North American Proposal for
Phasing Down HFCs under the
Montreal Protocol
Presentation by
Canada, Mexico and the United States
Main Meeting of Ozone Action Networks from
Latin America and the Caribbean
Trinidad and Tobago
October 4-7, 2011
1
Scope of Presentation
• Linkages between Ozone-Depleting Substances
(ODS) and Hydrofluorocarbons (HFCs)
• Transition by Sectors
• Trilateral Amendment Proposal Overview
• Benefits
• Legal Aspects and Policy Rationale
• Financial Assistance under Montreal Protocol
• HFC-23 By-Product Emissions from HCFC-22
Production
• Questions and Comments
2
Relationship between ODS and
Other Greenhouse Gases
Ozone
Greenhouse
Depleting Substances
Gases
(Halogen Gases)
HFCs
Halons
Methyl Chloride
H-1301
(CH3Cl)
H-1211
CO2
HFC-23
HFC-134a
N2O
HFC-125
HCFCs
Methyl Bromide
CH4
(CH3Br)
Carbon Tetrachloride
(CCl4)
Methyl Chloroform
(CH3CCl3)
SF6
CFCs
CFC-11
CFC-12
CFC-113
PFCs
3
Many Safer ODS Substitutes
Available, More on the Way
• “The ultimate choice of technology to phase out HCFCs will be
based on ozone depletion and also climate impact, health,
safety, affordability and availability, as Decision XIX/6 requires.”
May 2010 Technology and Economic Assessment Panel (TEAP)
Task Force Report : Assessment Of HCFCs
and Environmentally-Sound Alternatives
• 2010 TEAP Progress Report
–
–
–
–
Substitutes for many sectors and sub-sectors available
Additional substitutes under development
Global acceptance for alternatives strengthening
Potential to skip higher-GWP HFC alternatives, go directly to
lower-GWP alternatives
4
ODS Sectors Will Transition at
Different Paces
• Various factors influence speed of transition
– Domestic and regional requirements
• e.g., European F-Gas rule
– Availability of alternatives
– Advanced design options that reduce charge size
– Global expansion of air conditioning and
refrigeration
– Proven technologies, ability to avoid multiple
transitions
– Opportunity to focus on sectors instead of
chemicals
• Examples follow
5
Potential Near-Term Transition:
Motor Vehicle Air Conditioning
Passenger Cars &
Light-Duty Trucks:
CO2
HFO
HFC
CFC
HFO
HFC
Buses/Trains:
HFC
CFC
HCFC
CO2
1990s: CFCs to HFC/HCFCs
Near future: CO2, HFOs, or lower-GWP HFCs
6
Available Options:
Commercial Refrigeration
Stand-Alone
Equipment
CFCs/HCFCs->HFCs->
HCs/CO2
Condensing
Unit Systems
HCFCs->HFCs->
CO2, ammonia, HCs
Multiplex Rack
Systems
CFCs->HCFCs->Blends->
CO2, ammonia, HCs, HFOs
7
Changing Chemicals Not Only Option
Advanced refrigeration system designs:
• Distributed systems & indirect systems available
– Distributed systems can lower refrigerant charge by 30–50%
– Indirect systems can lower refrigerant charge by 50–80%
• Europe: indirect systems are norm
• U.S.: distributed systems ~40% of new installations and indirect
systems are gaining significant market share
Supermarkets can reduce HFC use
by changing system designs
8
Available & Near-Term Options:
Unitary A/C
Alternatives to R-407C & R-410A:
- lower-GWP HFCs, e.g., HFC-32
- HCs and CO2
- potentially HFOs, blends
HFC
HFCs
HCFC
HC
CO2
HCFCs transitioning to HFCs
Near future: CO2, HFOs, or
lower-GWP HFCs
9
Projected HFC Growth:
PNAS, 2009, Velders, et al
U.S. EPA, 2009
Historical & Projected HFC Consumption
5,000
A5
Non-A5
World
Consumption (MMTCO2eq)
4,000
3,000
2,000
1,000
0
2000
2010
2020
2030
2040
2050
HFC growth linked to ODS
phaseout, expanding availability
of air conditioning & refrigeration
10
Current Measures on HFCs under the UNFCCC
• HFCs are one of six greenhouse gases
controlled under the UNFCCC
• However, targeted measures on this group of
gases are not required under the UNFCCC
• The CDM issues international offset credits to
approved projects that destroy HFC-23 in
developing countries, but such projects are
voluntary
– Projects that earn credits are in developing countries
and are voluntary
11
2011 Trilateral Amendment Proposal
• Canada, Mexico & United States Proposed Addressing HFC
Production and Consumption
• Phasedown, not Phaseout of HFCs
– Phases Down to 15% of Baseline, GWP-weighted
• 2011 proposal includes new HFC baselines:
– Non-Article 5 Parties: average 2005-2008 HFC plus 85% of HCFC
consumption/production
– Article 5 Parties: average 2005-2008 HCFC consumption/production
•
•
•
•
Covers 20 HFCs, including 2 known as HFOs
Limits by-product emissions of HFC-23
Complements but leaves unchanged UNFCCC obligations
Approach is consistent with our supported approach to address
