26276 Federal Register / Vol. 87, No. 86 / Wednesday, May 4, 2022 / Rules and Regulations 

1Under the SNAP program, MVAC systems are 

those systems that provide passenger comfort 

cooling for light-duty cars and trucks, heavy-duty 

vehicles (large pickups, delivery trucks, recreational 

vehicles, and semi-trucks), nonroad vehicles, buses, 

and rail vehicles. See final rules published on 

March 29, 2011 (76 FR 17488) and on December 1, 

2016 (81 FR 86778). For informational purposes, we 

note that this includes systems that are also 

included in the definitions that apply under other 

provisions of EPA’s regulations under title VI of the 

CAA. In this regard, we note that EPA’s subpart F 

regulations at 40 CFR 82.152 define MVAC-like 

appliance to mean a mechanical vapor 

compression, open-drive compressor appliance 

with a full charge of 20 pounds or less of refrigerant 

used to cool the driver’s or passenger’s 

compartment of off-road vehicles or equipment. 

This includes, but is not limited to, the airconditioning equipment found on agricultural or 

construction vehicles. This definition is not 

intended to cover appliances using R–22 refrigerant. 

By contrast, EPA’s subpart F regulations at 40 CFR 

82.152 define Motor vehicle air conditioner 

(MVAC) as ‘‘any appliance that is a motor vehicle 

air conditioner as defined in 40 CFR part 82, 

subpart B. The subpart B regulations at 40 CFR 

82.32 provide that: Motor vehicle air conditioners 

means mechanical vapor compression refrigeration 

equipment used to cool the driver’s or passenger’s 

compartment of any motor vehicle. This definition 

is not intended to encompass the hermetically 

sealed refrigeration systems used on motor vehicles 

for refrigerated cargo and the air conditioning 

systems on passenger buses using HCFC–22 

refrigerant. Further, the subpart B regulations at 40 

CFR 82.32 provide that: Motor vehicle as used in 

this subpart means any vehicle which is selfpropelled and designed for transporting persons or 

property on a street or highway, including but not 

limited to passenger cars, light duty vehicles, and 

heavy duty vehicles. This definition does not 

include a vehicle where final assembly of the 

vehicle has not been completed by the original 

equipment manufacturer. 

Dated: April 29, 2022 

LaDonn A. Allen, 

Captain, Commander, Coast Guard Sector 

Mobile, Captain of the Port Mobile. 

[FR Doc. 2022–09577 Filed 5–3–22; 8:45 am] 

BILLING CODE 9110–04–P 

ENVIRONMENTAL PROTECTION 

AGENCY 

40 CFR Part 82 

[EPA–HQ–OAR–2021–0347; FRL–8470–01– 

OAR] 

RIN 2060–AV25 

Protection of Stratospheric Ozone: 

Listing of HFO-1234yf Under the 

Significant New Alternatives Policy 

Program for Motor Vehicle Air 

Conditioning in Nonroad Vehicles and 

Servicing Fittings for Small Refrigerant 

Cans 

AGENCY: Environmental Protection 

Agency (EPA). 

ACTION: Final rule. 

SUMMARY: Pursuant to the EPA’s 

Significant New Alternatives Policy 

program, this action lists the refrigerant 

2,3,3,3-tetrafluoroprop-1-ene, also 

known as HFO-1234yf or R-1234yf, as 

acceptable, subject to use conditions, in 

the motor vehicle air conditioning enduse for certain types of newly 

manufactured nonroad (also called offroad) vehicles, which includes some 

vehicles that are also considered heavyduty vehicles. EPA is also adopting the 

current versions of the industry safety 

standards SAE J639, SAE J1739, and 

SAE J2844 by incorporating them by 

reference into the use conditions for the 

listings in nonroad vehicles and 

previous listings for certain onroad 

vehicles covered in final rules issued 

separately in March 2011 and December 

2016. In addition, EPA is requiring 

unique servicing fittings for use with 

small refrigerant cans (two pounds or 

less) of 2,3,3,3-tetrafluoroprop-1-ene 

that are used to service onroad and 

nonroad vehicles. Finally, EPA is 

adding a reference to the Agency’s 

regulations under the Toxic Substances 

Control Act for 2,3,3,3-tetrafluoroprop1-ene for the listings in nonroad 

vehicles and previous listings for certain 

onroad vehicles. 

DATES: This final rule is effective on 

June 3, 2022. The incorporation by 

reference of certain publications listed 

in the rule is approved by the Director 

of the Federal Register as of June 3, 

2022. 

ADDRESSES: EPA has established a 

docket for this action under Docket ID 

No. EPA–HQ–OAR–2021–0347. All 

documents in the docket are listed on 

the www.regulations.gov website. 

Although listed in the index, some 

information is not publicly available, 

e.g., CBI or other information whose 

disclosure is restricted by statute. 

Certain other material, such as 

copyrighted material, is not placed on 

the internet and will be publicly 

available only in hard copy form. 

Publicly available docket materials are 

available electronically through 

www.regulations.gov. 

FOR FURTHER INFORMATION CONTACT: 

Chenise Farquharson, Stratospheric 

Protection Division, Office of 

Atmospheric Programs (Mail Code 6205 

T), Environmental Protection Agency, 

1200 Pennsylvania Ave. NW, 

Washington, DC 20460; telephone 

number: 202–564–7768; email address: 

farquharson.chenise@epa.gov. Notices 

and rulemakings under EPA’s 

Significant New Alternatives Policy 

program are available on EPA’s 

Stratospheric Ozone website at 

www.epa.gov/snap/snap-regulations. 

SUPPLEMENTARY INFORMATION: 

Table of Contents 

I. General Information 

A. Executive Summary and Background 

B. SNAP Program Background 

1. Rulemaking 

2. Listing of Unacceptable/Acceptable 

Substitutes 

3. Petition Process 

4. 90-Day Notification 

C. Does this action apply to me? 

D. What acronyms and abbreviations are 

used in the preamble? 

II. What is EPA finalizing in this action? 

A. Listing of HFO-1234yf as Acceptable, 

Subject to Use Conditions, for MVAC 

Systems in New Nonroad Vehicles 

1. What is the affected end-use? 

2. What are the ASHRAE classifications for 

refrigerant flammability? 

3. How does HFO-1234yf compare to other 

refrigerants for these MVAC applications 

with respect to SNAP criteria? 

4. What are the use conditions? 

B. Modifications to Use Conditions for 

MVAC Systems in Other Vehicle Types 

C. Servicing Fittings for Small Cans of 

HFO-1234yf 

1. What is the affected end-use? 

2. How does HFO-1234yf compare to other 

refrigerants for this MVAC application 

with respect to SNAP criteria? 

3. What is the use condition? 

D. Incorporation by Reference of SAE 

Standards 

E. What is the relationship between this 

SNAP rule and other federal rules? 

F. Response to Comments 

III. Statutory and Executive Order Reviews 

A. Executive Order 12866: Regulatory 

Planning and Review and Executive 

Order 13563: Improving Regulation and 

Regulatory Review 

B. Paperwork Reduction Act 

C. Regulatory Flexibility Act 

D. Unfunded Mandates Reform Act 

E. Executive Order 13132: Federalism 

F. Executive Order 13175: Consultation 

and Coordination With Indian Tribal 

Governments 

G. Executive Order 13045: Protection of 

Children From Environmental Health 

and Safety Risks 

H. Executive Order 13211: Actions That 

Significantly Affect Energy Supply, 

Distribution, or Use 

I. National Technology Transfer and 

Advancement Act 

J. Executive Order 12898: Federal Actions 

to Address Environmental Justice in 

Minority Populations and Low-Income 

Populations 

K. Congressional Review Act (CRA) 

IV. References 

I. General Information 

A. Executive Summary and Background 

As proposed, EPA is listing 2,3,3,3- 

tetrafluoroprop-1-ene, also known as 

hydrofluoroolefin (HFO)-1234yf or R1234yf, hereafter referred to as ‘‘HFO– 

1234yf,’’ as acceptable, subject to use 

conditions, under the Significant New 

Alternatives Policy (SNAP) program, as 

of 30 days after publication of this final 

rule, for motor vehicle air conditioning 

(MVAC) systems 1 in the following types 


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Federal Register / Vol. 87, No. 86 / Wednesday, May 4, 2022 / Rules and Regulations 26277 

2This is intended to mean a completely new 

refrigeration circuit containing a new compressor, 

evaporator, condenser, and refrigerant tubing. 

3 In the past, EPA has referred to these vehicles 

as ‘‘off-road vehicles’’ under the SNAP program. In 

this action, we are aligning our terminology with 

that of other EPA programs and using the term 

‘‘nonroad vehicle,’’ which is defined under CAA 

section 216 to mean ‘‘a vehicle that is powered by 

a nonroad engine and that is not a motor vehicle 

or a vehicle used solely for competition.’’ EPA’s 

regulations issued under that section of the Act 

defining a nonroad engine are codified at subpart 

A of 40 CFR part 1068. 

4Heavy-duty vehicles are often subdivided by 

vehicle weight classifications, as defined by the 

vehicle’s gross vehicle weight rating (GVWR), 

which is a measure of the combined curb (empty) 

weight and cargo carrying capacity of the truck. 

Heavy-duty vehicles have GVWRs above 8,500. See 

https://www.epa.gov/emission-standards-referenceguide/vehicle-weight-classifications-emissionstandards-reference-guide. 

5EPA’s SNAP regulations at 40 CFR 82.176 

extend this requirement to substitutes for class II 

substances, providing that ‘‘[a]ny producer of a new 

substitute must submit a notice of intent to 

Continued 

of newly manufactured (hereafter 

‘‘new’’) 2 nonroad vehicles,3 including 

some vehicles that are also considered 

heavy-duty (HD) 4 vehicles: 

• Agricultural tractors with greater 

than 40 horsepower (HP); 

• Self-propelled agricultural 

machinery; 

• Compact equipment; 

• Construction, forestry, and mining 

equipment; and 

• Commercial utility vehicles. 

EPA received four comments on the 

proposed rule from refrigerant suppliers 

and equipment manufacturers, and all 

commenters strongly supported 

finalizing the rule as proposed. The 

comment summaries and EPA’s 

responses to the comments are below in 

section II.F. 

EPA has previously listed HFO1234yf as acceptable, subject to use 

conditions, in new light-duty (LD) 

passenger cars and trucks (76 FR 17488; 

March 29, 2011) and new medium-duty 

passenger vehicles (MDPV), HD pickup 

trucks, and complete HD vans (81 FR 

86778; December 1, 2016). The use 

conditions for those prior listings, 

which are intended to mitigate 

flammability and toxicity risks, require 

that MVAC systems designed to use 

HFO-1234yf meet the requirements of 

three technical safety standards 

developed by SAE International (SAE) 

(i.e., SAE J639, SAE J1739, and SAE 

J2844). In this action, EPA is requiring 

the same use conditions, with certain 

updates discussed below, for MVAC 

systems designed to use HFO-1234yf in 

certain new nonroad vehicles. EPA is 

listing HFO-1234yf as acceptable, 

subject to use conditions, after its 

evaluation of human health and 

environmental information on various 

substitutes submitted to the SNAP 

program. In listing HFO-1234yf as 

acceptable, subject to use conditions, 

this action provides additional 

flexibility for industry stakeholders by 

expanding the list of acceptable 

substitutes for certain types of nonroad 

vehicles. 

EPA is also adopting the current 

versions of SAE J639, SAE J1739, and 

SAE J2844 by incorporating them by 

reference into the use conditions for the 

nonroad vehicles addressed in this 

action. EPA is also modifying the use 

conditions for the previous listings of 

HFO-1234yf in certain onroad vehicles 

to replace the references to older 

versions of the three SAE standards 

with references to the current versions. 

The current versions of the three 

standards are SAE J639 (revised 

November 2020), ‘‘Safety and Design 

Standards for Motor Vehicle Refrigerant 

Vapor Compression Systems;’’ SAE 

J1739 (revised January 2021), ‘‘Potential 

Failure Mode and Effects Analysis 

(FMEA) Including Design FMEA, 

Supplemental FMEA–MSR, and Process 

FMEA;’’ and SAE J2844 (revised January 

2013), ‘‘R-1234yf (HFO-1234yf) New 

Refrigerant Purity and Container 

Requirements for Use in Mobile AirConditioning Systems.’’ 

In addition, EPA is including a use 

condition, which requires unique 

servicing fittings, to provide for 

servicing MVAC systems in the nonroad 

vehicles addressed in this action, 

including use of small refrigerant cans 

(two pounds or less). For the previous 

listings of HFO-1234yf in certain onroad 

vehicles, EPA is revising the use 

conditions to require unique servicing 

fittings for use with small cans (two 

pounds or less). 

Finally, EPA is including a reference 

to the Agency’s Significant New Use 

Rule (SNUR) for HFO-1234yf under the 

Toxic Substances Control Act (80 FR 

37166, June 30, 2015) in Appendix B 

subpart G of part 82, under the 

‘Comments’ column, for the listings of 

HFO-1234yf for the nonroad vehicles 

addressed in this action, as well as for 

all the previous listings of HFO-1234yf 

in certain onroad vehicles. The SNUR 

states that commercial users or 

consumers can only recharge MVAC 

systems with HFO-1234yf where the 

original charging of the system with 

HFO-1234yf was done by the Original 

Equipment Manufacturer (OEM). 

The Agency is not modifying 

regulations promulgated under section 

608 of the Clean Air Act (CAA). EPA 

notes that there are additional 

requirements that concern the sale or 

offer for sale of refrigerants, including a 

sales restriction under the regulations 

implementing CAA section 608, which 

can be found at 40 CFR part 82 subpart 

F. These regulations collectively 

comprise the national recycling and 

emissions reduction program and may 

be commonly referred to as the 

stationary refrigeration and air 

conditioning management program. The 

general sales restriction provisions are 

codified at 40 CFR 82.154(c) and the 

specifications for self-sealing valves 

relevant to an exemption to the sales 

restriction for small cans of MVAC 

refrigerant are codified at 40 CFR 

82.154(c)(2). This action does not 

modify the provisions under 40 CFR 

82.154, including the restriction on the 

sale of substitute refrigerants and 

requirements for self-sealing valves. 

B. SNAP Program Background 

The SNAP program implements CAA 

section 612. Several major provisions of 

section 612 are: 

1. Rulemaking 

Section 612 requires EPA to 

promulgate rules making it unlawful to 

replace any class I (chlorofluorocarbon 

(CFC), halon, carbon tetrachloride, 

methyl chloroform, methyl bromide 

fluorocarbon, and chlorobromomethane) 

or class II (hydrochlorofluorocarbon 

(HCFC)) ozone-depleting substances 

(ODS) with any substitute that the 

Administrator determines may present 

adverse effects to human health or the 

environment where the Administrator 

has identified an alternative that (1) 

reduces the overall risk to human health 

and the environment and (2) is currently 

or potentially available. 

2. Listing of Unacceptable/Acceptable 

Substitutes 

Section 612(c) requires EPA to 

publish a list of the substitutes that it 

finds to be unacceptable for specific 

uses and to publish a corresponding list 

of acceptable substitutes for specific 

uses. 

3. Petition Process 

Section 612(d) grants the right to any 

person to petition EPA to add a 

substance to, or delete a substance from, 

the lists published in accordance with 

section 612(c). 

4. 90-Day Notification 

Section 612(e) directs EPA to require 

any person who produces a chemical 

substitute for a class I substance to 

notify the Agency not less than 90 days 

before a new or existing chemical is 

introduced into interstate commerce for 

significant new use as a substitute for a 

class I substance.5 The producer must 


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introduce a substitute into interstate commerce 90 

days prior to such introduction.’’ 

6 Mexichem Fluor, Inc. v. EPA, No. 17–1024, 760 

Fed. Appx. 6, 9 (D.C. Cir., April 5, 2019). 

also provide the Agency with the 

producer’s unpublished health and 

safety studies on such substitutes. 

The regulations for the SNAP program 

are promulgated at 40 CFR part 82, 

subpart G, and the Agency’s process for 

reviewing SNAP submissions is 

described in regulations at 40 CFR 

82.180. Under these rules, the Agency 

has identified five types of listing 

decisions: Acceptable; acceptable 

subject to use conditions; acceptable 

subject to narrowed use limits; 

unacceptable; and pending (40 CFR 

82.180(b)). Use conditions and 

narrowed use limits are both considered 

‘‘use restrictions,’’ as described below. 

Substitutes that are deemed acceptable 

with no use restrictions (no use 

conditions or narrowed use limits) can 

be used for all applications within the 

relevant end-uses in the sector. After 

reviewing a substitute, the Agency may 

determine that a substitute is acceptable 

only if certain conditions in the way 

that the substitute is used are met to 

minimize risks to human health and the 

environment. EPA describes such 

substitutes as ‘‘acceptable subject to use 

conditions.’’ (40 CFR 82.180(b)(2)). For 

some substitutes, the Agency may 

permit a narrowed range of use within 

an end-use or sector. For example, the 

Agency may limit the use of a substitute 

to certain end-uses or specific 

applications within an industry sector. 

EPA describes these substitutes as 

‘‘acceptable subject to narrowed use 

limits.’’ Under the narrowed use limit, 

users intending to adopt these 

substitutes ‘‘must ascertain that other 

alternatives are not technically 

feasible.’’ (40 CFR 82.180(b)(3)). 

In making decisions regarding 

whether a substitute is acceptable or 

unacceptable, and whether substitutes 

present risks that are lower than or 

comparable to risks from other 

substitutes that are currently or 

potentially available in the end-uses 

under consideration, EPA examines the 

criteria in 40 CFR 82.180(a)(7): (i) 

Atmospheric effects and related health 

and environmental impacts; (ii) general 

population risks from ambient exposure 

to compounds with direct toxicity and 

to increased ground-level ozone; (iii) 

ecosystem risks; (iv) occupational risks; 

(v) consumer risks; (vi) flammability; 

and (vii) cost and availability of the 

substitute. 

