Keeping cool without warming the planet:

Cutting HFCs, PFCs, and SF6 In Europe

Jason Anderson

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Prepared with the financial assistance of the Dutch Ministry of Housing, Spatial Planning and the Environment (VROM).

Executive Summary

As the European Union and its member states finally start to develop strategies to reduce emissions of greenhouse gases, the importance of addressing new industrial gases is becoming obvious.  These “F-gases,” or “FCs” (HFCs, PFCs, and SF6) have extremely high global warming potentials and are being emitted at a quickly increasing rate--projections indicate emissions could rise 150% between 1995 and 2010.  Fortunately they are largely replaceable by commercially available natural compounds like hydrocarbons, ammonia and CO2, or by alternative technologies and practices.  Reducing F-gas emissions could make a major contribution to the greenhouse gas reduction goals Europe accepted under the Kyoto Protocol, at reasonable cost.

The Kyoto protocol’s first commitment period is, however, just an important first step.  Analyses indicate that we must reduce total greenhouse gas emissions levels by at least 50% below 1990 rates within 50 years if we are to avoid dangerous anthropogenic global warming.  F-gas emissions are projected to continue growing rapidly beyond 2010, not least because many applications like foams or refrigerants experience most of their emissions upon decommissioning after a long life of use.  Left unchecked, HFCs, the most significant of the F-gases, could potentially represent 15% of all CO2-equivalent greenhouse gas emissions by 2040, and 40% by 2100.  It is therefore imperative that policy be immediate in action, and long-term in scope.  Further, given that F-gases are synthetic chemicals with inadequately understood human health and local ecosystem impacts, we should invoke the precautionary principle in preventing large concentrations from entering the environment.

As the EU just begins to develop a policy plan, member states are already active.  Denmark has a plan to phase out F-gases, the Netherlands will count on 25% of their domestic Kyoto protocol reductions from F-gases, France intends an ecotax on refrigerants, and the United Kingdom has targeted HFCs for strict limitation in its draft climate plan.  Several other countries are developing national climate plans with an aggressive approach and the majority of EU countries have restrictions on some of the F-gases.  In addition, eight Austrian regions and numerous municipalities, and the city of Berlin are among those committed to phasing out HFCs partially or in full.

Industry proponents of F-gases try to paint alternatives as niche market applications that are too inefficient, unsafe and expensive to use more widely.  Each of these arguments has been adequately addressed in broad experience worldwide for most applications.  Alternatives are proving often more efficient, safety can be ensured through responsible measures, and costs are rarely significantly higher, and continue to fall with wider market acceptance.  Often they are superior products in every respect, not just in terms of climate change concerns.  The future belongs to these alternatives, and we should act assertively to ensure they are allowed to fulfil their promise.

Climate Network Europe proposes that the EU reinforce and compliment national measures through several policies, of which the most significant are:

Use “avoidance of dangerous anthropogenic warming” as the guiding principle in policy formation, not just what’s easiest for the first commitment period.
 Ecological reasoning dictates that we need to aim for at least a 50% reduction below 1990 emissions levels within 50 years to avoid dangerous global warming.  This implies quick action paired with long-term thinking.  Because so many F-gas applications work on slow replacement cycles and the processes they’re involved in require time and investment to switch to alternatives, it’s imperative that we switch away from F-gases as soon as possible.  By moving to natural compounds and other alternatives now, we avoid short- and long-term impacts.
 
Negotiate a cap on production and consumption of F-gases in the EU.
1995 emissions of F-gases in the EU contributed about 2% of total GHG emissions.  Industry argues that that percentage may only rise to 3% by 2050.  Independent studies project the possibility of 15% by 2050 and 40 % by 2100.  A cap would provide some security against runaway emissions, and would allow flexibility for actions beneath the capped level.
 
Declare a presumption against the use of HFCs, PFCs and SF6; they should be eliminated when technically feasible.
 Natural substances, not-in-kind substitutes, and alternative practices should be seen as the standard for which F-gases are the temporary alternative.  Already, in a large proportion of applications F-gases are unnecessary; some industries require some more phase-in time for alternatives, and a small minority are faced with few alternatives, but where emissions can be strongly curtailed.  The fluorocarbon industry strives to make F-gases appear indispensable in a range of applications; experience points to the contrary.
 
Do not enter into EU-level voluntary agreements (VAs)
 VAs have a poor record of achieving their goals.  Where they do work, they are focused in scope, carefully designed and monitored, and supported by a strong legal basis that ensures compliance through reverting to alternative regulations, levying penalties or providing incentives.  The EU lacks such a legal basis; entering into VAs would not be constructive and could seriously undermine any attempts to produce significant reductions in GHG emissions.
 
Introduce an ecotax on the basis of each gas’ GWP and overall climate impact.
An ecotax would send a price signal throughout the market that influences purchasing decisions, while raising revenue that could be used for research and development, or to assist small businesses in switching to alternatives.  Such a tax sped the phase out of CFCs in Denmark through its double impact—changing purchasing patterns and reinvesting revenues.  Tax levels should be set so they actually have influence and are based on the danger posed.

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