7. Country Presentations
7. Country Presentations
7.1 Sweden
Ms. Maria Ujfalusi, Swedish Environmental Protection
Agency
SWEDISH ENVIRONMENTAL PROTECTION AGENCY
Disposal of ozone-depleting substances
Workshop
10 July 2000
Geneva
Notes for section II: Sweden’s experience
I am very glad to be here and be able to share with you our experience.
In my presentation I will talk a little bit about the historical background, basic national
legislation, recovery of refrigerants from non-domestic equipment and finally recovery
of domestic equipment.
Slide - Phase–out dates
First I would like to start my presentation by showing you when the Swedish
Government took different decision in this area. You will later see the importance of the
time factor. As you can see the Government decided quite early to regulate the use of
CFC as refrigerants.
Historical background
In 1988 the government decided to ban the use of CFC refrigerants in new equipment
and installations from 1 January 1995. In 1994 it was decided that as from 1 January
1998 to ban to recharge existing equipment with CFC and last step in this work to
prohibit CFC as a working medium in existing equipment from 1 January 2000.
When regulating CFCs in 1988 the Government mandated the Swedish EPA to issue
regulations on measures to reduce emissions of CFC refrigerants. This mandate was
later extended to include HCFC and HFC refrigerants.
In discussion between the Swedish EPA and the trade association, it was concluded that
substantial CFC reductions could be achieved if leakage and other unintentional
emissions were reduced through better design of the plant and better maintenance.
It could also be achieved by recovery, lower charges through increased use of indirect
systems, and use of refrigerants with a lower ODP. The Swedish Refrigeration
Foundation, which was founded by following associations; the Swedish Association of
Refrigerant Contractors, and the Association of Swedish Refrigeration Wholesalers,
agreed to incorporate recommendations to this effect in the Swedish Refrigeration Code,
which was under preparation.
BLEKHOLMSTERRASSEN 36
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C:\environmentcd 2000\FINAL;S\7.1F -Ujfalusi geneva.doc
NATURVÅRDSVERKET
2(5)
SWEDISH ENVIRONMENTAL PROTECTION AGENCY
It was, however, also concluded that the Refrigeration Code would not be effective if it
was not backed up by government regulations. Therefore, the Refrigerants Order, issued
by the Swedish EPA, refers to the Swedish Refrigeration Code, which was issued by the
Swedish Refrigeration Foundation in co-operation with the SEPA.
Slide - The Code of Practice and Refrigerants Order
Basic national legislation
In close co-operation with the industry, the Swedish EPA in 1989 issued the
Refrigerants Order laying down detailed provisions for the handling of all CFC, HCFC
and HFC refrigerants. It contains four main elements:
1
Only certified enterprises may install or conduct any service or maintenance
requiring interference with a CFC, HCFC and HFC refrigerant circuit or affects
its functioning.
To achieve a certification, the enterprises must demonstrate that they have:
2
C
At least one person in a supervising position with documented competence
within the field, who has also passed a short course on the environmental
effects of refrigerant emissions, the Refrigerants Order and the Refrigeration
Code.
C
The necessary equipment for recovery, leak testing, etc, and
C
Adequate organisation and routines, including records of work done.
When manufacturing, installing or altering refrigeration, air-conditioning or heat
pump equipment, material and design shall be chosen in such a way that
a) the risk of leakage is prevented as far as possible
b) the maintenance is facilitated
c) the refrigerant charge is kept as low as possible
d) the refrigerants with the lowest ODP and GWP is chosen, taking into
account other potential health and environment effects as well as commercial
availability of refrigerants.
3
All equipment shall be well maintained, be subject to regular leak tests and
controlled by certified enterprises, at least once a year. Leaks and other
identified defects must be repaired before new refrigerant is added.
4
The refrigerants must be recovered or reclaimed for reuse or destruction during
service and maintenance, as well as at dismantling and scrapping of any
refrigeration plant. In order to facilitate recycling and reclamation, the
refrigerant containers must be labelled and different types of refrigerants must
be kept separate.
3(5)
NATURVÅRDSVERKET
SWEDISH ENVIRONMENTAL PROTECTION AGENCY
Recovery of refrigerants from non-domestic equipment
Slide - The system
The Refrigerants Order states that the importers and distributors of stationary and
mobile systems are required to receive recovered refrigerants for recycling, reclamation
and destruction supplied by them. The importer or distributor of the refrigerants must
also make gas bottles available for used refrigerants. No charges may be levied for
reclaimed amounts.
The costs of the system are covered by a fee included in the sales prices for every sold
kg of refrigerant CFC, HCFC and HFC. The system started already in 1989 and is run
completely independently from government agencies by the companies involved.
Slide – Enforcement
One chapter in the Environmental Code deals with environmental sanction charges.
The government has by an Ordinance compiled a list of various violations with
information on the charge for each violation. The charge may be 5,000 kronor at least
and 1,000,000 kronor at most. Some of these charges concern ODS (see slide).
The supervising authorities can levy these fees themselves without requiring proof of
intent or negligence. Some of the local authorities have already made use of this
possibility.
Information
To adapt to the requirements all parties must know what the programme means and
understand why, when and how to be able to act correctly as the phase-out programme
effects almost every sector in the society. Over the years we have issued information
folders to refrigeration association, local and regional authorities, targeted organisations
and other authorities. Issued newsletters, a handbook, arranged workshops and
seminars, for the local authorities on yearly basis, articles to professional and technical
journals.
We issued information kits free of charge to the local authorities in order to support
them in their work with information to owners/users of refrigeration systems. Further
more one of the information folder was translated into English, Turkish, Arabic, SerboCroatian.
Now I would like to say a few words about Recycling of refrigerators/freezers and
recovery of CFC
In our Ordinance (1998:902) on Waste Collection and Disposal requires that all
scrapped refrigerators and freezers shall be disposed of, through the local authorities.
This means that the local authority has the total responsibility of collecting, storing,
transporting and recycling the discarded refrigerators and freezers. The ordinance also
state that such waste must be transported separate from other waste to ensure that it can
be taken care of separately. The refrigerators and freezers are transported to special
NATURVÅRDSVERKET
4(5)
SWEDISH ENVIRONMENTAL PROTECTION AGENCY
destruction facilities where CFCs and HCFCs is recovered from the foam and
refrigeration circuit.
In 1997 we had 9 companies which dealt with recycling and recovery, but only 3 of
them have the capacity to recover CFCs both from the cooling circuit and the
polyurethane insulation.
Two of these companies are stationary plants and one is a mobile facility.
The Swedish EPA has issued guidelines for the required effectiveness of CFCs at the
destruction facilities.
Slide – Recycling requirements for domestic refrigerators
All facilities have operating permits granted by the regional environmental authority.
Reports and inspections, control compliance with requirements.
