by 2030 compared with 

2014 levels;

(b) Mobile Air Conditioning Directive – Directive 2006/40/EC3– restricts the use of HFCs 

in mobile air-conditioning equipment to substances with a GWP no higher than 150;

(c) European Union Effort Sharing Decision – Decision No 406/2009/EC4– establishes 

binding annual greenhouse gas emissions targets for European Union member States for the period 

2013–2020 and provides the possibility for member States to include HFCs in their greenhouse gas 

emissions reduction efforts;

 

2

http://ec.europa.eu/clima/policies/f-gas/legislation/index en.htm.

3

http://eur-lex.europa.eu/legal-content/EN/ALL/?uri=::CELEX:32006L0040.

4

http://ec.europa.eu/clima/policies/effort/documentation_en.htm.
UNEP/OzL.Pro.26/9

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(d) Regulation on ecodesign and energy labelling for air conditioners and comfort fans –

Regulation (EU) No 206/20125– establishes a framework for setting eco-design requirements for airconditioners and providing bonuses for low-GWP refrigerants; 

(e) Directive on Waste Electrical and Electronic Equipment (WEEE) – Directive 

2012/19/EU6– provides for separate collection and take-back systems for equipment containing 

ozone-depleting substances or F-gases and the return of waste by final holders and distributors free of 

charge;

(f) European Eco-Management and Audit Scheme - Regulation (EC) No 1221/20097

promotes continuous improvement in the environmental performance of organizations through the 

establishment and implementation of environmental management systems, including with regard to 

HFC emissions and waste; 

(g) European Union Green Public Procurement Criteria for Electrical and Electronic 

Equipment used in the Health Care Sector8are used on a voluntary basis by public authorities to 

procure goods and services that have relatively small environmental impact throughout their life 

cycles. Points are awarded for medical freezers with refrigerants having GWP lower than 10. 

12. In Japan, requirements for the recovery and destruction of chlorofluorocarbons (CFCs), 

HCFCs and HFCs from commercial refrigerators and air-conditioners are in place through its Act 

Concerning the Recovery and Destruction of Fluorocarbons. The Act has been recently amended and 

renamed as the Act for Rationalized Use and Proper Management of Fluorocarbons, effective 1 April 

2015. New measures are to be introduced regarding the promotion of low-GWP/non-HFC alternatives 

for designated products, the phase-down of HFCs and the reduction of refrigerant leakage from 

equipment during use. 

13. The Republic of Moldova implements the Montreal Protocol through its law no. 852-XV of 

14 February 2002. Harmonization with European Union law is under way. 

14. The Netherlands devised in 1992 the so-called STEK certification system to implement CFC 

emissions controls. It included requirements on the certification of personnel and businesses, logbooks 

and refrigerant registers, leakage checks, installation, labelling and other matters and applied to CFCs, 

HCFCs, HFCs and PFCs (with the latter being added in 1995). As a member of the European Union, 

the Netherlands has been implementing the European Union F-gas regulations.

15. Norway, although not a member of the European Union, applies former European Union 

regulation (EC) 842/2006 on certain fluorinated greenhouse gases, which includes measures on the 

containment of gases and the proper recovery of equipment; training and certification of personnel and 

companies; labelling; reporting on imports, exports and production of F-gases; and restrictions on the 

marketing and use of certain products and equipment containing F-gases. Norway also plans to 

implement the newly adopted European Union F-gas regulation (No. 517/2014)9.

16. Switzerland’s regulation on substances stable in the atmosphere (SSA) is part of its Ordinance 

on the Reduction of Risks relating to the Use of Certain Particularly Dangerous Substances, 

Preparations and Articles. It was passed in 2003 and amended in 2012. It applies to substances that are 

stable in the atmosphere (SSA), solvents, synthetic foams, refrigerants, extinguishing agents and spray 

cans. Substances that are stable in the atmosphere are defined to include some hydrofluorinated ethers 

but not HFC-152a. The regulation is designed to limit the use of F-gases to those applications for 

which an alternative product or technology is not available or is environmentally worse, to allow 

technically justified, time-limited essential use exemptions, to limit emissions for allowed F-gas 

applications and to promote voluntary commitments developed by industry.

 

5

http://eurlex.europa.eu/legal-content/EN/TXT/PDF/?uri=CELEX:32012R0206&from=en.

6

http://ec.europa.eu/environment/waste/weee/legis_en.htm.

7

http://ec.europa.eu/environment/emas/documents/guidance_en.htm.

8

http://ec.europa.eu/environment/gpp/pdf/criteria/health/EN.pdf.

9

http://eur-lex.europa.eu/legal-content/EN/TXT/?uri=uriserv:OJ.L_.2014.150.01.0195.01.ENG.
UNEP/OzL.Pro.26/9

5

17. The United States controls HFCs through its Clean Air Act:10

(a) Section 608 of the Act prohibits the knowing venting of refrigerant during the 

maintenance, service, repair or disposal of refrigeration and air-conditioning equipment;

11

(b) Section 609 establishes standards for motor vehicle air-conditioning refrigerant 

recovery and recycling equipment and for the proper use of that equipment;12

(c) The Greenhouse Gas Reporting Programme establishes mandatory annual greenhouse 

gas monitoring and reporting requirements for certain owners, operators and suppliers of facilities that 

emit HFCs or other greenhouse gases;13

(d) Light-duty vehicle greenhouse gas emissions and corporate average fuel economy 

(CAFE) standards are imposed on 2012–2016 model year new light-duty vehicles produced for sale in 

the United States;14

(e) Light-duty vehicle greenhouse gas emissions and corporate average fuel economy 

standards for the 2017 model years build on the 2012–2016 model year standards and establish stricter 

ones;15

(f) Greenhouse-gas emissions standards and fuel efficiency standards for medium-duty 

and heavy-duty engines and vehicles require heavy-duty pickup trucks and vans and combination 

tractors to meet an air-conditioning leakage standard aimed at controlling HFC emissions;16

(g) The Significant New Alternatives Policy (SNAP) (Section 612 (c) of the Clean Air

Act)17 facilitates a smooth transition away from ozone-depleting substances in industrial and consumer 

sectors through the identification and approval of climate-friendly chemicals while prohibiting certain 

uses of the most harmful chemical alternatives. Proposed substitutes must be evaluated to reduce 

overall risk to human health and the environment. Review of proposed substitutes for ozone-depleting 

substances is based on atmospheric effects, exposure assessments, toxicity data, flammability and 

other environmental impacts. 

B. Application of legislation, regulations and other mandatory measures in 

specific areas

1. Measures to control the production and consumption of HFCs 

18. The measures described in the present section are prohibitions, restrictions or authorizations 

pertaining to the production, manufacture, trade, placing on the market and use of HFCs and 

HFC-based equipment. A summary of such measures reported by seven parties is presented below.

19. Australia’s Ozone Protection and Synthetic Greenhouse Gas Management Act of 1989 

controls the manufacture, import and export of all ozone-depleting substances and their SGG 

replacements. A license is required to manufacture, import or export HFCs, PFCs, sulfur hexafloride, 

HCFCs and methyl bromide. This requirement permits the tracking of all scheduled substances for the 

purpose of reporting on ozone-depleting substances under Article 7 of the Montreal Protocol and for 

reporting on emissions of SGGs under the United Nations Framework Convention on Climate Change 

and its Kyoto Protocol. Although the Act sets in place a quota system for HCFCs, quotas do not apply 

to SGGs. Importers of equipment containing HFCs or HCFCs are required to hold equipment import 

licenses. Controls provide data on the size and structure of the bank of HCFC and HFC equipment in 

Australia as well as future servicing demand. 

20. In Canada, it is proposed that the 1998 Ozone-depleting Substances Regulations be amended 

to prohibit, beginning in 2015, the manufacture, import and use of HFCs for purposes for which 

ozone-depleting substances have never been used in the country.

21. Denmark, in its national F-gas regulation of 2002, bans products containing or using HFCs 

starting 1 January 2006. It also prohibits the import, sale and use of new and recovered HFCs and 

 

10 http://www.whitehouse.gov/sites/default/files/image/president27sclimateactionplan.pdf.

11 http://epa.gov/ozone/title6/608/608fact.html#noventing.

12 http://epa.gov/ozone/title6/609/.

13 http://www.gpo.gov/fdsys/pkg/FR-2010-12-01/pdf/2010-28803.pdf

14 http://epa.gov/otaq/climate/regs-light-duty.htm#new1.

15 http://www.epa.gov/oms/climate/documents/420f12051.pdf.

16 http://epa.gov/otaq/climate/regs-heavy-duty.htm.

17 http://www.epa.gov/ozone/snap/about.html#q2.
UNEP/OzL.Pro.26/9

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other industrial greenhouse gases for specific applications. The ban does not apply to export or to 

equipment with charges from 0.15 kg to 10 kg of HFCs. The order lists a number of exempted uses, 

including servicing, and has different effective dates for different uses. It also authorizes the Danish 

environmental protection authorities to allow derogations. 

22. In the European Union, the F-gas regulation (Regulation No. 517/2014) limits the total 

amount of the most important F-gases that producers and importers are entitled to place on the market 

in the European Union from 2015 onwards and phases them down in steps to one fifth of 2014 sales by 

2030. Quotas for placing HFCs on the market are allocated to eligible producers and importers, while 

exemptions exist for specific categories, including import for destruction and use in feedstock 

applications. From 1 January 2020, bans will be placed on the use of newly manufactured F-gases with 

a GWP of 2,500 or more for servicing or maintaining refrigeration equipment with a charge size of 40 

tonnes of CO2-equivalent or more. Until 1 January 2030, the regulation allows the use of reclaimed Fgases with a GWP of 2,500 or more for the maintenance or servicing of existing refrigeration 

equipment, provided that they are appropriately labelled. It also allows the use of recycled F-gases 

with a GWP of 2,500 or more for the maintenance or servicing of existing refrigeration equipment, 

provided that they have been recovered from such equipment. Such recycled gases may only be used 

by the actor that carried out their recovery or for which the recovery was carried out. Bans are subject 

to exemptions, including for HFCs used in military equipment. The regulation also bans the use of Fgases in many new types of equipment where less harmful alternatives are widely available, such as 

refrigerators in homes or supermarkets, air-conditioners, foams and aerosols. 

23. Under the European Union mobile air-conditioning directive (Directive 2006/40/EC), since 

2008 manufacturers have not been receiving approval for any new type of vehicle fitted with mobile 

air-conditioners designed to contain F-gases with a GWP higher than 150 leaking more than 40 grams 

per year from a one-evaporator system or 60 grams per year from a dual-evaporator system. Since 

2009 this rule has applied to all new vehicles that have been type-approved in the past. Since 2011, 

mobile air-conditioners designed to use the above-mentioned gases have been completely banned for 

new types of vehicles. Beginning in 2017, the ban will apply to all new vehicles, and new vehicles 

with these systems will not be allowed to be registered, to be sold or to enter into service.