aviation and maritime bunker emissions in ICAO and IMO
12
Trilateral Proposal Phasedown Schedule
(MP designations)
13
Substantial Climate Benefits Possible
• Trilateral Proposal global cumulative benefits:
– ~3,000 MtCO2eq through 2020
• Developed country Parties = 3,000 MtCO2eq
• Developing country Parties = 150 MtCO2eq
– ~88,000 MtCO2eq through 2050
• Developed country 5 Parties = 43,000 MtCO2eq
• Developing country Parties = 45,000 MtCO2eq
– ~ 11,600 MtCO2eq through 2050 from HFC-23 byproduct
emissions controls
14
Trilateral Proposal Benefits
in Context
consumption
reductions
emission reductions
emissions
100,000
90,000
MMTCO2eq
80,000
70,000
60,000
50,000
40,000
30,000
20,000
10,000
0
North American
Micronesia
Montreal
Proposal (2014- Proposal (2013- Protocol (19902050)
2050)
2010)
Accelerated
HCFC Phaseout
(2010-2039)
Kyoto Protocol
(2008-2012)
Copenhagen
Accord (20122020)
Annex I
Emissions in
2007
15
Montreal Protocol History: Considers
HFCs and Other ODS Substitutes
• Given HFC growth stems from ODS phaseout, Montreal
Protocol has special responsibility to address HFCs
• Long history of concern:
– Decision X/16 (1998): convened workshop with UNFCCC,
establishing information on HFCs & PFCs, ways to limit
emissions
– Decision XIV/10 (2002): TEAP collaborates with IPCC to develop
report: Safeguarding the Ozone Layer and the Global Climate
System; Issues Related to HFCs and PFCs
– Decision XX/8 (2008): report and workshop on high-GWP
alternatives to ODS, principally HFCs
– ExCom Decision 60/44 (2010): allows 25% funding increment,
above cost-effectiveness thresholds, when needed for climate
benefits, mainly to avoid high-GWP HFCs
16
Moving Beyond Concern,
Taking Action for Safer ODS Phaseout
• Historically, Montreal Protocol has not controlled HFCs, but has
taken steps to develop information and understanding on HFC
use & emissions at global level
• Montreal Protocol built world’s widest body of experience and
expertise on sectors using HFCs
• Vienna Convention Article 2 provides scope
– HFCs create adverse effects as a result of ozone layer protection, so
harmonizing approaches reduces overall impacts
• Therefore, it is appropriate and incumbent on Montreal Protocol
to take action on HFCs in collaboration with UNFCCC
• Atmosphere will not care about the forum: Montreal Protocol,
UNFCCC, or both together
17
Financial Assistance for Transition
• Ensure timely financial assistance through Montreal
Protocol’s Multilateral Fund (MLF) to address HFCs before
huge growth occurs
– Longer we wait, more difficult and costly to transition sectors to
low-GWP substitutes
– Waiting increases damage to climate system
• Effective incremental cost model of MLF can address
HFCs used as ODS substitutes
• Proposal allows short-term HFC growth to replace ODS
when no other cost-effective alternatives are available
• Developing countries are provided with a significant grace
period to comply with proposed control measures
– Recognizes short-term focus must be on ODS phase-out
18
HFC-23 By-Product Emissions
• Background:
– HFC-23 is a by-product of producing HCFC-22
– HFC-23 has highest GWP of all HFCs
– HFC-23 emissions controlled under the CDM are decreasing, but
uncontrolled HFC-23 emissions are increasing in developing
countries (Montzka, et al)
– CDM projects cover <50% HFC-23 emissions in developing
countries
• Proposal would control by-product emissions
– Covers emissions from HCFC-22 production facilities
– Makes by-product obligations eligible for MLF funding
• Would cover facilities not covered by CDM
19
Proposed Separate Decision on
HFC-23 By-Product Emissions
• Recognized HFC emissions covered by Kyoto
Protocol to UNFCCC
• Requested Executive Committee of MLF to:
– Update information on HCFC-22 facilities, including
whether CDM-covered
– Formulate funding guidelines for un-covered
facilities
– Approve funding for implementation of projects to
reduce HFC-23 by-product emissions
20
Summary
• Suite of known alternatives, technologies, and better
handling can significantly reduce HFC consumption in
near and long term
• Considering ODS and HFCs together allows for focus
on sectors, rather than chemicals
• HFC amendment proposals provide meaningful real
opportunities for near-term climate benefits
• Montreal Protocol appropriate vehicle
–
–
–
–
HFCs use tied to ODS phaseout
Successful experience
Effective financial mechanism
Sector expertise
21