How is this then organised?
Sweden has 284 local authorities, one in each municipality, having a contract with one
of the recycling companies. Depending on which company they hire, the collection,
storing and the transport differs from one municipality to another one.
The model with a stationary facility
Slide – Stena Bilfragmentering – a stationary plant
The municipality does the collection from households and servicing companies, or
contracts a special company to do the work for them. Some of the equipment is
delivered from building sites. The equipment must be handled with care and kept in an
upright position. If two persons collect approx. 40 units/load then they can make 1.5
loads per day.
Then the equipment is stored at the recovery station in covered containers, 6 x 2,5 x 2,5
m, which the company provides. Each container holds approx. 60 units.
Finally the equipment is transported to the recycling company. A truck takes three
containers. For a recycling station handling 500 units a month, three shipments a month
is required.
And this is how the system works with a mobile facility.
Slide – SKAFAB/Stena Gotthard - a mobile system
The costs of the recovery system are covered by a fee as part of the charges for the
household waste collection system (some SEK 10 per household). Some municipalities
levy this fee as an increment on the general waste fee, others only charge it when
fetching old equipment. In Sweden the total available number discarded refrigerators are
estimated to 300.000 units/year.
NATURVÅRDSVERKET
5(5)
SWEDISH ENVIRONMENTAL PROTECTION AGENCY
(Average refrigerator/freezer contains about 100 g CFC 12 in the cooling circuit 350 g
CFC 11 in the polyurethane insulation. 450 g CFC x 300.000 = 135 tonnes CFC)
Conclusion and lessons learned
In conclusion I would like to say that we have found that it is not enough to control the
supply side, but it is equally important to control the demand side.
In the phase-out work of ozone depleting substances we have focused on end-use
control. Important elements in this work has been:
C
Collaboration within industry and between industry and government authorities.
C
Acceptance by all parties.
C
Early decisions – giving the stakeholders time to adapt and
C
Information, information and more information.
I THANK YOU FOR YOUR ATTENTION !
Literature/References
Ordinance (1995:636) on Substances which Deplete the Ozone Layer
Refrigerants Order (SNFS 1992:16, Köldmediekungörelsen), issued by the SEPA,
Ordinance (1998:902) on Waste Collection and Disposal
The Environmental Code (Miljöbalken)
Publications:
Kökeritz, Ingrid 1997: Government Strategies to Phase Out Ozone-Depleting
Refrigerants. Four Case studies from the Nordic Countries. UNEP IE and SEI
Oberthür, Sebastian and Pfahl, Stefanie 1999: The Implementation of the Montreal
Protocol on Substances that Deplete the Ozone Layer in the European Union. Case
study: Sweden.
PRESENTATION
Maria Ujfalusi
Section for Chemicals Control
Tel +468 - 698 11 40
Fax +468 - 698 1222
[email protected]
CFC ban in Sweden
n
n
n
1 January 1995 use of CFC refrigerants
in new equipment and installations
1 January 1998 for re-filling existing
facilities for refrigeration, airconditioning and heat pumps
1 January 2000 as working medium in
existing facilities.
Disposal of ozonedepleting substances
n
n
n
n
n
Historical background
Basic national legislation
Recovery of refrigerants from
non-domestic equipment
Recovery of refrigerants from
domestic equipment
Conclusion
Refrigerants Order
n
n
n
n
n
n
Only certified enterprises
may install or conduct any
service or maintenance
Material and design shall be
chosen in such a way that:
- leakage is prevented
- maintenance is facilitated
- refrigerant charge low
- refrigerants with smallest
effect, ODP and GWP
The Refrigerants Order
n
n
Regular leak tests, at least
once a year
Refrigerants must be
recovered, reclaimed or
destructed
R 12
Plant owner
R134
Free of
charge
Certified
Service Company
Swedish Waste
Conversion Ltd.
Importers/
wholesalers
New Refr
SEK 30:Producers
abroad
Exemption from the CFC end-use
ban
n
Stationary, unitary equipment containing
900 gr or less CFC should be exempted
from the end-use ban till 31 December
2004.
Recycling level of CFC
n
n
n
n
80 % of the CFC 11 must be recovered
95 % of the CFC 12 must be recovered
95 % of the compressor oil must be
recovered
The concentration of CFC in PUR
powder, may be maximum 0.5 %
7. Country Presentations
7.2 Japan
Dr. Koichi Mizuno, National Institute for Resources and
Environment, Japan
Experiences of ODS Disposal in Japan
Koichi Mizuno
National Institute for Resources and Environment
1. Program of CFC Disposal
The recovery of CFCs in Japan is planned on the premise that they are not recycled for reuse
but are destroyed to further reduce the emissions, since the old equipment using CFCs is
retired earlier, therefore recycling is economically less feasible.
In April 1997, the Ministry of International Trade and Industry of Japan issued the
“Promotional Program of CFCs Recovery,” to encourage the recovery systems created by
private sector. In principle, the program suggested the manufacturers of the equipment to
cover the expenses for establishing the recovery system, while users of the equipment to
cover the running costs of the system. In response to the program, the industrial sector issued
the action plans of CFC recovery in September 1997, which involve mobile air-conditioners,
commercial air-conditioners, household refrigerators, and CFC manufacturing. The action
plans indicated the industries related to mobile air-conditioners, commercial air-conditioners,
and household refrigerators to establish the CFC recovery system, while the industries related
to CFC manufacturing to destroy the recovered CFCs.
In September 1997, the government issued the policy guidance for further promotion of the
recovery and destruction of CFCs, after the liaison meeting of 18 related ministries and
agencies.
The Government of Japan reviews the reports from the private sector, and the local
governments support the local associations for CFC recovery.
2. Activities of CFC Disposal
Mobile Air-conditioners
The Japan Automobile Manufacturers Association (JAMA) started a CFC recovery and
destruction system in January 1998, which expanded to a nationwide scale in October 1998.
Almost 3,000 automobile dealers were registered by July 1999. Beside this, local
governments and the used car dismantling firms also established the recovery and destruction
systems.
As the result of such efforts, 140 tonnes of CFC-12 were recovered for destruction in the
period from April 1998 to March 1999.
Commercial Air-conditioners
The CFC recovery, recycling, and destruction system was formed by the Japan Refrigeration
and Air Conditioning Industry and the Japan Association of Refrigeration and Airconditioning Contractors. The Refrigerant Recycling Promotion and Technology Center has
implemented the training for technicians and certifying for recovery firms. Currently 2,237
companies have been certified as the recovery firms and 9,115 technicians have also been
certified.
A total of 665 tonnes of CFCs was recovered from April 1998 to March 1999.