24. In Japan, measures for phasing-down HFCs and promoting low-GWP non-fluorocarbon 

alternatives for designated products will take effect on 1 April 2015 through the Act for Rationalized 

Use and Proper Management of Fluorocarbons. Producers and importers will be required to develop 

phase-down plans through the development and production of low-GWP and non-fluorocarbon 

alternative gases, taking into consideration safety, energy efficiency, affordability and other 

considerations, for use in designated products. Target GWP values are set based on the lowest GWP 

(weighted average by volume) among the designated products in the market in Japan, while also 

considering other issues such as safety, energy efficiency and affordability. The first GWP target, for 

room air-conditioning products, is GWP 750 by 2018. For 2019, the target for products for cold 

storage warehouses (of more than 50,000 m3) is 100 GWP and for dust blowers 10 GWP. For 2020, 

the target for commercial air-conditioning products for offices and stores is 740 GWP and for urethane 

foam for house-building materials 100 GWP. For 2023, the target for mobile air-conditioning is 150 

GWP and the 2025 target for condensing refrigerating units for standalone showcases and similar 

equipment is 1,500 GWP.

25. Since 2003, Switzerland has had a general ban, with specific exemptions, on the supply and 

use of SSA-based solvents, products containing those solvents and foams, aerosol dispensers, fire 

extinguishing agents and domestic appliances containing SSA. It also has measures in place for 

reducing SSA refrigerant charges. Since 2013, HFCs are also banned in air-conditioning and 

refrigeration applications, with some exemptions.

26. In the United States, in support of President Obama’s Climate Action Plan, USEPA has 

proposed to change the listing status of certain high-GWP chemicals that were previously listed as 

acceptable under SNAP on the basis of information showing that substitutes posing less risk to human 

health and the climate are now available. Specifically, USEPA proposes to deem certain HFCs to be 

unacceptable for various end uses in the aerosols, refrigeration and air-conditioning and foam blowing 

sectors. It also proposes to restrict the use of HFCs as aerosol propellants to uses for which alternatives 

posing less environmental and health risk are not available or potentially available. Furthermore, 

USEPA proposes to include additional climate-friendly refrigerant alternatives by listing certain 

climate-friendly hydrocarbons (ethane, isobutane and propane) and a hydrocarbon blend (R-441A) as 

acceptable in stand-alone commercial and household refrigerators and freezers, very low temperature 

refrigeration, non-mechanical heat transfer, vending machines and room air conditioning units. It also 

proposes to list HFC-32 as acceptable in room air conditioning units, as the substance has one third of 

the GWP of the conventional refrigerants currently used in such equipment. USEPA conducts outreach 
UNEP/OzL.Pro.26/9

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to stakeholders, including government and non-governmental organizations, industry, the military, 

research and testing institutes and national and international standards-setting organizations, in an 

effort to gain support for a transition to alternatives. The USEPA proposed rules and related fact sheets 

can be viewed online.18,19,20 21

27. In addition to the information summarized above, which was reported directly to the 

Secretariat by the parties to whom it relates, information pertinent to the present section was provided 

in the study by USEPA with regard to Austria, Belize, Burkina Faso, Colombia, Croatia, Montenegro, 

the Former Yugoslav Republic of Macedonia, Serbia, Sweden and Turkey, as summarized in the 

following paragraphs.

28. Austria has since 2008 prohibited the import and use of HFCs in new fixed air-conditioners 

and freezers, including domestic refrigerators, freezers and mobile air-conditioners, allowing the 

continued use of HFCs in refrigeration and cooling appliances for specific circumstances. HFCs have 

been banned in non-medical aerosol products and as solvents, except when used in closed systems, 

since 1 July 2003 and their use as a fire-extinguishing agent prohibited. As of 31 December 2007, the 

use of HFCs for the production of foams has been prohibited. 

29. In Belize any individual or company is required to apply for a license to import or export any 

HFC or other refrigerant gas. In Burkina Faso the import of HFCs requires a licence and is subject to 

tax. In Colombia, all importers must obtain environmental licenses and seek approval to import any 

HFC for registration and trade control purposes. Croatia (a European Union member State since 1 

July 2013), Serbia and Turkey have implemented measures to regulate the import and use of HFCs. 

Montenegro regulates the import, export and marketing of products containing HFCs and other Fgases. In the Former Yugoslav Republic of Macedonia, the import of HFCs and mixtures containing 

HFCs must be authorized by the relevant authorities. Furthermore, the import of used refrigerators, 

freezers and other cooling and freezing devices relying on HFCs is banned as of 2007.

30. In Sweden prior to adoption of the European Union F-gas regulations the maximum HFC

refrigerant charge for any system was restricted to 200 kg. The maximum refrigerant charge allowed 

in a supermarket refrigeration system was 20 kg for medium-temperature applications and 30 kg for 

low-temperature applications. The intended effect of refrigerant charge restrictions was to encourage 

the use of lower-GWP alternatives and minimize HFC refrigerant charges, thereby reducing the risk of 

HFC emissions. 

2. Measures to control emissions of HFCs

31. HFCs are used primarily in the refrigeration, air conditioning, foam, aerosol, fire protection 

and solvents sectors. Emissions originate from manufacturing processes, unintended by-product 

releases, intentionally emissive applications, evaporation and leakage from equipment and products 

during use, testing, maintenance and end-of-life practices. 

32. Policies to reduce emissions can take many forms, including direct bans or restrictions on 

emissions (including leakages), required practices, trading schemes and stewardship programmes. 

These policies are grouped in two broad categories below: releases during a product's useful life, 

which includes production, manufacture and operational life, and releases resulting from end-of-life 

practices.

(a) Releases during a product’s useful life

33. In Australia, unregulated discharge of a scheduled substance (including HFCs) in 

circumstances where it is likely that the substance will enter the atmosphere is an offense. These 

controls are designed to support the industry-based product stewardship scheme (Refrigerant Reclaim 

Australia), which provides for the collection, transport and disposal of used ozone-depleting 

substances and SGGs in the refrigerant sector.

34. In Canada, federal and provincial regulations prohibit the release of HFCs and ozonedepleting substances from refrigeration and air-conditioning equipment and from containers and 

equipment used in the reuse, recycling, reclaiming or storage of ozone-depleting substances and HFCs. 

 

18 Proposed rule: http://www.gpo.gov/fdsys/pkg/FR-2014-08-06/pdf/2014-18494.pdf.

19 Fact sheet: http://www.epa.gov/ozone/snap/download/SAN_5750_SNAP_Status_Change_RuleFactSheet_080114.pdf.

20 Proposed rule: http://www.gpo.gov/fdsys/pkg/FR-2014-07-09/pdf/2014-15889.pdf.

21 Fact sheet: http://www.epa.gov/ozone/downloads/Low_GWP_refrigerants_NPRM_RIN_2060-AS04%20-

%20Fact_Sheet-5-29-14_final.pdf.
UNEP/OzL.Pro.26/9

8

Environment Canada is also considering further reducing HFC emissions by requiring industry to 

implement a stewardship program for HFCs that are used in stationary refrigeration and airconditioning equipment.

35. In Canada, the Passenger Automobile and Light Truck Greenhouse Gas Emissions Regulations 

provide strong incentive for light-duty vehicle manufacturers to replace HFC-134a used in mobile 

air-conditioning with alternatives and to improve the design of mobile air-conditioning systems to 

maximize energy efficiency and minimize refrigerant leakage. The objective of the regulations is to 

reduce greenhouse gas emissions by requiring vehicle manufacturers and importers to meet fleet 

average emissions standards for their passenger automobiles and light trucks for 2011 and later model 

years. The regulations also include provisions allowing companies to reduce their deemed 

CO2-equivalent emissions by subtracting certain optional allowances (in grams per mile) from their 

carbon-related exhaust emissions. These allowances promote air-conditioning improvements, 

including refrigerant leakage reduction and system efficiency improvements, along with other 

innovative technologies whose-greenhouse-gas-reducing impacts are not captured during conventional 

city/highway emissions testing. 

36. The European Union has binding annual greenhouse gas emissions targets for member States 

for the period 2013–2020 with regard to emissions from most sectors not included in the European 

Union emissions trading scheme. This includes transport (except aviation and international maritime 

shipping), buildings, agriculture and waste. European Union member States may include HFCs in their 

efforts to reduce their greenhouse gas emissions. 

37. The previous European Union regulation on certain F-gases (Regulation (EC) No 842/2006)

prohibited the intentional and unnecessary release of fluorinated greenhouse gases into the 

atmosphere. It also required all persons responsible for emissions to take all technically and 

economically feasible measures to prevent and minimize leakage. Refrigeration, air-conditioning and 

heat-pump equipment and fire protection systems were further required to undergo at least one leakage 

inspection a year, with the frequency of inspections varying with the quantity of F-gas in the 

equipment, and the owners of refrigeration, air-conditioning and heat pump equipment and fire 

protection systems containing 300 kilograms or more of F-gases to install leak detection systems. 

38. The current European Union F-gas regulation (Regulation (EU) No. 517/2014) also bans 

intentional releases and requires operators of equipment that contains fluorinated greenhouse gases to 

take precautions to prevent their unintentional release and to take all technically and economically 

feasible measures to minimize emissions. It also includes requirements for leak checks and leak 

detection systems. The frequency of leak checking is based on the tonnes of CO2-equivalent charge 

and the presence or lack of a leak detection system. For the largest systems without a leak detection 

system, the requirement is at least every 3 months. For the smallest systems with leak detection 

systems, the requirement is at least every 24 months. Where leakage is detected, the operator is 

required to ensure that the equipment is repaired without undue delay.

39. Norway regulates intentional and unintentional releases of fluorinated greenhouse gases 

through its implementation of the European Union’s F-gas regulation (EC) No 842/2006 and intends 

to implement the newly adopted regulation (EU) No. 517/2014.

40. The Netherlands, as part of its STEK certification system, required operators of equipment to 

undertake leakage checks from 1 to 12 times per year, depending on the application. In 1999, an 

extensive study was undertaken to assess the installed base of the various synthetic refrigerants used in 

all refrigeration and air-conditioning sectors and subsectors. It was found that the STEK measures had 

contributed to reducing the average ozone-depleting substance and HFC leakage rate from 

25-30 per cent to 5–10 per cent. The STEK certification system is no longer in place, but most of its 

requirements form a central part of current regulations, including the European Union F-gas 

regulations, which are applicable in European Union member States. 

41. Beginning 1 April 2015, HFC users in Japan will be required to conduct periodic checks of 

refrigerant leakage and to call service engineers to undertake repairs upon discovery of any leakage. 

Refilling equipment with refrigerant is prohibited until leaks are repaired.

42. Switzerland requires that stationary systems with more than 3 kg of SSA refrigerant 

(including HFCs) be checked yearly for tightness control. It also mandates the use of maintenance 

logbooks.

