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COMMISSION OFTHEEUROPEAN COMMUNITIES
COM(77)387 final
Brussels.8August1977
A,■■-~•£■■■■■3
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Proposaifora
COUNCILRECOMMENDATION
onthefluorocarbons intheenvironment
(submittedbytheCommissiontotheCouncil)
C0MC77)387final

EXPLANATORY MEMORANDUM
A.INTRODUCTION .
1. .Transport phenomenainthestratosphere
1.1.RowlandandMolina'stheory,publishedin1974,statesonthe
basisofstudiesusingaone-dimensional model-thattheozone
layerofthestratosphere isreducedbythechlorofluoromethanes
Ft11andF-12.AstheCompoundsareverystableandarenot
destroyedinthetroposphere,aproportion ofthemmigrateinto
.thestratosphere wheretheyaredecomposed byshort-waveradiation
toliberatechlorineatoms.Thesearethenavailabletoreact
withtheozoneinachainreactionthusreducingtheozone
concentration andhenceincreasing theamountofshort-wave
<*
radiationreachingtheearth'ssurface.Whilethecalculations
madebyRowlandandMolinahavebeenconfirmed byother
researchers,theyalluseessentially thesamebasicdataand
similaronedimensional models.
1.2.Ithasnotbeenpossibletomeasureexperimentally thereduction
oftheozonelayerattributable tochlorofluoromethanes orto
othernaturalorman-madepollutants .Thenaturalvariations
intheozoneconcentration aremuchgreaterthanmightbe
expectedtoresultfromtheactionofsuchcompoundsatleastin
theshortterm(e.g.thedailyvariations ataveragelatitudes
are+_25%>.
1.3.InSeptember 1976theAmericanNationalAcademyofSciences
published areportconcludingthatthereisstillconsiderable
uncertainty aboutthescaleofthepotentialeffectesofF-11and
F-12ontheozonelayer.Theirpredictions are,however,that
ifemissions weretocontinueatthe1973level,therewouldbe
anultimateozonereductionofabout7%,andthat,atall
events,thisreductionwouldbebetween2-207..Inparticular
thisreductionwillreach3.5%afterroughly50years.
••©/•••

2.
1.4.Thereisacertainamount-ofcontroversy onthetheoryof
RowlandandMolina.Themainproblemsconcern:
-theinadequacyofaone-dimensional transport model;
-insufficient knowledgeaboutatmospheric andstratospheri c
processes,especiallyalltheessentialchemicalreactions;
thepossibleexistenceinthetroposphere ofamechanism
whichwouldtrapF-11andF-12.
1.5.Variousresearchprogrammes areynderwayintheMembercountries,
especiallyintheFederalRepublicofGermany,Franceandthe
UnitedKingdom.
Theseprogrammes areessentially concernedwith:
themeasurement fromtheearthandinsituoftheconcentrations
oftheminoratmospheric constituents ;
laboratory studiesonspectralproperties andreactionsrates;
thedevelopment ofmathematical models.
/
Inviewofthedesirability ofaCommunityprogrammeinthis
field,differentmeetingsofnationalexpertsorganizedbythe
Commission wereheldinBrusselsto'investigate thepossibilities .
Therewasgeneralagreement ontheneedtodevelopCommunity
thinkingonthescientific .aspectsandonresearch andtoensure
that,asfaraspossible,researchinmembercountriesshould
formacoherent,ifnotcompletely comprehensive ,programme.
Thepossibility ofconcertedactionorlimitedsupportunderthe
indirectactionprogramme'is-beingconsidered.
1.6.Aninternational meeting -undertheauspicesoftheUnitedNations
Environment ProgrammewasheldinWashingtonbetween1-9March1977
onthestratosphericozone layerandthevariousinfluences uponit.
Therewasalargemeasureofagreementthatdepletionofthe
ozonelayerbyemissionsfromthecurrentgenerationofaircraft
emissionsisprobablyneglibible,butthatfluorocarbons emissions
areamatterofconcern.Themeetingdidnotdiscussactionsto
controlemissionsofpotentialdamagingsubstancesintothe
atmosphere .However,itconsidered that'itwouldbedesirable
toinvestigateallpossiblemethodsforsuch-controlandtheir
consequences .