Household Refrigerators
Until now, the recovery and destruction have been carried out by the local governments and
the household appliance sales outlets. Under the “Law for Recycling of Specified Kinds
Consumer Electric Goods”, which is scheduled to come into effect in April 2001, the
manufacturers need to formulate the recycling systems and to conduct the recovery of CFCs
as a part of the recycling of their products.
A total of 85 tonnes of CFC-12 was recovered from April 1998 to March 1999.
Destruction of CFCs
Based on the survey of the destruction facilities, a total of 556.5 tonnes of CFCs was
destroyed in 1998. The amount destroyed is smaller than that recovered (see Table 1) because
of the time lag of delivery of the recovered CFCs to the destruction sites. CFCs are being
destroyed in approximately 30 facilities dispersed in Japan, in which various technologies
including submerged combustion, gaseous/fume oxidation (high-temperature steam
decomposition), rotary kiln, r.f. plasma, and so forth are used.
Table 1. Recovery and Destruction of CFCs / tonnes.
Mobile Air-conditioners
Commercial Air-conditioners
Household Refrigerators
Destruction
Recovery or Destruction
140 (recovered)
690 (recovered)
85 (recovered)
556.5 (destroyed)
HCFCs contained in commercial air-conditioners are being recovered by using the existing
CFC recovery system, and those recovered are recycled for reuse or destroyed. HCFCs
contained in household air-conditioners will be recovered by the system to be formed under
the “Law for Recycling of Specified Kinds Consumer Electric Goods.”
3. Implication of CFC Disposal on Global Climatic Changes
Since the alternative substances of HFCs are the greenhouse gases, the recovery and
destruction of HFCs is a probable way for the prevention of global warming. The disposal
systems currently being established for CFCs and HCFCs are applicable to HFCs in the near
future. Once the systems are established, therefore, they may reduce the investment costs for
HFC disposal. The cost-effective systems for recovery and destruction of CFCs, HCFCs, and
HFCs require the following items in the long run:
•
Formation of cost-effective recovery systems
•
Improvement of recovery machines applicable to CFCs, HCFCs, and HFCs.
•
Selection of low-cost destruction technologies
4. Halons
In Japan, a total of 17,337 tonnes of halons were banked in fire extinguishing equipment on
March 31, 2000. Most of the halons is halon-1301, amounting to 16,892 tonnes, and
approximately 98% is banked in the fixed fire extinguishing systems (see Table 2). Halons
are managed by the Halon Recycling and Banking Support Committee, Japan. By the year
1997, the delivery amount exceeded that from recovery, however, such trend was reversed in
recent years. Nevertheless, the excess is a few tens tonnes per year.
Presently, the government is setting the management strategy for the disposal. The
destruction of halons seems technically more difficult because of their inflammability,
however, the recovery is expected to be easier. The destruction facility of an r.f. plasma
reactor was scheduled to be constructed by the end of the fiscal year of 2000.
Table 2. Banked Halons in Japan
Equipment
Fixed Fire
Extinguishing Systems
Portable Fire
Extinguishers
Halon
Halon-1211
Halon-1301
Halon-2402
Sub-total
Halon-1211
Halon-1301
Halon-2402
Sub-total
Total
Number of Containers
700
323,900
3,000
327,600
8,200
75,000
2,100
85,300
412,900
March 31, 2000
Banked Halons
/ tonnes
32
16,721
372
17,125
37
171
4
212
17,337
Experiences of ODS Disposal
in Japan
Koichi Mizuno
National Institute for Resources and Environment
Agency of Industrial Science and Technology
Ministry of International Trade and Industry
April 1997: “the Promotional Program of CFCs Recovery”
the Ministry of International Trade and Industry of Japan
! Private sector shall create the recovery systems on voluntary basis.
! The manufacturers of the equipment shall cover the expenses for establishing the
recovery system.
! The government shall make the review system, in which they review the reports from
the industries, publish the data, and suggest for the improvement.
! Users of the equipment shall cover the running costs for the system.
September 1997: “the Action Plans of CFC Recovery”
Industries of mobile air-conditioners, commercial air-conditioners,
household refrigerators, and CFC manufacturing.
! The industries of mobile air-conditioners, commercial air-conditioners, and
household refrigerators shall establish the CFC recovery system.
! The industries of CFC production shall destroy the recovered CFCs.
September 1997: “the Policy Guidance”
the liaison meeting of 18 related ministries and agencies.
! CFCs in mobile air-conditioners, commercial air-conditioners, and household
refrigerators shall be recovered on voluntary basis.
! Related ministries and agencies shall request related organization for CFC
recovery.
! The Environment Agency shall support the activities of the local associations of
CFC recovery through the model projects.
! The guidelines of destruction of CFCs from refrigerators shall be issued.
CFCs in Japan are not recycled for reuse, but
are destroyed to further reduce the emissions.
Estimate of CFC-12A/C and HFC-134a A/C
Estimated Percentage of Refrigerants
in Commercial Refrigerators in Japan
(Centrifugal Refrigerators)
100%
100%
80%
80%
HFC-134a A/C
60%
40%
40%
CFC-12A/C
HCFCs
CFCs
60%
20%
HFCs
20%
Year
10
20
05
20
00
20
19
00
20
99
19
98
19
97
96
19
95
19
19
Year
95
0%
0%
Mobile Air-conditioners
" CFC Recovery and Destruction System
! the Japan Automobile Manufacturers Association (JAMA)
January 1998: started
October 1998: expanded to a nationwide scale
July 1999: almost 3,000 automobile dealers registered
! local governments and the used car dismantling firms
" Education
! poster 12,500, leaflet 960,000, Q&A handbook 278,000
" Amount Recovered: 140 tonnes of CFC-12
(April 1998 - March 1999)
Commercial Air-conditioners
" CFC Recovery, Recycling, and Destruction System
! The Japan Refrigeration and Air Conditioning Industry (JRAI)
and the Japan Association of Refrigeration and Air-conditioning
Contractors (JARAC)
" Training and Certification
! The Refrigerant Recycling Promotion and Technology Center
operated by JRAI, JARAC, and the Japan Fluorocarbon
Manufacturers Association
! 2,237 companies certified as the recovery firms
! 9,115 technicians certified.
" Amount Recovered: 665 tonnes of CFCs
(April 1998 - March 1999.
Household Refrigerators
" Recovery System
! present: the local governments and the household appliance sales
outlets
! from April 2001: the manufacturers formulate the recycling
systems and conduct the recovery of CFCs as a part of the recycling
of their products by the “Law for Recycling of Specified Kinds
Consumer Electric Goods”
" Amount Recovered: 85 tonnes of CFC-12
(April 1998 - March 1999)
Summary of Recovery and Destruction of CFCs
Table 1. Recovery and Destruction of CFCs / tonnes.
