CELEX: 51977PC0387
Language: en
Date: 1977-08-08
Title: Proposal for a COUNCIL RECOMMENDATION on the fluorocarbons in the environment (submitted by the Commission to the Council)

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COM (77) 387
Vol. 1977/0127
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 ---pagebreak--- COMMISSION OF THE EUROPEAN COMMUNITIES
                                          COM(77)387 final
                                          Brussels . 8 August 1977
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                             Proposai for a
                         COUNCIL RECOMMENDATION
                on the fluorocarbons in the environment
                ( submitted by the Commission to the Council )
 C0MC77 ) 387 final
 ---pagebreak---                  EXPLANATORY MEMORANDUM
A.        INTRODUCTION.
1.      . Transport phenomena in the stratosphere
1.1 .     Rowland and Molina 's theory , published in 1974 , states on the
          basis of studies using a one-dimensional model - that the ozone
           layer of the stratosphere is reduced by the chlorof luoromethanes
          F t 11 and F-12 .  As the Compounds are very stable and are not
          destroyed in the troposphere , a proportion of them migrate into
      .   the stratosphere where they are decomposed by short-wave radiation
          to liberate chlorine atoms .    These are then available to react
          with the ozone in a chain reaction thus reducing the ozone
           concentration and hence increasing the amount of short-wave
                                                                               < *
           radiation reaching the earth 's surface .  While the calculations
          made by Rowland and Molina have been confirmed by other
           researchers , they all use essentially the same basic data and
           similar one dimensional models .
1.2 .      It has not been possible to measure experimentally the reduction
          of the ozone layer attributable to chlorof luoromethanes or to
          other natural or man-made pollutants .     The natural variations
           in the ozone concentration are much greater than might be
          expected to result from the action of such compounds at least in
          the short term ( e.g. the daily variations at average latitudes
           are +_ 25 % >.
1.3 .      In September 1976 the American National Academy of Sciences
          published a report concluding that there is still considerable
          uncertainty about the scale of the potential effectes of F-11 and
           F-12 on the ozone layer .   Their predictions are , however , that
           if emissions were to continue at the 1973 level , there would be
           an ultimate ozone reduction of about 7 % , and that , at all
           events , this reduction would be between 2 - 20 7..   In particular
           this reduction will reach 3.5 % after roughly 50 years .
                                                                 • • © / • • •
 ---pagebreak---                                2.
1.4 . There is a certain amount-of controversy on the theory of
      Rowland and Molina .    The main problems concern :
      -    the inadequacy of a one-dimensional transport model ;
      -    insufficient knowledge about atmospheric and stratospheri c
           processes , especially all the essential chemical reactions ;
           the possible existence in the troposphere of a mechanism
           which would trap F-11 and F-12 .
1.5 . Various research programmes are ynder way in the Member countries ,
      especially in the Federal Republic of Germany , France and the
      United Kingdom .
      These programmes are essentially concerned with :
          the measurement from the earth and in situ of the concentrations
           of the minor atmospheric constituents ;
           laboratory studies on spectral properties and reactions rates ;
          the development of mathematical models .
                                                                           /
      In view of the desirability of a Community programme in this
      field , different meetings of national experts organized by the
      Commission were held in Brussels to' investigate the possibilities .
      There was general agreement on the need to develop Community
      thinking on the scientific . aspects and on research    and to ensure
      that , as far as possible , research in member countries should
      form a coherent , if not completely comprehensive , programme .
      The possibility of concerted action or limited support under the
      indirect action programme 'is - being considered .
1.6.  An international meeting - under the auspices of the United Nations
      Environment Programme was held in Washington between 1-9 March 1977
      on the stratosphericozone layer and the various influences upon it .
      There was a large measure of agreement that depletion of the
      ozone layer by emissions from the current generation of aircraft
      emissions is probably neglibible , but that f luorocarbons emissions
      are a matter of concern .    The meeting did not discuss actions to
      control emissions of potential damaging substances into the
      atmosphere .   However , it considered that' it would be desirable
      to investigate all possible methods for such - control and their
      consequences .
 ---pagebreak---                               3
        The meeting defined gaps and made recommendations for a World
        Plan of Action on the ozone layer .
2.      Effects on health and the environment
2.1 .   Increased ultraviolet radiation can be associated with :
      . i- ■ ' increased incidence of malignant melanoma ;
        -      increased incidence of some skin carcinomas ( basal and
               squamous-cel I types );
        -      various effects on plants and on animals .
         Relationships between non-melanoma and UV radiation are not
         independent of social class , colour of skin , etc .
2.2.2    Given the band of intense absorption by the f luorocarbons
         in the infrared region , one could expect a reduction in
         the infrared flux released to space by the earth-atmosphere
         system . This'would give rise to an increase in the
        temperature of the earth 's surface and the atmosphere
         ( greenhouse effect ).