Many SNAP listings include 

‘‘comments’’ or ‘‘further information’’ to 

provide additional information on 

substitutes. Since this additional 

information is not part of the regulatory 

decision, these statements are not 

binding for use of the substitute under 

the SNAP program. However, regulatory 

requirements so listed are binding as 

applicable under other regulatory 

programs (e.g., worker protection 

regulations promulgated by the U.S. 

Occupational Safety and Health 

Administration (OSHA)). The ‘‘further 

information’’ classification does not 

necessarily include all other legal 

obligations pertaining to the use of the 

substitute. While the items listed are not 

legally binding under the SNAP 

program, EPA encourages users of 

substitutes to apply all statements in the 

‘‘further information’’ column in their 

use of these substitutes. In many 

instances, the information simply refers 

to sound operating practices that have 

already been identified in existing 

industry and/or building codes or 

standards. Thus, many of the 

statements, if adopted, would not 

require the affected user to make 

significant changes in existing operating 

practices. 

For additional information on the 

SNAP program, visit the SNAP portion 

of EPA’s Ozone Layer Protection 

website at https://www.epa.gov/snap. 

Copies of the full lists of acceptable 

substitutes for ODS in all industrial 

sectors are available at https://

www.epa.gov/snap/snap-substitutessector. For more information on the 

Agency’s process for administering the 

SNAP program or criteria for evaluation 

of substitutes, refer to the initial SNAP 

rulemaking published March 18, 1994 

(59 FR 13044), codified at 40 CFR part 

82, subpart G. SNAP decisions and the 

appropriate Federal Register citations 

are found at: https://www.epa.gov/snap/ 

snap-regulations. Substitutes listed as 

unacceptable; acceptable, subject to 

narrowed use limits; or acceptable, 

subject to use conditions, are also listed 

in the appendices to 40 CFR part 82, 

subpart G. 

In this action, EPA refers to listings 

made in a final rule issued on December 

1, 2016, at 81 FR 86778 (‘‘2016 Rule’’) 

in which the Agency listed HFO–1234yf 

as acceptable, subject to use conditions, 

in new MDPV, HD pickup trucks, and 

complete HD vans. The 2016 Rule also 

changed the listings for certain 

hydrofluorocarbons (HFCs) and blends 

from acceptable to unacceptable in 

various end-uses in the refrigeration and 

air conditioning, foam blowing, and fire 

suppression sectors. After a challenge to 

the 2016 Rule, the United States Court 

of Appeals for the District of Columbia 

Circuit (‘‘the court’’) issued a partial 

vacatur of the 2016 Rule ‘‘only to the 

extent it requires manufacturers to 

replace HFCs that were previously and 

lawfully installed as substitutes for 

ozone-depleting substances.’’ 6 The 

court’s decision on the 2016 Rule did 

not vacate the listing of HFO-1234yf for 

certain types of vehicles, and this final 

rule is not EPA’s response to the court’s 

decision on the 2016 Rule. 

C. Does this action apply to me? 

The following list identifies types of 

regulated entities that may be affected 

by this action and their respective North 

American Industrial Classification 

System (NAICS) codes: 

• All Other Basic Organic Chemical 

Manufacturing (NAICS 325199) 

• All Other General Merchandise 

Stores (NAICS 452990) 

• All Other Miscellaneous Chemical 

Product and Preparation Manufacturing 

(NAICS 325998) 

• Automotive Parts and Accessories 

Stores (NAICS 441310) 

• Automotive Repair Shops Not 

Elsewhere Classified, Including Air 

Conditioning and Radiator Specialty 

Shops (NAICS 811198) 

• Gasoline Stations with Convenience 

Stores (NAICS 447110) 

• General automotive repair shops 

(NAICS 811111) 

• Heavy Duty Truck Manufacturing 

(NAICS 336120) 

• Industrial Gas Manufacturing 

(NAICS 32512) 

• Motor Vehicle Body Manufacturing 

(NAICS 336211) 

• Motor Vehicle Parts Manufacturing 

(NAICS 3363) 

• Other Automotive Repair and 

Maintenance (NAICS 81119) 

• Other Motor Vehicle Parts 

Manufacturing (NAICS 336390) 

• Recyclable Material Merchant 

Wholesalers (NAICS 423930) 

• Refrigeration Equipment and 

Supplies Merchant Wholesalers (NAICS 

423740) 

This list is not intended to be 

exhaustive but provides a guide for 

readers regarding types of entities likely 

to be regulated by this action. This list 

includes the types of entities that EPA 

is now aware could potentially be 

regulated by this action. Other types of 

entities not listed above could also be 

regulated. To determine whether your 

facility, company, business, or 

organization could be affected by this 

action, you should carefully examine 

the regulations at 40 CFR part 82, 

subpart G. If you have questions 

regarding the applicability of this action 

to a particular entity, consult the person 

listed in the FOR FURTHER INFORMATION

CONTACT section. 


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7EPA, 2021. Basic Information about the 

Emission Standards Reference Guide for On-road 

and Nonroad Vehicles and Engines. Available 

online at https://www.epa.gov/emission-standardsreference-guide/basic-information-about-emissionstandards-reference-guide-road and in the docket 

for this rulemaking at https://nepis.epa.gov/Exe/ 

ZyPDF.cgi/P100K5U2.PDF?Dockey=P100K5U2.PDF. 

8Wagner, 2021. May 24, 2021, email from John 

Wagner of the Association of Equipment 

Manufacturers to EPA. Available in the docket for 

this rulemaking. 

9AEM, 2021. Appendix A: Machine Forms as 

Classified by AEM Membership. Available in the 

docket for this rulemaking. 

10 Ibid. 

11 Ibid. 

12 Ibid. 

13 Ibid. 

D. What acronyms and abbreviations 

are used in the preamble? 

Below is a list of acronyms and 

abbreviations used in the preamble of 

this document: 

AIHA—American Industrial Hygiene 

Association 

AC—Air Conditioning 

ACH—Air Changes Per Hour 

AEM—Association of Equipment 

Manufacturers 

ANSI—American National Standards 

Institute 

ASHRAE—American Society of Heating, 

Refrigerating and Air-Conditioning 

Engineers 

ASTM—American Society for Testing and 

Materials 

ATEL—Acute Toxicity Exposure Limit 

CAA—Clean Air Act 

CAS Reg. No.—Chemical Abstracts Service 

Registry Identification Number 

CBI—Confidential Business Information 

CFC—Chlorofluorocarbon 

CFD—Computational Fluid Dynamics 

CFR—Code of Federal Regulations 

CGA—Compressed Gas Association 

CO2—Carbon Dioxide 

CRP—Cooperative Research Project 

DIY—Do-It-Yourself 

E.O.—Executive Order 

EPA—United States Environmental 

Protection Agency 

FCL—Flammability Concentration Limit 

FMEA—Failure Mode and Effects Analysis 

FR—Federal Register 

GHG—Greenhouse Gas 

GWP—Global Warming Potential 

GVWR—Gross Vehicle Weight Rating 

HCFC—Hydrochlorofluorocarbon 

HD—Heavy-Duty 

HD GHG—Heavy-Duty Greenhouse Gas 

HF—Hydrogen Fluoride 

HFC—Hydrofluorocarbon 

HFO—Hydrofluoroolefin 

HP—Horsepower 

ICF—ICF International, Inc. 

IPCC—Intergovernmental Panel on Climate 

Change 

LD—Light-Duty 

LD GHG—Light-Duty Greenhouse Gas 

LFL—Lower Flammability Limit 

MDPV—Medium-Duty Passenger Vehicle 

MVAC—Motor Vehicle Air Conditioning 

MY—Model Year 

NAAQS—National Ambient Air Quality 

Standards 

NAICS—North American Industrial 

Classification System 

NOAEL—No Observed Adverse Effect Level 

NRC—National Research Council 

OEM—Original Equipment Manufacturer 

ODP—Ozone Depletion Potential 

ODS—Ozone-depleting Substance 

OMB—Office of Management and Budget 

OSHA—Occupational Safety and Health 

Administration 

PPE—Personal Protective Equipment 

ppm—Parts Per Million 

PRA—Paperwork Reduction Act 

RCL—Reference Concentration Limit 

RFA—Regulatory Flexibility Act 

SAE—SAE International 

SDS—Safety Data Sheet 

SIP—State Implementation Plan 

SNAP—Significant New Alternatives Policy 

SNUN—Significant New Use Notice 

SNUR—Significant New Use Rule 

STEL—Short-term Exposure Limit 

TFA—Trifluoroacetic Acid 

TLV—Threshold Limit Value 

TSCA—Toxic Substances Control Act 

TWA—Time Weighted Average 

UFL—Upper Flammability Limit 

UMRA—Unfunded Mandates Reform Act 

USGCRP—U.S. Global Change Research 

Program 

VOC—Volatile Organic Compounds 

WEEL—Workplace Environmental Exposure 

Limit 

II. What is EPA finalizing in this 

action? 

A. Listing of HFO-1234yf as Acceptable, 

Subject to use Conditions, for MVAC 

Systems in Certain new Nonroad 

Vehicles 

As proposed, (86 FR at 68968; 

December 6, 2021), EPA is listing HFO1234yf as acceptable, subject to use 

conditions, for MVAC systems in 

several types of new nonroad vehicles, 

specifically: Agricultural tractors greater 

than 40 HP; self-propelled agricultural 

machinery; compact equipment; 

construction, forestry, and mining 

equipment; and commercial utility 

vehicles. All MVAC refrigerants listed 

as acceptable are subject to use 

conditions requiring labeling and the 

use of unique fittings as described in 

Appendix B to subpart G of part 82— 

Substitutes Subject to Use Restrictions 

and Unacceptable Substitutes. EPA is 

listing HFO-1234yf as acceptable, 

subject to use conditions, in the five 

nonroad vehicle types. The use 

conditions require that MVAC systems 

designed to use HFO-1234yf meet the 

requirements of SAE J639, SAE J1739, 

and SAE J2844 to help ensure that use 

of HFO-1234yf does not have a 

significantly greater overall impact on 

human health and the environment than 

other alternatives for use in those 

vehicles. EPA is updating the existing 

use conditions that are currently 

required for the use of HFO-1234yf in 

MVAC systems in new LD vehicles, 

MDPVs, HD pickup trucks, and 

complete HD vans and applying them to 

all the MVAC systems addressed in this 

action. The use conditions are detailed 

below in section II.A.4, ‘‘What are the 

use conditions?’’ 

1. What is the affected end-use? 

Under SNAP, MVAC systems cool the 

passenger compartment of LD passenger 

vehicles and trucks, HD vehicles (e.g., 

large pickups, delivery trucks, and semitrucks), off-road vehicles, buses, and 

passenger rail vehicles. These systems 

are typically charged during vehicle 

manufacture, and the main components 

are connected by flexible refrigerant 

lines. Nonroad vehicles can be grouped 

into several categories (i.e., agriculture, 

construction, recreation, and many 

other purposes).7 The vehicle types 

addressed in this action include certain 

types of new nonroad vehicles, 

specifically: 

• Agricultural tractors greater than 40 

HP (including two-wheel drive (2WD), 

mechanical front-wheel drive (MFD), 

four-wheel drive (4WD), and track 

tractors) that are used for a number of 

agricultural applications such as farm 

work, planting, landscaping, and 

loading; 8 9

• Self-propelled agricultural 

machinery (including combines, grain 

and corn harvesters, sprayers, 

windrowers, and floaters) that are 

primarily used for harvesting, fertilizer, 

and herbicide operations; 10

• Compact equipment (including 

mini excavators, turf mowers, skid-steer 

loaders, and tractors less than 40 HP) 

that are primarily used for agricultural 

operations and residential, commercial, 

and agricultural landscaping; 11

• Construction, forestry, and mining 

equipment (including excavators, 

bulldozers, wheel loaders, feller 

bunchers, log skidders, road graders, 

articulated trucks, sub-surface 

machines, horizontal directional drill, 

trenchers, and tracked crawlers) that are 

primarily used to excavate surface and 

subsurface materials during 

construction, landscaping, and road 

maintenance and building; 12 and 

• Commercial utility vehicles that are 

primarily used for ranching, farming, 

hunting/fishing, construction, 

landscaping, property maintenance, 

railroad maintenance, forestry, and 

mining.13

These nonroad vehicles are almost 

exclusively used and operated by 

professionals (e.g., agricultural owners 

or skilled employees/operators) and 

vary by size, weight, use, and/or 


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26280 Federal Register / Vol. 87, No. 86 / Wednesday, May 4, 2022 / Rules and Regulations 

14EPA, 2021. Basic Information about the 

Emission Standards Reference Guide for On-road 

and Nonroad Vehicles and Engines. Available 

online at https://www.epa.gov/emission-standardsreference-guide/basic-information-about-emissionstandards-reference-guide-road and in the docket 

for this rulemaking. 15Heavy-duty vehicles are often subdivided by 

vehicle weight classifications, as defined by the 

vehicle’s gross vehicle weight rating (GVWR), 

which is a measure of the combined curb (empty) 

weight and cargo carrying capacity of the truck. 

Heavy-duty vehicles have GVWRs above 8,500. See 

https://www.epa.gov/emission-standards-referenceguide/vehicle-weight-classifications-emissionstandards-reference-guide. 16Wagner, 2021. May 24, 2021, email from John 

Wagner of the Association of Equipment 

Manufacturers to EPA. Available in the docket for 

this rulemaking. 

17 ICF, 2016. Technical Support Document for 

Acceptability Listing of HFO-1234yf for Motor 

Vehicle Air Conditioning in Limited Heavy-Duty 

Applications. Available in the public docket for this 

rulemaking. 

18ASHRAE, 2019. ANSI/ASHRAE Standard 34– 

2019: Designation and Safety Classification of 

Refrigerants. 

horsepower.14 For example, commercial 

utility vehicles typically weigh between 

1,200 and 2,400 pounds, while 

agricultural tractors >40 HP typically 

weigh between 39,000 and 50,000 

pounds.15 16 MVAC systems in these 

nonroad vehicles can have charge sizes 

ranging from 650 grams (23 ounces) to 

3,400 grams (120 ounces) depending on 

the manufacturer and cab size, 

compared to a range of 390 grams (14 

ounces) to 1,600 grams (56 ounces) for 

MVAC systems in light and medium 

duty passenger vehicles, HD pickups, 

and complete HD vans.17 Additionally, 

unlike onroad passenger vehicles, for 

example, nonroad vehicles are limited 

to non-highway terrain (e.g., fields, 

construction sites, forests, and mines), 

have more robust components, are 

operated at low working speeds, and 

there are typically a limited number of 

vehicles in the same location. 

2. What are the ANSI/ASHRAE 

classifications for refrigerant 

flammability? 

The American National Standards 

Institute/American Society of Heating, 

Refrigerating and Air Conditioning 

Engineers (ANSI/ASHRAE) Standard 

34–2019 assigns a safety group 

classification for each refrigerant which 

consists of two to three alphanumeric 

characters (e.g., A2L or B1). The initial 

capital letter indicates the toxicity, and 

the numeral denotes the flammability. 

ASHRAE classifies Class A refrigerants 

as refrigerants for which toxicity has not 

been identified at concentrations less 

than or equal to 400 ppm by volume, 

based on data used to determine 

threshold limit value-time-weighted 

average (TLV–TWA) or consistent 

indices. Class B signifies refrigerants for 

which there is evidence of toxicity at 

concentrations below 400 ppm by 

volume, based on data used to 

determine TLV–TWA or consistent 

indices. 

Refrigerants are also assigned a 

flammability classification of 1, 2, 2L, or 

3. Tests for flammability are conducted 

in accordance with American Society 

for Testing and Materials (ASTM) E681 

using a spark ignition source at 140 °F 

(60 °C) and 14.7 psia (101.3 kPa) 18 . The 

flammability classification ‘‘1’’ is given 

to refrigerants that, when tested, show 

no flame propagation. The flammability 

classification ‘‘2’’ is given to refrigerants 

that, when tested, exhibit flame 

propagation, have a heat of combustion 

less than 19,000 kJ/kg (8,169 Btu/lb.), 

and have a lower flammability limit 

(LFL) greater than 0.10 kg/m3. The 

flammability classification ‘‘2L’’ is given 

to refrigerants that, when tested, exhibit 

flame propagation, have a heat of 

combustion less than 19,000 kJ/kg 

(8,169 BTU/lb.), have an LFL greater 

than 0.10 kg/m3, and have a maximum 

burning velocity of 10 cm/s or lower 

when tested in dry air at 73.4 °F (23.0 

°C) and 14.7 psia (101.3 kPa). The 

flammability classification ‘‘3’’ is given 

to refrigerants that, when tested, exhibit 

flame propagation and that either have 

a heat of combustion of 19,000 kJ/kg 

(8,169 BTU/lb.) or greater or have an 

LFL of 0.10 kg/m3 or lower. Using these 

safety group classifications, ANSI/ 

ASHRAE Standard 34–2019 categorizes 

HFO-1234yf in the A2L Safety Group. 

3. How does HFO-1234yf compare to 

other refrigerants for these MVAC 

applications with respect to SNAP 

criteria? 

When reviewing a substitute under 

SNAP, EPA compares the risk posed by 

that substitute to the risks posed by 

other alternatives and considers 

whether that specific substitute under 

review poses significantly more risk 

than other available or potentially 

available alternatives for the same use. 

In the proposed rule (86 FR 68962; 

December 6, 2021), EPA provided 

information on the environmental and 

health properties of HFO-1234yf and 

other substitutes in these MVAC 

applications and described the Agency’s 

comparative risk analysis, based on our 

criteria for review, including an 


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Figure 1. Refrigerant Safety Group Classification 

Sa fi ety Grouo 

Higher A3 B3 

Flammability 

Flammable A2 B2 

Lower 

Flammability A2L B2L 

No Flame Al Bl 

Propagation 

Lower Higher 

Toxicity Toxicity 

Increasing Toxicity 
Federal Register / Vol. 87, No. 86 / Wednesday, May 4, 2022 / Rules and Regulations 26281 

19 ICF, 2021a. Risk Screen on Substitutes in Motor 

Vehicle Air Conditioning (Nonroad Vehicles— 

Agricultural Tractors Greater than 40 Horsepower) 

(New Equipment). 