3
Themeeting defined gaps andmade recommendations for aWorld
Plan ofAction ontheozone layer .
2. Effects onhealth andtheenvironment
2.1. Increased ultraviolet radiation canbeassociated with :
.i- ■'increased incidence ofmalignant melanoma ;
- increased incidence ofsome skin carcinomas (basal and
squamous-cel Itypes );
- various effects onplants andonanimals .
Relationships between non-melanoma andUVradiation arenot
independent ofsocial class ,colour ofskin ,etc .
2.2.2 Given theband ofintense absorption bythe fluorocarbons
intheinfrared region ,onecould expect areduction in
theinfrared flux released tospace bytheearth-atmosphere
system .This'would give rise toanincrease inthe
temperature oftheearth 'ssurface andtheatmosphere
(greenhouse effect ).
Thepossible implications ofthegreenhouse effect onclimate were
investigated byRamenathan in1975 .Theresults ofthe
studies show that ifthe chlorof luoromethanes continued tobe
released atthe 1973 level ,atthesteady-state thetemperature
oftheearth would increase byabout 1°K.Thesignificance of
this figure hasyettobeevaluated against other possible
influences onclimate such asincreases inCO2concentration ,
changes incloud cover andconcentration ofparticulates
intheatmosphere .

Manufacture -économieaspects
Approximately 40%oftheworldoutputofchlorofluoromethanes
isconsumedinEurope(approximately equaltoUSconsumption )
andamajorpartofthis(70to80%)isusedbytheaerosol
industryparticularly indomesticorpersonalhygieneproducts.
Furthermore,refrigeration andair-conditioning equipmentaccount
forbetween10and20%;theremainderismainlyusedasan
expansionagentinthemanufacture ofpolyurethane foams.
Table1showstheavailabledataonproductionandconsumptionin
1974ofF-11andF-12aerosolpropellants intheMemberStatesof
theEuropeanCommunity.TheManufacturing ChemistsAssociation
hasalsocalculatedthat,between1930and1975,3,450x10^
tonnesofF-11and5,080x10^tonnesofF-12wereproducedin
theworld,85%and87%ofwhichrespectively werereleased,
i.e.2,930x10^tonnesofF-11and4,420x10^tonnesofF-12.
Between1967and1973productionofthesetwocompoundsincreased
bysome10%peryearwhereasin1974theincreaseover1973was
5%.TheMCAhasalsofoundthatin1975productiondecreased
bysome15%over1974.
Whereas-asregardsozonereductionbythedirectactionof
industrialchemicals-thegreatestattentionhasbeendirected
totheF-11andF-12CFM's,otherhalogenated hydrocarbons,such
ascarbontetrachloride,methychloroform andchlorofluoromethane
F22,andnaturallyarisingcompoundsmayneedtobeinvestigated .
Theindustryisintheprocessofinvestigating thepossibilities
ofusingotherhalogenated andnon-halogenated hydrocarbons .It
isclearthatproofwillhavetobefurnishedthatanysubstitute
compoundsaresafe,.asregardsnotonlytheozonelayerbutalso
thedirectrisktomanandenvironment.Asregardsaerosols,the
possibilities ofusingmechanicalsystemsshouldnotbe
overlooked .