        The possible implications of the greenhouse effect on climate were
         investigated by Ramenathan in 1975 . The results of the
         studies show that if the chlorof luoromethanes continued to be
         released at the 1973 level , at the steady-state the temperature
        of the earth would increase by about 1° K. The significance of
         this figure has yet to be evaluated against other possible
         influences on climate such as increases in CO2 concentration,
         changes in cloud cover and concentration of particulates
         in the atmosphere .
 ---pagebreak---  Manufacture -   économie    aspects
 Approximately 40% of the world output of chlorof luoromethanes
  is consumed in Europe ( approximately equal to US consumption )
 and a major part of this ( 70 to 80% ) is used by the aerosol
 industry particularly in domestic or personal hygiene products .
 Furthermore , refrigeration and air-conditioning equipment account
 for between 10 and 20 % ; the remainder is mainly used as an
 expansion agent in the manufacture of polyurethane foams .
 Table 1 shows the available data on production and consumption in
 1974 of F-11 and F-12 aerosol propellants in the Member States of
 the European Community .    The Manufacturing Chemists Association
 has also calculated that , between 1930 and 1975 , 3,450 x 10^
 tonnes of F-11 and 5,080 x 10^ tonnes of F-12 were produced in
 the world, 85 % and 87% of which respectively were released ,
 i.e. 2,930 x 10^ tonnes of F-11 and 4,420 x 10^ tonnes of F-12 .
 Between 1967 and 1973 production of these two compounds increased
 by some 10% per year whereas in 1974 the increase over 1973 was
 5% .  The MCA has also found that in 1975 production decreased
 by some 15% over 1974 .
 Whereas -as regards ozone reduction by the direct action of
 industrial chemicals- the greatest attention has been directed
 to the F-11 and F-12 CFM 's , other halogenated hydrocarbons , such
 as carbon tetrachloride , methychloroform and chlorof luoromethane
 F22 , and naturally arising compounds may need to be investigated .
 The industry is in the process of investigating the possibilities
 of using other halogenated and non-halogenated hydrocarbons .      It
  is clear that proof will have to be furnished that any substitute
  compounds are safe , .as regards not only the ozone layer but also
the direct risk to man and environment .     As regards aerosols , the
 possibilities of using mechanical systems should not be
 overlooked .
 ---pagebreak--- As regards employment , studies have been undertaken in several
Member countries of the number of jobs which are related either
directly or indirectly , to some aspect of fluorocarbon
manufacture or usage . In the United Kingdom , for example , this
figure is put at 50,000 . In France , some 20,000 jobs are
associated with aerosol production and use . The impact on
employment of     using      some other product in place of F-11
and F-12 will depend on :
a)   the time scale within which such substitution is made
     ( an immediate changeover would have considerably more
     disruptive effects than a changeover which takes place
     over an extended period ) and
b)   the nature of the substitution itself ( mechanical systems ,
     for example , would involve greater changes in industrial
     structure than the substitution of F-11 and F-12 by some
     other halogenated hydrocarbon ).
A comprehensive study ( which is now available ) for the
Netherlands shows that if a ban on existing fluorocarbon
propellants is imposed in this country in about 18 months ,
 the immediate result would be a loss of some Fls 75-80 millions
of added value per year and the loss of some 725-950 jobs .
 In the case of satisfactory replacement of new f luorocarbons
propellants and a ban of existing fluorcarbons propellants
 in about 4 years , the loss of added value would be reduced
to some Fls 12-16 millions per year and the loss' of some
 200-400 jobs could be expected .
 ---pagebreak---                         6.
B.   REGULATIONS OF FLUOROCARBONS
1. ' Proposed régulations in U.S. A.
     On May 11 , 1977 the Food and Drug Administration ( FDA ),
     Environmental Protection Agency ( EPA ) and Consumer Product
     Safety Commission ( CPSC ) proposed a three-step timetable for
     the phase out of non-essential uses of chlorof luorocarbons as
     propellants in aerosol products .
     This ban is expected to eliminate 60% of the chlorof luorocarbon
     emissions in the U.S.A.     The primary affected products are
     deodorants , antiperspi rants , hair sprays , colognes and fragrances ,
     regulated by FDA ; and household cleaners and air fresheners ,
     regulated by CPSC . " The proposed three-step timetable for
     eliminating chlorof luorocarbons as propellants is as follows :
     -   before October 15 , 1978 nc company may manufacture
         chlorof luorocarbons for use in aerosol products ; .
                                                                /
         before December 15 , 1978 , companies must stop using these
         chemicals as propellants in aerosol products ;
     -   before April 15 , 1979 products containing chlorof luorocarbons
         propellants may not be introduced into commerce . Products
         already on the market on this date will not have to be
         recalled .
     Exempted from the proposed ban will be essential aerosol
     products such as products intended for medical use .