Recovery or Destruction
Mobile Air-conditioners
140 (recovered)
Commercial Air-conditioners
665 (recovered)
Household Refrigerators
85 (recovered)
Destruction
556.5 (destroyed)
April 1998 – March 1999
Implications of CFC Disposal
on Global Climatic Changes
" The Recovery and Destruction of HFCs is a probable way for the
prevention of Global Warming.
" The disposal systems currently being established for CFCs and
HCFCs are applicable to HFCs in the near future.
" Once the systems are established, they may reduce the
investment costs for HFC disposal.
" Cost-effective Systems for Recovery and Destruction of CFCs,
HCFCs, and HFCs require:
! Formation of cost-effective recovery systems
! Improvement of recovery machines applicable to CFCs,
HCFCs, and HFCs.
! Selection of low-cost destruction technologies
Costs for CFC Recovery and Destruction
Conducted by JAMA for Automotive AC
Used cars
Customers
(End Users)
Transfer to 20Recovery into
1-L containers 1-L containers kg containers
Automotive AC
Service Stations
Recovery Sites
Payment
Used cars
Customers
(End Users)
Payment (transfer
+ transportation +
destruction)
Payment
(destruction)
Large containers
Recovery Sites
Payment
20-kg
containers
CFC Destruction
Plants
Recovery into
Payment
large containers (transportation
+ destruction)
CFC Recovery from Automotive AC
Customers (End Users)
Used cars
Automotive Dealers
Used Car Dealers
Automotive Maintenance Service
etc.
Automotive
Dismantling Firms
Waste ＣＦＣs
CFC Recovery & Destruction Systems by
JAMA (Japan Automobile
Manufacturers Association)
Local
Government Bodies
Automobile
Dismantling Firms
CFC Recovery from
Commercial Refrigeration and AC Equipment
End Users (Firms)
Used equipment
Refrigeration and AC
Equipment Manufacturers
Refrigeration and AC
Equipment Contractors
Dismantling
Construction Firms
Private Disposal Firms
Waste ＣＦＣs
Refrigerant Recovery Firms
Certified by Refrigerant Recycling
Promotion and Technology Center
CFC Recovery and Destruction
by Local Government Bodies
Destruction / Reclamation Plants
Current CFC Recovery from
Household Refrigerators
Customers (End Users)
Used appliances
Appliance Retailers
Municipal Offices
Waste ＣＦＣs
Private Disposal Firms
Destruction Plants
Future CFC Recovery from
Household Refrigerators
the Household Appliance Recycling Law, effective on April, 2001
Customers (End Users)
Used appliances
Municipal Offices
Appliance Retailers
Appliance Manufacturers’
’
Recycling Plants
Municipal Offices’
’
Recycling Plants
Independent Bodies
Recycling Plants
Waste ＣＦＣs
Destruction Plants
Table 2. Banked Halons in Japan
March 31, 2000
Equipment
Halon
Number of
Banked Halons /
Container
tonnes
Fixed Fire
Halon-1211
700
32
Extinguishing
Halon-1301
323,900
16,721
Systems
Halon-2402
3,000
372
327,600
17,125
Sub-total
Portable Fire
Halon-1211
8,200
37
Extinguishers
Halon-1301
75,000
171
Halon-2402
2,100
4
85,300
212
412,900
17,337
Sub-total
Total
7. Country Presentations
7.3 Australia
Ms. Tamara Curll, Environment Australia
International ODS Disposal Workshop
Country Experience - Tamara Curll (Environment Australia)
INTRO
Slide 2
The objective of my presentation is to share Australia’s experience which suggests that
access to state-of-the-art technology is only one of many important elements in effective,
responsible ODS management and disposal.
The outcome I seek is that one or many of policy and technological options I describe are
subsequently incorporated into your own country’s ODS management strategies,
providing effective solutions to your ODS disposal challenges.
PRESENTATION OUTLINE
Slide 3
Consequently, my presentation will cover:
1. Australia’s approach to managing its ODS stocks, focusing on the management of
halons and CFCs;
2. The extent to which disposal of ODS has been part of this management strategy;
3. The measures employed in the management of ODS disposal, including the
technologies used;
4. The lessons learnt from Australia’s experience in implementing its ODS disposal
program, including key issues which countries may wish to bear in mind in
developing and implementing their own.
ODS MANAGEMENT IN AUSTRALIA
Slide 4
Environment protection measures in Australia are coordinated by the Australian and
New Zealand Environment and Conservation Council (ANZECC), comprising
environment Ministers from the Australian national, State and Territory and NZ
governments.
Australia’s ODS management strategy was developed in 1989 and subsequently revised
in 1994 by two ANZECC bodies: the Ozone Protection Working Group (OPWG),
comprising relevant Cth, State and Territory government representatives; and the Ozone
Protection Consultative Committee (OPCC), comprising government, industry,
community and conservation groups.
The recommendations of the strategies reflect a cooperative attempt by these key
stakeholders to achieve a comprehensive and consistent national approach to ODS
management in Australia which has been realised to a large extent by the complementary
measures implemented by government and industry.
The Commonwealth Government (Environment Australia) controls the import, export
and manufacture of bulk ODS through transferable licence and quota systems and the
import and manufacture of products containing specific ODS, including CFCs and halon.
EA also owns Australia’s National Halon Bank which has safely stored, reclaimed and
destroyed ODS.
State and Territory Government control the sale, use, handling and distribution of
ODS, through: licensing ODS transactions; mandatory training and accreditation of ODS
equipment service personnel; mandatory recovery and return of ODS; and, mandatory
decommissioning of portable and fixed halon systems, unless granted exemption on
essential use grounds.
As members of the National Halon Essential Uses Panel (NHEUP) industry and
conservation organisation representatives advise the government as to whether
proposed and ongoing halon applications justify exemption as an essential use. The
Panel’s recommendations are based on criteria similar to that used in the Protocol’s
essential use nomination procedure.
Industry is also responsible for ODS management initiatives including: Refrigerant
Reclaim Australia, a program for the responsible recovery, reclamation and destruction of
ozone depleting refrigerants; and, codes of practice covering every ODS application
sector.
Australia has found this mix of government regulation and industry self-regulation
extremely effective in managing its ODS stocks. Underpinning this mix of measures has
been the ongoing education of the public and affected industries. Awareness raising has
been the joint responsibility of governments, industry and public interest groups.
ROLE OF ODS DISPOSAL IN AUSTRALIA'S ODS MANAGEMENT
STRATEGIES
Slide 5
ODS disposal has always been considered a necessary element of Australia’s ODS
management.
Australia has always defined ODS disposal to include storage. Measures for ODS
storage were incorporated into Australia’s ODS management program in 1993 with the
National Halon Bank’s (NHB) establishment. The NHB was the Commonwealth
government’s response to a rapidly accumulating stockpile of halon within government,
industry and the community. The accumulation was the result of compliance with State
and Territory regulations, requiring the mandatory decommissioning of non-essential
halon systems by 1995, and the mandatory recovery of all ODS from any
decommissioned equipment.