43. Togo reports that it has established a national strategy for the implementation of the Kyoto 

Protocol to the Framework Convention on Climate Change (controlling emissions of greenhouse 

gases), along with the Montreal Protocol, incorporating those instruments into its sectoral development 

plans and policies.
UNEP/OzL.Pro.26/9

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44. In the United States, it is prohibited to knowingly release refrigerant (including HFCs) during 

the maintenance, service, repair or disposal of refrigeration and air-conditioning equipment. Certain 

types of releases are permitted under the prohibition, however. Thus, the release of de minimis 

quantities of refrigerant in the course of making good faith attempts to recapture and recycle or safely 

dispose of refrigerant and releases of HFCs and PFCs that are not used as refrigerants are permitted.

For purposes of the rule heat transfer fluids are considered refrigerants.

45. The United States Corporate Average Fuel Economy (CAFE) Standards require improved 

leakage rates for HFC-based motor vehicle air-conditioning systems in 2012–2016 model year 

vehicles. USEPA estimates, through utilization of leakage-reducing technologies, that it will be 

possible for manufacturers to reduce HFC leakage by 50 per cent relative to the 18 gram per year 

baseline level. Over the five model years subject to the standards, USEPA projects, 85 per cent of 

light-duty vehicles will have gone through a redesign cycle. If the technology for controlling 

greenhouse gas emissions is efficiently folded into this redesign process, then by 2016 almost the 

entire light-duty fleet could be designed to reduce emissions of HFCs from their air-conditioners.

46. Heavy-duty pickup trucks and vans and combination tractors are required to meet an 

air-conditioning leakage standard aimed at controlling HFC emissions. Unlike light-duty vehicle 

standards, there is no credit program and no averaging, banking, or trading of HFC credits. For 

systems with refrigerant capacities equal to or greater than 734 grams, leakage of refrigerant may not 

exceed 1.5 per cent per year. For systems with refrigerant capacities less than 734 grams, leakage may 

not exceed 11.0 grams per year. New tractors must obtain design-based certification, but no 

system-level testing is required. If a system uses a refrigerant other than HFC–134a, the leakage rate is 

to be adjusted by multiplying it by the GWP of the alternate refrigerant and dividing the product by 

1,430, the GWP of HFC–134a. This adjustment is to be applied before comparing the leakage rate to 

the standard.

47. In addition to the information summarized above, which was reported directly to the 

Secretariat by the parties to whom it relates, information pertinent to the present section was provided 

in the study by USEPA with regard to Colombia, Germany, Montenegro, New Zealand and Yemen, as 

summarized in the following paragraphs.

48. Colombia sets maximum permissible limits for air pollution by HFCs and other greenhouse 

gases, which are measured using hourly, daily and annual values. 

49. Germany has established leakage limits for stationary applications and requires annual 

leakage controls for certain types of transport refrigeration equipment. Some stakeholders, including 

several non-government organizations, recommend strengthening the containment requirements and 

allowable emission rates.

50. Montenegro bans the release of HFCs and other F-gases during the maintenance, repair and 

decommissioning of products containing those substances such as refrigeration and air-conditioning 

units. Recovery is required for recycling, reclamation or destruction. 

51. New Zealand has banned the willful release of HFCs and other SGGs from specified sources 

and activities under the Climate Change Response Act 2002 and fines offenders up to US $38,700. 

Slow leakage over the natural course of a product’s life or release during servicing where best 

practices are employed is not penalized.

52. Yemen’s ozone regulations require the recovery and recycling of HFCs in maintenance 

workshops. 

(b) Releases from end-of-life practices

53. In Australia, equipment and controlled substance license holders who import refrigerant gases 

are required to participate in a product stewardship scheme for properly disposing of ozone-depleting 

substances and SGGs at end of life. 

54. In Canada, the proposed stewardship programme briefly mentioned above would ensure the 

environmentally sound management and disposal of unwanted refrigerants. Building on the existing 

framework for CFCs and HCFCs, the programme would require importers and reclaimers of HFC 

refrigerants to prepare stewardship plans to ensure that recovered halocarbon refrigerants, including 

HFCs, are either reused after recycling or reclamation or disposed of using technologies approved by 

the Parties to the Montreal Protocol. The disposal aspects of this management framework would be 

coordinated by industry, which is already coordinating the disposal of CFCs and HCFCs across the 

country. Consultations are currently under way with Canadian stakeholders on this initiative, which is 

expected to be implemented in 2015. Domestic appliances would be excluded, but municipal and 
UNEP/OzL.Pro.26/9

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regional programmes are in place across Canada that aim to ensure the recovery and sound 

management of such appliances at end-of-life, including the refrigerants that they contain. 

55. The previous European Union regulation ((EC) No. 842/2006) on certain F-gases required 

that fluorinated gases in specified equipment and unused gases left in containers be recovered for 

recycling, reclamation or destruction whenever possible. Building on that, the current regulation ((EU) 

No. 517/2014) requires recovery from the cooling circuits of stationary refrigeration, stationary 

air-conditioning and stationary heat pump equipment; the cooling circuits of refrigeration units of 

refrigerated trucks and trailers; stationary equipment that contains F-gas-based solvents; stationary fire 

protection equipment; and stationary electrical switchgear. It also requires operators of products and 

equipment that is not listed above but contains F-gases, including mobile equipment, to arrange for the 

recovery of the gases, to the extent that it is technically feasible and does not entail disproportionate 

costs, by appropriately qualified persons, so that they are recycled, reclaimed or destroyed, or to 

arrange for their destruction without prior recovery. Residual gases in containers must also be 

recovered for recycling, reclamation or destruction.

56. The European Union also provides for separate collection and take-back systems for waste 

electrical and electronic equipment containing ozone-depleting substances or F-gases. Final holders 

and distributors may return such waste free of charge.

57. Japan requires the recovery and destruction of CFCs, HCFCs and HFCs from commercial 

refrigerators and air-conditioners by approved destruction facilities at the time of maintenance and 

disposal.

58. In Norway there are requirements for proper recovery of equipment as stipulated in the 

European Union’s F-gas regulation (EC) No. 842/2006.

59. Switzerland has specific take-back requirements for solvents.

60. Under the United States Clean Air Act, any equipment used to recover or recycle HFC-134a 

from motor vehicle air-conditioners must meet government standards and be tested by an approved 

testing laboratory (Underwriters Laboratories or Intertek).

61. In addition to the information summarized above, which was reported directly to the 

Secretariat by the parties to whom it relates, information pertinent to the present section was provided 

in the study by USEPA with regard to Montenegro and Sweden, as summarized in the following 

paragraphs.

62. Montenegro regulates the handling of HFCs and other F-gases and products and equipment 

containing them as it pertains to their collection, use and permanent disposal at end of life.

63. Sweden requires producers and suppliers of HFCs for refrigeration and heat pump systems to 

accept recovered bulk HFCs for further recycling, reclamation or destruction. 

3. Training and certification

64. Training and certification relate to programmes and activities intended to ensure that HFCs 

and HFC-based equipment are handled properly throughout their life-cycles so that emissions are 

minimized. A short description of such undertakings is provided below.

65. In Australia, a refrigerant handling license must be held by any person who handles a 

fluorocarbon refrigerant, including decanting, manufacturing, installing, servicing or decommissioning 

refrigeration and air-conditioning equipment. A refrigerant trading authorization must be held by any 

individual or business acquiring, possessing or disposing of fluorocarbon refrigerant. An extinguishing 

agent handling license must be held by any person who handles a fluorocarbon extinguishing agent, 

including decanting, manufacturing, installing, servicing or decommissioning fire protection 

equipment. An extinguishing agent trading authorization must be held by any individual or business 

acquiring, possessing or disposing of any fluorocarbon extinguishing agent. These licensing systems 

set minimum skill standards for people operating in these sectors and require licensed technicians and 

businesses to adhere to Australian standards and codes of practice. These controls ensure a high 

standard of professionalism in the refrigeration and air-conditioning and fire suppression sectors and 

contribute significantly to reduced emissions of ozone-depleting substances and SGGs. The integrated 

approach of this system ensures consistency for industry in the use of both ozone-depleting substances 

and SGGs.

66. Canada has published the Environmental Code of Practice for Elimination of Fluorocarbon 

Emissions from Refrigeration and Air Conditioning Systems, which outlines best practices for 

minimizing emissions of all ozone-depleting substance and HFC refrigerants when operating and 
UNEP/OzL.Pro.26/9

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servicing equipment. The Code of Practice is currently being revised to incorporate new technologies 

and best practices for reducing emissions.

67. The previous European Union regulation on certain F-gases ((EC) No. 842/2006) required 

member States to establish certification and training programmes for personnel involved in leakage 

inspections and the recovery, recycling, reclamation and destruction of fluorinated gases. The 

programmes had to comply with the minimum requirements and conditions laid down by the European 

Commission. The current F-gas regulation ((EU) No. 517/2014) includes requirements for training and 

certification for persons installing, servicing, maintaining, repairing or decommissioning equipment; 

equipment leak checks; and recovery of F-gases. The certification programmes and training provided 

must cover applicable regulations and technical standards, emissions prevention, recovery of F-gases, 

safe handling of equipment and information on relevant technologies for replacing or reducing the use 

of F- gases and their safe handling.

68. Japan requires that only registered collectors perform the recovery of CFCs, HCFCs and 

HFCs from commercial refrigerators and air-conditioners at the time of maintenance and disposal. 

Disposal must be effected by approved destruction facilities. 

69. Under the Netherlands STEK certification programme from 1992, companies and personnel 

installing, maintaining and servicing refrigeration and air-conditioning equipment with a charge size of 

3 kg or more, both for mobile and stationary equipment, were required to be trained and certified in 

best practices for minimizing emissions. 

70. In Norway the requirements for certification of personnel and companies are in line with those 

of the European Union’s F-gas regulations. 

71. The Republic of Moldova has developed the first set of documentation for a new certification 

system for refrigeration technicians and reporting system for the servicing sector that would be in 

harmony with the current European Union F-gas regulations. Discussion of the draft documentation 

for the certification system was facilitated through the organization of a national workshop. In 

addition, a requirement for logbooks for equipment containing 3 kg or more of refrigerants was 

introduced.

72. Under the United States Clean Air Act requirements for motor vehicle air-conditioners, 

technician training and certification programmes across the country provide training on the servicing 

and repair of motor vehicle air-conditioners and similar appliances, refrigerant containment, 

refrigerant handling equipment, refrigerant purity, the environmental consequences of refrigerant 

release, including the adverse effects on the stratospheric ozone layer, and anticipated future 

technology developments in the motor vehicle air-conditioning sector. Training and certification 

requirements apply to all handlers of HFCs and HFC-based equipment, including persons involved in 

the maintenance, repair and decommissioning of HFC-containing products. Proper training and 

certification requirements for service technicians are intended to ensure that HFCs and HFC 

equipment are properly handled in order to minimize emissions during all stages of equipment life. 

73. In addition to the information summarized above, which was reported directly to the 

Secretariat by the parties to whom it relates, information pertinent to the present section was provided

in the study by USEPA with regard to Italy, Montenegro and the United Kingdom, as summarized in 

the following paragraphs.

