AUSTRALIAN HALON
MANAGEMENT STRATEGY
ENVIRONMENT AUSTRALIA
FEBRUARY 2000
AUSTRALIAN HALON MANAGEMENT STRATEGY
Australia is a signatory to the Montreal Protocol on Substances that Deplete the
Ozone Layer. The Protocol is an international treaty that sets out a mandatory
timetable for the phasing out of ozone depleting substances, including halon,
and urges Parties to act to minimise damage to the ozone layer.
The Australia Halon Management Strategy was provided to the Ozone
Secretariat in July 2000. This fulfiled Australia’s obligations under Decision
X/7 of the Protocol, to develop a national strategy for the management of
halons, including emissions reduction and the ultimate elimination of their
use.
This Strategy represents an ongoing commitment by the Australian
Government to maintain a leading role in the phase-out and responsible
management of halon stocks in the region, in line with its international
obligations.
ii
Table of Contents
TABLE OF CONTENTS ................................................................................................................... III
1. INTRODUCTION ............................................................................................................................ 1
1.1
1.2
1.3
1.4
1.5
1.6
THE PURPOSE OF THE AUSTRALIAN HALON MANAGEMENT STRATEGY ...................................... 1
THE EFFECTS OF HALONS ON THE OZONE LAYER ......................................................................... 1
INTERNATIONAL AGREEMENTS................................................................................................... 2
JURISDICTIONAL AND LEGISLATIVE FRAMEWORK ....................................................................... 2
HALON ALTERNATIVES ............................................................................................................... 3
CONSULTATION .......................................................................................................................... 3
2. NATIONAL INVENTORY OF HALON STOCKS ................................................................... 5
2.1
2.2
2.3
2.4
2.5
2.6
2.7
HALON IN AUSTRALIA ................................................................................................................ 5
NATIONAL HALON BANK (NHB) ................................................................................................ 5
FIRE PROTECTION INDUSTRY
AVIATION ................................................................................................................................... 6
DEPARTMENT OF DEFENCE ......................................................................................................... 6
SHIPPING ..................................................................................................................................... 6
HALON STILL USED IN AUSTRALIA .............................................................................................. 7
3. FUTURE REQUIREMENTS OF HALON AND PROJECTED SURPLUS ........................... 8
3.1
3.2
3.3
3.4
AUSTRALIA’S NATIONAL OBLIGATIONS....................................................................................... 8
SURPLUS PURIFIED HALON 1211 AND 1301 ................................................................................. 9
AUSTRALIA’S INTERNATIONAL OBLIGATION ............................................................................... 9
MEETING NATIONAL AND INTERNATIONAL OBLIGATIONS ......................................................... 10
4. NATIONAL HALON BANK (NHB) - A REGIONAL ENVIRONMENT FACILITY ...... 12
4.1
4.2
4.3
A WORLD CLASS FACILITY........................................................................................................ 12
DEVELOPMENT OF THE NHB .................................................................................................... 12
OPPORTUNITIES BEYOND 2000 .................................................................................................. 12
5. FINANCE OF THE NHB ............................................................................................................... 14
5.1
5.2
5.3
NHB FUNDING BEYOND 2000 ................................................................................................... 14
USER PAYS ................................................................................................................................ 14
REVENUE RAISED BY THE SALE OF HALON 1301........................................................................ 14
CONCLUSION ................................................................................................................................... 15
APPENDIX I ..................................................................................................................................... 16
KEY ELEMENTS OF THE AUSTRALIAN HALON MANAGEMENT STRATEGY (AHMS) ........ 16
APPENDIX II .................................................................................................................................... 19
GUIDELINES ON SUPPLY OF HALON TO SHIPS IN AUSTRALIAN PORTS .......................... 19
APPENDIX III................................................................................................................................... 24
DECISION X/7 OF MONTREAL PROTOCOL ............................................................................ 24
iii
1. INTRODUCTION
1.1
The purpose of the Australian Halon Management Strategy
The Australian Halon Management Strategy (AHMS) has been developed to
provide a framework for the responsible management of Australia’s halon
stocks to 2030. Australia’s halon stocks will need to be managed to 2030 to
ensure supplies of recycled halons are available for essential uses in long lived
equipment in aircraft, shipping and certain military applications.
The key elements of the AHMS were approved by the Commonwealth
Government on 1 July 1999. A summary of the key elements are at Appendix
I to this document.
1.2
The effects of halons on the ozone layer
The ozone layer occurs in the upper atmosphere (the stratosphere) 15-30
kilometres above the surface of the earth, and protects life on earth by
absorbing ultra-violet (UV) radiation from the sun. UV radiation is linked to
skin cancer, genetic damage and reduced productivity in agricultural crops
and the food chain.
Concerns about the depletion of the stratospheric ozone layer were raised by
scientists in 1985 when they recorded the first ozone "hole" over Antarctica.
The formation of the hole over Antarctica has become a regular springtime
feature since then and is a key public indicator of the global ozone depletion
problem.
