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EUROPEAN COMMISSION
MEMO
Brussels, 7 November 2012
Questions and Answers on the Commission proposal to
reduce emissions of climate-warming fluorinated gases
1. What is the European Commission proposing?
The Commission has put forward a proposal to replace the existing Regulation1 on
fluorinated greenhouse gases with the aim of significantly reducing emissions of the gases
in the European Union. By setting the right legal framework, the EU hopes to spur the
development of more climate-friendly alternatives and to stimulate new global action to
reduce F-gas emissions.
2. What are fluorinated gases?
Fluorinated gases (F-gases) are a family of powerful greenhouse gases that contribute to
global warming. They are used in several types of products and appliances, mainly as
substitutes for ozone-depleting substances such as chlorofluorocarbons (CFCs),
hydrochlorofluorocarbons (HCFCs) and halons which are being phased out under the
Montreal Protocol.
The three major groups are hydrofluorocarbons (HFCs), perfluorocarbons (PFCs) and
sulfur hexafluoride (SF6). While F-gases do not deplete the ozone layer, their warming
effect on the atmosphere is up to 23,000 times stronger than carbon dioxide (CO2). Fgases, which can remain in the atmosphere for thousands of years, account for 2% of the
EU's overall greenhouse gas emissions.
3. Why do we need legislation?
F-gases are increasingly used in the EU and world-wide in equipment for refrigeration and
air conditioning, insulation foams, electrical equipment, aerosol sprays and fire
extinguishers. F-gas emissions in the EU have risen by 60% since 1990 (see graph below)
while all other greenhouse gases (GHGs) have been reduced. The gases leak into the
atmosphere from production plants and during the operation and disposal of products and
equipment containing them. As F-gas appliances have long lifetimes of up to 50 years,
legislation is needed to prevent emissions increasing for several decades to come.
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Regulation (EC) No 842/2006 of the European Parliament and of the Council of 17 May 2006
MEMO/12/840
Emissions of F-gases in the EU27 (1990-2010) in million tonnes (CO2) equivalent
(Source: EEA)
4. What does the existing legislation already do?
The existing Regulation1 on fluorinated greenhouse gases requires companies to take a
range of measures to reduce leaks from equipment containing F-gases and to recover the
gases at the end of the equipment's lifetime. The current Regulation also includes
requirements regarding the training and certification of personnel that service equipment,
labelling of F-gas equipment, reporting on production, imports and exports of F-gases as
well as a ban on the use of F-gases in a few specific areas (for example as an insulating
gas in windows). The existing legislation has already achieved a verifiable reduction of
emissions of F-gases and, if fully applied, would make it possible to avoid almost half of
projected emissions by 2050, stabilising EU-27 emissions from that sector at today’s
levels2.
5. Why is this new proposal necessary?
Existing legislation will help prevent further growth of F-gas emissions. However, to avoid
dangerous effects of climate change such as the increase in extreme weather events, the
EU must cut its overall greenhouse gas emissions by 80-95% of 1990 levels by 2050. The
European Commission's low carbon roadmap sets out a cost-efficient way to achieve this
through contributions from all sectors and greenhouse gases. A fair and cost-efficient
contribution by the F-gas sector to this objective would require reducing F-gas emissions
in the EU by two-thirds of today's levels by 2030.
2
COM(2011) 581 final. http://ec.europa.eu/clima/policies/f-gas/docs/report_en.pdf
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6. What exactly is being proposed?
The main new element is a phase-down measure that from 2015 limits the total amount of
the most significant group of F-gases - Hydrofluorocarbons (HFCs) – that can be sold in
the EU. This will be reduced to one fifth of today's sales by 2030. Producers and importers
will initially be allocated rights to place HFCs on the market according to their existing
market shares, with reserve allocations for new companies entering the market. These
market rights will then decrease in 3-year steps until 2030.
The measure will build on the successful phasing out of ozone-depleting substances which
was achieved in the EU 10 years ahead of the schedule agreed internationally. In addition,
F-gases will be banned in some equipment, such as household fridges, for which less
harmful alternatives are widely available on the market today. Existing legal requirements,
such as the control of leaks, proper servicing of equipment and recovery of the gases at
the end of the equipment's life are maintained and strengthened in the new proposal.
7. What will the main benefits of the proposal be?
F-gas emissions will be significantly reduced as a result of new legislation. Society as a
whole will benefit from efforts to prevent climate change from reaching dangerous
proportions. The proposal would also stimulate innovation, green jobs and growth by
encouraging the use of green technologies based on less climate-harmful refrigerants.
With the right legal framework in place, EU consumers and commercial users of equipment
can drive the change and spur technological development in all sectors that use F-gases.
Member States have shown that pioneering legislation in this field not only benefits the
climate but also companies that seize the opportunity to develop climate-friendly products
and equipment.
8. Why is it so important to act now?
The more we reduce emissions today, the less our society will have to spend on adapting
to the adverse impacts of climate change in the future. F-gas appliances have long
lifetimes of up to 50 years, so avoiding their use now can prevent emissions increasing for
several decades to come.
Recent studies show that a number of alternatives to powerful climate warming F-gases
exist that are technically sound, safe to use, cost-efficient and can lead to energy savings.
Without action on F-gases, other economic sectors would have to pick up the bill for
reducing emissions, at potentially higher cost.
As well as action at EU level, it is crucial to reach agreement at international level to
reduce F-gas use and emissions globally. By demonstrating that more climate-friendly
products are technically feasible and represent a great business opportunity, the EU
hopes to stimulate new global action on F-gas emissions.
9. Why do we need action at EU level?
Action at EU level will almost certainly be more effective than a collection of national
measures. It is also much easier for businesses if they face the same rules everywhere in
the EU instead of different rules in 27 countries. Common action strengthens the position
of the EU - the world's largest economy - in pushing for global action to phase down Fgases.
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10. What is the EU doing at international level?
The growing problem of F-gas emissions is also receiving attention internationally. In
recent years, several parties to the Montreal Protocol have submitted proposals to phase
down the consumption and production of HFCs worldwide. The EU has supported these
proposals as a complement to action to mitigate climate change under the United Nations
Framework Convention on Climate Change (UNFCCC). In the context of this convention,
the EU will call at the Doha climate change conference for urgent action on HFCs by all
parties as a contribution to closing the gap between the necessary emission reductions by
2020 and currently envisaged mitigation actions.
In June, the United Nations Conference on Sustainable Development (Rio+20) expressed
support for a gradual phase-down globally of the consumption and production of HFCs. In
addition, tackling emissions from HFCs is a priority area for action under the Climate and
Clean Air Coalition to Reduce Short-Lived Climate Pollutants, established in 2012.
Members of CCAC include the United Nations Environmental Programme (UNEP), the
World Bank and the European Commission, and at the May 2012 Camp David Summit the
G8 countries endorsed CCAC and agreed to join its efforts.
See also IP/12/1180
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