74. In Italy, Presidential Decree no. 43/2012 established the National Register of Certified Persons 

and Companies, requiring all persons and companies working with HFCs to obtain certification and to 

have their names inscribed in the Register. The Register is publicly available and provides a list of 

certified persons and companies carrying out leakage checking, recovery of gas and installation, 

maintenance or servicing of equipment containing HFCs (and other fluorinated GHGs), including 

stationary refrigeration, air-conditioning and heat pump equipment, stationary fire protection systems 

and fire extinguishers, as well as persons recovering certain HFCs or other fluorinated GHGs from 

high-voltage switchgear, solvent-containing equipment and air-conditioning systems in motor 

vehicles.

75. Montenegro requires that the recovery of HFCs and other F-gases be undertaken only by 

persons licensed to maintain, repair and decommission products containing those substances. These 

service technicians are required to have a university degree, to have completed a mechanical or 

technical engineering programme during secondary school and to be trained in the proper handling and 

servicing of refrigeration and air-conditioning equipment.

76. The United Kingdom’s Fluorinated Greenhouse Gas Regulations 2009 set out the legal 

obligations for companies and the qualification requirements for personnel working in HFC-containing 
UNEP/OzL.Pro.26/9

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stationary refrigeration (and other nominated industry sectors) covered by the European Union's F-Gas 

regulation. The regulations are effectively identical to the European Union's F-Gas regulations, in 

addition to which they cover certain issues specific to the United Kingdom such as approved training 

courses. 

4. Recordkeeping and reporting

77. Recordkeeping and reporting requirements can take many forms, including requirements for 

keeping equipment-maintenance logbooks, holding licenses for certain activities and maintaining 

records of import, export and production data. A summary of the reported information is presented 

below.

78. In Australia, importers of scheduled substances, including HFCs, are required to report 

quarterly on their imports.

79. The previous European Union regulation on certain F-gases ((EC) No. 842/2006) required 

both reporting and recordkeeping. The owners of refrigeration, air-conditioning and heat-pump 

equipment and fire protection systems containing 3 kilograms or more of F-gas were required to 

maintain records indicating the quantity and type of gas. The new F-gas regulation includes 

requirements to maintain records for each piece of covered equipment on the quantity and type of 

F-gases installed; the quantity of F-gases added during installation, maintenance or servicing or due to 

leakage; whether the installed F-gases have been recycled or reclaimed, including the name and 

address of the recycling or reclamation facility and, where applicable, the certificate number; the 

quantity of F-gases recovered; the identity of the person or entity that installed, serviced, maintained 

and where applicable repaired or decommissioned the equipment, including, where applicable, the 

number of its certificate; the dates and results of required checks; and, if equipment is 

decommissioned, the measures taken to recover and dispose of the F-gases.

80. Regulation (EC) No. 842/2006 also required anyone annually producing, importing or 

exporting more than one tonne of any of F-gas to report the amount produced, imported or exported, 

the applications in which they would be used and the expected emissions and amounts recycled, 

reclaimed or destroyed. It also required the owners of refrigeration, air-conditioning and heat-pump 

and fire protection equipment containing 3 kilograms or more of F-gas to maintain records indicating 

the quantity and type of gas used in the equipment. The new F-gas regulation requires the maintenance 

of records for each piece of covered equipment. It also requires each producer, importer and exporter 

that produces, imports or exports one metric tonne or 100 tonnes of CO2 equivalent or more, each 

person that destroys 1 metric tonne or 1,000 tonnes of CO2 equivalent or more, and each person that 

uses 1,000 tonnes of CO2 equivalent or more of covered gases as feedstock during the preceding 

calendar year to report specific data on each of those substances for that calendar year. The regulation 

also requires reporting from each importer of equipment that places on the market pre-charged 

equipment containing HFCs that have not been placed on the market prior to the charging of the 

equipment. Finally, the regulation requires each person that reports placing on the market 10,000 

tonnes of CO2 equivalent or more of HFCs during the preceding calendar year to ensure that the 

accuracy of their reported data is verified by an independent auditor.

81. In Japan, beginning 1 April 2015, users will be required to keep records of maintenance of 

HFC-containing equipment so that maintenance personnel and others can refer to them as necessary. 

82. Under the STEK certification programme of the Netherlands, operators were required to 

ensure that a logbook was kept with installed equipment to allow maintenance personnel to identify 

structural problems with equipment and to know how much ozone-depleting substances or HFCs had 

been installed in the equipment. Installation, maintenance and servicing companies were required to 

maintain “refrigerant balances” to raise awareness of the refrigerants used by their companies. 

83. In Norway, there are requirements for reporting imports, exports and production of F-gases in 

line with the European Union’s F-gas regulations. 

84. The Netherlands generates estimates of HFC emissions based on the Intergovernmental Panel 

on Climate Change guidelines on national greenhouse gas inventories, which it reports in accordance 

with the provisions of the Framework Convention on Climate Change and its Kyoto Protocol. The 

party performs data collection to verify these emissions estimates. For the refrigeration and 

air-conditioning and foams sectors, emissions are derived from statistical data on installed capacity, 

leakage rates and amounts of HFCs sold for use in the Netherlands. Industrial process emissions 

(by-product emissions and emissions from handling and re-packaging) are monitored and reported in 

the Netherlands’ annual environmental report. Solvent uses of HFCs are very limited. Data on imports, 

exports and the placing on the market of HCFCs and HFCs to be used as refrigerants, solvents and 

blowing agents, inter alia, is collected and reported annually. A multi-year step-wise approach is used 
UNEP/OzL.Pro.26/9

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to verify emissions estimates for the refrigeration and air-conditioning sector, which involves 

collecting representative samples of data on installed capacity and leaks registered in logbooks. The 

outcome of these studies is used to prioritize policy interventions, based on the impact of emissions on 

a sectoral basis, taking into account installed HCFC capacity that still needs to be converted and trends 

in the choice of alternatives.

85. In the Republic of Moldova logbooks for equipment containing 3 kg or more of refrigerants 

have been elaborated for introduction (see also para. 67).

86. Switzerland requires mandatory reporting on the commissioning and decommissioning of 

stationary systems containing more than 3 kg of ozone-depleting substances or SSA-based 

refrigerants. It also requires maintenance of logbooks for those systems and mandatory reporting on 

quantities of all imported SSA. 

87. In the United States, both the federal requirements for motor vehicle air-conditioning and the 

California Regulation for Small Containers of Automotive Refrigerant require reporting and 

recordkeeping to ensure that entities are implementing all aspects of the regulations.

88. Under the United States Greenhouse Gas Reporting Programme, all suppliers of HFCs that 

reach a certain emissions threshold are required to report their supply activities using an online tool. 

The purpose of this programme is to allow USEPA to better understand the sources of HFCs and other 

greenhouse gases and to help inform future policy, business and regulatory decisions. Aggregated 

HFC emissions data are also available to the public. In 2011, 54 facilities reported a total of seven 

million metric tonnes of CO2-equivalent in HFC emissions.

89. The United States requires all servicers of motor vehicle air-conditioners to report information 

indicating that they have approved HFC recovery and recycling equipment and to maintain on-site 

records of the name and address of the reclaimers to which they send recovered HFC refrigerant. The 

USEPA uses the information reported to ensure that properly certified technicians are handling motor 

vehicle air-conditioning systems and that HFCs used in motor vehicle air-conditioners are being 

recycled.

90. The State of California requires the recycling of HFCs used in motor vehicle air-conditioners. 

To facilitate monitoring of the policy, manufacturers, distributors, retailers and recyclers must report 

sales data and the number of returned containers as part of their deposit programmes, as well as the 

amount of refrigerant recycled annually. In addition, each manufacturer must submit an application to 

the California Air Resources Board for the certification of products for sale. The programme began 

with a target recycle rate across all small automotive refrigerant containers of 90 per cent, which 

increased to 95 per cent on 1 January 2012. 

91. In addition to the information summarized above, which was reported directly to the 

Secretariat by the parties to whom it relates, information pertinent to the present section was provided 

in the study by USEPA with regard to Belize, Egypt, Montenegro, New Zealand and Yemen, as 

summarized below. 

92. Belize requires reporting on HFC imports and exports. Since October 2000, Egypt has been 

monitoring imports of controlled substances and products, including HFCs. The customs authority 

must obtain a letter from the Egyptian Environmental Affairs Agency before clearing any imported 

shipment including HFCs and other refrigerants through customs. When the importer applies for this 

letter from the Environmental Affairs Agency, the imported HFCs are registered in a database. 

Consequently, imports of HFCs and other refrigerants are monitored and registered. Starting from 

January 2011, the General Organization for Export and Import Control is authorized to inspect and 

analyse imports of controlled substances on behalf of the Environmental Affairs Agency.

93. In Montenegro, anyone who imports and places on the market HFCs and other F-gases is 

required to keep records of and report annually on such imports and their end-users, including amounts 

imported, amounts placed on the domestic market and their eventual purposes, existing stocks and 

other relevant details, exports, amounts exported and amounts of recovered alternative substances 

exported for reclamation. In addition, the owners and users of stationary refrigeration and airconditioning and fire protection equipment containing 3 kg or more of HFCs or other F-gases must 

notify the environmental protection agency in writing within 15 days of putting such substances to use.

94. In New Zealand, persons who manufacture or import HFCs in bulk are required to report to 

the Government. In addition, all importers and manufacturers of HFCs operating as of 1 January 2013 

are required to participate in New Zealand’s emissions trading system; exporters and destroyers of 

HFCs may participate voluntarily. 

95. Yemen’s ozone regulations require importers to report on annual HFC imports. 
UNEP/OzL.Pro.26/9

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5. Labelling 

96. Placing labels on products and equipment containing HFCs is important in raising awareness 

about the exact type and amount of the substance they contain and in ensuring proper handling. 

Information provided by parties on this issue is summarized below.

97. The previous European Union regulation ((EC) No. 842/2006) on certain F-gases required 

that certain types of product and equipment containing F-gases be clearly and indelibly labelled, with a 

statement of the type and quantity of gas they contained. The requirement covered refrigeration and 

air-conditioning products and equipment (other than those fitted to vehicles), heat pumps, fire 

protection systems, switchgear and containers. The labelling might include environmental information 

such as global warming potential, as well as pictograms applicable to the equipment and the products. 

The new regulation ((EU) No. 517/2014) includes extensive similar labelling and product and 

equipment information requirements. It will also include from 1 January 2017 a requirement that 

labels include the quantity of F-gas, expressed in weight and in CO2 equivalents, contained in the 

product or equipment, or the quantity of F-gases for which the equipment is designed, and the GWP of 

those gases.

98. Norway requires the labelling of HFC products and equipment through its implementation of 

the European Union’s F-gas regulations. 