20 ICF, 2021b. Risk Screen on Substitutes in Motor 

Vehicle Air Conditioning (Nonroad Vehicles—SelfPropelled Agricultural Machinery) (New 

Equipment). 

21 ICF, 2021c. Risk Screen on Substitutes in Motor 

Vehicle Air Conditioning (Nonroad Vehicles— 

Compact Equipment) (New Equipment). 

22 ICF, 2021d. Risk Screen on Substitutes in 

Motor Vehicle Air Conditioning (Nonroad 

Vehicles—Construction, Forestry, and Mining 

Equipment) (New Equipment). 

23 ICF, 2021e. Risk Screen on Substitutes in Motor 

Vehicle Air Conditioning (Nonroad Vehicles— 

Commercial Utility Vehicles) (New Equipment). 

24EPA, 2005. Risk Analysis for Alternative 

Refrigerant in Motor Vehicle Air Conditioning. 

25 ICF, 2008a. Air Conditioning Refrigerant 

Charge Size to Passenger Compartment Volume 

Ratio Analysis. 

26 ICF, 2008b. Revised Characterization of U.S. 

Hybrid and Small Car Sales (Historical and 

Predicted) and Hybrid Vehicle Accidents. 

27 ICF, 2009a. Revised Final Draft Assessment of 

the Potential Impacts of HFO-1234yf and the 

Associated Production of TFA on Aquatic 

Communities and Local Air Quality. 

28 ICF, 2009b. Risk Screen on Substitutes for 

CFC–12 in Motor Vehicle Air Conditioning: 

Substitute: HFO–1234yf. 

29 ICF, 2010a. Summary of HFO-1234yf Emissions 

Assumptions. 

30 ICF, 2010b. Summary of Updates to the 

Vintaging Model that Impacted HFO-1234yf 

Emissions Estimates. 

31 ICF, 2010c. Revised Assessment of the Potential 

Impacts of HFO-1234yf and the Associated 

Production of TFA on Aquatic Communities, Soil 

and Plants, and Local Air Quality. 

32 ICF, 2010d. Sensitivity Analysis CMAQ results 

on projected maximum TFA rainwater 

concentrations and maximum 8-hr ozone 

concentrations. 

33CRP, 2008. Risk Assessment for Alternative 

Refrigerants HFO-1234yf Phase II. Prepared for SAE 

International Cooperative Research Program 1234 

by Gradient Corporation. 

34CRP, 2009. Risk Assessment for Alternative 

Refrigerants HFO-1234yf and R-744 (CO2) Phase III. 

Prepared for SAE International Cooperative 

Research Program 1234 by Gradient Corporation. 

35 DuPont and Honeywell. Guidelines for Use and 

Handling of HFO-1234yf (v8.0). 

36Exponent. 2008. HFO-1234yf Refrigerant 

Concentration and Ignition Tests in Full-Scale 

Vehicle Passenger Cabin and Engine Compartment. 

37CRP, 2013.SAE International Cooperative 

Research Project CRP1234–4 on R-1234yf Safety, 

Finishes Work and Presents Conclusions. Available 

online at: http://www.sae.org/servlets/pressRoom?

OBJECT_TYPE=PressReleases&PAGE=show

Release&RELEASE_ID=2146. 

38AEM, 2019. Risk Assessment for HFO-1234yf 

in Agricultural Tractors ≥ 40 HP including 2WD, 

MFD, 4WD and Track Type Equipment. 

39AEM, 2020a. Risk Assessment for HFO-1234yf 

in Self-Propelled Agricultural Machinery including 

Combines, Forage Harvesters, Sprayers, and 

Windrowers. 

40AEM, 2020b. Risk Assessment for HFO-1234yf 

in Compact Equipment (Examples include Tractors 

<40HP, Turf Equipment, Skid Steer, MiniExcavators and Track Loaders) 

41AEM, 2020c. Risk Assessment for HFO-1234yf 

in Construction, Forestry and Mining Equipment. 

42AEM, 2020d. Risk Assessment for HFO-1234yf 

in Commericial Utility Vehicles. 

43Nielsen et al., 2007. Atmospheric chemistry of 

CF3CF=CH2: Kinetics and mechanisms of gas-phase 

reactions with Cl atoms, OH radicals, and O3. 

Chemical Physics Letters 439, 18–22. Available 

online at: http://www.cogci.dk/network/OJN_

CF3CF=CH2.pdf. 

44Papadimitriou et al., 2007. CF3CF=CH2 and 

(Z)-CF3CF=CHF: temperature dependent OH rate 

coefficients and global warming potentials. Phys. 

Chem. Chem. Phys., 2007, Vol. 9, p. 1–13. Available 

online at: http://pubs.rsc.org/en/Content/ 

ArticleLanding/2008/CP/b714382f. 

45HFC-152a is listed as acceptable, subject to use 

conditions, for new vehicles only at 40 CFR part 82 

subpart G; final rule published June 12, 2008 (73 

FR 33304). 

46CO2 is listed as acceptable, subject to use 

conditions, for new vehicles only at 40 CFR part 82 

subpart G; final rule published June 6, 2012 (77 FR 

33315). 

47The 2015 Rule, among other things, changed 

the listings for certain HFCs and blends from 

acceptable to unacceptable in various end-uses in 

the aerosols, refrigeration and air conditioning, and 

foam blowing sectors. After a challenge to the 2015 

Rule, the United States Court of Appeals for the 

District of Columbia Circuit (‘‘the court’’) issued a 

partial vacatur of the 2015 Rule ‘‘to the extent it 

requires manufacturers to replace HFCs with a 

substitute substance’’ (see Mexichem Fluor, Inc. v. 

EPA, 866 F.3d 451, 462 (D.C. Cir. 2017) and 

remanded the rule to the Agency for further 

proceedings. The court also upheld EPA’s listing 

changes as being reasonable and not ‘‘arbitrary and 

capricious.’’ See Mexichem Fluor, 866 F.3d at 462– 

63. 

evaluation of environmental impacts, 

flammability, and toxicity. Redacted 

submissions that do not include 

information claimed as CBI by the 

submitter and supporting 

documentation for HFO-1234yf are 

provided in the docket for this 

rulemaking (EPA-HQ–OAR–2021–0347 

at https://www.regulations.gov). EPA’s 

assessments to examine the health and 

environmental risks of HFO-1234yf in 

each equipment type are also available 

in the docket for this 

rulemaking.19 20 21 22 23

As explained more fully below, to 

help evaluate environmental, 

flammability, and toxicity risks 

resulting from the use of HFO-1234yf in 

certain types of new nonroad vehicles, 

EPA considered the Agency’s 

analyses 24 25 26 27 28 29 30 31 32 conducted 

in support of the 2011 (76 FR 17488; 

March 29, 2011) and 2016 (81 FR 86778; 

December 1, 2016) listing decisions for 

HFO-1234yf in MVAC systems, 

including information submitted during 

the public comment period of the 

proposal for the 2011 final decision 

(October 19, 2009; 74 FR 53445), such 

as the SAE Cooperative Research 

Project’s (CRP) risk 

assessments.33 34 35 36 37 These risk 

assessments are available in the docket 

for this rulemaking. The refrigerants to 

which HFO-1234yf was compared in the 

2011 action for LD vehicles are the same 

refrigerants available for use in the 

nonroad vehicle types included in this 

action. In addition, EPA considered risk 

assessments 38 39 40 41 42 conducted by the 

Association of Equipment 

Manufacturers (AEM), an industry 

consortium of construction and 

agriculture equipment manufacturers, 

and found these were consistent with 

the Agency’s assessments to examine 

the health and environmental risks of 

HFO-1234yf in each vehicle type. 

a. Environmental Impacts 

The SNAP program considers a 

number of environmental criteria when 

evaluating substitutes: Ozone depleting 

potential (ODP); climate effects, 

primarily based on global warming 

potential (GWP); local air quality 

impacts, particularly potential impacts 

on smog formation from emissions of 

volatile organic compounds (VOC); and 

ecosystem effects, particularly from 

negative impacts on aquatic life. These 

and other environmental and health 

risks are discussed below. 

HFO-1234yf is chemical substance 

identified as 2,3,3,3-tetrafluoroprop-1- 

ene (CAS Reg. No. 754–12–1). HFO1234yf has a GWP of four, 43 44 which is 

similar to or lower than the GWP of 

other alternatives for the nonroad 

vehicles addressed in this final rule. For 

example, its GWP is significantly lower 

than that of HFC-134a, the refrigerant 

most widely used in these vehicles 

today, which has a GWP of 1,430. As 

shown in Table 1, two other 

alternatives, HFC-152a 45 and CO2,46

have GWPs of 124 and 1, respectively. 

Other acceptable refrigerants for the 

nonroad vehicles addressed in this 

action have GWPs ranging from 933 to 

3,337. These include several blend 

refrigerants that are listed as acceptable, 

subject to use conditions, for these 

nonroad vehicles, including the HFC 

blends SP34E and R-426A (also known 

as RS-24) and the HCFC blends R-416A 

(also known as HCFC Blend Beta or 

FRIGC FR12), R-406A, R-414A (also 

known as HCFC Blend Xi or GHG-X4), 

R-414B (also known as HCFC Blend 

Omicron), HCFC Blend Delta (also 

known as Free Zone), Freeze 12, GHGX5, and HCFC Blend Lambda (also 

known as GHG-HP). In a final rule 

issued July 20, 2015, at 80 FR 42870 

(‘‘2015 Rule’’),47 EPA listed the use of 

certain refrigerant blends, including the 

ones mentioned above, as unacceptable 

in new LD vehicles starting in MY 2017. 

EPA did not propose and is not 

finalizing a change of status for use of 

these refrigerant blends in MVACs in 

nonroad vehicles. Although EPA is not 

aware of the use of these refrigerant 

blends, they remain acceptable, subject 

to use conditions, for the nonroad 

vehicles addressed in this action. Also, 


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26282 Federal Register / Vol. 87, No. 86 / Wednesday, May 4, 2022 / Rules and Regulations 

48The CAA and EPA’s ODS regulations restrict 

the permissible uses of virgin HCFCs. With respect 

to refrigerants, virgin HCFC-22, HCFC-142b and 

blends containing HCFC-22 or HCFC-142b may now 

only be used to service existing appliances. 

Consequently, virgin HCFC-22, HCFC-142b and 

blends containing virgin HCFC-22 or HCFC-142b 

may no longer be used as a refrigerant to 

manufacture new pre-charged appliances or 

appliance components or to charge new appliances 

assembled onsite. 

49Other fluorinated compounds also decompose 

into TFA, including HFC-134a. 

50Chemours, 2019. HFO-1234yf for Use as a 

Refrigerant. Significant New Alternatives Policy 

Program Submission to the U.S. Environmental 

Protection Agency. 

51HFO-1234yf has a high minimum ignition 

energy of 5,000–10,000 mJ and a low burning 

velocity of 1.5 cm/s (Koban, 2011). 

although they are listed as acceptable, 

subject to use conditions, EPA is not 

aware of the use or development of 

HFC-152a, CO2, or any of the refrigerant 

blends above in new nonroad 

vehicles.48 Additionally, all MVAC 

refrigerants are subject to use conditions 

requiring labeling and the use of unique 

fittings, and the two lower-GWP 

alternatives currently approved for use 

in nonroad vehicles (i.e., HFC-152a and 

CO2) are subject to additional use 

conditions mitigating flammability and 

toxicity as appropriate to the alternative. 

TABLE 1: GWP, ODP, AND VOC STATUS OF HFO-1234YF COMPARED TO OTHER REFRIGERANTS IN MVAC SYSTEMS OF

NONROAD VEHICLES 1

Refrigerants GWP ODP VOC status Final decision 

HFO-1234yf .................................................................................. 4 0 No ............................ Acceptable, subject 

to use conditions. 

CO2, HFC-152a, HFC-134a ......................................................... 1–1,430 0 No ............................ No change.

Other refrigerants, including IKON A, R-414B, R-416A, R-426A, 

SP34E.

933–3,337 0–0.098 Yes 2 ........................ No change. 

1The table does not include not-in-kind technologies listed as acceptable for the stated end-use. 

2One or more constituents of the blend are VOC. 

HFO-1234yf does not deplete the 

ozone layer. Similarly, HFC-134a, HFC152a, CO2, and the HFC blends SP34E 

and R-426A do not deplete the ozone 

layer; however, the HCFC blends have 

ODPs ranging from 0.012 to 0.056. 

HFO-1234yf, HFC-134a, HFC-152a, 

and CO2 are exempt from the EPA’s 

regulatory definition of VOC (see 40 

CFR 51.100(s)) addressing the 

development of state implementation 

plans (SIPs) to attain and maintain the 

National Ambient Air Quality Standards 

(NAAQS). The HFC blends and some of 

the HCFC blends have one or more 

components that are VOC. 

Another potential environmental 

impact of HFO-1234yf is its atmospheric 

decomposition to trifluoroacetic acid 

(TFA, CF3COOH). TFA is a strong acid 

that may accumulate in soil, plants, and 

aquatic ecosystems over time and may 

have the potential to adversely impact 

plants, animals, and ecosystems.49 For 

information on recent analyses and 

research that has been conducted on 

TFA, including EPA’s 2011 analysis, 

which was based on conservative 

emissions assumptions and a transition 

from HFC-134a to HFO-1234yf for all 

MVAC systems (not limited to LD 

vehicles), see section II.A.3.a of the 

proposed rule (86 FR at 68968; 

December 6, 2021). Taking into 

consideration the 2011 analysis and the 

research that has been conducted since, 

as discussed in section II.A.3.a in the 

proposed rule, EPA concludes that the 

use of HFO-1234yf in the nonroad 

vehicles addressed in this action does 

not pose a significant risk to the 

environment from atmospheric 

decomposition to TFA. 

Therefore, based on the consideration 

of all of these environmental impacts, 

EPA concludes that HFO-1234yf does 

not pose significantly greater risk to the 

environment than the other alternatives 

for use in new nonroad vehicles 

addressed in this action, and it poses 

significantly less risk than several of the 

alternatives with higher GWPs and 

ODPs. 

b. Flammability 

HFO-1234yf is a flammable refrigerant 

classified as A2L under ASHRAE 34– 

2013. HFC-134a, CO2, and the refrigerant 

blends SP34E and R-426A (also known 

as RS-24) and the HCFC blends R-416A 

(also known as HCFC Blend Beta or 

FRIGC FR12), R-414A (also known as 

HCFC Blend Xi or GHG-X4), R-414B 

(also known as HCFC Blend Omicron), 

HCFC Blend Delta (also known as Free 

Zone), Freeze 12, GHG-X5, and HCFC 

Blend Lambda (also known as GHG-HP) 

are nonflammable refrigerants, while 

HFC-152a and R-406A are slightly more 

flammable than HFO-1234yf with an 

ASHRAE classification of A2. HFO1234yf is flammable when its 

concentration in air is in the range of 6.2 

percent to 12.3 percent by volume 

(62,000 ppm to 123,000 ppm).50 In the 

presence of an ignition source (e.g., 

static electricity, a spark resulting from 

a switch malfunction, or a cigarette), an 

explosion or a fire could occur when the 

concentration of HFO-1234yf exceeds its 

LFL of 62,000 ppm, posing a significant 

safety concern for workers and 

consumers if it is not handled carefully. 

However, HFO-1234yf is difficult to 

ignite and, in the event of ignition, the 

flames would propagate slowly.51

With regards to flammability risks to 

workers, EPA’s risk screens evaluated 

the potential for a fire from release and 

ignition in workplace situations and 

work-site operations, such as during 

equipment manufacture, servicing and 

disposal or recycling of vehicle end-oflife for the five nonroad vehicles. EPA 

considered the characteristics that could 

be different from LD and other HD 

vehicles, such as differences in the 

engine compartment size, passenger 

cabins, and operating conditions, and 

how those might impact risks. In order 

to determine the potential flammability 

risks during servicing of the vehicle or 

in case of a release of refrigerant into the 

cab, concentrations of HFO-1234yf 

immediately following a 60 percent 

release of refrigerant over a period of 

one minute into the cab were compared 

to the LFL and upper flammability limit 

(UFL) for HFO-1234yf reported by 

ASHRAE Standard 34 (i.e., 62,000 ppm 

and 123,000 ppm, respectively). The 

one-minute time duration is most 

appropriate for determining the risks of 

flammable refrigerants because the 

potential maximum instantaneous 

concentration can be estimated and 

compared to the LFL. Two key inputs to 

the models were the cab volume (i.e., 

the space into which the refrigerant 

would leak) and the refrigerant charge 

size. Because passenger compartment 

volumes and refrigerant charge sizes can 

vary widely from model to model, the 

highest ratio of charge size to 


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Federal Register / Vol. 87, No. 86 / Wednesday, May 4, 2022 / Rules and Regulations 26283 

52SAE, 2019. Standard J2772: Measurement of 

Passenger Compartment Refrigerant Concentrations 

Under System Refrigerant Leakage Conditions. SAE 

International. 

53AEM, 2019. Risk Assessment for HFO-1234yf 

in Agricultural Tractors ≥ 40 HP including 2WD, 

MFD, 4WD and Track Type Equipment. 

54AEM, 2020a. Risk Assessment for HFO-1234yf 

in Self-Propelled Agricultural Machinery including 

Combines, Forage Harvesters, Sprayers, and 

Windrowers. 

55AEM, 2020b. Risk Assessment for HFO-1234yf 

in Compact Equipment (Examples include Tractors 

<40HP, Turf Equipment, Skid Steer, MiniExcavators and Track Loaders). 

56AEM, 2020c. Risk Assessment for HFO-1234yf 

in Construction, Forestry, and Mining Equipment. 

57AEM, 2020d. Risk Assessment for HFO-1234yf 

in Commercial Utility Vehicles. 