In the same year, Australian industry established Refrigerant Reclaim Australia (RRA),
to manage the collection, recovery, reclamation and storage of ozone depleting
refrigerants (ODR). Some sectors, including the fire protection, aviation, shipping and
defence, chose to establish their own storage facilities.
ODS disposal measures, in the stricter sense of destruction, were introduced in late 1996
with the installation of SRL Plasma's argon plasma arc technology at the NHB.
Slide 6
Why Destroy?
Australia’s decision to destroy ODS has been largely influenced by environmental and
economic factors.
Environmental
1. Stored halon represents an ongoing threat to the ozone layer through accidental
emission and leakage, regardless of rigorous efforts to maintain a controlled storage
environment.
2. An inventory of Australia’s halon stock in 1998 confirmed expectations it exceeded
Australia's projected essential use needs to 2030. Added to this, Australia was
cognisant of the fact that global stocks of 1211 provided a more than adequate supply
for essential use applications.
3. Australia had at its disposal, the expertise and technology to remove the
environmental threat posed by an excess of domestic and overseas ODS stocks.
Economic
1. The more than adequate global stock of halon 1211 meant Australia's long term
storage of halon 1211 in excess of its projected essential use needs only added to the
ultimate disposal cost.
2. Economic analysis that indicated if the NHB was required to relocate, the expense of
destroying existing and estimated future collections was more economical than the
provision of new storage capacity and the relocation of the stock to the new site.
3. Sample analysis which indicated some halon and CFC stock will be contaminated to a
degree which prevents its effective recycling or reclamation, rendering its continued
storage not cost-effective.
ODS DISPOSAL
Slide 7
The National Halon Bank is Australia’s major ODS disposal management facility. Its
organisational structure is represented in this diagram. Environment Australia (EA) owns
the NHB and contracts DASCEM Holdings Pty Ltd to manage the NHB’s activities. This
involves managing:
1. arrangements for the collection, transportation, decanting, purification, safe storage
and destruction of halon and ODR;
2. The design and implementation of public awareness campaigns and operation of
community, small business and dumped halon collection activities (Community
Service Obligation (CSO)); and
3. The sale of halon to approved users in Australia and overseas.
Australia’s ODS disposal program can be broken down into the following elements:
1. Collection and transportation: DAS Distribution is responsible for the collection
and transportation to the NHB of ODS deposited at collection points. Established in
1993, the network of collection points uses metropolitan, rural and remote fire
stations, fire equipment suppliers and DAS Distribution depots throughout Australia.
Halon deposited by the general public and small business (< 20 employees) is free of
charge. All other business and Commonwealth, State and local governments
currently pay US$11.40/kg of halon 1211 and US$14.40/kg of halon 1301 deposited
at the collection points.
2. Public awareness/education: DASCEM launched the CSO’s public
awareness/education campaigns in 1995. The campaigns’ aim was to inform halon
system owners of their legal obligations to decommission their equipment, and to
provide them with information on the procedure for depositing their halon with the
NHB. The campaigns initially focussed on the environmental damage halon causes to
the ozone layer. Recently, the campaign’s message has begun to emphasise the safety
concerns associated with relying upon old, poorly maintained halon fire protection
systems.
3. Recovery and reclamation: REMTEC employs a combination of specially
developed cylinder piercing technology (CPT) and purpose-built Defender Units to
recover halon from the collected cylinders. REMTEC is currently undertaking the
world’s largest decanting and processing project, anticipated to involve in excess of
1600MT of halon, including 550MT of 1301). Commenced in late 1998, the project’s
expected completion date is December 2002 .
4. Destruction: ODS destruction has been carried out at the NHB by SRL Plasma using
their ‘PLASCON’ argon plasma arc destruction technology, which was developed in
cooperation with the Australian Government’s Commonwealth Scientific and
Industrial Research Organisation (CSIRO). As Garry noted earlier in his presentation,
to date, the technology has destroyed 1000MT of halon 1211 and 70MT of CFCs at
the NHB.
As stated earlier, the industry-run initiative Refrigerant Reclaim Australia (RRA) plays
a major role in the disposal of ODR. The program is funded by a voluntary levy of
US$0.6/kg on importers. Under the Program, contractors recover contaminated and
unwanted refrigerant from equipment into refillable cylinders supplied by their
wholesaler. Full cylinders are returned to the wholesaler by the contractor, who receives
in return a credit of US$1.50/kg, regardless of the ODR’s purity. To date, the program
has recovered and collected 440MT of ODR, 110MT of which has been reclaimed to new
specification while a further 120MT has been destroyed.
DAS Distribution provides collection and transportation services to RRA, collecting the
recovered ODR from wholesalers and transporting it to the NHB where it is analysed to
determine whether it will be reclaimed or destroyed.
LESSONS LEARNT/KEY CONSIDERATIONS
Slide 8
There has been a lot of information in this presentation. If, however, Australia was to
identify what it believed were the key contributors to the effectiveness of its ODS
disposal program, they would be the following:
1. Threshold questions
Australia believes it is important that ODS disposal programs are developed to reinforce
the overall integrity of a country’s ODS management strategies. Decisions as to the
nature and extent of the program, and how it operates within the established ODS
management measures, should therefore be informed by the following threshold
questions:
How much (if any) ODS should be reserved?
For how long should it be reserved?
Who should pay for the storage costs?
What should be done with ‘surpluses’? Destruction, long term storage, export for
essential uses?
In Australia’s case, its ODS disposal program complements measures under the ODS
management strategy to remove non-essential halon systems and simultaneously ensure
the ready availability of adequate reserves to meet the essential use requirements of
identified users.
For this reason, it is critical that countries look closely at developing halon and CFC
management strategies as proposed in decisions X/7 and XI/16.
2. Ownership of solutions
Providing key affected stakeholders with a sense of ownership of the chosen approach to
ODS disposal contributes greatly to its effective implementation. Australia has found
that, if key stakeholders are given the opportunity to participate in the development and
implementation of the ODS disposal program, it is more likely to be sustainable as it will:
recognise the technical, commercial and regulatory constraints underwhich the
stakeholders operate and also gives the stakeholders a vested interest in ensuring a project
with which they are associated is a success.
3. National information, education and training
The value of early and consistent communication in facilitating the required changes in
commercial operations and consumer behaviour can not be overestimated. This is
obviously particularly important where mandatory halon decommissioning measures are
to be used, given the planning and investment lead time that maybe necessary to ensure
safety is not compromised.
All actors in the product chain, from the ODS importer to the accredited service
technician who decommissions the ODS equipment, must be co-opted to ensure
information on the program’s objectives and measures flows through the whole of the
industry and the community.