99. The United States reports that in California small containers containing HFCs as refrigerants 

for motor vehicle air-conditioners must be labelled so that end-users know that it is illegal to destroy 

or discard the contents of the container. This requirement is expected to stimulate a move away from 

HFC-134a to more sustainable options that are not subject to such stringent requirements.

100. In addition to the information summarized above, which was reported directly to the 

Secretariat by the parties to whom it relates, information pertinent to the present section was provided 

in the study by USEPA with regard to Belize, Montenegro and Yemen, as summarized below. 

101. Belize has labelling requirements. Montenegro requires the labelling of products, including 

cylinders containing HFCs and other F-gases. Labels must include the chemical formula of the 

substance contained in the product, its amount expressed in kilograms and a note indicating that the 

product contains fluorinated gas governed by the Kyoto Protocol. Yemen’s ozone regulations include 

labelling requirements for HFC importers. 

III. Economic incentives

102. The term economic incentives refers to negative incentives, such as taxes and fees, positive 

incentives, such as refunds and subsidies, and other financial mechanisms, such as emissions trading 

systems and compliance credits. The aim of economic incentives is to discourage the choice of HFCs 

and other high-GWP substances. Sometimes a negative incentive is matched with a positive incentive, 

which may further contribute to discouraging HFC use. The various incentives reported by parties are 

outlined in the following sections.

A. Negative economic incentives 

103. Denmark, Norway, Poland, Slovenia and Spain reported employing taxes and fees, as 

summarized below.

104. In Denmark a tax on greenhouse gas was introduced in 2001 and a ban on certain applications 

was introduced in 2002. The main principle was that a tax of 100 Danish kroner (approximately 13 

euros) per tonne of CO2 equivalent was imposed on imported HFCs, PFCs and sulfur hexafluoride. 

The tax was increased in January 2011 to 150 Danish kroner (approximately 20 euros). Converting 

from CO2 equivalence to weight, the tax amounts to 195 Danish kroner (approximately 26 euros) per 

kg of the most frequently used F-gas refrigerant, HFC-134a. The system is implemented by taxing all 

bulk gases and imported products. The tax is administered by the Danish Customs and Tax 

Administration, a branch of the Danish Ministry of Taxation. Information from the market indicates 

that it has increased awareness among equipment owners and operators, including with regard to 

alternatives such as hydrocarbons, CO2 and ammonia, and has resulted in improved housekeeping of 

reused gas. Initial troubles were solved through cooperation between the industry and Government. 

The tax has led to a decline in the consumption of F-gases, and the import of bulk HFCs has almost 

been halved from around 700 tonnes per year in 2001 and 2002 to around 360 tonnes in 2009. There is 

a delay in the impact of the system for emissions of F-gases as most of the consumed bulk material is 

used to fill refrigeration systems with certain annual leakage rates. From 2008 to 2009, however, 

emissions of F-gases declined from 895,000 tonnes CO2 equivalent to 848,000 tonnes.
UNEP/OzL.Pro.26/9

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105. Norway imposes a tax on the production and import of HFCs and PFCs, calculated on the 

quantity of gas and its GWP. The tax is 229 Norwegian kroner (approximately 29 euros) per tonne 

CO2 equivalent. Emissions of HFCs in Norway were 0.95 metric tonnes CO2 equivalent in 2011, 

amounting to about 1.8 per cent of the total emissions of greenhouse gases. Emissions in 1990 were 

insignificant, but they increased considerably in the mid-1990s, when HFCs were introduced as 

substitutes for ozone-depleting substances. Refrigeration and air-conditioning contribute by far the 

largest part of HFC emissions. A trend of exponential growth was slowed after the tax on HFCs and 

PFCs was introduced in 2003. HFC-134a, HFC-125 and HFC-143a are the most important gases. 

After the introduction of the tax in 2003, the growth rate of imports of HFCs and PFCs was halved. 

Taxes based on GWP result in high penalties for the most potent gases, which further encourages the 

adoption of low-GWP alternatives. The tax was increased to 300 Norwegian kroner beginning 1 

January 2014. 

106. In Poland, fees are collected by the Government and deposited to a fund for managing 

F-gases, both through the maintenance of reporting databases and other F-gas emission reduction 

projects. The fees are levied on CFCs, HCFCs and HFCs, amounting to approximately 44 euros per 

kg., 12 euros per kg. and 7 euros per kg., respectively. Slovenia reported that it had introduced a tax 

on fluorinated gases in 2013 under the 1853rd Decree on environmental tax on air pollution caused by 

emissions of carbon dioxide.22

107. In Spain, the Council of Ministries has approved a tax (Law 16/2013 of 29 October 2013, 

Establishing Certain Measures on Environmental Taxation and Taking other Tax and Financial 

Measures) to be levied on the consumption of F-gases with a GWP above 150, including HFCs. The 

tax is calculated based on the GWP of the F-gases or their mixtures by applying a factor of 0.020 to 

the GWP of each F-gas, up to a maximum of 100 euros per kg. The tax will be phased in over three 

years, with one third of the calculated amount due imposed in 2014, two thirds in 2015 and the full tax 

in 2016 and beyond. F-gases in hermetically sealed systems and pre-charged equipment with up to 3kg 

of HFCs would be exempt from the proposed tax. The tax will not apply to the first refrigerant charge 

of new equipment. 

108. In addition to the information summarized above, which was reported directly to the 

Secretariat by the parties to whom it relates, information pertinent to the present section was provided 

in the study by USEPA with regard to Burkina Faso, China, France, Montenegro, New Zealand and 

the former Yugoslav Republic of Macedonia, as summarized below.

109. In Burkina Faso imported HFCs are taxed according to the context in which imports take 

place. Taxes may be waived if there are multilateral or bilateral agreements in place between Burkina 

Faso and other countries. The full taxation amount for HFCs is between 27 and 30 per cent of the total 

value of the imported goods. 

110. In 2005 China passed a proposal to impose a 65 per cent tax on HFC-23 Clean Development 

Mechanism projects. Proposed uses for the revenue from such projects identified by the Government 

include funding Clean Development Mechanism administration and approval activities, climate 

change related capacity-building activities and other sustainable development activities.

111. France has been considering introducing a tax on HFCs with a GWP greater than 150. Four 

different options are being considered, with taxes ranging from 2.5 euros to 60 euros per metric tonne

of CO2 equivalent, depending on the GWP. The Ministry for the Environment estimates that the 

French HFC tax could lead to reductions in HFCs of up to 50 per cent by 2020 and 80 per cent by 

2030.

112. Montenegro’s law on administrative taxes includes an administrative fee of 5 euros for each 

application for the import or export of HFCs. 

113. In New Zealand, from 1 July 2013, importers of HFCs and PFCs in goods and motor vehicles 

will face a carbon price through a levy. The levy on motor vehicles will apply when a motor vehicle is 

first registered for on-road use in New Zealand (when a car receives its license plates) and will be 

administered by the New Zealand Transport Agency. The levy on all other goods that contain HFCs 

and PFCs will apply at import and will be administered by the New Zealand Customs Service. The 

Climate Change (General Exemptions) Amendment Order 2010 sets out exemptions from the levy, as 

well as from New Zealand's emissions trading scheme. These regulations are currently being amended 

to remove exemptions for HFC-245fa and HFC-365mfc.

 

22 Official Gazette of the Government of the Republic of Slovenia, no. 47/2013 of 31 May 2013.
UNEP/OzL.Pro.26/9

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114. The Former Yugoslav Republic of Macedonia imposes a fee for the import of used 

refrigerators, freezers and air-conditioners, with the amount of the fee depending on the volume and 

capacity of the equipment.

B. Refunds and other positive incentives

115. Belgium, Canada, Denmark, the European Union, Japan, Mozambique, Norway, Spain and 

California offer some type of refund, subsidy or other positive incentive.

116. The Flanders region of Belgium created the so-called Ecology Premium, which is a form of 

subsidy provided to companies that choose relatively environmentally friendly and energy-efficient 

alternatives. Replacement of HFCs with natural refrigerants, for both existing and new systems, is 

eligible for the premium. The premium is calculated as a percentage of the extra cost of the non-HFC 

alternative.

117. In Canada, the Passenger Automobile and Light Truck Greenhouse Gas Emissions 

Regulations, described in section II. B. 2. (a) above, are designed to provide a form of incentive. By 

allowing them to subtract the allowance for reducing air-conditioning refrigerant leakage from their 

carbon-related exhaust emissions, the regulations reward companies who use air-conditioning 

technologies that reduce leakage. This encourages the use of refrigerants with a lower GWP than the 

current standard refrigerant, HFC-134a. As a result, some Canadian-based manufacturers are already 

using low-GWP HFO-1234yf in new vehicle models.

118. Denmark has a refund scheme to go along with its tax, and it reports that information from the 

market indicates that the tax/refund scheme has led to more awareness by equipment owners and 

operators. Denmark also supports alternatives. When its regulation was approved, it decided to support 

research and development projects to promote the quick development of alternative technologies. The 

Danish Environmental Protection Agency conducted the scheme, and a number of projects in the 

refrigeration area were supported financially with approximately 20 million Danish kroner. 

119. In the European Union, the regulation on the ecodesign of air-conditioners ((EU) No. 

206/2012) proposes a bonus of lower required energy efficiency to steer the market towards the use of 

refrigerants with reduced harmful impact on the environment. The bonus is intended as an incentive 

for the design of appliances that use low-GWP refrigerants. The European Union waste electrical and 

electronic equipment directive (Directive 2012/19/EU) permits the final holders of waste electrical and 

electronic equipment containing ozone-depleting substances and F-gases to return such waste to 

collection facilities free of charge.

120. The Ministry of the Environment of Japan provides a subsidy to private companies to cover 

part of the cost when they purchase commercial and industrial refrigeration equipment that is highly 

energy efficient and based on natural refrigerants. The subsidy is one half of the introduction cost for 

refrigerated warehouses, one third of the introduction cost for retail store showcases and one third of 

the difference in costs as compared to equipment using a fluorocarbon for all other installations.

121. Mozambique’s regulation on ozone-depleting substances provides for tax exemptions to 

importers of alternatives to HCFCs, thus encouraging the import of alternatives such as hydrocarbons 

and ammonia for use in the refrigeration and air-conditioning sector.

122. Norway supplemented its 2003 HFC tax scheme (see paragraph 98 above) with a refund 

scheme in 2004 that prescribes a similar refund upon destruction. Together the tax and refund schemes 

serve as a proxy tax on emissions of HFCs. This combination has resulted in better maintenance and 

improved procedures during the recovery of refrigerant from old equipment. It also gives a strong 

incentive for choosing HFCs with the lowest possible GWP and has resulted in increased use of 

natural cooling agents and alternative processes such as indirect systems in new installations.

123. Spain’s new F-gas tax provides for a tax refund or tax deduction from amounts due in 

subsequent periods for taxpayers that deliver F-gases to certified facilities for destruction, recycling or 

reclamation.