58AEM, 2019. Risk Assessment for HFO-1234yf 

in Agricultural Tractors ≥ 40 HP including 2WD, 

MFD, 4WD and Track Type Equipment. 

59AEM, 2020a. Risk Assessment for HFO-1234yf 

in Self-Propelled Agricultural Machinery including 

Combines, Forage Harvesters, Sprayers, and 

Windrowers. 

60AEM, 2020b. Risk Assessment for HFO-1234yf 

in Compact Equipment (Examples include Tractors 

<40HP, Turf Equipment, Skid Steer, MiniExcavators and Track Loaders). 

61AEM, 2020c. Risk Assessment for HFO-1234yf 

in Construction, Forestry, and Mining Equipment. 

62AEM, 2020d. Risk Assessment for HFO-1234yf 

in Commercial Utility Vehicles. 

63AEM, 2020e. CFD Leak ModelingSupplemental Information to Compliment AEM 

Machine Form RAs. 

compartment volume identified was 

used as the input into the models. 

In the event of a leak, SAE Standard 

J2772 specifies that nonroad vehicles be 

manufactured such that the pressure 

differential between the air conditioning 

system and the cab allows only up to 60 

percent of the refrigerant charge to be 

released into the cab.52 Independent 

testing of refrigerant releases from 

nonroad vehicles, according to SAE 

Standard J2772, found that the amount 

of refrigerant released following a line 

leak was much lower than 60 percent. 

To represent a plausible worst-case 

scenario, EPA’s box modeling assumed 

that 60 percent of the charge of the air 

conditioning systems for the five 

nonroad vehicles is released into the cab 

of the vehicles over a period of one 

minute. EPA’s worst-case scenario box 

modeling resulted in the concentration 

of HFO-1234yf in the cab exceeding the 

LFL of 62,000 ppm by 2,100 ppm at the 

typical charge size (i.e., 1.3 kilograms) 

and exceeding both the LFL (by 95,900 

ppm) and the UFL (by 34,900 ppm) at 

the maximum charge size (i.e., 3.2 

kilograms), for the five nonroad 

vehicles. However, the estimated 

exposures were derived using 

conservative assumptions and represent 

worst-case scenarios with a low 

probability of occurrence, as the 

analyses assume a rapid release of 

refrigerant (i.e., one minute), assume the 

minimum required fresh air intake, and 

do not consider the air recirculation rate 

for the nonroad vehicles or other 

variables that would potentially reduce 

the concentration levels in the air to 

below the flammable range for HFO1234yf. Additionally, flammability 

concerns are further reduced due to the 

design of MVAC systems for the five 

vehicle types as described above in 

section II.A.1 and the low probability of 

collisions for these nonroad vehicles. 

MVAC systems in the nonroad 

vehicles are robust and made to 

withstand strenuous operation, which 

lowers the potential for line leaks due 

to wear. According to AEM, 53 54 55 56 57

the operator’s compartment in 

agricultural tractors greater than 40 HP; 

self-propelled agricultural machinery; 

compact equipment; and construction, 

forestry, and mining equipment is a 

completely self-contained unit which 

provides an additional level of safety in 

a collision event. For commercial utility 

vehicles, which are smaller than the 

other four nonroad vehicle types, AEM 

noted that the engine compartment is 

contained in the rear of the vehicle, 

under the cargo bed, with the main 

components of the MVAC system in the 

front of the cabin with only the 

compressor and two lines near the 

engine. The potential for collisions is 

also less likely because most of the 

vehicles are operated by trained 

professionals, typically at low speed, 

and are only driven on the highway to 

move from one site or nonroad location 

to another. 

In addition to the plausible worst-case 

scenario analysis, which employs a 

simple box model, EPA’s risk screens 

reference modeling conducted by AEM 

in the flammability assessments. The 

AEM consortium used two different 

models in its assessments: (1) A box 

model to examine worst-case scenarios 

for a wide variety of nonroad vehicles 

addressed in this proposal and (2) a 

computational fluid dynamics 

(CFD) 58 59 60 61 62 63 model to more 

realistically represent the behavior of 

the leaked refrigerant in an nonroad 

vehicle. The AEM box model modeled 

the release of 60 percent of the 

refrigerant charge in the vehicles with 

varying charge and cab sizes and 

assumed a near-instantaneous leak of 

refrigerant over a period of 10 seconds. 

Six of the scenarios modeled in the box 

model resulted in the concentration of 

HFO-1234yf in the cab being equal to or 

exceeding the LFL; the concentrations 

from the remaining six scenarios were 

below the LFL. Similar to EPA’s box 

modeling, the estimated exposures were 

derived using conservative assumptions 

and represent worst-case scenarios with 

a low probability of occurrence, as the 

analyses assume a rapid release of 

refrigerant, assume the minimum 

required fresh air intake (i.e., 43 m3/ 

hour), and do not consider the air 

recirculation rate for the nonroad 

vehicles or other variables that would 

potentially reduce the concentration 

levels in the air to below the flammable 

range for HFO-1234yf. 

Conversely, the maximum 

concentration reached in the AEM CFD 

model, which models a realistic leak 

scenario with the release of 60 percent 

of the refrigerant charge released in the 

nonroad vehicles for 1000 seconds of 

simulation, was significantly below the 

LFL for HFO-1234yf of 62,000 ppm. 

Construction, forestry, and mining 

vehicles were modeled to represent the 

five nonroad vehicles as they had the 

highest ratio of refrigerant charge to 

cabin volume among the five nonroad 

vehicles. AEM found that the maximum 

concentration of HFO-1234yf reached in 

the cab (i.e., 25,700 ppm) is not likely 

to exceed the LFL for the five nonroad 

vehicles. The AEM CFD model reflects 

the real-world behavior of refrigerant in 

the cab given a worst-case leak scenario 

because it considers the refrigerant entry 

and exit points and assumes worst-case 

scenario conditions, including the most 

likely scenario where an operator is 

likely to ignite a cigarette, the highest 

charge-to-cab ratio, minimal fresh air 

flow, and maximum air velocity and 

refrigerant penetration. Additionally, 

the CFD modeling demonstrates the 

conservativeness of the worst-case 

scenario box modeling and how 

unlikely its results are; therefore, the 

worst-case scenario box models may be 

overstating the true risks associated 

with the use of HFO-1234yf in MVAC 

systems in the nonroad vehicles 

compared to real-world conditions as 

presented in the CFD model. 

For these reasons, EPA concludes that 

the currently available assessments on 

the use of HFO-1234yf in new nonroad 

vehicles addressed in this action are 

sufficiently conservative to account for 

all probable flammability risks from the 

use of HFO-1234yf. Relying on a similar 

analysis considered in support of the 

2011 and 2016 SNAP listings of HFO1234yf in certain MVAC systems, 

verifying that more recent information is 

consistent with that analysis, and 

considering unique factors for the 

nonroad vehicle types, EPA concludes 

that the use of HFO-1234yf in the new 

nonroad vehicles addressed in this 

action does not pose significantly 

greater flammability risk than the other 

alternatives when used in accordance 

with the use conditions described below 


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26284 Federal Register / Vol. 87, No. 86 / Wednesday, May 4, 2022 / Rules and Regulations 

64SAE, 2019. Standard J2772: Measurement of 

Passenger Compartment Refrigerant Concentrations 

Under System Refrigerant Leakage Conditions. SAE 

International. 

65Twelve percent oxygen in air (i.e., 120,000 

ppm) is the No-Observed-Adverse-Effect-Level 

(NOAEL) for hypoxia (ICF, 1997). 

66 ICF, 2021a. Risk Screen on Substitutes in Motor 

Vehicle Air Conditioning (Nonroad Vehicles— 

Agricultural Tractors Greater than 40 Horsepower) 

(New Equipment). 67 ICF, 2021b. Risk Screen on Substitutes in Motor 

Vehicle Air Conditioning (Nonroad Vehicles—SelfPropelled Agricultural Machinery) (New 

Equipment). 68 ICF, 2021c. Risk Screen on Substitutes in Motor 

Vehicle Air Conditioning (Nonroad Vehicles— 

Compact Equipment) (New Equipment). 69 ICF, 2021d. Risk Screen on Substitutes in 

Motor Vehicle Air Conditioning (Nonroad 

Vehicles—Construction, Forestry, and Mining 

Equipment) (New Equipment). 

70 ICF, 2021e. Risk Screen on Substitutes in Motor 

Vehicle Air Conditioning (Nonroad Vehicles— 

Commercial Utility Vehicles) (New Equipment). 

71 Ibid. 

72Chemours, 2019. HFO-1234yf for Use as a 

Refrigerant. Significant New Alternatives Policy 

Program Submission to the U.S. Environmental 

Protection Agency. 

in section II.A.4, which are intended to 

mitigate flammability risks, and 

recommendations in the safety data 

sheet (SDS) and EPA’s risk screens. 

c. Toxicity 

Potential health effects of exposure to 

HFO-1234yf include drowsiness or 

dizziness. HFO-1234yf may also irritate 

the skin or eyes or cause frostbite, and 

at sufficiently high concentrations, 

HFO-1234yf may cause irregular 

heartbeat. HFO-1234yf could cause 

asphyxiation if air is displaced by 

vapors in a confined space. These 

potential health effects are common to 

many refrigerants. 

The American Industrial Hygiene 

Association (AIHA) has established a 

Workplace Environmental Exposure 

Level (WEEL) of 500 ppm as an 8-hr 

TWA for HFO-1234yf. HFO-1234yf also 

has an acute toxicity exposure limit 

(ATEL) of 100,000 ppm and a refrigerant 

concentration limit (RCL) of 16,000 

ppm, which are both established by 

ASHRAE. EPA anticipates that users 

will be able to meet the AIHA WEEL 

and ASHRAE ATEL and RCL, limits 

intended to reduce the risks of 

flammability in normally occupied, 

enclosed spaces, and address potential 

health risks by following requirements 

and recommendations in the 

manufacturer’s SDSs and other safety 

precautions common to the refrigerant 

industry. 

To evaluate human health and safety 

impacts, including asphyxiation and 

toxicity risks, from the use of HFO1234yf in the five types of nonroad 

vehicles, the Agency estimated the 

potential exposures to HFO-1234yf in 

the event of a 60 percent release of 

refrigerant from the vehicles under 

reasonable worst-case scenarios 

described in the risk screens. In the 

event of a leak, SAE Standard J2772 

specifies that nonroad vehicles be 

manufactured such that the pressure 

differential between the air conditioning 

system and the cab allows only up to 60 

percent of the refrigerant charge to be 

released into the cab.64 The analysis of 

asphyxiation risks considered whether a 

worst-case release of refrigerant under 

the cab would result in oxygen 

concentrations of 12 percent or less. The 

analysis found that impacts on oxygen 

concentrations did not present a 

significant risk of asphyxiation at the 

typical charge sizes, and that a 60 

percent leak of refrigerant at the 

maximum charge sizes could result in 

an oxygen concentration below 19.5 

percent but above 12 percent. The 

estimated exposures were derived using 

conservative assumptions, however, and 

conditions resulting in oxygen levels 

under 12 percent 65 are only predicted to 

occur with charge sizes that are 

significantly larger than the maximum 

charge sizes provided by the submitter 

or cab sizes that are unlikely for the 

applications. Additionally, the worstcase scenarios did not consider 

conditions that are likely to occur that 

would increase oxygen levels to which 

individuals would be exposed, such as 

fresh air flow into the cab. 

To assess the toxicity risks to endusers, 15-minute and 30-minute TWA 

exposures were estimated and compared 

to the standard toxicity limits. The 

estimated TWA exposures were fairly 

conservative as the analyses assume a 

rapid release of refrigerant (i.e., one 

minute and 10 seconds for EPA’s and 

AEM’s box models, respectively), 

assume the minimum required 

ventilation rate (i.e., 43 m3/hour), and 

do not consider the air recirculation rate 

for the vehicles or other variables that 

would potentially reduce the 

concentration levels in the air. EPA 

found that the estimated 15-minute and 

30-minute TWA exposures for HFO1234yf in MVAC systems in the nonroad 

vehicles are not likely to exceed the 

ATEL for HFO-1234yf of 100,000 ppm 

in a one-minute release scenario under 

EPA’s worst-case scenario modeling 

assumptions. The end-use exposures 

estimated by AEM across all scenarios 

were also well below the ATEL for HFO1234yf. Furthermore, these exposure 

estimates were derived using 

conservative assumptions that do not 

necessarily reflect a real-world leak 

scenario or the larger cab size where 

MVAC systems using HFO-1234yf 

would typically be installed. 

Additionally, the estimated TWA 

exposure for HFO-1234yf determined 

from AEM’s CFD modeling, which 

models a realistic leak scenario for the 

nonroad vehicles, was significantly 

below the ATEL for HFO-1234yf of 

100,000 ppm. Construction, forestry, 

and mining vehicles were modeled to 

represent the five nonroad vehicles. As 

noted above, these vehicles are a more 

conservative and an approximately 

equivalent proxy for the other four 

nonroad vehicle types because they 

have the highest ratio of refrigerant 

charge to cabin volume among the five 

nonroad vehicles. Therefore, the toxicity 

risks from using HFO-1234yf in the five 

nonroad vehicles is not likely to exceed 

the ATEL for the five nonroad vehicles. 

Concerning workplace exposure 

during charging, servicing, and disposal 

of the nonroad vehicles addressed in 

this proposal, we expect that 

professional technicians have proper 

training and certification and have the 

proper equipment and knowledge to 

minimize their risks due to exposure to 

refrigerant from an MVAC system. Thus, 

worker exposure to HFO-1234yf is 

expected to be low. The vehicles are 

typically charged by the OEM. During 

air conditioning system manufacture 

(i.e., charging at OEM location), points 

of release would be from connection/ 

disconnection of temporary lines for 

charging and recovery equipment, 

although exposure during these 

activities is expected to be minimal due 

to the use of left-hand threaded fittings 

on storage cylinders, as specified in SAE 

Standard J2844, intended to help 

mitigate any releases and restrict the 

possibility of cross-contamination with 

other refrigerants.66 67 68 69 70

Furthermore, equipment containing 

HFO-1234yf is expected to be equipped 

with unique fittings for the low-side and 

high-side service ports of the MVAC 

system, according to SAE Standard J639, 

also intended to help mitigate any 

releases and restrict the possibility of 

cross-contamination with other 

refrigerants.71

Servicing of the vehicles is expected 

to take place in high-bays and/or 

outside (e.g., out in the field or other 

outdoor site) 72 rather than at a typical 

servicing center for LD vehicles, for 

example; therefore, exposure during 

servicing is expected to be less than 

during charging the MVAC system 

during manufacture. Therefore, 

occupational exposure during these 

activities was conservatively modeled 

based on charging. The modeled 

maximum 15-minute TWA exposures 


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Federal Register / Vol. 87, No. 86 / Wednesday, May 4, 2022 / Rules and Regulations 26285 

for HFO-1234yf during charging were 

compared to the short-term exposure 

limit (STEL) of 1,500 ppm. EPA’s 

modeling indicated that the short-term 

(15-minute) worker exposure 

concentrations of HFO-1234yf are not 

likely to exceed its STEL for the typical 

or maximum charge size in the vehicles 

during charging or servicing. 

Additionally, these exposure estimates 

are significantly lower than the RCL and 

ATEL of 16,000 ppm and 100,000 ppm, 

respectively, for HFO-1234yf, which are 

limits intended to reduce the risks of 

asphyxiation and acute toxicity hazards 

in normally occupied, enclosed spaces 

according to ASHRAE Standard 34. 

EPA also determined that 

occupational exposure during disposal 

of all the vehicles, except for 

construction, forestry, and mining 

equipment, at the typical and maximum 

charge sizes is not likely to exceed the 

long-term (8-hour) WEEL for HFO1234yf (i.e., 500 ppm). Under the 

disposal release scenarios for 

construction, forestry, and mining 

equipment, the modeling showed that 

occupational exposure during disposal 

of MVAC systems containing HFO1234yf at the maximum charge size (i.e., 

3.4 kilograms (120 ounces)) could 

potentially exceed the 8-hour long-term 

exposure limit by 10 ppm. The 

estimated exposures, however, were 

well below the RCL of 16,000 ppm for 

HFO-1234yf and were derived using 

conservative assumptions and represent 

a worst-case scenario with a low 

probability of occurrence. These MVAC 

systems are also disposed of by CAA 

section 608-certified personnel using 

proper industrial hygiene techniques 

while wearing PPE to maximize 

recovery efficiency and limit releases. 

EPA concludes that the manufacture, 

use, servicing, or disposal of HFO1234yf MVAC systems in the new 

nonroad vehicles addressed in this 

action does not pose greater toxicity risk 

to workers than the other alternatives 

when used in accordance with the use 

conditions. 

Additionally, EPA’s review of 

potential toxicity risks of HFO-1234yf to 

the general population indicated that 

HFO-1234yf is not expected to pose 

significantly greater toxicity risk than 

other alternatives for the MVAC systems 

in the new nonroad vehicles addressed 

in this action. The general population is 

defined as non-personnel who are 

subject to exposure of the substitute 

near industrial facilities, including 

manufacturing or equipment production 

factories, equipment operating 

locations, or recycling centers, rather 

than personnel at end-use. EPA 

concludes that the use of HFO-1234yf in 

the new nonroad vehicles addressed in 

this action does not pose significantly 

greater toxicity risk than the other 

alternatives when used in accordance 

with the use conditions described below 

in section II.A.4, which are intended to 

mitigate toxicity risks, and 

recommendations in the SDS and EPA’s 

risk screens. 

4. What are the use conditions? 

All MVAC refrigerants listed as 

acceptable are subject to use conditions 

requiring labeling and the use of unique 

fittings. HFC-152a and CO2 are subject 

to additional use conditions mitigating 

flammability and toxicity as appropriate 

to the alternative. Neither HFC-152a nor 

CO2 can simply be ‘‘dropped’’ into 

existing MVAC systems because they 

are listed as acceptable only for new 

vehicles. 