4. Leadership & funding
Although Australia strongly advocates a cooperative approach to the process of
developing and implementing ODS disposal programs, leadership is obviously necessary
to initiate the process, monitor its progress and ensure its objectives are achieved.
Australia believes this role falls naturally to the country’s government for the following
reasons:
a) As the signatory to the Montreal Protocol, the government has a vested interest in
ensuring compliance with Protocol obligations. Its participation in Protocol fora also
gives it ready access to the environmental, economic, technical and scientific
information required to: educate stakeholders; and, inform the program’s
developmental, implementation and review phases;
b) its leadership lends credibility to the efforts of those charged with the disposal
program’s development, implementation, monitoring and enforcement;
c) it may have the opportunity to lead by example. The Australian government was the
major owner of halon installations prior to the introduction of the mandatory
decommissioning legislation, therefore by complying with the ODS disposal
measures, the government not only demonstrated its commitment to the objective of
eliminating ODS, but also the economic and technical feasibility of compliance.
Adequate funding of any ODS disposal program is essential to its effectiveness and
sustainability. As noted earlier, two approaches have been adopted in Australia. Firstly,
up until now, all costs associated with the ongoing decanting, purification, destruction
and storage of halon have been borne by the Commonwealth and offset by halon deposit
fees. An arrangement whereby essential users bear the costs associated with the
decanting, purification and storage of their halon requirements held at the NHB is now
being considered.
5. Regulatory/financial incentives and disincentives
Australia’s experience suggests that at least some form of regulatory catalyst is required
to achieve significant ODS disposal. In regard to Australia’s halon disposal program:
despite the fact that all key stakeholders agreed to the original recommendation in
Australia’s 1989 Strategy that all non-essential 1211 extinguishers should be replaced by
December 1995, decommissioning was minimal until, in response to a subsequent
recommendation of the 1994 Revised Strategy, the State and Territory governments
legislated mandatory decommissioning of all non-essential halon systems.
The financial incentive provided in the form of a rebate to ODR service personnel
through the RRA program has proven particularly effective in ensuring the return, rather
than release to atmosphere of ODR which no longer holds a commercial value - namely,
ODR which is beyond reclamation or for which supply exceeds demand. While RRA is
an excellent example of industry environmental stewardship and the effectiveness of
financial incentives. The industry concedes that this innovative approach would not have
developed without the incentive provided by the regulations requiring ODR be recovered
and returned to wholesalers.
Consequently, Australia’s experience has been that the early establishment of cooperative
partnerships with affected stakeholders, particularly industry, not only encourages the
development of innovative, cost-effective measures for responsibly managing ODS and
its disposal, but also, facilitates the implementation and ongoing effectiveness of the
approach adopted.
CONCLUSION - HOW CAN WE HELP?
Slide 9
I have greatly appreciated the opportunity to share Australia’s experience in the
development and implementation of policy and technological options for ODS disposal.
Australia, does not however, want to limit itself to purely providing information. In
closing, I want to remind you of Australia’s achievements in ODS disposal to date:
1. We have developed and implemented ODS management and disposal initiatives
without significant technical and economic disruption;
2. We are owners and managers of the second largest halon depositary in the world,
which is progressing the largest decanting, purification and storage program, utilising
state-of-the-art technologies;
3. We have developed and commercially operated an ODS destruction technology,
namely SRL Plasma's argon plasma arc, which has been independently assessed as
the best environmental and technical option for ODS disposal.
Our hope is that you will accept our invitation to explore options for sharing this policy
and technological experience with your country in the future.
Tamara Curll
Assistant Director
Ozone Protection
Environment Australia
Tel: +612 6274 1701
Fax: +612 6274 1172
Email: [email protected]
ODS Disposal Workshop
Country Experiences:
AUSTRALIA
Tamara Curll
ENVIRONMENT AUSTRALIA
OBJECTIVE
OUTCOME
PRESENTATION OUTLINE
FAustralia’s ODS management
strategy
FThe role of ODS disposal
FODS disposal
management/measures
FLessons learnt and key
considerations
ODS Management in
Australia
FORMAL CONSULTATIVE FORA
ANZECC
OPCC/OPWG
ENVIRONMENT AUSTRALIA
Import,export,manufacture
National Halon Bank
Awareness raising
STATE GOVERNMENT
Sale, use, handling
Mandatory decommissioning
Awareness raising
National Halon Essential
Uses Panel
NON-GOVERNMENT
RRA
Codes of Practice
Awareness raising
The Role of ODS Disposal
1993: storage measures introduced
• National Halon Bank
• RRA
• Industry-specific storage
1996: destruction measures introduced
• SRL Plasma argon plasma arc plant
The Role of ODS Disposal
cont.
WHY DESTROY?
Environmental factors
Economic factors
ODS Disposal: Measures
Environment Australia
Refrigerant Reclaim
Australia
DASCEM
(NHB Operator)
REMTEC
(Decanting/Purifying)
DAS Distribution
(Collecting/Transporting)
SRL Plasma
(Destruction)
Lessons Learnt
& Key Considerations
Hthreshold
Hleadership/
questions
funding
Hownership of
Hregulatory/
solutions
financial
Hnational education, incentives &
disincentives
information and
training
What can we offer?
HAssistance in the development of
ODS management strategies;
HReclamation, recycling and reuse of
ODS;
HDestruction of excess and
contaminated ODS;
HProvision of halon to meet national
critical use needs.
THANK YOU
7. Country Presentations
7.4 Canada
Mr. Alex Cavadias, Environment Canada
Canada’s Proposed Strategy to Accelerate the PhaseOut of Uses of CFCs and Halons and Dispose of the
Surplus Stocks
Since 1990, Canada has been managing halons through a number of initiatives and control
measures. These initiatives have included control measures on the import, export, use and
recovery of halons. In 1998 the Federal Provincial Working Group (FPWG) started
developing Canada’s Strategy to Accelerate the Phase-Out of CFCs and Halons Uses
and to Dispose of the Surplus Stocks. The Strategy, in part, is being developed to achieve
an orderly and affordable phase-out of remaining halon uses in Canada. This strategy
reflects the current measures that are in place and also has proposed initiatives that are
being considered. The objective of the Strategy is to minimize and avoid the ultimate
release to the environment of CFCs and halons. The strategy will accomplish this by
accelerating the use of alternatives and rendering the remaining surplus stocks harmless.
Introduction
Canada’s Strategy to Accelerate the Phase-Out of CFCs and Halons Uses and to
Dispose of the Surplus Stocks is part of the ongoing process of fulfilling Canada’s
commitment to protect the earth’s ozone layer. Development of the Strategy came about as
a result of a comprehensive review, started in 1994, of the Canadian ozone layer protection
program. That review helped to point out that unless new initiatives are put in place to
take CFCs and halons out of service and dispose of them, most of the Canadian inventory
of these substances will ultimately be released to the environment.