124. On a smaller scale, the United States reports that California employs a deposit system for 

containers for HFCs used in motor vehicle air-conditioners. In January 2009, the California Air 

Resources Board approved a regulation to reduce emissions associated with the use of small 

containers, i.e., those holding less than 2 pounds of HFC-134a. A recycling programme for used 

containers was established, under which a $10 deposit on each container of HFC-134a is charged at 

the time of purchase. The deposit is refunded by the Air Resources Board upon return of the container 

within 90 days of purchase.
UNEP/OzL.Pro.26/9

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125. In addition to the information summarized above, which was reported by the parties directly to 

the Secretariat, the USEPA study included information on Colombia, in particular about the party’s 

efforts to provide technical support in the form of consultation, advice on technology replacements, 

assessing alternatives with zero ozone-depletion potential and prioritizing low-GWP options. For this 

purpose, special credit lines and tax benefits are being designed to promote environmentally friendly 

ozone-depleting substance substitutes and energy-efficient consumption.

C. Emissions trading systems and compliance credits

126. So-called “cap-and-trade” emissions trading schemes are used to reduce greenhouse gas 

emissions. According to USEPA, approximately 30 countries have launched national emissions 

trading schemes, while a number of other countries are piloting them with plans to launch them in the 

coming years. Typically, the schemes include a government-controlled emissions cap on the amount of 

greenhouse gases or other pollutants that may be emitted during a specified period. Polluting firms 

receive allocations in the form of emission permits, which can be transferred or traded to other firms. 

Firms that reduce their emissions below their allocated amounts may sell their surplus permits to other 

firms. The method for initially distributing allowances and a few other design components (e.g., 

compliance periods, verification, offsets, banking and borrowing allowances) may vary from system to 

system. An example is the well-known European Union emission allowance trading scheme,23 created 

under Directive 2003/87/EC24 in 2005, covering all 28 European Union member States and three nonmembers (Iceland, Lichtenstein and Norway). The system is described in document 

UNEP/OzL.Pro.WG.1/34/INF/4/Add.1.

127. The United States introduced a credit trading system that provides an incentive for the 

reduction of HFC emissions from vehicle air-conditioning systems. Under the 2012–2016 Model 

Years Light-Duty Vehicle Greenhouse Gas Emissions and Corporate Average Fuel Economy (CAFE) 

Standards, manufacturers are required to meet the first-ever national greenhouse gas emissions 

standards. The standards apply to new passenger cars, light-duty trucks and medium-duty passenger 

vehicles, covering model years 2012–2016. The standards require covered vehicles to meet an 

estimated combined average emissions level of 250 grams of CO2 per mile in model year 2016, 

equivalent to 35.5 miles per gallon (mpg) if the automotive industry were to meet this CO2 level solely 

through fuel economy improvements. The programme includes a flexible component by which 

manufacturers can meet the emissions standards through a system of averaging, banking and trading 

credits. One option for earning credits to comply with the new standards is by reducing HFC 

emissions from vehicle air-conditioning systems. For example, manufacturers may earn credits by 

applying technologies that reduce HFC refrigerant losses (i.e., through system leakage), improve 

system efficiency or adopt systems that use HFC-alternatives or HFCs with lower GWP than 

HFC-134a.

128. In addition to the information summarized above, which was reported directly to the 

Secretariat by the parties to whom it relates, information pertinent to the present section was provided 

in the study by USEPA with regard to China and New Zealand, as summarized below.

129. In its pledge to cut its emissions by 17 per cent per unit of economic output by 2015 compared 

to 2010 levels, China has approved seven pilot trading programmes in five cities and two provinces, 

which were scheduled to commence trading in June 2013. The pilot trading programmes will 

collectively be the second largest in the world and are expected to cover approximately 700 million 

metric tonnes CO2 equivalent by 2014. The rules and design of those pilot schemes differ, to better 

inform the Chinese national programme that is expected to launch in 2015. While initially only CO2

will be covered, the scope of the programmes may broaden to include HFCs. 

130. The New Zealand emissions trading system is designed to reduce emissions and meet 

commitments under the Framework Convention on Climate Change and the Kyoto Protocol. 

According to New Zealand’s emissions trading system review panel, regardless of what happens in the 

future with regard to the Kyoto Protocol there will be other compelling drivers that reduce emissions 

in New Zealand. Regulations on reporting HFC emissions under the country’s emissions trading 

system came into force on 1 January 2011. The regulations require importers of HFCs and other 

SGGs, in bulk or in products, and manufacturers of HFCs and other SGGs, to give the Government 

one emissions unit for each metric tonne of CO2 equivalent that they import each year. The emissions 

trading system also covers exports and destruction of these gases, awarding credits based on the 

amount of emissions “removed” through these activities. Eligibility to receive emissions credits began 

 

23 http://ec.europa.eu/clima/policies/ets/documentation_en.htm.

24 http://eur-lex.europa.eu/legal-content/EN/TXT/?uri=CELEX:32003L0087.
UNEP/OzL.Pro.26/9

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on 1 January 2013. Firms that have a surplus of emissions units – achieved by reducing emissions –

may sell them through a carbon market broker. In addition, firms may earn emissions units through 

government-approved emissions removal activities.

IV. HCFC phase-out management plans

131. Six parties reported on their efforts to replace HCFCs in specific sectors with low-GWP HFCs 

or non-HFCs in the context of their HCFC phase-out management plans (HPMPs) under the 

Multilateral Fund for the Implementation of the Montreal Protocol. 

132. Bangladesh reported that subsequent to the approval of its HPMP (stage I) at the by the 

Multilateral Fund Executive Committee at its sixty-fifth meeting, in 2011, it adopted low-GWP, 

zero-ozone-depletion-potential and energy efficient technology in the foams sector. Bangladesh is now 

implementing a conversion project for the manufacture of insulation foam for domestic refrigerators. 

For the project, Bangladesh chose cyclopentane as a foam blowing agent as an alternative to 

HCFC-141b. Bangladesh is trying to select, especially in the refrigeration and air-conditioning sector, 

an alternative that has low GWP and ozone-depletion potential and is energy efficient. It is studying 

low-GWP technology adopted by developed countries such as Japan and countries in Europe and 

elsewhere. The country’s national ozone unit is in the process of standardizing hydrocarbons and 

fluorocarbons with low flammability for use in the refrigeration and air-conditioning sector. 

Bangladesh will address energy efficiency issues in the process of preparing stage II of its HPMP in 

2015. 

133. Mexico selected zero-GWP or low-GWP alternatives for the projects under stages I and II of 

its HPMP whenever it was viable to do so. They included hydrocarbons, perchloroethylene, 

methylformate, methylal, nitrogen and water. As a new initiative, an HFO blowing agent will be 

introduced in large amounts in several domestic refrigerator factories. Better refrigeration service 

practices and various non-investment projects will lead to the phase-out of 1,367 metric tonnes of 

HCFC-22 without phasing in any greenhouse gases. HFCs will be used only for certain critical 

applications (e.g., flammable aerosols). The phase-out of HCFCs in aerosols, however, will include

375 metric tonnes of HFC-152a, which has a relatively low GWP (124, calculated for 100 years) and 

has a positive impact on air pollution, particularly with regard to tropospheric ozone precursors, which 

is important for air quality management in Mexico. During stages I and II, 6,531 metric tonnes of 

HCFC-141b and 2,303 metric tonnes of HCFC-22 will be replaced by the various alternatives, many 

of which have zero or low GWP.

134. The Republic of Moldova, consistent with decision XIX/6 and in order to reduce failure rates 

and energy consumption, wishes to conform its refrigeration and air-conditioning industry to 

European Union standards. In the light of this, it sees the phase-out of HCFCs as an opportunity to 

introduce environmentally friendly, energy-efficient solutions. The use of natural refrigerants such as 

hydrocarbons, CO2 and ammonia in the sector is currently limited, but the party feels that the 

possibilities for their implementation are significant. Despite often somewhat higher initial and 

maintenance costs, it sees the main obstacles as the limited number of qualified and competent service 

staff and companies and a lack of awareness among end users. It believes that these constraints should 

be addressed through training and awareness-raising projects during stage II of its HPMP.

135. The party identifies a number of specific actions that could be incorporated into stage II of its 

HPMP and would enhance its climate change benefits, including the involvement of authorities 

responsible for climate change policy as key institutional stakeholders; continued adoption of 

European Union standards for the certification of technicians; and the introduction of refrigerant 

management regulations that would in the future extend to HFCs. The party feels that new 

demonstration projects at the national and regional levels are needed to demonstrate the advantages 

and disadvantages of alternatives to HCFCs. 

136. The Government of Swaziland is making efforts to use alternatives that do not have known 

climate impacts. For example, with the assistance of the Multilateral Fund, Swaziland has succeeded 

in replacing HCFC-22 in the refrigerator manufacturing sector with HC-290 and HC-600a. It has also 

obtained funding for replacing HCFC-141b pre-polyol with cyclopentane in the foam production 

sector, which will drastically reduce HCFC imports.

137. The Government of Zimbabwe is implementing its HPMP in the manufacturing and servicing 

sectors, aiming for the use of alternative refrigerants with zero ODP and zero or very low GWP. In the 

manufacturing sector, the party is phasing out HCFC-141b in pre-blended polyols in foam insulation 

by using hydrocarbon blowing agents and water-based insulation systems. In the servicing sector, the 

party is replacing HCFC-22 refrigerants with propane (R90) and isobutane (R-600a) which are 

hydrocarbons. Other natural refrigerants such as CO2 and ammonia are being promoted, taking into 
UNEP/OzL.Pro.26/9

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consideration health and safety considerations. Dry nitrogen is being promoted as a flushing agent in 

place of HCFC-141b.

138. El Salvador provided detailed information on its phase-out of HCFCs and noted that its 

stage I HPMP had been approved by the Executive Committee at its sixty-fifth meeting, which would 

result in a 35 per cent reduction in consumption over the period 2011–2020, putting into effect 

compliance measures for the reduction of HCFC imports, the retrofitting of equipment with 

HCFC-free alternatives and capacity-building in best practices over the period from 2013 to 2015.

139. In addition to the information summarized above, which was reported by the parties directly to 

the Secretariat, the USEPA indicates that as of January 2014, 294 HPMP and HCFC phase-out project 

preparation activities had been approved for 144 eligible parties. Through their HPMPs, 41 of 43 

Article 5 parties with rigid polyurethane foam producers have opted to convert from HCFCs to 

non-HFC alternatives. Six countries have also included projects aimed at adapting locally-owned 

systems houses for manufacturing non-HCFC 141b pre-blended polyol systems and, through them, 

converting large numbers of downstream foam enterprises. These projects have been aimed largely at 

avoiding HFCs in the foams and refrigeration and air-conditioning sectors. In addition, the 

Multilateral Fund has sponsored a number of low-GWP pilot programmes. Several valuable case 

studies and successful demonstration projects have been undertaken in Article 5 parties, a promising 

signal that a direct transition to climate-friendly technologies and substances is currently possible in 

some sectors and may be feasible soon in many more. One example is found in Bosnia and 

Herzegovina, where a national expert group is preparing new ozone legislation, which will enter in 

force in 2014, to implement the party’s HCFC HPMP. The HPMP will probably include a transition to 

low-GWP alternatives. There are also preparations to establish an import and export licensing system 

in Bosnia and Herzegovina for HFCs and HFC blends. Another task under way, in cooperation with 

the Montreal Protocol Branch of the Programme Development and Technical Cooperation Division of 

the United Nations Industrial Development Organization, is the establishment of a national code of 

good practice for the refrigeration sector. Maldives is also making efforts to promote non-HFC based 

equipment.