EPA is listing HFO-1234yf as 

acceptable, subject to use conditions, in 

MVAC systems in certain new nonroad 

vehicles because the use conditions are 

necessary to ensure that use of HFO1234yf will not have a significantly 

greater overall impact on human health 

and the environment than other 

alternatives. EPA is updating the 

existing use conditions that are 

currently required for the use of HFO1234yf in MVAC systems in new LD 

passenger cars and trucks, MDPVs, HD 

pickup trucks, and complete HD vans 

and then applying them to all the 

MVAC systems addressed in this action. 

Manufacturing and service personnel or 

consumers may not be familiar with 

refrigeration or AC equipment 

containing a flammable refrigerant. 

These use conditions will be sufficiently 

protective to ensure use of HFO-1234yf 

in these nonroad vehicles does not pose 

significantly greater risk than use of 

other alternatives. 

The first use condition requires that 

HFO-1234yf may be used only in new 

MVAC systems which have been 

designed to address concerns unique to 

flammable refrigerants—i.e., HFO1234yf may not be used as a conversion 

or ‘‘retrofit’’ refrigerant for existing 

MVACs designed for other refrigerants. 

HFO-1234yf was not submitted under 

the SNAP program for use in retrofitted 

MVAC systems, and no information was 

provided on how to address hazards if 

HFO-1234yf were to be used in MVAC 

systems that were not designed for a 

flammable refrigerant. Therefore, under 

this use condition, HFO-1234yf may be 

used only in new MVACs that have 

been properly designed for its use. 

The second use condition requires 

that MVAC systems designed to use 

HFO-1234yf in new agricultural tractors 

greater than 40 HP; self-propelled 

agricultural machinery; compact 

equipment; construction, forestry, and 

mining equipment; and commercial 

utility vehicles must meet the 

requirements of SAE J639 (revised 

November 2020), ‘‘Safety Standards for 

Motor Vehicle Refrigerant Vapor 

Compression Systems.’’ This standard 

sets safety standards that include 

unique fittings; a warning label 

indicating the refrigerant’s identity and 

that it is a flammable refrigerant; and 

requirements for engineering design 

strategies that include a high-pressure 

compressor cutoff switch and pressure 

relief devices. This use condition also 

requires that for connections with 

refrigerant containers for use in 

professional servicing, use fittings must 

be consistent with SAE J2844 (revised 

January 2013), ‘‘R-1234yf (HFO-1234yf) 

New Refrigerant Purity and Container 

Requirements for Use in Mobile AirConditioning Systems,’’ which specifies 

quick-connect fittings that are different 

from those for any other refrigerant. The 

low-side service port and connections 

will have an outside diameter of 14 mm 

(0.551 inches), and the high-side service 

port will have an outside diameter of 17 

mm (0.669 inches), both accurate to 

within 2 mm. Under SAE J2844 (revised 

January 2013), containers of HFO1234yf for use in professional servicing 

of MVAC systems must have a lefthanded screw valve with a diameter of 

0.5 inches and Acme (trapezoidal) 

thread with 16 threads per inch. 

HFO-1234yf is mildly flammable (A2L 

classification) and, like other 

fluorinated refrigerants, can decompose 

to form the toxic compound hydrogen 

fluoride (HF) when exposed to flame or 

to sufficient heat. Consistent with the 

conclusion EPA drew at the time of the 

Agency’s listing decision for HFO1234yf in LD vehicles, EPA believes that 

the safety requirements that are 

included in SAE J639 sufficiently 

mitigate risks of both HF generation and 

refrigerant ignition (March 29, 2011; 76 

FR 17488) for the nonroad vehicles 

addressed in this action. For example, 

SAE J639 provides for a pressure relief 

device designed to minimize direct 

impingement of the refrigerant and oil 

on hot surfaces and for design of the 

refrigerant circuit and connections to 

avoid refrigerant entering the passenger 

cabin. The pressure release device 

ensures that pressure in the system will 

not reach an unsafe level that might 

cause an uncontrolled leak of 

refrigerant, such as if the MVAC system 

is overcharged. The pressure release 

device will reduce the likelihood that 

refrigerant leaks would reach hot 

surfaces that might lead to either 


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26286 Federal Register / Vol. 87, No. 86 / Wednesday, May 4, 2022 / Rules and Regulations 

73 ICF, 2021f. Risk Screen on Substitutes in Motor 

Vehicle Air Conditioning (Small Cans). Substitute: 

HFO-1234yf. 

74SAE J2844 container valve requirements are for 

HFO-1234yf service cylinders with a volume less 

than or equal to 23 kilograms. 

ignition or formation of HF. These 

elements of the refrigerant circuit and 

connections are designed to prevent 

refrigerant from entering the passenger 

cabin if there is a leak. Keeping 

refrigerant out of the passenger cabin 

minimizes the possibility that there 

would be sufficient levels of refrigerant 

to reach flammable concentrations or 

that HF would be formed and 

transported where passengers might be 

exposed. 

The third use condition requires the 

manufacturer of MVAC systems and 

vehicles to conduct Failure Mode and 

Effects Analysis (FMEA) as provided in 

SAE J1739 (revised January 2021), 

‘‘Potential Failure Mode and Effects 

Analysis (FMEA) Including Design 

FMEA, Supplemental FMEA–MSR, and 

Process FMEA,’’ and keep records of the 

FMEA on file for three years from the 

date of creation. SAE J1739 (revised 

January 2021) describes a FMEA as ‘‘a 

systematic group of activities intended 

to: (a) Recognize and evaluate the 

potential failure of a product/process 

and the effects and causes of that 

failure, (b) identify actions that could 

eliminate or reduce the change of the 

potential failure occurring, and (c) 

document the process.’’ Through the 

FMEA, OEMs determine the appropriate 

protective strategies necessary to ensure 

the safe use of HFO-1234yf across their 

vehicle fleet. It is standard industry 

practice to perform the FMEA and to 

keep it on file while the vehicle is in 

production and for several years 

afterwards. As with the previous use 

condition, this use condition is 

intended to ensure that agricultural 

tractors greater than 40 HP; selfpropelled agricultural machinery; 

compact equipment; construction, 

forestry, and mining equipment; and 

commercial utility vehicles 

manufactured with HFO-1234yf MVACs 

are specifically designed to minimize 

release of the refrigerant into the 

passenger cabin or onto hot surfaces that 

might result in ignition or in generation 

of HF. 

B. Modifications to Use Conditions for 

MVAC Systems in Other Vehicle Types 

For the previous listings of HFO1234yf in the March 29, 2011 (76 FR 

17488), and December 1, 2016 (81 FR 

86778), final rules for MVAC systems in 

certain new vehicles, EPA is modifying 

the use conditions to replace the 

reference to older versions of SAE J639, 

SAE J1739, and SAE J2844. 

First, EPA is replacing the reference to 

SAE J639 (revised 2011) in the March 

2011 and December 2016 final rules 

with a reference to the 2020 version of 

the standard, ‘‘Safety and Design 

Standards for Motor Vehicle Refrigerant 

Vapor Compression Systems.’’ This is 

the most recent version of the SAE J639 

standard, which was updated to include 

system design and safety-related 

requirements for secondary loop HFC152a MVAC systems and to make 

general improvements for clarity. 

Second, EPA is replacing the 

reference to SAE J1739 (adopted 2009) 

in the March 2011 and December 2016 

final rules with a reference to the 2021 

version of the standard, ‘‘Potential 

Failure Mode and Effects Analysis 

(FMEA) Including Design FMEA, 

Supplemental FMEA–MSR, and Process 

FMEA.’’ The 2021 version is the most 

recent version of the SAE J1739 

standard; it was revised to emphasize 

the process of FMEA selection, creation, 

documentation, reporting, and change 

management. 

Finally, EPA is replacing the reference 

to SAE J2844 (revised 2011) in the 

March 2011 final rule with a reference 

to the 2013 version of the standard, ‘‘R1234yf (HFO-1234yf) New Refrigerant 

Purity and Container Requirements for 

Use in Mobile Air-Conditioning 

Systems.’’ This is the most recent 

version of the SAE J2844 standard; it 

was updated to add the requirements for 

certification according to SAE J2911, 

‘‘Procedure for Certification that 

Requirements for Mobile Air 

Conditioning System Components, 

Service Equipment, and Service 

Technician Training Meet SAE J 

Standards.’’ 

C. Servicing Fittings for Small Cans of 

HFO-1234yf 

EPA is including a use condition for 

HFO-1234yf to provide for servicing air 

conditioning systems. The use condition 

would require unique servicing fittings 

for use with small cans (two pounds or 

less) for servicing of MVAC systems 

containing HFO-1234yf in the nonroad 

vehicles addressed in this action, as 

well as servicing of the MVAC systems 

in the vehicles for which HFO-1234yf 

has already been listed as acceptable, 

subject to use conditions (i.e., new LD 

passenger cars and trucks and new 

MDPVs, HD pickup trucks, and 

complete HD vans). The use condition 

is discussed below in section II.C.3, 

‘‘What is the use condition?’’ 

EPA previously listed HFO-1234yf as 

acceptable, subject to use conditions, for 

large containers of HFO-1234yf for 

professional servicing of MVAC systems 

(76 FR 17488, March 29, 2011; 77 FR 

17344, March 26, 2012). Redacted 

submissions and supporting 

documentation for HFO-1234yf in small 

cans are provided in the docket for this 

rulemaking (EPA–HQ–OAR–2021–0347) 

at https://www.regulations.gov. As 

explained in the proposed rule (86 FR 

68962; December 6, 2021) and below, to 

help evaluate environmental, 

flammability, and toxicity risks 

resulting from the use of HFO-1234yf in 

small cans for MVAC servicing, EPA 

conducted a risk screen which is 

available in the docket for this 

rulemaking.73

Servicing of MVAC systems 

containing HFO-1234yf with small 

refrigerant cans is expected to take place 

in a variety of locations, including 

professional and residential garages 

with differing sizes and ventilation 

rates. As discussed below in section 

II.C.3 regarding the use condition, small 

refrigerant cans must be equipped with 

a Standard Compressed Gas Association 

(CGA) 166 left-hand thread outlet 

connection valve in accordance with 

SAE Standard J2844.74 The hose 

connected to the vehicle must also use 

the low side service port per SAE J639. 

For additional context, we further 

note that separate from the requirements 

in this action, the sale of such small 

refrigerant cans would be subject to the 

regulatory requirements under CAA 

section 608, codified at 40 CFR 82.154. 

These regulations restrict the sale, 

distribution, and offer for sale or 

distribution of refrigerants, including 

non-exempt substitute refrigerants, like 

HFO-1234yf, to circumstances where 

certain requirements are met. Specific to 

the sale of small cans of refrigerant, 40 

CFR 82.154(c)(1)(ix) provides that nonexempt substitute refrigerant for use in 

an MVAC, e.g., HFO-1234yf, may be 

sold, including to DIYers, if it is in a 

container designed to hold two pounds 

or less of refrigerant which has a unique 

fitting, and, if manufactured or imported 

on or after January 1, 2018, has a selfsealing valve that complies with the 

self-sealing valve specifications codified 

at 40 CFR 82.154(c)(2). EPA is not 

modifying the existing CAA section 608 

provisions under 40 CFR 82.154, 

including the restriction on sale of 

substitute refrigerants and requirements 

for self-sealing valves. For additional 

information, EPA directs readers to 40 

CFR 82.152, where EPA defines a selfsealing valve as ‘‘a valve affixed to a 

container of refrigerant that 

automatically seals when not actively 

dispensing refrigerant and that meets or 

exceeds established performance criteria 

as identified in § 82.154(c)(2).’’ 


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Federal Register / Vol. 87, No. 86 / Wednesday, May 4, 2022 / Rules and Regulations 26287 

75Nielsen et al., 2007. Atmospheric chemistry of 

CF3CF=CH2: Kinetics and mechanisms of gas-phase 

reactions with Cl atoms, OH radicals, and O3. 

Chemical Physics Letters 439, 18–22. Available 

online at: http://www.cogci.dk/network/OJN_174_

CF3CF=CH2.pdf. 

76Papadimitriou et al., 2007. CF3CF=CH2 and 

(Z)-CF3CF=CHF: temperature dependent OH rate 

coefficients and global warming potentials. Phys. 

Chem. Chem. Phys., 2007, Vol. 9, p. 1–13. Available 

online at: http://pubs.rsc.org/en/Content/ 

ArticleLanding/2008/CP/b714382f. 

77 In order to simulate the vertical concentration 

gradient of refrigerant following release, it is 

assumed that 95 percent of the leaked refrigerant 

mixes evenly into the lower 0.4 meters (1.3 feet) of 

the room, and the rest of the refrigerant mixes 

evenly in the remaining volume (Kataoka 2000). 

78 ICF, 2021f. Risk Screen on Substitutes in Motor 

Vehicle Air Conditioning (Small Cans). Substitute: 

HFO-1234yf. 

79The air exchange rates were derived from the 

requirements in ANSI/ASHRAE Standard 62.1– 

2019, Table 6.1 (ANSI/ASHRAE 2019c). Ventilation 

requirements (presented as cubic feet per minute in 

the standard) were converted to ACH using the 

assumed room size in the residential garage 

scenario. 

80Perrin Quarles Associates, Inc. (2007) suggests 

charging for up to 15 minutes to fully empty the 

contents of the refrigerant can is a best practice for 

DIY servicing of an MVAC system. This study also 

indicates that the transfer procedure used for a 

small refrigerant can (e.g., holding upright, rotation 

method, and other flow control methods) influences 

the transfer time and resulting heel remaining in the 

can. 

81 ICF, 2021f. Risk Screen on Substitutes in Motor 

Vehicle Air Conditioning (Small Cans). Substitute: 

HFO-1234yf. 

82 Ibid. 

83HFO-1234yf has a high minimum ignition 

energy of 5,000–10,000 mJ and a low burning 

velocity of 1.5 cm/s (Koban, 2011). 

84 ICF, 2021f. Risk Screen on Substitutes in Motor 

Vehicle Air Conditioning (Small Cans). Substitute: 

HFO-1234yf. 85Twelve percent oxygen in air (i.e., 120,000 

ppm) is the NOAEL for hypoxia (ICF 1997). 

1. What is the affected end-use? 

As proposed, EPA is listing HFO1234yf as acceptable, subject to a use 

condition, in small cans (two pounds or 

less) for servicing of MVAC systems in 

the nonroad vehicles addressed in this 

action, as well as in MVAC systems in 

the vehicles for which HFO-1234yf has 

already been listed as acceptable, 

subject to use conditions. For the 

existing listings in the March 29, 2011 

(76 FR 17488), and December 1, 2016 

(81 FR 86778), final rules, EPA is 

revising the use conditions to require 

unique servicing fittings for use with 

small cans. 

2. How does HFO-1234yf compare to 

other refrigerants for these MVAC 

applications with respect to SNAP 

criteria? 

a. Environmental Impacts 

HFO-1234yf has a GWP of four,75 76

which is similar to or lower than the 

GWP of the other acceptable alternatives 

for use in small cans (i.e., HFC-134a and 

CO2). HFO-1234yf, HFC-134a, and CO2

do not deplete the ozone layer, and are 

all exempt from the regulatory 

definition of VOC (see 40 CFR 51.100(s)) 

addressing the development of SIPs to 

attain and maintain the NAAQS. For 

additional information on the 

environmental impacts of HFO-1234yf, 

see the discussion above in section 

II.A.3.a. 

b. Flammability 

As discussed above in section II.A.3.b, 

HFO-1234yf is classified as A2L under 

ASHRAE 34–2013, while HFC-134a and 

CO2 are nonflammable refrigerants. 

HFO-1234yf is flammable when its 

concentration in air is in the range of 6.2 

percent and 12.3 percent by volume 

(62,000 ppm to 123,000 ppm). Due to its 

flammability, small cans of HFO-1234yf 

for MVAC system servicing could pose 

a safety concern for workers and service 

personnel or consumers if they are not 

properly handled. 

Servicing of MVAC systems with 

small refrigerant cans containing HFO1234yf is expected to take place in 

either a professional garage bay or a 

residential garage. To determine the 

potential flammability risks of a 

catastrophic release of refrigerant during 

professional and DIY MVAC system 

servicing using a small refrigerant can, 

EPA analyzed plausible worst-case 

scenarios to model a catastrophic 

release of HFO-1234yf 77 compared with 

the LFL of 62,000 ppm for HFO1234yf.78 Under these plausible worstcase scenarios, the full charge of the 

refrigerant can is assumed to be emitted 

into the professional garage bay and 

residential garage with 4.0 and 3.1 air 

changes per hour (ACH),79 respectively, 

over the course of 15 minutes, which 

represents the approximate amount of 

time required to charge the MVAC 

system.80 EPA found that the maximum 

instantaneous concentrations of HFO1234yf in the lower 0.4 meters of the 

room did not exceed the LFL for HFO1234yf (i.e., 62,000 ppm) for small 

refrigerant cans (charge size of around 

1kg (2 pounds) or less). 81 EPA also 

found that the maximum instantaneous 

concentration exceeded 25 percent 

(15,500 ppm) of the LFL for HFO-1234yf 

for DIY servicing under one of the 

scenarios.82 However, the scenario was 

derived using conservative assumptions 

(e.g., minimum room volume, vertical 

concentration gradient). Furthermore, 

small refrigerant cans are not likely to 

be used in spaces significantly smaller 

than those modeled in EPA’s 

assessment, which are expected to be 

large enough to accommodate a vehicle 

and adequate space surrounding the 

vehicle for the user to access the MVAC 

unit. Finally, HFO-1234yf is difficult to 

ignite and, in the event of ignition, the 

flames would propagate slowly.83

Therefore, the risk of fire is minimal if 

small refrigerant cans containing HFO1234yf meet and are used to service 

vehicles in rooms with volumes in 

accordance with relevant safety 

standards as described below in section 

II.C.3. 