Asregardsemployment,studieshavebeenundertakeninseveral
Membercountriesofthenumberofjobswhicharerelatedeither
directlyorindirectly,tosomeaspectoffluorocarbon
manufacture orusage.IntheUnitedKingdom,forexample,this
figureisputat50,000.InFrance,some20,000jobsare
associatedwithaerosolproduction anduse.Theimpacton
employmentofusing someotherproductinplaceofF-11
andF-12willdependon:
a)thetimescalewithinwhichsuchsubstitution ismade
(animmediatechangeover wouldhaveconsiderably more
disruptiveeffectsthanachangeover whichtakesplace
overanextendedperiod)and
b)thenatureofthesubstitutionitself(mechanical systems,
forexample,wouldinvolvegreaterchangesinindustrial
structurethanthesubstitution ofF-11andF-12bysome
otherhalogenated hydrocarbon).
Acomprehensive study(whichisnowavailable)forthe
Netherlands showsthatifabanonexistingfluorocarbon
propellants isimposedinthiscountryinabout18months,
theimmediateresultwouldbealossofsomeFls75-80millions
ofaddedvalueperyearandthelossofsome725-950jobs.
Inthecaseofsatisfactory replacement ofnewfluorocarbons
propellants andabanofexistingfluorcarbons propellants
inabout4years,thelossofaddedvaluewouldbereduced
tosomeFls12-16millionsperyearandtheloss'ofsome
200-400jobscouldbeexpected.

6.
B. REGULATIONS OFFLUOROCARBONS
1.'Proposedrégulations inU.S.A.
OnMay11,1977theFoodandDrugAdministration (FDA),
Environmental Protection Agency(EPA)andConsumerProduct
SafetyCommission (CPSC)proposed athree-steptimetablefor
thephaseoutofnon-essential usesofchlorofluorocarbons as
propellants inaerosolproducts.
Thisbanisexpectedtoeliminate 60%ofthechlorofluorocarbon
emissionsintheU.S.A.Theprimaryaffectedproductsare
deodorants,antiperspirants,hairsprays,colognesandfragrances,
regulatedbyFDA;andhouseholdcleanersandairfresheners,
regulatedbyCPSC."Theproposedthree-steptimetablefor
eliminating chlorofluorocarbons aspropellants isasfollows:
-beforeOctober15,1978nccompanymaymanufacture
chlorofluorocarbons foruseinaerosolproducts;.
/
beforeDecember15,1978,companies muststopusingthese
chemicals aspropellants inaerosolproducts;
-beforeApril15,1979productscontainingchlorofluorocarbons
propellants maynotbeintroducedintocommerce.Products
alreadyonthemarketonthisdatewillnothavetobe
recalled.
Exemptedfromtheproposedbanwillbeessentialaerosol
productssuchasproductsintendedformedicaluse.
Theseproposedregulations arepublishedintheFederalRegister
May13,1977.Hearingprocedures areplannedinthesummer1977.

TheEEC'sposition
AttheEECLevel,differentmeetingsofnationalexperts
havebeenheldthisyear.
InJanuary20-21theCommissioncalledforameetingofnational
expertstodiscusstheproblemoftheimpactoffluorocarbons
onmanandtheenvironment withaviewtoreachinganEC
policyonthismatter*
OnFebruary17andApril14,1977meetingsoftheWorkingParty
ontheEnvironment oftheCouncilhavebeenheldwiththeaimof
establishing anEECcommonposition.TheWorkingPartyhad
aworkingdocumentpresentedbytheCommissiondepartments at
theirdisposalfortheseconsultations .
MeetinginWashingtonApril26-281977,atgovernmentleveland
attheinvitationoftheU.S.Environmental Protection Agency,the
world'smajorproducersandconsumersofchlorofluorocarbons
concludedthatthequestionofwhetherregulatoryactionis
neededtocounteracttheozonedepletionbythesechemicals
isonetowhichnoeasyanswercanbegiven.Mostdelegations
feltthatalthoughcurrentknowledgeisadequatetogivecausefor
concernabouttheeffectsoftheuseofchlorofluorocarbons on
theozonelayer,muchremainedtobelearnedespeciallyasfaras
atmospheric physicsandchemistryareconcernedandtheimpact
ofultra-violet radiations onhealthandtheecosystems.
Theyfeltthattherewasaneedformoreresearchtoclarify
someoftheuncertainties,andthatthesecondhalfof1978
wouldbeagoodtimetoreviewthefluorocarbons problem.
InvitedtotheWashingtonConference,theCommissionwasable
topresenttotheparticipating countriesthecommonposition
whichtheMemberStatesagreedupon.
Thiscommonpositionisthebasisofthepresentproposal
forarecommendation oftheCouncil.