V. Other initiatives 

A. Energy efficiency initiatives

140. Several countries provided information on energy efficiency, which is reflected to a 

considerable extent in the summaries above. Some noteworthy examples of information are

summarized in the present section. 

141. Bangladesh developed in September 2013 an action plan for energy efficiency and 

conservation, with a vision of improving primary and secondary energy savings for sustainable energy 

security, which includes low carbon emissions. The action plan features a matrix listing actions, 

responsible organizations and timelines for completing the actions.

142. In Canada, the federal Government’s CanmetEnergy, a division of Natural Resources Canada, 

has collaborated with stakeholders in the refrigeration industry and other levels of government to 

facilitate the adoption of energy-efficient, low-GWP technologies. In particular, Canmet played a key 

role in the introduction of CO2 as a refrigerant and as a heat transfer fluid in secondary loop 

refrigeration systems. This included contributing to modifying the relevant Canadian standard to allow 

the use of CO2 in commercial refrigeration and providing technical support for the first demonstration 

project validating the use of CO2 in a supermarket refrigeration system.

143. In addition, CanmetEnergy has developed and promoted the CoolSolution® approach to 

optimizing energy management and reducing greenhouse gas emissions from buildings requiring 

significant refrigeration. The approach combines advanced practices and technologies in the design 

and operation of refrigeration systems and has been used in demonstration projects, which show that it 

is possible to reduce energy consumption by almost 50 per cent in arenas and curling rinks and by 

25 per cent in supermarkets, as well as to reduce synthetic refrigerant leaks by 75 per cent. 

144. CanmetEnergy provided technical and scientific expertise for the development, 

implementation and evaluation of the Quebec Refrigeration Optimization Programme (OPTER). 

Between 2008 and 2013, this programme supported the adoption of measures to improve energy 

efficiency, together with the conversion and replacement of refrigeration equipment to low-GWP 

technologies, in over 130 installations (mainly in supermarkets, warehouses, arenas and the food 

industry). It is estimated that the programme led to the annual elimination of over 64,000 tonnes CO2

equivalent in total emissions from refrigeration equipment. Direct reductions of refrigerant emissions 
UNEP/OzL.Pro.26/9

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result mainly from the adoption of CO2 and ammonia refrigerants, as well as the use of secondary loop 

and cascade technologies. 

145. These Canadian efforts have led to the development and adoption of CO2–based refrigeration 

technology in a number of supermarkets and increased the use of ammonia in ice rinks, two

sub-sectors that are responsible for a significant proportion of HCFC and HFC consumption in 

Canada. Among supermarkets that have converted to low-GWP refrigerants in recent years, one chain 

in particular has made a commitment to alternative CO2 refrigeration technology and is reportedly 

very pleased with the results. The installation of trans-critical CO2 refrigerant systems with heat 

reclamation in this chain’s stores improves environmental performance and yields economic benefits. 

Compared to a traditional HCFC refrigerant system, it is estimated, trans-critical CO2 systems reduce 

overall CO2 emissions by 62 per cent, or 862 tonnes of CO2-equivalent per year per store, and reduce 

energy consumption by 15–18 per cent. 

146. As mentioned in section III. B. above, in the context of the European Union regulation on the 

ecodesign of air-conditioners and comfort fans ((EU) No. 206/2012), bonuses are offered for lower 

required energy efficiency to steer the market towards the use of refrigerants with reduced harmful 

impact on the environment.

147. Japan reported a number of subsidies for introducing energy-saving equipment with natural 

refrigerants. Energy efficiency is also an important component in the new policy measures to be 

introduced by the party related to the promotion of low-GWP or non-HFC alternatives and the phasedown of HFCs (see para. 23). 

148. The Netherlands has provided limited funding for feasibility studies and demonstration 

projects for HFC-free and energy effective alternatives in all relevant sectors and special studies on 

barriers to the use of HFC-free and low-GWP alternatives. To date, the focus has been on 

supermarkets, data centres, the food processing industry, hospitals, schools and refrigerated transport, 

including shipping. 

149. The United States reports that establishing a new goal for energy efficiency standards and 

advancing vehicle fuel efficiency and greenhouse gas emission standards are two of the key actions 

under the President’s Climate Action Plan. In particular, the plan sets a new goal to establish 

efficiency standards for appliances and federal buildings. In its biennial Climate Action Report 2014,25

the United States reports on several energy-efficiency-related initiatives such as the State Energy 

Programme, providing funding to enable state energy offices to reduce market barriers to the 

cost-effective adoption of energy efficient technology. 

150. In addition to the information summarized above, which was reported directly to the 

Secretariat by the parties to whom it relates, the USEPA study indicates that some countries such as 

Mexico and Thailand have introduced efforts to promote energy efficiency and low-GWP or no-GWP 

refrigerants through their nationally appropriate mitigation action (NAMA) strategies under the Bali 

Action Plan adopted by the Conference of the Parties to the Framework Convention on Climate 

Change at its thirteenth session. 

151. Mexico is in the preliminary stages of coordinating and implementing a domestic refrigerator 

NAMA strategy aimed at controlling HFC emissions by recovering and destroying refrigerants during 

the decommissioning of old refrigerators. Within five years the strategy aims to phase-out HFC-based 

technology and replace 100 per cent of Mexico’s domestic market with HFC-alternative-based, 

energy-efficient technology. The strategy has the potential to mitigate approximately two million 

tonnes of CO2 equivalent, 63 per cent of which could be attributed to replacing HFC-134a. 

152. The Thailand Greenhouse Gas Management Organization, with support from GIZ 

PROKLIMA, has successfully completed a baseline inventory of HFCs in Thailand. Thailand and 

Germany are currently working to develop a NAMA strategy focusing on the refrigeration and 

air-conditioning and foam blowing sectors.

B. Voluntary agreements

153. In addition to mandatory measures aimed at addressing HFCs, a growing number of voluntary 

initiatives targeting the reduction of HFC consumption and emissions are under way involving 

Governments, the private sector or both. 

154. In Canada, the federal Government efforts with regard to energy efficiency described above 

are voluntary efforts by government bodies and commercial stakeholders. The European Union

 

25 http://www.state.gov/documents/organization/219038.pdf.
UNEP/OzL.Pro.26/9

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voluntary European Eco-Management and Audit System includes HFC emissions and its Green Public 

Procurement programme provides extra points for medical freezers with refrigerants of GWP less than 

10.

155. The Netherlands has used voluntary agreements with industry to reduce HFC process 

emissions since the early 1990s and is working to promote voluntary agreements (Green Deals) with 

end users. 

156. The United States reports that partnership programmes are important in uniting stakeholders 

within an industry and providing a forum for collaboration on HFC emissions reductions. Examples 

include:

(a) The GreenChill Advanced Refrigeration Partnership, established in 2007 with the 

objective of reducing refrigerant emissions from supermarkets. In 2011 the Partnership resulted in the 

avoidance of 4.12 million metric tonnes of CO2 equivalent;

(b) The Responsible Appliance Disposal (RAD) programme, established in 2006 and 

aimed at reducing emissions of refrigerant and foam-blowing agents from end-of-life appliances. In 

2011, RAD Partners collected and processed 890,473 appliances, from which they reclaimed or 

destroyed 146,722 metric tonnes CO2 equivalent of HFC-134a and 2,850 metric tonnes CO2 equivalent 

of HFC-245fa.

157. USEPA reports that several existing multilateral environmental agreements and international 

organizations are being used to publicize the concerns associated with growing HFC emissions. At the 

international level, groups such as the Climate and Clean Air Coalition to Reduce Short-lived Climate 

Pollutants are forming to raise awareness, support emissions reduction activities, promote best 

practices and improve scientific understanding of the impact of short-lived climate pollutants. 

C. Industry initiatives

158. The United States reports that several corporations are integrating HFC initiatives into their 

sustainability strategies. Companies are not only recognizing the potential climate impact of HFCs but 

are responding proactively to anticipated future HFC regulation and increasing customer concern. 

Many corporate initiatives on low-GWP alternative substances and technologies, voluntary reduction 

targets and research projects have emerged. The beverage industry in particular is an example of 

private enterprise driving the transition to non-HFC refrigerant alternatives.

159. In addition to initiatives by individual companies, there are industry programmes that bring 

together corporations from around the world. The primary purpose of these initiatives is the 

mobilization of businesses through knowledge sharing and support. Two examples of these industry 

initiatives are Refrigerants, Naturally! and the Consumer Goods Forum.

D. Adoption of alternative technologies

160. Two parties, Canada and Denmark, provided information on the development and 

implementation of new technologies based on climate-friendly alternatives.

161. Canada reported on the development of new technologies as part of their efforts to promote 

low-GWP, energy efficient alternatives in the refrigeration and air-conditioning sector, as discussed in 

section V. A. above.

162. In Denmark, the Environmental Protection Agency has established the "Knowledge Centre 

for HFC-free Refrigeration". The Centre offers free consultancy services for the refrigeration industry 

and installers to help them implement alternative technology. Denmark also provided some examples 

of the extent of alternative refrigeration technology in the country:

(a) Supermarkets: A number of centralized refrigeration systems using CO2 refrigerant 

have been built and tested in supermarkets in Denmark. Trans-critical systems have proved to be 

effective, economical and energy-efficient, and hundreds have been installed. There is also 

considerable export of CO2-based equipment to installers in other countries;

(b) Commercial plug-in cabinets: Commercial refrigerated cabinets using hydrocarbon 

refrigerants have been developed and tested over the past decade. Components, including compressors, 

are more energy-efficient than similar HFC-based equipment. Today, hydrocarbon technology is 

standard in bottle coolers, food service cabinets, ice cream freezers and other equipment. Several 

international food and beverage companies use commercial refrigerators with hydrocarbon 

technology;
UNEP/OzL.Pro.26/9

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(c) Industrial refrigeration systems: In Denmark, ammonia has been used for industrial 

refrigeration for more than 100 years. Today, only very small industrial refrigeration systems are built 

with F-gases, using less than 10 kilograms of HFCs; 

(d) Chillers for air-conditioning and the process industry: Ammonia-based chillers have 

been produced in Denmark for at least 30 years. In addition, two manufacturers have developed and 

marketed hydrocarbon-based chillers during the past decade. The ammonia chillers are very efficient 

and competitive for high-cooling capacity, and the hydrocarbon chillers are very efficient and 

competitive in the medium to small range. Only very small F-gas-based chillers, using less than 10 

kilograms of HFCs, are in use in Denmark. Very recently, the Danish Technical Institute, together 

with Japanese companies, developed a commercially competitive chiller with water as the refrigerant, 

which is expected to be introduced to the market in about three years. The chiller is at least as energy 

efficient as the very best HFC chillers and 10 to 20 per cent better than typical existing installations. 