Additionally, EPA considered the 

submitters’ detailed assessments of the 

probability of events that might create a 

fire and approaches to mitigate risks. A 

CFD modeling was conducted by a 

submitter to simulate a severe 

refrigerant line leak from a 600-gram 

MVAC system in a garage bay of 84 m3

without forced ventilation and found 

that the flammable region of the 

refrigerant plume under the hood of the 

vehicle was small, ranging from 2 

inches to a maximum of 10 inches, 

which quickly dispersed. Similarly, 

leaks from a small refrigerant can 

containing HFO-1234yf during MVAC 

servicing are not expected to 

accumulate under the vehicle hood in 

concentrations above the LFL for 

HFO-1234yf. 

EPA concludes that the currently 

available assessments on the use of 

HFO-1234yf in small cans for 

professional and DIY servicing of MVAC 

systems are sufficiently conservative to 

account for all probable flammability 

risks from the use of HFO-1234yf. 

Therefore, the use of HFO-1234yf in 

small cans does not pose significantly 

greater flammability risk than the other 

alternatives when used in accordance 

with the use condition described below 

in section II.C.3, which is intended to 

mitigate flammability risks, and 

recommendations in the SDS and EPA’s 

risk screen. 

c. Toxicity 

For a discussion of the potential 

health effects of HFO-1234yf, see the 

section II.A.3.c above. In evaluating 

potential asphyxiation and toxicity 

impacts of HFO-1234yf in small cans on 

human health, EPA considered both 

occupational risk and risk to the general 

population. EPA investigated the risk of 

asphyxiation and of exposure to toxic 

levels of HFO-1234yf for plausible 

worst-case scenarios. According to the 

results of EPA’s asphyxiation 

assessment, the use of HFO-1234yf in 

small refrigerant cans does not present 

a significant risk of asphyxiation.84

Conditions resulting in oxygen levels 

under 12 percent 85 would only occur 

with charge sizes that are significantly 

larger than the maximum charge size for 


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86EPA’s Vintaging Model (EPA 2020) assumes the 

refrigerant charge size for MVACs to be 0.555–1 

kilograms in light-duty vehicles and 0.79–1.14 

kilograms in light-duty trucks. 87Honeywell International, Inc. 2012. Refrigerant 

exposure to service personnel or DIYers due to 

leakage of 12 oz charging cans or ‘‘small cans.’’ 

Experiments Conducted at Honeywell’s Research 

Laboratory in Buffalo, NY USA. January 2012. 88The orientation of the can during servicing 

determines the phase (i.e., liquid or gas) of the 

refrigerant that is being transferred into the MVAC 

system. When the can is upright, the refrigerant 

transfers as a gas and when the can is inverted, the 

refrigerant transfers as a liquid (Perrin Quarles 

Associates, Inc., 2007). Refrigerant can instructions 

often direct users to hold the can upright or rotate 

its position during servicing. 

89 ICF, 2021f. Risk Screen on Substitutes in Motor 

Vehicle Air Conditioning (Small Cans). Substitute: 

HFO-1234yf. 

small refrigerant cans or room sizes that 

are unlikely for the application. In 

addition, the charge sizes at which an 

asphyxiation concern would exist are 

also significantly larger (about 18 times) 

than the average charge size of an 

MVAC system.86

To evaluate toxicity risks, EPA 

estimated 15-minute TWA exposures for 

HFO-1234yf in small cans and 

compared them to the standard toxicity 

limits. The estimated TWA values were 

conservative as the analysis did not 

consider opened windows or doors, fans 

operating, conditioned airflow (either 

heated or cooled), or other variables that 

would reduce the levels to which 

individuals would be exposed. The 

modeling results showed that the 

estimated 15-minute TWA exposures 

ranging from 3,100 ppm to 11,080 ppm 

are all lower than the RCL (i.e., 16,000 

ppm) and ATEL (i.e., 100,000 ppm) for 

HFO-1234yf. 

EPA also considered testing and air 

sampling conducted by a submitter to 

determine potential refrigerant exposure 

to professional servicing technicians or 

DIY users due to leakage of refrigerant 

cans in a small, closed garage with the 

condenser fan off and the vehicle hood 

partly open.87 The various scenarios 

investigated included releases of 170 

grams to 680 grams of refrigerant from 

both an inverted and upright can.88

Refrigerant samples were taken under 

the vehicle at 0.15 meters above the 

floor (representing the potential 

breathing area of a technician present in 

that space) and in the engine 

compartment. The experimentally 

derived exposure estimates are also 

significantly lower than the RCL (i.e., 

16,000 ppm) and ATEL (i.e., 100,000 

ppm) for HFO-1234yf. 

Additionally, EPA assessed the 

potential exposures to workers during 

disposal (e.g., collection, transportation) 

of small refrigerant cans containing 

HFO-1234yf.89 EPA determined that if 

proper handling and disposal guidelines 

are followed in accordance with good 

industrial hygiene practices and the 

SDS for HFO-1234yf, there is no 

significant risk to workers during the 

disposal of HFO-1234yf from MVAC 

systems or HFO-1234yf small refrigerant 

cans. 

For potential toxicity risks of 

HFO-1234yf to the general population, 

EPA’s analysis indicated that 

HFO-1234yf is not expected to present 

an unreasonable risk to human health in 

the general population when used as a 

refrigerant in small cans for MVAC 

servicing. 

Based upon EPA’s analysis, 

workplace and general population 

exposure to HFO-1234yf in small cans 

when used according to the use 

condition is not expected to exceed 

relevant exposure limits. Therefore, EPA 

concludes that the use of HFO-1234yf in 

small cans does not pose significantly 

greater toxicity risks than other 

acceptable refrigerants when used in 

accordance with the use condition 

described below in section II.C.3, which 

is intended to mitigate toxicity risks, 

and recommendations in the SDS and 

EPA’s risk screen. 

3. What is the use condition? 

EPA’s SNAP program has a 

longstanding approach of requiring 

unique fittings for use with each 

refrigerant substitute in MVAC systems. 

This is intended to prevent cross 

contamination of different refrigerants, 

to preserve the purity of recycled 

refrigerants, and ultimately to avoid 

venting of refrigerant consistent with 

requirements under CAA section 608(c), 

codified at 40 CFR 82.154(a). In the 

1996 SNAP rule requiring the use of 

fittings on all refrigerants submitted for 

use in MVAC systems, EPA urged 

industry to develop mechanisms to 

ensure that the refrigerant venting 

prohibition under CAA section 608 and 

the implementing regulations at 40 CFR 

82.154 are observed (61 FR 54032; 

October 16, 1996). EPA has issued 

multiple SNAP rules codified in the 

CFR requiring the use of fittings unique 

to a refrigerant for use on ‘‘containers of 

the refrigerant, on can taps, on recovery, 

recycling, and charging equipment, and 

on all [motor vehicle] air conditioning 

system service ports.’’ (See appendices 

C and D to subpart G of 40 CFR part 82). 

In this rule, EPA is establishing a use 

condition requiring that for connections 

with small cans (two pounds or less) of 

HFO-1234yf use fittings must be 

consistent with SAE J2844 (revised 

January 2013), which specifies quickconnect fittings that are different from 

those for any other refrigerant. The lowside service port and connections will 

have an outside diameter of 14 mm 

(0.551 inches), and the high-side service 

port will have an outside diameter of 17 

mm (0.669 inches), both accurate to 

within 2 mm. Under SAE J2844 (revised 

January 2013), small cans of 

HFO-1234yf (e.g., for use in DIY 

servicing of MVAC systems) must have 

a left-handed screw valve with a 

diameter of 0.5 inches and Acme 

(trapezoidal) thread with 16 threads per 

inch. 

D. Incorporation by Reference 

As proposed, EPA is adopting the 

current versions of three technical safety 

standards developed by SAE by 

incorporating them by reference into the 

use conditions for the nonroad vehicles 

addressed in this action. EPA is also 

modifying the use conditions for the 

previous listings of HFO-1234yf in 

certain MVAC systems to incorporate by 

reference the most current versions of 

the three standards. The three standards 

are SAE J639 (revised November 2020), 

‘‘Safety and Design Standards for Motor 

Vehicle Refrigerant Vapor Compression 

Systems;’’ SAE J1739 (revised January 

2021), ‘‘Potential Failure Mode and 

Effects Analysis (FMEA) Including 

Design FMEA, Supplemental FMEA– 

MSR, and Process FMEA;’’ and SAE 

J2844 (revised January 2013), ‘‘R-1234yf 

(HFO-1234yf) New Refrigerant Purity 

and Container Requirements for Use in 

Mobile Air-Conditioning Systems.’’ 

Section II.A.4 of this preamble discusses 

these standards in greater detail. 

EPA finds, as in past rules, that it is 

appropriate to reference consensus 

standards that set conditions to reduce 

risk. As in past listings of flammable 

refrigerants, we find that such standards 

have already gone through a 

development phase that incorporates 

the latest findings and research. 

Likewise, such standards have gone 

through a vetting and refinement 

process that provides the affected 

parties an opportunity to comment. For 

the U.S. MVAC industry, EPA sees SAE 

standards in general as a pervasively 

used body of work to address risks, and 

these standards are the most applicable 

and recognized by the U.S. market. 

Incorporation by reference allows 

federal agencies to comply with the 

requirement to publish rules in the 

Federal Register and the Code of 

Federal Regulations by referring to 

material already published elsewhere. 

The legal effect of incorporation by 

reference is that the material is treated 

as if it were published in the Federal 

Register and Code of Federal 

Regulations. 

SAE J639, J1739, and J2844 are 

available for purchase by mail at: SAE 


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Federal Register / Vol. 87, No. 86 / Wednesday, May 4, 2022 / Rules and Regulations 26289 

90EPA, 2011. Protection of Stratospheric Ozone: 

New Substitute in the Motor Vehicle Air 

Conditioning Sector Under the Significant New 

Alternatives Policy (SNAP) Program; Final Rule. 

March 29, 2011 (76 FR 17488). Available online at: 

https://www.govinfo.gov/content/pkg/FR-2011-03- 

29/pdf/2011-6268.pdf. 

91Service for consideration means receiving 

something of worth or value to perform service, 

whether in money, credit, goods, or services. 

Customer Service, 400 Commonwealth 

Drive, Warrendale, PA 15096–0001; 

Telephone: 1–877–606–7323 in the U.S. 

or Canada (other countries dial 1–724– 

776–4970); internet address for SAE 

J639: https://www.sae.org/standards/ 

content/j639_201112/; internet address 

for SAE J1739: https://www.sae.org/ 

standards/content/j1739_202101/; 

internet address for SAE J2844: https:// 

www.sae.org/standards/content/j2844_

201301/. The cost of SAE J639, J1739, 

and J2844 is $85 each for an electronic 

or hard copy. The cost of obtaining 

these standards is not a significant 

financial burden for manufacturers of 

MVAC systems, and purchase is not 

required for those selling, installing, or 

servicing the MVAC systems covered by 

these standards. Therefore, the EPA 

concludes that SAE J639, J1739, and 

J2844 are reasonably available. 

E. What is the relationship between this 

SNAP rule and other federal rules? 

1. Significant New Use Rule for 

HFO-1234yf Under the Toxic 

Substances Control Act 

In a final rule published on March 29, 

2011 (76 FR 17488), EPA noted that the 

listing of HFO-1234yf as acceptable, 

subject to use conditions, in new 

passenger cars and trucks did not apply 

to small cans. EPA stated that the 

Agency ‘‘would require additional 

information on consumer risk and a set 

of unique fittings from the refrigerant 

manufacturer for use with small cans or 

containers of HFO-1234yf before we 

would be able to issue a revised rule 

that allows for consumer filling, 

servicing, or maintenance of MVAC 

systems with HFO-1234yf’’ 90 and that 

use of small cans would need to be 

consistent with EPA’s final SNUR for 

HFO-1234yf under TSCA (October 27, 

2010; 75 FR 65987). EPA has since 

revised the SNUR (80 FR 37166, June 

30, 2015) to require the submission of a 

significant new use notice (SNUN) for 

commercial use of HFO-1234yf other 

than in passenger cars and vehicles in 

which the original charging of MVAC 

systems with HFO-1234yf was done by 

the OEM and use of HFO-1234yf in 

consumer products other than products 

used to recharge the MVAC systems in 

passenger cars and vehicles in which 

the original charging of MVAC systems 

with HFO-1234yf was done by the OEM, 

among other things. Manufacturers of 

small cans of HFO-1234yf have also 

submitted a unique fitting specifically 

for use with small can taps and small 

refrigerant cans for EPA’s review. 

Today’s listing of HFO-1234yf would 

apply to small cans, weighing two 

pounds or less, for DIY or professional 

use. Consistent with the revised June 

2015 SNUR for HFO-1234yf, 

commercial use or use in consumer 

products to recharge MVAC systems 

with HFO-1234yf in passenger cars and 

vehicles may only occur without 

submission of a SNUN and review by 

EPA if the OEM originally charged the 

system with HFO-1234yf. 

EPA is including a reference to the 

June 2015 SNUR (80 FR 37166) in 

Appendix B subpart G of part 82, under 

the ‘Comments’ column, for the listings 

of HFO-1234yf for the nonroad vehicles 

addressed in this action. EPA is also 

modifying the existing listings of 

HFO-1234yf as acceptable, subject to 

use conditions, for various vehicle 

types, by including the reference to the 

June 2015 SNUR in the Comments 

column in Appendix B subpart G of part 

82. 

2. CAA Sections 608 and 609 

Today’s action will not have any 

impact on EPA’s regulations under 

sections 608 or 609 of the Clean Air Act. 

Among other things, CAA section 608 

prohibits individuals from knowingly 

venting or otherwise releasing into the 

environment any refrigerants except 

those specifically exempted in certain 

end uses, while maintaining, servicing, 

repairing, or disposing of air 

conditioning or refrigeration equipment. 

HFO-1234yf is not exempt from the 

venting prohibition in any application; 

therefore, knowing release of 

HFO-1234yf from MVAC systems in the 

nonroad vehicles addressed in this 

action, or any other MVAC system, by 

any person maintaining, servicing, 

repairing, or disposing of such systems 

is prohibited. MVAC end-of-life 

disposal and recycling specifications are 

also covered under CAA section 608 

and EPA’s regulations issued under that 

section of the Act, which are codified at 

subpart F of 40 CFR part 82. In addition, 

as mentioned above in sections I.A and 

II.C, there are additional requirements 

that concern the sale or offer for sale of 

refrigerants, including a sales restriction 

under 40 CFR subpart F and specifically 

at 82.154(c)(1) and related specifications 

for self-sealing valves at 82.154(c)(2). 

This action does not modify the 

provisions under 40 CFR 82.154, 

including the restriction on sale of 

substitute refrigerants and requirements 

for self-sealing valves. The Agency is 

not revising regulations promulgated 

under CAA section 608 in this action. 

CAA section 609 establishes 

standards and requirements regarding 

the servicing or repair of MVAC 

systems. EPA has issued regulations 

implementing this statutory requirement 

and those regulations are codified at 

subpart B of 40 CFR part 82. Under 

section 609 and its implementing 

regulations, no person repairing or 

servicing motor vehicles for 

consideration 91 may perform any 

service on an MVAC that involves the 

refrigerant without properly using 

approved refrigerant recovery or 

recovery and recycling equipment, and 

no such person may perform such 

service unless such person has been 

properly trained and certified. 

Refrigerant handling equipment must be 

certified by EPA or an independent 

organization approved by EPA. The 

statutory and regulatory provisions 

regarding MVAC servicing apply to all 

refrigerants, including HFO-1234yf. 

3. Will this action affect EPA’s HD 

greenhouse gas standards? 

The Phase 1 HD Greenhouse Gas 

(GHG) rule (76 FR 57106; September 15, 

2011) set GHG standards for the HD 

industry in three discrete categories— 

combination tractors, HD pickups and 

vans, and vocational vehicles. The 

Phase 1 rule also set separate standards 

for engines that power vocational 

vehicles and combination tractors— 

based on the relative degree of 

homogeneity among vehicles within 

each category. As part of the Phase 1 HD 

GHG standards, EPA finalized a low 

leakage standard of 1.50 percent leakage 

per year for AC systems installed in HD 

pickup trucks and vans and 

combination tractors for model years 

2014 and later. On October 25, 2016, 

EPA finalized Phase 2 HD GHG 

standards that built on the existing 

Phase 1 HD GHG standards (81 FR 

73478). The nonroad vehicles for which 

EPA is listing HFO-1234yf are not 

regulated under the Phase 1 or Phase 2 

HD GHG standards. Additionally, 

today’s action does not have a direct 

impact on the HD GHG standards, either 

for Phase 1 or Phase 2. 

F. Response to Comments 

EPA received four comments on the 

proposed rule from refrigerant suppliers 

and equipment manufacturers. All 

commenters strongly supported 

finalizing the rule as proposed, 

particularly the proposal to list 


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HFO-1234yf as acceptable, subject to 

use conditions, in certain nonroad 

vehicle air conditioning systems. One 

commenter noted that the similarities 

between the proposed use conditions for 

the nonroad vehicles and those required 

for certain onroad vehicles ‘‘will 

prevent confusion and help harmonize 

the industry as [HFO-]1234yf usage 

expands to nonroad vehicles.’’ Another 

commenter stated that the proposed 

listings of HFO-1234yf in the nonroad 

vehicles would ‘‘provide manufacturers 

with regulatory certainty so they can 

design and manufacture new equipment 

using HFO-1234yf and transition to 

lower GWP solutions.’’ EPA 

acknowledges the support for the 

proposed rule and is finalizing the 

listings and changes as proposed. 

In the proposed rule, EPA requested 

information on the development of 

HFO-1234yf MVAC systems for types of 

nonroad or onroad HD vehicles not 

covered by this rulemaking, particularly 

onroad trucks (i.e., Class 4–8 trucks 

between 14,001 and 33,000 or greater 

pounds). Two commenters supported 

the expanded use of HFO-1234yf in HD 

onroad trucks greater than 14,000 

pounds. One commenter estimated that 

manufacturers would need at least five 

to ten years to fully transition from 

HFC–134a to HFO-1234yf and noted a 

few potential technical challenges. 