Extensive consultations with stakeholders have been a key part of the development of this
strategy. Consultation sessions focusing on the proposed strategy were held during
February 2000 in Vancouver, Winnipeg, Halifax, Montreal and Toronto. In all, over 200
people participated in these sessions. Reports summarizing the consultations and the
responses of the FPWG to the recommendations from the consultations are available under
separate cover.
Action to accelerate the phase-out of uses of CFCs and halons is also being taken under the
Montreal Protocol. At the 10th Meeting of the Parties to the Montreal Protocol, the Parties
adopted Decision X/7, which requested all parties to develop national and regional
strategies for the management of halons, including emissions reduction and ultimate
elimination of their use. A similar Decision was made at the 11th Meeting of the Parties
regarding the use of CFCs. Industrialized countries are to submit their strategies by July
2000 and July 2001 respectively.
Jurisdictional Background in Canada
In Canada, regulatory responsibility for ozone layer protection is shared by the federal and
provincial governments. The federal government is responsible for implementing controls
needed to meet Canada’s obligations under the Montreal Protocol, and for regulating
federal facilities, which are not covered by provincial regulations. The provincial
governments control the use, recovery, recycling and release of ozone-depleting
substances.
The Federal-Provincial Working Group was established in 1989 by the Canadian Council
of Ministers of the Environment (CCME). The goal of the Working Group was to establish
a coordinated national strategy for the management of ODS, including harmonization of
controls for CFCs and halons in Canada. Over the years, the Group’s mandate has
remained essentially unchanged, although its scope has broadened to keep in concert with
changes to the Montreal Protocol and other environmental issues. The Working Group
reports to the National Air Issues Coordinating Committee of the CCME.
Conclusion
The Proposed Strategy will meet our national objective and our international commitments.
It will achieve an orderly and affordable phase-out of remaining CFC and halon uses in
Canada and will minimize and avoid their ultimate release to the environment. The
Strategy will accomplish this by accelerating the use of alternatives and rendering surplus
stocks of CFCs and halons harmless.
Halons will be restricted to essential uses, i.e., aircraft and certain military applications.
Canada will also encourage safe recovery, storage and destruction of surplus CFCs and
halons and also the use of alternatives.
The Strategy plays a vital role in Canada’s National Ozone Layer Protection Program and
in meeting Canada’s international obligations. In addition, the Strategy will be reviewed
regularly to reflect international, technological and environmental developments.
Canada’s Proposed Strategy to Accelerate the
Phase Out of Uses of CFCs and Halons and
Dispose of the Surplus Stocks
July 10 - 2000
Geneva
Environment Canada
Environnement Canada
Presentation Summary
l
l
l
l
l
Introduction/Background
Objective
Inventory
Content of the Proposed Strategy
Next Steps
Environment Canada
Environnement Canada
Introduction/Background
l
Montreal Protocol
Ø Reduction and Phase-Out of Consumption
Ø Requirement for CFC and Halon Mgt. Strategy
l
l
Shared Responsibility, Federal and Provincial
Canada’s National Action Plan
Ø Federal Provincial Working Group
Ø Reduce demand/minimize emissions
Ø Anticipate Surplus
Ø Develop national strategy for managing surplus
Environment Canada
Environnement Canada
Current Situation
l
l
l
l
l
l
Mandatory R/R/R
No venting
Mandatory Training of A/C Technicians
Banned refill and uses for certain applications
Mandatory recovery from equipment before disposal
Anticipate a surplus of CFCs and Halons
Environment Canada
Environnement Canada
Objective
The Federal Provincial Working Group (FPWG) has
arrived at the following objective:
l
To minimize and avoid the ultimate release to the
environment of Canada’s stock of CFCs and Halons
by accelerating the use of alternatives and rendering
the remaining stocks harmless
Environment Canada
Environnement Canada
Options/Management Tools
A study was carried out that identified and reviewed
four strategic options for managing surplus ODS:
Ø status quo
Ø restrict import / exports of reclaimed material
Ø limit recharging of equipment categories
Ø limit use in equipment categories
All have various pros and cons and cost implications
Environment Canada
Environnement Canada
CFC Material Inventory 1998
Commercial
26%
Mobile AC
34%
Mobile Refrig
7%
Chillers
9%
Appliances /
Residential
24%
Total Available = 22 863 Tonnes
Environment Canada
Environnement Canada
Figure based on Predictive Model Report - February 24, 1999
Halon Inventory 1998
1211
45%
1301
55%
Total Available: 3 130 Tonnes
Environment Canada
Environnement Canada
CFC Inventory Forecast
Total Available CFC
25000
15000
10000
5000
Environment Canada
Environnement Canada
Figure based on Predictive Model Report
2020
2019
2018
2017
2016
2015
2014
2013
2012
2011
2010
2009
2008
2007
2006
2005
2004
2003
2002
2001
2000
1999
0
1998
Tonnes
20000
Highlights of the Proposed Strategy
l
Addressed CFCs and Halons by Sector
l
Identified Dates that Bans Refilling, Sector by Sector
l
Proposed Management Tools
Ø Industry initiatives, i.e.: EPR
Ø Regulations
l
Took Into Account Disposal Aspects
Environment Canada
Environnement Canada
Initial and Current Proposals
Sector
January Proposal
Current Thinking
Mobile Air
Prohibit refill with CFCs
Conditioning by 2000
Implement refill prohibition as soon
as possible
Mobile
Prohibit refill with CFCs
Refrigeration effective 2003
Subject to further consultations with
impacted stakeholders and
cost benefit-analysis
Domestic
Maintain current emission Approach unchanged
Refrigeration minimization activities
Environment Canada
Environnement Canada
Initial and Current Proposals
Sector
January Proposal
Commercial Ban refill with CFCs
Refrigeration effective 2003
Current Thinking
Staged approach (e.g. implement
for different categories between
2004 to 2006). Subject to further
consultations with impacted
stakeholders and CBA
Building Air Limit releases from low
As proposed + consider further
Conditioning pressure purges to less than release reductions
(chillers)
0.1 kg/kg air effective 2003
Prohibit recharge after major
Ban refill with CFCs
overhaul of equipment starting in
effective 2008
2005 or 2008 (age of equipment
may be considered in final prop.)
Environment Canada
Environnement Canada
Initial and Current Proposals
Sector
January Proposal
Current Thinking
Halons
Ban refill of portable
equipment by 2003
Approach unchanged
Ban refill of fixed
equipment by 2005
Starting in 2005, only allow 1 refill of
equipment; owner will have 12 months to
convert system following refill.