The technology will be demonstrated shortly;

(e) Domestic refrigerators and freezers: Introduction of the Danish regulation on F-gases 

very quickly resulted in almost 100 per cent penetration of hydrocarbon technology for both imported 

and domestically produced home refrigerators and freezers.

163. In addition to the information summarized above, which was reported directly to the 

Secretariat by the parties to whom it relates, the USEPA study contains numerous examples of zeroGWP and low-GWP alternatives that are being developed, tested and implemented worldwide, as 

summarized in the following paragraphs. 

164. India is a host country for three projects that have qualified for certified emission reduction 

credits under the Kyoto Protocol’s Clean Development Mechanism with the aim of avoiding HFC 

emissions in polyurethane foam manufacturing.

165. In Mauritius, chillers in two government buildings were converted from CFCs to ammonia as 

part of a pilot project to demonstrate the feasibility of ammonia-based chillers in tropical climates and 

promote non-HFC technology in the region. The ammonia chillers are more energy-efficient than the 

existing CFC units and have significantly lower leakage rates. As a result of the success of the pilot 

project, ammonia chillers are now being considered for air-conditioning systems in Mauritius and 

other tropical countries.

166. The United Nations Development Programme undertook pilot projects on the use of methyl 

formate and methylal for polyurethane foam production in Brazil in 2009 and 2010, respectively. The 

projects assessed the feasibility of replacing HCFC-141b based on health, safety and environmental 

considerations, processability, system composition, physical properties and indicative conversion 

costs. The methyl formate project found that the mechanical properties of methyl-formate-based spray 

foams were superior to those of HFC-134a-based foams and were equal to or better than those of 

HCFC-141b-based foams, while their thermal efficiency needed further optimization. The results of 

the methylal pilot project indicated that methylal was a feasible substitute for HCFC-141b for a wide 

variety of polyurethane foam products. In 2008, the company involved in the pilot project reported 

using 180 tons of HCFC-141b and 60 tons of methylene chloride. The company intends to pursue the 

use of methylal as a sole or auxiliary blowing agent in the future. Based on rough calculations, this 

could result in annual reductions of up to 131,000 million metric tonnes CO2-eq

E. Awareness-raising activities 

167. As indicated in sections III. A and III. B. above, market data indicate that in Denmark the 

Government’s tax and refund scheme has increased awareness among owners and operators of 

equipment. The scheme has also increased attention to alternative substances (hydrocarbons, CO2, 

ammonia and other substances) and techniques and has resulted in improved handling of reused gas. 

As mentioned in section V. D. above, the party’s "Knowledge Centre for HFC-free Refrigeration" 

offers free consultancy services for the refrigeration industry and installers on the use of alternative 

technology.

168. In Ireland the environmental protection agency has prepared a number of guidance 

documents26 to explain the regulations on ozone-depleting substances and F-gases to contractors and 

end users of refrigeration and air-conditioning equipment. 

 

26http://www.epa.ie/pubs/advice/air/ods/summaryguidanceforcompliancewithodsandfgasregulations.html#.VCLiU

3DD_IV.
UNEP/OzL.Pro.26/9

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169. The Netherlands requires the inclusion of emissions limits in environmental permits. This 

raises the awareness of competent authorities, who gradually lower the emissions thresholds in 

environmental permits based on the outcomes of the measures adopted under voluntary agreements, 

which further encourages additional measures and prevents backsliding.

170. Norway reports a series of initiatives under the auspices of the Nordic Council of Ministers. 

Beginning in January 2015 it will not be permissible to recharge HCFC-based refrigeration systems in 

the Nordic countries and the European Union. This could cause problems for owners and users of 

HCFC refrigeration systems caught unaware. The Danish Technological Institute has therefore 

developed a report to guide the refrigeration industry and owners and end users. The report provides 

examples of how to change to more environmental friendly refrigeration systems with natural 

refrigerants and is available online.

27

171. The Nordic Ozone Group under the Nordic Council of Ministers has also financed the 

production of 31 information sheets providing a broad range of technical information. The aim is to 

promote greater use of natural refrigerants by providing practical technical information about the 

possibilities and limitations of natural refrigerants to system designers and installers. The information 

sheets (in English) are available online.28

172. The United States reports that California regulations include a requirement for an education 

programme that is designed to emphasize best practices in vehicle recharging. Manufacturers and 

producers of HFCs and HCFC-based motor vehicle air-conditioners must distribute brochures to 

consumers through retailers and must maintain educational websites. The aim of the brochures and 

websites is to inform consumers about the importance of reducing HFC emissions and use through 

enhanced leak repair and recovery. The content must include information on how to identify and 

repair system leaks, best practices, environmental hazards, potential risks and the state’s recycling 

programme for used HFC containers.

VI. Health and safety issues raised by parties 

173. A number of parties express concern about health and safety issues related to low-GWP and 

zero-GWP alternatives to HCFCs. 

174. Congo, for example, expressed concern about the flammability and toxicity of alternative 

refrigerants, including R290, R600a, R717 (ammonia) and R744 (carbon dioxide). The party 

recommends that UNEP and UNIDO conduct subregional and national training workshops in the safe 

use of R717, R290, CARE 30 and carbon dioxide as alternatives to HCFCs and HFCs. The Republic 

of Moldova said that moving to low-GWP refrigerants would require extensive education of industry 

and adaptation of national legislation. The main obstacles for the party are a limited number of 

qualified and competent service personnel and companies and a lack of awareness among end users. It 

recommends that the issue be address through education, training and awareness-raising schemes in 

the context of stage II of HPMPs.

175. Mozambique expressed concern with regard to the safety and health risks posed by 

counterfeit chemicals in the refrigeration and air-conditioning sector and as a step towards addressing 

the problem proposed that all parties be required to report annually on the quantities of refrigerants 

they produced and exported, including information on destination countries.

176. Some parties report that there are ongoing efforts to develop the information, standards and 

capabilities needed to address health and safety concerns. 

177. The Netherlands reports, for example, that it has developed a training curriculum for handling 

natural refrigerants in installation, maintenance and servicing. Safety issues are also addressed in the 

natural refrigeration information sheets developed by the Nordic Council of Ministers (as discussed 

in section V. E. above). Under the United States’ SNAP programme, substitutes used in industrial, 

commercial and military applications, including but not limited to refrigeration and air-conditioning, 

foam blowing, cleaning solvents, fire suppression and aerosols, will continue to be evaluated with 

regard to risks to human health and the environment. Zimbabwe reports that training programmes on 

the safe use of hydrocarbon refrigerants and conversion from HCFC-based technology to 

hydrocarbon-based technology are currently under way.

 

27 http://norden.diva-portal.org/smash/get/diva2:715186/FULLTEXT01.pdf.

28 http://www.norden.org/en/publications/publikationer/2014-908.
UNEP/OzL.Pro.26/9

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178. The United States also reports that under the global voluntary industry initiative Refrigerants, 

Naturally! member companies commit to sharing progress, technology and technical information 

about alternative refrigeration with other members and to working with non-governmental 

organizations and others to promote safe alternatives and provide a platform for communication 

among actors in the refrigeration technology supply chain, users, Governments and civil society. 

Refrigerants, Naturally! member companies are working towards replacing fluorinated gases such as 

HFCs in commercial and industrial point-of-sale cooling applications with non-fluorinated alternatives 

such as CO2 and hydrocarbons. 

VII. Conclusion

179. The information reported by parties and summarized in the present document reveals that there 

currently exists a wide range of regulatory schemes, incentives and initiatives promoting a transition 

from ozone-depleting substances to more climate-friendly alternatives. For ease of reference, a matrix 

showing the various existing and planned measures discussed above is set out in the annex to the 

present document. 
UNEP/OzL.Pro.26/9

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Annex

Summary matrix on reported policy measures to promote a transition from ozone-depleting substances to 

climate-friendly alternatives 

Party

Legislation, regulations

and other mandatory measures Economic incentives

HCFC phase-out 

management plans

Other initiatives

Control of HFC production and consumption

Control

of HFC emissions

Training and certificationRecord keeping and reportingLabellingDuring life cycleEnd of lifecycleNegative economic incentivesRefunds and positive incentivesEmission trading compliance creditsEnergy efficiencyVoluntary agreementsIndustry initiativesAlternative technologiesAwareness raising

Information reported directly to the Secretariat

Australia √ √ √ √ √

Bangladesh √ √

Belgiuma

√

Canada √ √ √ √ √ √ √ √

Denmarka

√ √ √ √ √

El Salvador √

European Union √ √ √ √ √ √ √ √ √ √

Irelanda

√

Japan √ √ √ √ √ √ √

Mexico √ √

b

Mozambique √

Netherlandsa

√ √ √ √ √ √

Norway √ √ √ √ √ √ √ √ √

Poland

a

√

Republic of 

Moldova

√ √

Sloveniaa

√

Spaina

√ √

Swaziland √

Switzerland √ √ √ √

Togo √
UNEP/OzL.Pro.26/9

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Party

Legislation, regulations

and other mandatory measures Economic incentives

HCFC phase-out 

management plans

Other initiatives

Control of HFC production and consumption

Control

of HFC emissions

Training and certificationRecord keeping and reportingLabellingDuring life cycleEnd of lifecycleNegative economic incentivesRefunds and positive incentivesEmission trading compliance creditsEnergy efficiencyVoluntary agreementsIndustry initiativesAlternative technologiesAwareness raising

United States √ √ √ √ √ √ √ √ √ √ √ √

Zimbabwe √

Information contained in the study by the USEPA

Austria √

Belize √ √ √

Bosnia and 

Herzegovina

√

Brazil √

Burkina Faso √

China √ √

Colombia √ √ √

Croatiaa

√

Egypt √

Francea

√

Germanya

√

India √

Italya

√

Maldives √

Mauritius √

Montenegro √ √ √ √ √ √ √

New Zealand √ √ √ √ √

Serbia √

Swedena

√ √ √

Thailand √

The former 

Yugoslav 

Republic of 

Macedonia

√ √

Turkey √
UNEP/OzL.Pro.26/9

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Party

Legislation, regulations

and other mandatory measures Economic incentives

HCFC phase-out 

management plans

Other initiatives

Control of HFC production and consumption

Control

of HFC emissions

Training and certificationRecord keeping and reportingLabellingDuring life cycleEnd of lifecycleNegative economic incentivesRefunds and positive incentivesEmission trading compliance creditsEnergy efficiencyVoluntary agreementsIndustry initiativesAlternative technologiesAwareness raising

United Kingdoma

√

Yemen √ √

a European Union member State implementing European Union legislation.

b According to the USEPA study.