However, the commenter stated that 

‘‘medium- and heavy-duty truck 

manufacturers are addressing the 

challenge with urgency,’’ and 

encouraged EPA to initiate rulemaking 

to list HFO-1234yf for HD onroad trucks 

greater than 14,000 pounds. EPA 

acknowledges the commenters’ support 

for the listing of HFO-1234yf in 

additional onroad vehicles and will 

consider these comments as it evaluates 

possible future actions. 

III. Statutory and Executive Order 

Reviews 

A. Executive Order 12866: Regulatory 

Planning and Review and Executive 

Order 13563: Improving Regulation and 

Regulatory Review 

This action is not a significant 

regulatory action and was therefore not 

submitted to the Office of Management 

and Budget (OMB) for review. 

B. Paperwork Reduction Act (PRA) 

This action does not impose any new 

information collection burden under the 

PRA. OMB has previously approved the 

information collection activities 

contained in the existing regulations 

and has assigned OMB control number 

2060–0226. The approved Information 

Collection Request includes five types 

of respondent reporting and 

recordkeeping activities pursuant to 

SNAP regulations: Submission of a 

SNAP petition, filing a TSCA/SNAP 

Addendum, notification for test 

marketing activity, recordkeeping for 

substitutes acceptable subject to use 

restrictions, and recordkeeping for small 

volume uses. This rule contains no new 

requirements for reporting or 

recordkeeping. 

C. Regulatory Flexibility Act (RFA) 

I certify that this action will not have 

a significant economic impact on a 

substantial number of small entities 

under the RFA. In making this 

determination, EPA concludes that the 

impact of concern for this rule is any 

significant adverse economic impact on 

small entities and that the agency is 

certifying that this rule will not have a 

significant economic impact on a 

substantial number of small entities if 

the rule has no net burden on the small 

entities subject to the rule. Because the 

use conditions are consistent with 

industry consensus standards, no 

change in business practice is required 

to meet the use conditions, resulting in 

no adverse impact compared to the 

absence of this final rule. Thus, the rule 

would not impose new costs on small 

entities. 

D. Unfunded Mandates Reform Act 

(UMRA) 

This action does not contain any 

unfunded mandate as described in 

UMRA, 2 U.S.C. 1531–1538, and does 

not significantly or uniquely affect small 

governments. The action imposes no 

enforceable duty on any state, local or 

tribal governments or the private sector. 

E. Executive Order 13132: Federalism 

This action does not have federalism 

implications. It will not have substantial 

direct effects on the states, on the 

relationship between the national 

government and the states, or on the 

distribution of power and 

responsibilities among the various 

levels of government. 

F. Executive Order 13175: Consultation 

and Coordination With Indian Tribal 

Governments 

This action does not have tribal 

implications as specified in Executive 

Order 13175. It will not have substantial 

direct effects on tribal governments, on 

the relationship between the Federal 

government and Indian tribes, or on the 

distribution of power and 

responsibilities between the Federal 

government and Indian tribes, as 

specified in Executive Order 13175. 

Thus, Executive Order 13175 does not 

apply to this action. 

G. Executive Order 13045: Protection of 

Children From Environmental Health 

and Safety Risks 

This action is not subject to Executive 

Order 13045 because it is not 

economically significant as defined in 

Executive Order 12866, and because 

EPA does not believe the environmental 

health or safety risks addressed by this 

action present a disproportionate risk to 

children. This action’s health and risk 

assessments are contained in the 

comparisons of toxicity for HFO-1234yf, 

as well as in the risk screens for 

HFO-1234yf. The risk screens are in the 

docket for this rulemaking. 

H. Executive Order 13211: Actions That 

Significantly Affect Energy Supply, 

Distribution, or Use 

This action is not subject to Executive 

Order 13211, because it is not a 

significant regulatory action under 

Executive Order 12866. 

I. National Technology Transfer and 

Advancement Act 

This action involves technical 

standards. EPA is adopting the current 

versions of three technical safety 

standards developed by SAE by 

incorporating them by reference into the 

use conditions for the nonroad vehicles 

addressed in this action. EPA is also 

modifying the use conditions for the 

previous listings of HFO-1234yf in 

MVAC systems to incorporate by 

reference the most current versions of 

the three standards. The use conditions 

ensure that HFO-1234yf does not 

present significantly greater risk to 

human health or the environment than 

other alternatives available for use in 

MVAC. Specifically, the three standards 

are: 

1. SAE J639: Safety and Design 

Standards for Motor Vehicle Refrigerant 

Vapor Compression Systems (revised 

November 2020). This document 

establishes safety standards for 

HFO-1234yf MVAC systems that 

include unique fittings; a warning label 

indicating the refrigerant’s identity and 

that it is a flammable refrigerant; and 

requirements for engineering design 

strategies that include a high-pressure 

compressor cutoff switch and pressure 

relief devices. This standard is available 

at https://www.sae.org/standards/ 

content/j639_201112/. 

2. SAE J1739: Potential Failure Mode 

and Effects Analysis (FMEA) Including 

Design FMEA, Supplemental FMEA– 

MSR, and Process FMEA (revised 

January 2021). This standard describes 

potential FMEA in design and potential 


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FMEA in manufacturing and assembly 

processes. It requires manufacturers of 

MVAC systems and vehicles to conduct 

a FMEA and assists users in the 

identification and mitigation of risk by 

providing appropriate terms, 

requirements, ranking charts, and 

worksheets. This standard is available at 

https://www.sae.org/standards/content/ 

j1739_202101/. 

3. SAE J2844: R-1234yf (HFO-1234yf) 

New Refrigerant Purity and Container 

Requirements for Use in Mobile AirConditioning Systems (revised January 

2013). This standard sets purity 

standards and describes container 

requirements, including fittings for 

refrigerant cylinders. For connections 

with refrigerant containers for use in 

professional servicing, use fittings must 

be consistent with SAE J2844 (revised 

January 2013). For connections with 

small refrigerant cans for consumer or 

professional use, use fittings must have 

a diameter of 0.5 inches, a thread pitch 

of 16 thread per inch, and a left thread 

direction, consistent with SAE J2844. 

This standard is available at https://

www.sae.org/standards/content/j2844_

201301/. 

These standards may be purchased by 

mail at: SAE Customer Service, 400 

Commonwealth Drive, Warrendale, PA 

15096–0001; by telephone: 1–877–606– 

7323 in the United States or 724–776– 

4970 outside the United States or in 

Canada. The cost of SAE J639, SAE 

J1739, and SAE J2844 is $85 each for an 

electronic or hardcopy. The cost of 

obtaining these standards is not a 

significant financial burden for 

manufacturers of MVAC systems and 

purchase is not required for those 

selling, installing, and servicing the 

systems. Therefore, EPA concludes that 

the use of SAE J639, SAE J1739, and 

SAE J2844 are reasonably available. 

J. Executive Order 12898: Federal 

Actions To Address Environmental 

Justice in Minority Populations and 

Low-Income Populations 

A regulatory action may involve 

potential environmental justice 

concerns if it could: (1) Create new 

disproportionate impacts on people of 

color, communities of low-income, and/ 

or indigenous peoples; (2) exacerbate 

existing disproportionate impacts on 

people of color, communities of lowincome, and/or indigenous peoples; or 

(3) present opportunities to address 

existing disproportionate impacts on 

people of color, communities of lowincome, and/or indigenous peoples 

through the action under development. 

EPA believes that this action does not 

have disproportionately high and 

adverse human health or environmental 

effects on people of color, communities 

of low-income and/or indigenous 

peoples, as specified in Executive Order 

12898 (59 FR 7629, February 16, 1994). 

The listings for HFO-1234yf in the 

vehicle types addressed in this action 

would provide additional lower-GWP 

alternatives for the MVAC end-use. By 

providing a lower-GWP alternative for 

this end-use, this final rule is also 

anticipated to reduce the use and 

eventual emissions of potent GHGs in 

this end-use, which could help to 

reduce the effects of climate change, 

including the public health and welfare 

effects on people of color, communities 

of low-income and/or indigenous 

peoples. This action’s health and 

environmental risk assessments are 

contained in the comparison of health 

and environmental risks for 

HFO-1234yf, as well as in the risk 

screens that are available in the docket 

for this rulemaking. EPA’s analysis 

indicates that other environmental 

impacts and human health impacts of 

HFO-1234yf are comparable to or less 

than those of other substitutes that are 

listed as acceptable for the same enduse. Based on these considerations, EPA 

expects that the effects on people of 

color, communities of low-income and/ 

or indigenous peoples would not be 

disproportionately high and adverse. 

K. Congressional Review Act (CRA) 

This action is subject to the CRA, and 

EPA will submit a rule report to each 

House of the Congress and to the 

Comptroller General of the United 

States. This action is not a ‘‘major rule’’ 

as defined by 5 U.S.C. 804(2). 

IV. References 

Unless specified otherwise, all documents 

are available electronically through the 

Federal Docket Management System, Docket 

number EPA–HQ–OAR–2021–0347. 

AEM, 2019. Risk Assessment for HFO-1234yf 

in Agricultural Tractors ≥ 40 HP including 

2WD, MFD, 4WD and Track Type 

Equipment. 

AEM, 2020a. Risk Assessment for 

HFO-1234yf in Self-Propelled Agricultural 

Machinery including Combines, Forage 

Harvesters, Sprayers, and Windrowers. 

AEM, 2020b. Risk Assessment for 

HFO-1234yf in Compact Equipment 

(Examples include Tractors <40HP, Turf 

Equipment, Skid Steer, Mini-Excavators 

and Track Loaders) 

AEM, 2020c. Risk Assessment for 

HFO-1234yf in Construction, Forestry, and 

Mining Equipment. 

AEM, 2020d. Risk Assessment for 

HFO-1234yf in Commercial Utility 

Vehicles. 

AEM, 2020e. CFD Leak ModelingSupplemental Information to Compliment 

AEM Machine Form RAs. 

AEM, 2021. Appendix A: Machine Forms as 

Classified by AEM Membership. 

ASHRAE, 2019. ANSI/ASHRAE Standard 

34–2019: Designation and Safety 

Classification of Refrigerants. 

Chemours, 2019. HFO-1234yf for Use as a 

Refrigerant. Significant New Alternatives 

Policy Program Submission to the U.S. 

Environmental Protection Agency. 

CRP, 2008. Risk Assessment for Alternative 

Refrigerants HFO-1234yf Phase II. Prepared 

for SAE International Cooperative Research 

Program 1234 by Gradient Corporation. 

CRP, 2009. Risk Assessment for Alternative 

Refrigerants HFO-1234yf and R-744 (CO2) 

Phase III. Prepared for SAE International 

Cooperative Research Program 1234 by 

Gradient Corporation. 

CRP, 2013. SAE International Cooperative 

Research Project CRP1234-4 on R-1234yf 

Safety, Finishes Work and Presents 

Conclusions. Available online at: http://

www.sae.org/servlets/pressRoom?OBJECT_

TYPE=PressReleases&PAGE=show

Release&RELEASE_ID=2146. 

DuPont and Honeywell, 2008. Guidelines for 

Use and Handling of HFO-1234yf (v8.0). 

EPA, 2005. Risk Analysis for Alternative 

Refrigerant in Motor Vehicle Air 

Conditioning. 

EPA, 2011. Protection of Stratospheric 

Ozone: New Substitute in the Motor 

Vehicle Air Conditioning Sector Under the 

Significant New Alternatives Policy 

(SNAP) Program; Final Rule. March 29, 

2011 (76 FR 17488). Available online at: 

https://www.govinfo.gov/content/pkg/FR2011-03-29/pdf/2011-6268.pdf. 

EPA, 2016. Protection of Stratospheric 

Ozone: Update to the Refrigerant 

Management Requirements Under the 

Clean Air Act. November 18, 2016. 81 FR 

82272. Available online at: https://

www.regulations.gov/document?D=EPAHQ-OAR-2015-0453-0125. 

EPA, 2021. Basic Information about the 

Emission Standards Reference Guide for 

On-road and Nonroad Vehicles and 

Engines. Available online at https://

www.epa.gov/emission-standardsreference-guide/basic-information-aboutemission-standards-reference-guide-road. 

Exponent, 2008. HFO-1234yf Refrigerant 

Concentration and Ignition Tests in FullScale Vehicle Passenger Cabin and Engine 

Compartment. 

ICF, 1997. Physiological Effects of 

Alternative Fire Protection Agents— 

Hypoxic Atmospheres Conference. 

Stephanie Skaggs prepared the proceedings 

of the conference held May 22, 1997 in 

New London, CT. 

ICF, 2008a. Air Conditioning Refrigerant 

Charge Size to Passenger Compartment 

Volume Ratio Analysis. 

ICF, 2008b. Revised Characterization of U.S. 

Hybrid and Small Car Sales (Historical and 

Predicted) and Hybrid Vehicle Accidents. 

ICF, 2009a. Revised Final Draft Assessment 

of the Potential Impacts of HFO-1234yf and 

the Associated Production of TFA on 

Aquatic Communities and Local Air 

Quality. 

ICF, 2009b. Risk Screen on Substitutes for 

CFC–12 in Motor Vehicle Air 

Conditioning: Substitute: HFO-1234yf. 

ICF, 2010a. Summary of HFO-1234yf 

Emissions Assumptions. 


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26292 Federal Register / Vol. 87, No. 86 / Wednesday, May 4, 2022 / Rules and Regulations 

ICF, 2010b. Summary of Updates to the 

Vintaging Model that Impacted 

HFO-1234yf Emissions Estimates. 

ICF, 2010c. Revised Assessment of the 

Potential Impacts of HFO-1234yf and the 

Associated Production of TFA on Aquatic 

Communities, Soil and Plants, and Local 

Air Quality. 

ICF, 2010d. Sensitivity Analysis CMAQ 

results on projected maximum TFA 

rainwater concentrations and maximum 8- 

hr ozone concentrations. 

ICF, 2016. Technical Support Document for 

Acceptability Listing of HFO-1234yf for 

Motor Vehicle Air Conditioning in Limited 

Heavy-Duty Applications. 

ICF, 2021a. Risk Screen on Substitutes in 

Motor Vehicle Air Conditioning (Nonroad 

Vehicles Agricultural Tractors Greater than 

40 Horsepower) (New Equipment). 

ICF, 2021b. Risk Screen on Substitutes in 

Motor Vehicle Air Conditioning (Nonroad 

Vehicles Self-Propelled Agricultural 

Machinery) (New Equipment). 

ICF, 2021c. Risk Screen on Substitutes in 

Motor Vehicle Air Conditioning (Nonroad 

Vehicles Compact Equipment) (New 

Equipment). 

ICF, 2021d. Risk Screen on Substitutes in 

Motor Vehicle Air Conditioning (Nonroad 

Vehicles—Construction, Forestry, and 

Mining Equipment) (New Equipment). 

ICF, 2021e. Risk Screen on Substitutes in 

Motor Vehicle Air Conditioning (Nonroad 

Vehicles Commercial Utility Vehicles) 

(New Equipment). 

ICF, 2021f. Risk Screen on Substitutes in 

Motor Vehicle Air Conditioning (Small 

Cans). Substitute: HFO-1234yf. 

Kataoka, O., Yoshizawa, M., & Hirakawa, T., 

2000. Allowable Charge Limit of 

Flammable Refrigerants and Ventilation 

Requirements. Daikin Industries. 

International Refrigeration and Air 

Conditioning Conference. Paper 506. 

Available online at: http://

docs.lib.purdue.edu/iracc/506. 

Nielsen, et al., 2007. Atmospheric chemistry 

of CF3CF=CH2: Kinetics and mechanisms 

of gas-phase reactions with Cl atoms, OH 

radicals, and O3. Chemical Physics Letters 

439, 18–22. Available online at: http://

www.cogci.dk/network/OJN_174_

CF3CF=CH2.pdf. 

Papadimitriou, et al., 2007. CF3CF=CH2 and 

(Z)-CF3CF=CHF: temperature dependent 

OH rate coefficients and global warming 

potentials. Phys. Chem. Chem. Phys., 2007, 

Vol. 9, p. 1–13. Available online at: http:// 

pubs.rsc.org/en/Content/ArticleLanding/ 

2008/CP/b714382f. 

Perrin Quarles Associates, Inc., 2007. 

Disposable Container Heel Testing Study 

Report. Prepared for United States 

Environmental Protection Agency by 

Perrin Quarles Associates, Inc. March 21, 

2007. 

SAE, 2013. Standard J2844: R-1234yf 

(HFO-1234yf) New Refrigerant Purity and 

Container Requirements for Use in Mobile 

Air-Conditioning Systems. (Revised 

January 2013). 

SAE, 2019. Standard J2772: Measurement of 

Passenger Compartment Refrigerant 

Concentrations Under System Refrigerant 

Leakage Conditions. SAE International. 

(Revised September 2019). 

SAE, 2020. Standard J639: Safety and Design 

Standards for Motor Vehicle Refrigerant 

Vapor Compression Systems. (Revised 

November 2020). 

SAE, 2021. Standard J1739: Potential Failure 

Mode and Effects Analysis (FMEA) 

Including Design FMEA, Supplemental 

FMEA–MSR, and Process FMEA. (Revised 

January 2021). 

Wagner, J., 2021. Email from John Wagner, 

Association of Equipment Manufacturers to 

Chenise Farquharson, EPA. 

List of Subjects in 40 CFR Part 82 

Environmental protection, 

Administrative practice and procedure, 

Air pollution control, Incorporation by 

reference, Recycling, Reporting and 

recordkeeping requirements, 

Stratospheric ozone layer, Motor vehicle 

air conditioning. 

Michael S. Regan, 

Administrator. 

For the reasons set forth in the 

preamble, EPA amends 40 CFR part 82 

as follows: 

PART 82—PROTECTION OF 

STRATOSPHERIC OZONE 

■ 1. The authority citation for part 82 

continues to read as follows: 

Authority: 42 U.S.C. 7414, 7601, 7671– 

7671q. 