TASLE1
Trodr.c-;icucfF-11gadJP~j2.£a1974(tenses)ar.dconsumptionofthesechesicalsinaerosols
r-»fc ïr l.MX NL UK
Production 105000 20000 45000 n.a29000.46000
Iraport/Exporî -35Q0Q+3155+424<3"--35000"2920n,a n.a •15000 n.a
Aérosol
consumption 45000
(68X)n.a*797:
(4a£h34500
(77%)29400
(70%)n.a n.a10850'39260
(77%)(n.a)
Sources:OCEDandother
Ii3.ThetotalproductionInWesternEuropecanbeestfma^dat360000tonnes.

Proposaifora
COUNCL"RECOMHENDATION
onthefLuorocarbons intheenvironment
TheCounciloftheEuropeanCommunities,
HavingregardtotheTreatyestablishing theEuropeanEconomicCommunity,
Havingregardtotheproposalforrecommendation fromtheCommission,
HavingregardtotheOpinionoftheEuropeanParliament,
HavingregardtotheOpinionoftheEconomicandSocialCommittees,
Whereas,asstatedintheResolutionoftheCounciloftheEuropeanCommunities
andoftheRepresentatives oftheGovernmentsoftheMembersStatesmeetingwith
theCouncilof17May1977onthecontinuation andimplementation of
aEuropeanCommunitypolicyandactionprogrammeontheenvironment (1),it
isnecessarytocarryoutastandingreviewatCommunitylevel
oftheenvironmental impactofchemicals;
Whereastheproblemsoftheeffectsoffluorocarbons ontheozone
layerandtherelationship betweenultravioletradiationandhealthare
currentlyunderevaluationatinternational level;whereasalthougha
definitiveassessmentoftheimpactoffluorocarbons onmanandthe
environmentisnotyetpossiblethecorrelatedproblems
nevertheless needtobeconsidered;-
(1)0^.Ντ.ε139,13.6.1977,ρ.1
••/«ta

WhereasMemberStatesarecarryingoutnationalresearchonthe
problemofthepossiblethreatoffluorocarbonsontheozonelayer;
Whereasesregardstheeconomicandsocialimpactofpossiblemeasures
toregulatefluorocarbonsandaerosols,theCommissionisundertaking
acomprehensive studyonaCommunitywidebasisandwillmakeavailable
theresultsofitsstudyinthesecondhalfof1978;
WhereastheCommission inthesecondhalfof1978willevaluatethe
effectsoffluorocarbons onmanandtheenvironment withaviewto
reachingaCommunitypolicyinthelightoftheinformation then
available;
Whereas,withinthecontextoftheproperfunctioning oftheEuropean
EconomicCommunity,certainMembersStatesonthebasisofdata
presentlyavailablearecontemplating regulatorymeasures,
Recommends theMembersStates:
1)topursueandintensifytheactionsalreadyundertakenfora
cooperation onaCommunitybasisinplanningthisresearchandin
makingavailableandinterpreting theresults;
2)totakeimmediatestepstoencourageall elementsoftheaerosol
andplasticfoamindustriesusingchlorofluoromethanes F-11
andF-12tostepupresearchintoalternativeproductsandtopromote
thedevelopmentofalternativeapplicationdevices;

3.
3)totakeimmediatestepstoencourageindustryandusers
ofequipmentcontainingChlorofluoromethanes F-11andF-12to
eliminatetheleakageofthesechemicals;
4)totakeat'lappropriatemeasurestoassurethattherewillnolonger
beanincreaseinproductioncapacitysituatedwithintheCommunity
inrespecttotheChlorofluoromethanes F-11andF-12.