Ban refill by 2010
Allow refill permits
for critical uses
Environment Canada
Environnement Canada
Exempt critical uses
Disposal of Surplus Stocks
l Very limited disposal capability in Canada
l Only
one facility has permit
l Current capacity very small; modifications to facility
needed to increase capacity
l Disposal
facilities available in other
countries:
l United
States
l Europe
l Australia
Environment Canada
Environnement Canada
Disposal of Surplus Stocks
l
l
Guideline Document on disposal technologies is a
key component of the Disposal Strategy
Guideline Document:
l Provide
information to regulatory authorities
l Assist in determining how the surplus will be
disposed of in Canada
Environment Canada
Environnement Canada
Next Steps
l
Complete Consultations
June-July
l
Status Report to NAICC-A and SAC
June 12
l
Propose Strategy to NAICC-A
August
l
Propose Strategy to CCME
Fall 2000
l
Distribute Strategy
Winter 2000
Environment Canada
Environnement Canada
Steps Taken so far in Developing the
Strategy
l
l
l
l
l
Forecasting Surplus
Consultations
Developing Options, Management tools
Identifying the Issues
Establishing the Objective
Environment Canada
Environnement Canada
Consultations
l
Consultation meetings in 5 cities in February: 200
participants
l
Strategy posted on the web
l
Comments received in writing
Environment Canada
Environnement Canada
Comments Received - General
l
Consistency among jurisdictions is important
l
Sufficient time to comply necessary
l
Develop cost-benefit analysis
l
Halon sector much less organized than R/AC
l
In some cases a refill ban is equivalent to a use ban
Environment Canada
Environnement Canada
Comments Received - General
l
Stakeholders supportive of overall initiative
l
Many practical suggestions as to how to improve
strategy
l
Extended producer responsibility initiatives desirable
l
Governments will need to initiate awareness program
l
Incentives desirable
l
Access to disposal facilities perceived as an issue
Environment Canada
Environnement Canada
8. Panel Discussion
PANEL DISCUSSION
The following questions were prepared to help generate and focus discussion on
the general issues relevant to the management of existing stocks of CFCs and
halons at the workshop Panel Discussion.
1. Should non-Article 5 parties to the Montreal Protocol destroy their existing
stocks of CFCs and halons?
2. What are the challenges/obstacles/barriers to developing ODS disposal
programs in non-Article 5 countries? In Article 5 countries?
3. What challenges/obstacles/barriers have been encountered in non-Article 5
countries in the destruction of CFCs and halons? In Article 5 countries?
4. What challenges/obstacles/barriers have been encountered in non-Article 5
countries in the commercialization of destruction technologies? In Article 5
countries?
5. Should there be an international mechanism to help countries dispose of
ODS?
6. What are the options available for dealing with the problem of contaminated
CFCs in Article 5 countries?
7. What type of international mechanism is required to disseminate information
on disposal technologies (in addition to the Meetings of the Parties)? What
are the information needs and who could best address them?
8. Given the importance of climate change concerns for the emission of
greenhouse gases from incineration, should preference be given to disposal
programs that use non-incineration technologies?
Panel chairpersons
Geoff Tierney, United Nations Environment Programme
John Hilborn, Environment Canada
Panelists
Francesco Castronovo, Secretaria de Medio Ambiente, Mexico
Alex Cavadias, Environment Canada
Dr. Nelson Espinosa Pena, Ministerio de Ciencia Technologia y Medio
Ambiente, Cuba
Blaise Horisberger, Département Fédéral de l'Environnement, des Transports,
de l'Energie et de la Communication, Switzerland
Dr. David B. Omotosho, Federal Ministry of Environment, Nigeria
Due to time constraints, it was not possible for the panelists to address each of
the prepared questions. Instead, the questions set the context for a general
discussion during which various views were expressed about the need and
timing of ODS disposal or destruction in both Article 5 and non-Article 5
countries. Below are some of the main opinions expressed by various panelists
and participants. The reporting of these opinions does not imply that there was a
consensus on any of the issues discussed or views expressed.
Non-Article 5 countries issues
•
Some non-Article 5 countries have or are making a policy decision to ban the
use of CFCs and/or halons before the end of the useful life of equipment. If a
decision is made to convert or ban ODS-based equipment, then the only
option left for the ODS previously contained in such equipment is destruction.
•
The costs involved in retiring equipment prematurely and subsequently
destroying surplus stocks of ODS are too high to impose on society.
Moreover, compliance with the Montreal Protocol does not require destruction
of ODS.
•
Early retirement of equipment could provide an opportunity for industry to
upgrade and adopt more energy-efficient, thus more cost-effective,
technologies.
Article 5 countries issues
•
Given the high costs of destruction, the best use of CFCs is to recycle and reuse them until the end of the useful life of equipment.
•
Destruction is possibly not required in all ODS-using sectors, but certainly in
some. As an example, as old fire extinguishers are being replaced, people
are starting to stockpile halon 1211, which has little market value. It is not
clear what could be done with such stockpiles except destroy them.
•
Following the implementation of recovery and recycling programs in Article 5
countries, small amounts of CFCs are being stored. Capacity is required to
destroy these ODS in Article 5 countries, or else the ODS should be exported
for destruction.
•
Guidance from the Montreal Protocol is required with respect to contaminated
ODS.
•
Recyclers and reclaimers of ODS in some non-Article 5 countries would be
happy to pay Article 5 countries for their contaminated ODS.
•
In many countries the amounts of ODS that may require destruction or
recycling will likely be small; hence perhaps the solution is to build regional
facilities for destruction or recycling.
•
Destruction of ODS on-site in many countries is not economical; therefore,
the possibility of sending waste ODS abroad for destruction should be
considered.
•
Information exchange on disposal issues is a good start, but eventually an
international mechanism should be established to help countries dispose of
their ODS.
General issues
•
While in the early years of the Protocol, it was assumed that whatever ODS
were in equipment would be released into the atmosphere, the advance of
new technologies and the possibility of retrofitting old equipment are
providing options for governments to go further than what is strictly required
under the Protocol. Furthermore, in light of ozone depletion predicted to be
at a peak over the next ten years, all governments need to consider the issue
of disposal, although the actual decision to destroy or not destroy will depend
on national circumstances.
•
In order to lower costs of ODS destruction, perhaps linkages could be
established with other international environmental agreements, such as the
POPs Protocol, wherein destruction of chemicals could be required.
•
Banning the use of CFCs and/or halons in non-Article 5 countries could lead
to the export of used equipment functioning on ODS to Article 5 countries, in
effect resulting in simply displacing emissions of ODS from non-Article 5 to
Article 5 countries. While some participants felt that the way to prevent this
problem from occurring was to ban the export of used ODS-based
equipment, others pointed out that this may not be possible because of the
need to stay consistent with the GATT.