Subpart G—Significant New 

Alternatives Policy Program 

■ 2. Appendix B to subpart G of part 82 

is amended by 

■ a. In the table titled ‘‘Refrigerants— 

Acceptable Subject to Use Conditions’’, 

■ i. Revising the entries for ‘‘CFC–12 

Automobile Motor Vehicle Air 

Conditioning (New equipment in 

passenger cars and light-duty trucks 

only)’’, ‘‘Motor vehicle air conditioning 

(newly manufactured medium-duty 

passenger vehicles)’’, ‘‘Motor vehicle air 

conditioning (newly manufactured 

heavy-duty pickup trucks)’’, and ‘‘Motor 

vehicle air conditioning (newly 

manufactured complete heavy-duty 

vans only)’’; and 

■ ii. Adding entries, in the following 

order at the end of the table, for ‘‘Motor 

vehicle air conditioning (newly 

manufactured nonroad agricultural 

tractors with greater than 40 

horsepower)’’, ‘‘Motor vehicle air 

conditioning (newly manufactured 

nonroad self-propelled agricultural 

machinery)’’, ‘‘Motor vehicle air 

conditioning (newly manufactured 

nonroad compact equipment)’’, ‘‘Motor 

vehicle air conditioning (newly 

manufactured nonroad construction, 

forestry, and mining equipment)’’, and 

‘‘Motor vehicle air conditioning (newly 

manufactured nonroad commercial 

utility vehicles)’’; and 

■ b. Removing ‘‘Note 1’’. 

The revisions and additions read as 

follows: 


khammond on DSKJM1Z7X2PROD with RULES
Federal Register / Vol. 87, No. 86 / Wednesday, May 4, 2022 / Rules and Regulations 26293 

APPENDIX B TO SUBPART G OF PART 82—SUBSTITUTES SUBJECT TO USE RESTRICTIONS AND UNACCEPTABLE

SUBSTITUTES REFRIGERANTS—ACCEPTABLE SUBJECT TO USE CONDITIONS

Application Substitute Decision Conditions Comments 

*******

CFC–12 Automobile 

Motor Vehicle Air 

Conditioning (New 

equipment in passenger cars and 

light-duty trucks 

only).

HFO-1234yf as a substitute for CFC–12.Acceptable subject to 

use conditions.

As of June 3, 2022: .......................................

(1) HFO-1234yf MVAC systems must adhere to all of the safety requirements of 

SAE J639,4 7 including requirements for a 

flammable refrigerant warning label, highpressure compressor cutoff switch and 

pressure relief devices, and unique fittings. For connections with refrigerant 

containers for use in professional servicing, use fittings must be consistent with 

SAE J2844.6 7 For connections with small 

refrigerant cans for consumer or professional use, use fittings must have a diameter of 0.5 inches, a thread pitch of 16 

thread per inch, and a left thread direction, consistent with SAE J2844..

(2) Manufacturers must conduct Failure 

Mode and Effect Analysis (FMEA) as provided in SAE J1739.5 7 Manufacturers 

must keep the FMEA on file for at least 

three years from the date of creation.

Additional training for service technicians 

recommended. 

HFO-1234yf is also known as 2,3,3,3- 

tetrafluoro-prop-1-ene (CAS. Reg. No. 

754–12–1). 

Consistent with EPA’s Significant New Use 

Rule for HFO-1234yf under the Toxic 

Substances Control Act, commercial 

users or consumers can only recharge 

MVAC systems with HFO-1234yf where 

the original charging of the system with 

HFO-1234yf was done by the original 

equipment manufacturer. 

Refrigerant containers of HFO-1234yf for 

use in professional servicing are from 5 

lbs. (2.3 L) to 50 lbs. (23 L) in size. 

Requirements for handling, storage, and 

transportation of compressed gases apply 

to this refrigerant, such as regulations of 

the Occupational Safety and Health Administration at 29 CFR 1910.101 and the 

Department of Transportation’s requirements at 49 CFR 171–179. 

Requirements for handling, storage, and 

transportation of compressed gases apply 

to this refrigerant, such as regulations of 

the Occupational Safety and Health Administration at 29 CFR 1910.101 and the 

Department of Transportation’s requirements at 49 CFR 171–179. 

*******

Motor vehicle air conditioning (newly 

manufactured medium-duty passenger vehicles).

HFO-1234yf ............... Acceptable subject to 

use conditions.

As of June 3, 2022: 

(1) HFO-1234yf MVAC systems must adhere to all of the safety requirements of 

SAE J639,4 7 including requirements for a 

flammable refrigerant warning label, highpressure compressor cutoff switch and 

pressure relief devices, and unique fittings. For connections with refrigerant 

containers for use in professional servicing, use fittings must be consistent with 

SAE J2844.6 7 For connections with small 

refrigerant cans for consumer or professional use, use fittings must have a diameter of 0.5 inches, a thread pitch of 16 

thread per inch, and a left thread direction, consistent with SAE J2844.

(2) Manufacturers must conduct Failure 

Mode and Effect Analysis (FMEA) as provided in SAE J1739.5 7 Manufacturers 

must keep the FMEA on file for at least 

three years from the date of creation.

Additional training for service technicians 

recommended. 

HFO-1234yf is also known as 2,3,3,3- 

tetrafluoro-prop-1-ene (CAS. Reg. No. 

754–12–1). 

Consistent with EPA’s Significant New Use 

Rule for HFO-1234yf under the Toxic 

Substances Control Act, commercial 

users or consumers can only recharge 

MVAC systems with HFO-1234yf where 

the original charging of the system with 

HFO-1234yf was done by the original 

equipment manufacturer. 

Motor vehicle air conditioning (newly 

manufactured 

heavy-duty pickup 

trucks).

HFO-1234yf ............... Acceptable subject to 

use conditions.

As of June 3, 2022: 

(1) HFO-1234yf MVAC systems must adhere to all of the safety requirements of 

SAE J639,4 7 including requirements for a 

flammable refrigerant warning label, highpressure compressor cutoff switch and 

pressure relief devices, and unique fittings. For connections with refrigerant 

containers for use in professional servicing, use fittings must be consistent with 

SAE J2844.6 7 For connections with small 

refrigerant cans for consumer or professional use, use fittings must have a diameter of 0.5 inches, a thread pitch of 16 

thread per inch, and a left thread direction, consistent with SAE J2844.

(2) Manufacturers must conduct Failure 

Mode and Effect Analysis (FMEA) as provided in SAE J1739.5 7 Manufacturers 

must keep the FMEA on file for at least 

three years from the date of creation.

Additional training for service technicians 

recommended. 

HFO-1234yf is also known as 2,3,3,3- 

tetrafluoro-prop-1-ene (CAS No. 754–12– 

1). 

Consistent with EPA’s Significant New Use 

Rule for HFO-1234yf under the Toxic 

Substances Control Act, commercial 

users or consumers can only recharge 

MVAC systems with HFO-1234yf where 

the original charging of the system with 

HFO-1234yf was done by the original 

equipment manufacturer. 


khammond on DSKJM1Z7X2PROD with RULES
26294 Federal Register / Vol. 87, No. 86 / Wednesday, May 4, 2022 / Rules and Regulations 

APPENDIX B TO SUBPART G OF PART 82—SUBSTITUTES SUBJECT TO USE RESTRICTIONS AND UNACCEPTABLE

SUBSTITUTES REFRIGERANTS—ACCEPTABLE SUBJECT TO USE CONDITIONS—Continued 

Application Substitute Decision Conditions Comments 

Motor vehicle air conditioning (newly 

manufactured complete heavy-duty 

vans only).

HFO-1234yf ............... Acceptable subject to 

use conditions.

As of June 3, 2022: 

(1) HFO-1234yf MVAC systems must adhere to all of the safety requirements of 

SAE J639,4 7 including requirements for a 

flammable refrigerant warning label, highpressure compressor cutoff switch and 

pressure relief devices, and unique fittings. For connections with refrigerant 

containers for use in professional servicing, use fittings must be consistent with 

SAE J2844.6 7 For connections with small 

refrigerant cans for consumer or professional use, use fittings must have a diameter of 0.5 inches, a thread pitch of 16 

thread per inch, and a left thread direction, consistent with SAE J2844.

(2) Manufacturers must conduct Failure 

Mode and Effect Analysis (FMEA) as provided in SAE J1739.5 7 Manufacturers 

must keep the FMEA on file for at least 

three years from the date of creation.

Additional training for service technicians 

recommended. 

HFO-1234yf is also known as 2,3,3,3- 

tetrafluoro-prop-1-ene (CAS No. 754–12– 

1). 

HFO-1234yf is acceptable for complete 

heavy-duty vans. Complete heavy-duty 

vans are not altered by a secondary or 

tertiary manufacturer. 

Consistent with EPA’s Significant New Use 

Rule for HFO-1234yf under the Toxic 

Substances Control Act, commercial 

users or consumers can only recharge 

MVAC systems with HFO-1234yf where 

the original charging of the system with 

HFO-1234yf was done by the original 

equipment manufacturer. 

Motor vehicle air conditioning (newly 

manufactured 

nonroad agricultural 

tractors with greater 

than 40 horsepower).

HFO-1234yf ............... Acceptable subject to 

use conditions.

As of June 3, 2022: 

(1) Systems must adhere to all of the safety 

requirements of SAE J639,4 7 including requirements for a flammable refrigerant 

warning label, high-pressure compressor 

cutoff switch and pressure relief devices, 

and unique fittings. For connections with 

refrigerant containers for use in professional servicing, use fittings must be consistent with SAE J2844.6 7 For connections with small refrigerant cans for consumer or professional use, use fittings 

must have a diameter of 0.5 inches, a 

thread pitch of 16 thread per inch, and a 

left thread direction, consistent with SAE 

J2844.

(2) Manufacturers must conduct Failure 

Mode and Effect Analysis (FMEA) as provided in SAE J1739.5 7 Manufacturers 

must keep the FMEA on file for at least 

three years from the date of creation.

Additional training for service technicians 

recommended. 

HFO-1234yf is also known as 2,3,3,3- 

tetrafluoro-prop-1-ene (CAS No. 754–12– 

1). 

Consistent with EPA’s Significant New Use 

Rule for HFO-1234yf under the Toxic 

Substances Control Act, commercial 

users or consumers can only recharge 

MVAC systems with HFO-1234yf where 

the original charging of the system with 

HFO-1234yf was done by the original 

equipment manufacturer. 

Motor vehicle air conditioning (newly 

manufactured 

nonroad self-propelled agricultural 

machinery).

HFO-1234yf ............... Acceptable subject to 

use conditions.

As of June 3, 2022: 

(1) HFO-1234yf MVAC systems must adhere to all of the safety requirements of 

SAE J639,4 7 including requirements for a 

flammable refrigerant warning label, highpressure compressor cutoff switch and 

pressure relief devices, and unique fittings. For connections with refrigerant 

containers for use in professional servicing, use fittings must be consistent with 

SAE J28446 7 For connections with small 

refrigerant cans for consumer or professional use, use fittings must have a diameter of 0.5 inches, a thread pitch of 16 

thread per inch, and a left thread direction, consistent with SAE J2844.

(2) Manufacturers must conduct Failure 

Mode and Effect Analysis (FMEA) as provided in SAE J1739.5 7 Manufacturers 

must keep the FMEA on file for at least 

three years from the date of creation.

Additional training for service technicians 

recommended. 

HFO-1234yf is also known as 2,3,3,3- 

tetrafluoro-prop-1-ene (CAS No. 754–12– 

1). 

Consistent with EPA’s Significant New Use 

Rule for HFO-1234yf under the Toxic 

Substances Control Act commercial users 

or consumers can only recharge MVAC 

systems with HFO-1234yf where the original charging of the system with 

HFO-1234yf was done by the original 

equipment manufacturer. 


khammond on DSKJM1Z7X2PROD with RULES
Federal Register / Vol. 87, No. 86 / Wednesday, May 4, 2022 / Rules and Regulations 26295 

APPENDIX B TO SUBPART G OF PART 82—SUBSTITUTES SUBJECT TO USE RESTRICTIONS AND UNACCEPTABLE

SUBSTITUTES REFRIGERANTS—ACCEPTABLE SUBJECT TO USE CONDITIONS—Continued 

Application Substitute Decision Conditions Comments 

Motor vehicle air conditioning (newly 

manufactured 

nonroad compact 

equipment).

HFO-1234yf ............... Acceptable subject to 

use conditions.

As of June 3, 2022: 

(1) HFO-1234yf MVAC systems must adhere to all of the safety requirements of 

SAE J639,4 7 including requirements for a 

flammable refrigerant warning label, highpressure compressor cutoff switch and 

pressure relief devices, and unique fittings. For connections with refrigerant 

containers for use in professional servicing, use fittings must be consistent with 

SAE J2844.6 7 For connections with small 

refrigerant cans for consumer or professional use, use fittings must have a diameter of 0.5 inches, a thread pitch of 16 

thread per inch, and a left thread direction, consistent with SAE J2844).

(2) Manufacturers must conduct Failure 

Mode and Effect Analysis (FMEA) as provided in SAE J1739.5 7 Manufacturers 

must keep the FMEA on file for at least 

three years from the date of creation.

Additional training for service technicians 

recommended. 

HFO-1234yf is also known as 2,3,3,3- 

tetrafluoro-prop-1-ene (CAS No. 754–12– 

1). 

Consistent with EPA’s Significant New Use 

Rule for HFO-1234yf under the Toxic 

Substances Control Act (80 FR 37166, 

June 30, 2015), commercial users or consumers can only recharge MVAC systems 

with HFO-1234yf where the original 

charging of the system with HFO-1234yf 

was done by the original equipment manufacturer. 

Motor vehicle air conditioning (newly 

manufactured 

nonroad construction, forestry, and 

mining equipment).

HFO-1234yf ............... Acceptable subject to 

use conditions.

As of June 3, 2022: 

(1) HFO-1234yf MVAC systems must adhere to all of the safety requirements of 

SAE J639,4 7 including requirements for a 

flammable refrigerant warning label, highpressure compressor cutoff switch and 

pressure relief devices, and unique fittings. For connections with refrigerant 

containers for use in professional servicing, use fittings must be consistent with 

SAE J2844.6 7 For connections with small 

refrigerant cans for consumer or professional use, use fittings must have a diameter of 0.5 inches, a thread pitch of 16 

thread per inch, and a left thread direction, consistent with SAE J2844.

(2) Manufacturers must conduct Failure 

Mode and Effect Analysis (FMEA) as provided in SAE J1739.5 7 Manufacturers 

must keep the FMEA on file for at least 

three years from the date of creation.

Additional training for service technicians 

recommended. 

HFO-1234yf is also known as 2,3,3,3- 

tetrafluoro-prop-1-ene (CAS No. 754–12– 

1). 

Consistent with EPA’s Significant New Use 

Rule for HFO-1234yf under the Toxic 

Substances Control Act, commercial 

users or consumers can only recharge 

MVAC systems with HFO-1234yf where 

the original charging of the system with 

HFO-1234yf was done by the original 

equipment manufacturer. 

Motor vehicle air conditioning (newly 

manufactured 

nonroad commercial 

utility vehicles).

HFO-1234yf ............... Acceptable subject to 

use conditions.

As of June 3, 2022: 

(1) HFO-1234yf MVAC systems must adhere to all of the safety requirements of 

SAE J639,4 7 including requirements for a 

flammable refrigerant warning label, highpressure compressor cutoff switch and 

pressure relief devices, and unique fittings. For connections with refrigerant 

containers for use in professional servicing, use fittings must be consistent with 

SAE J2844.6 7 For connections with small 

refrigerant cans for consumer or professional use, use fittings must have a diameter of 0.5 inches, a thread pitch of 16 

thread per inch, and a left thread direction, consistent with SAE J2844.

(2) Manufacturers must conduct Failure 

Mode and Effect Analysis (FMEA) as provided in SAE J1739.5 7 Manufacturers 

must keep the FMEA on file for at least 

three years from the date of creation.

Additional training for service technicians 

recommended. 

HFO-1234yf is also known as 2,3,3,3- 

tetrafluoro-prop-1-ene (CAS No. 754–12– 

1). 

Consistent with EPA’s Significant New Use 

Rule for HFO-1234yf under the Toxic 

Substances Control Act, commercial 

users or consumers can only recharge 

MVAC systems with HFO-1234yf where 

the original charging of the system with 

HFO-1234yf was done by the original 

equipment manufacturer. 

4SAE, J639 NOV2020, Safety and Design Standards for Motor Vehicle Refrigerant Vapor Compression Systems, Revised November 2020. 

5SAE, J1739 JAN2021, Potential Failure Mode and Effects Analysis (FMEA) Including Design FMEA, Supplemental FMEA–MSR, and Process FMEA, Revised 

January 2021. 6SAE, J2844 JAN2013, R–1234yf (HFO-1234yf) New Refrigerant Purity and Container Requirements for Use in Mobile Air-Conditioning Systems, Revised January 

2013. 7The Director of the Federal Register approves this incorporation by reference in accordance with 5 U.S.C. 552(a) and 1 CFR part 51. It is available for inspection 

at the EPA and at the National Archives and Records Administration (NARA). Contact EPA at: U.S. EPA’s Air and Radiation Docket; EPA West Building, Room 3334, 

1301 Constitution Ave. NW, Washington DC, 202–566–1742. For information on the availability of this material at NARA, email fr.inspection@nara.gov, or go to: 

www.archives.gov/federal-register/cfr/ibr-locations.html. Available from SAE International (SAE): SAE Customer Service, 400 Commonwealth Drive, Warrendale, PA 

15096–0001; 1–877–606–7323 in the United States or 724–776–4970 outside the United States or in Canada; website: https://www.sae.org/standards. 

* * * * * 

[FR Doc. 2022–08923 Filed 5–3–22; 8:45 am] 

BILLING CODE 6560–50–P 


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