     These proposed regulations are published in the Federal Register
     May 13 , 1977 .  Hearing procedures are planned in the summer 1977 .
 ---pagebreak--- The EEC's position
At the EEC Level , different meetings of national experts
have been held this year .
In January 20-21 the Commission called for a meeting of national
experts to discuss the problem of the impact of f luorocarbons
on man and the environment with a view to reaching an EC
policy on this matter *
On February 17 and April 14 , 1977 meetings of the Working Party
on the Environment of the Council have been held with the aim of
establishing an EEC common position .   The Working Party had
a working document presented by the Commission departments at
their disposal for these consultations .
Meeting in Washington April 26-28 1977, at government level and
at the invitation of the U.S. Environmental Protection Agency , the
world 's major producers and consumers of chlorof luorocarbons
 concluded that the question of whether regulatory action is
needed to counter act the ozone depletion by these chemicals
 is one to which no   easy answer can be given . Most delegations
felt that although current knowledge is adequate to give cause for
 concern about the effects of the use of chlorof luorocarbons on
the ozone layer , much remained to be learned especially as far as
atmospheric physics and chemistry are concerned and the impact
of ultra-violet radiations on health and the ecosystems .
They felt that there was a need for more research to clarify
 some of the uncertainties , and that the second half of 1978
would be a good time to review the f luorocarbons problem .
 Invited to the Washington Conference , the Commission was able
to present to the participating countries the common position
which the Member States agreed upon .
This common position is the basis of the present proposal
 for a recommendation of the Council .
 ---pagebreak---                                                                TASLE    1
              Trodr.c-;icu cf F-11 gad JP~j 2.£a 1974 (tenses ) ar.d consumption of these chesicals in aerosols
                                                                                ïr      l.MX        NL          UK
                                               r-»fc
Production             105000                          20000         45000              n.a        29000.    46000
                        -35Q0Q    +3155    +424<3"-   -35000      " 2920       n, a              • 15000        n.a
Iraport / Exporî                                                                         n.a
Aérosol
  consumption            45000      n.a      *797:     34500         29400     n.a       n.a       10850   ' 39260
                         ( 68X )             (4a£h     ( 77% )         ( 70% )                      (77% )   ( n.a )
Sources : OCED and other
Ii3 . The total production In Western Europe can be estfma^d at 360000 tonnes .
 ---pagebreak---                               Proposai for a
                          COUNCL " RECOMHENDATION
                  on the f Luorocarbons in the environment
The Council of the European Communities ,
Having regard to the Treaty establishing the European Economic Community ,
Having regard to the proposal for recommendation from the Commission ,
Having regard to the Opinion of the European Parliament ,
Having regard to the Opinion of the Economic and Social Committees ,
Whereas , as stated in the Resolution of the Council of the European Communities
and of the Representatives of the Governments of the Members States          meeting with
     the Council of 17 May 1977     on the continuation and implementation of
a European Community policy and action programme on the environment ( 1),it
 is necessary to carry out a standing review at Community level
of the environmental impact of chemicals ;
Whereas the problems of the effects of f luorocarbons on the ozone
layer and the relationship between ultraviolet radiation and health are
currently under evaluation at international level ; whereas although a
definitive assessment of the impact of f luorocarbons on man and the
environment is not yet possible the correlated problems
nevertheless need to be considered ; -
( 1 ) 0 ^. Ντ . ε 139 , 13.6.1977 , ρ . 1
                                                                    • • / « ta
 ---pagebreak---  Whereas Member States are carrying out national research on the
 problem of the possible threat of f luorocarbons on the ozone layer ;
 Whereases regards the economic and social impact of possible measures
 to regulate f luorocarbons and aerosols , the Commission is undertaking
 a comprehensive study on a Community wide basis and will make available
the results of its study in the second half of 1978;
Whereas the Commission in the second half of 1978 will evaluate the
effects of f luorocarbons on man and the environment with a view to
reaching a Community policy in the light of the information then
available ;
Whereas , within the context of the proper functioning    of the European
Economic Community , certain Members States on the basis of data
presently available are contemplating regulatory measures ,
Recommends the Members States :
1)     to pursue and intensify the actions already undertaken for a
       cooperation on a Community basis in planning this research and in
       making available and interpreting the results ;
2)     to take immediate steps to encourageall elements of the aerosol
       and plastic foam industries using chlorof luoromethanes F-11
       and F-12 to step up research into alternative products and to promote
       the development of alternative application devices ;
 ---pagebreak---                                3.
3) to take immediate steps to encourage industry and users
   of equipment containing Chlorof luoromethanes F-11 and F-12 to
   eliminate the leakage of these chemicals ;
4) to take at'l appropriate measures to assure that there will no longer
   be an increase in production capacity situated within the Community
    in respect to the Chlorof luoromethanes F-11 and F-12 .