Halons are fully halogenated chemicals that have relatively long lifetimes in
the atmosphere. They are broken down in the stratosphere releasing reactive
bromine that is extremely damaging to ozone. Reactions involving bromine
are estimated to be responsible for 25 per cent of the chemical destruction of
ozone over Antarctica and 50 per cent over the Arctic. The ozone depleting
potential of halons is 10 times greater than that of chloroflurocarbons (CFCs).
As such, halons are a very aggressive ozone depleting chemical. One
kilogram of halon 1211 can destroy 50 tonnes of ozone.
Halons are fire fighting agents that were introduced into Australia in the early
1970s. They quickly replaced many previously accepted fire fighting
products because of their superior fire fighting characteristics and ease of use.
Halon 1211 was commonly used in portable fire extinguishers, while fixed fire
protection systems, such as those which protect computer rooms and ship
engine rooms, commonly contained halon 1301.
1
1.3
International agreements
Australia is required to meet a number of international obligations regarding
the import, export and provision of halon. The major internationally binding
conventions and/or protocols include: the Montreal Protocol on Substances that
Deplete the Ozone Layer, Basel Convention on the Control of Transboundary
Movements of Hazardous Waste and their Disposal, International Convention for
the Safety of Life at Sea (SOLAS), International Airlines Technical Pool Agreement
and the Cooperative Defence Logistic Support Agreement.
Halon fire suppressants were the first group of chemicals to be phased out
internationally under the Montreal Protocol on Substances that Deplete the Ozone
Layer (the Protocol). Under the Protocol the production and consumption of
halons were banned in developed countries from 1 January 1994 except for
essential uses. Developing countries are due to phase out import and
manufacture of halons in 2010.
1.4
Jurisdictional and legislative framework
Australia operates under a Federal system of government where
State/Territory and Commonwealth Governments have distinct powers and
responsibilities. This Strategy recognises the interrelationship between the
powers and responsibilities of both levels of government.
The Commonwealth Government is responsible for meeting Australia’s
international obligations under the Protocol to phase-out production and
consumption of ODS.
The Ozone Protection Act 1989 (Commonwealth) (the Act) was implemented to
enable Australia to meet its obligations under the Protocol to phase out
production and consumption of ozone depleting substances (ODS), including
halons. Under the Act, Australia ceased importation of halons from
31 December 1992, for all but essential uses. This has effectively reduced
Australia’s consumption (as defined in the Protocol) to zero, one year ahead
of the Protocol phase-out schedule.
State and Territory Governments are responsible for minimising emissions of
ODS, through training, accreditation programs and controls on their use. State
and Territory legislation essentially controls the ownership and use of halon,
and halon systems.
Continued use of halons in non-essential equipment was banned in most
jurisdictions from 31 December 1995.
2
The key legislation is:
 Victoria - Industrial Waste Management Policy (Control of Ozone
Depleting Substances) IW-1B;
 NSW - Ozone Protection Act 1989 - Ozone Protection Regulations 1997;
 Queensland - Environment Protection Act 1994 - Environment Protection
Regulations 1998;
 Western Australia - Environmental Protection Act (Ozone Protection)
Policy 1993;
 South Australia - Environment Protection Act 1993;
 Tasmania - Environmental Management and Pollution Control Act 1994
 Northern Territory - Ozone Protection Act 1991 - Ozone Protection
Regulations;
 ACT; Environment Protection Act 1997 - Environment Protection
(Consequential Provisions) Act 1997.
1.5
Halon Alternatives
Halons are clean, non-conductive, safe for people and highly effective.
Replacing them in their many applications continues to present challenges for
fire protection professionals. A wide variety of alternatives are now available
for the majority of traditional halon uses, although individually, none of the
current alternatives covers the broad spectrum of applications that halon did.
Halon alternatives include halocarbon gases, inert gases and water mist
systems. There is increasing industry awareness that it is the engineering of
fire protection systems that is critical, not just the agent that is being used. As
part of such engineering, the selection and installation of fire protection
systems to provide the protection required is an important factor. Users of
halon for essential applications are maintaining their existing equipment with
recycled halon and are now beginning to address potential replacements.
1.6
Consultation
The Australian and New Zealand Environment and Conservation Council
(ANZECC) coordinates environment protection activities in Australia. The
Council comprises the environment ministers from the Australian
Commonwealth, States, Territories and New Zealand.
ANZECC’s responsibilities have included the development of a Strategy for
Ozone Protection that details Australia’s response to the global phase out
program of ODS, including halon. The original strategy, released in 1989, was
subsequently revised by ANZECC in 1994. Some of the issues and
recommendations raised in the Strategy for Ozone Protection have been used as
a basis for the development of the AHMS.
3
In the process of developing the AHMS, the Commonwealth consulted with a
wide range of stakeholders including State and Territory government
agencies, industry and environment organisations. As with any consultation
process, there were often significant differences in the perspective of
stakeholders. The Commonwealth has taken these views into consideration in
preparing the AHMS.
4
2. NATIONAL INVENTORY OF HALON STOCKS
2.1
Halon in Australia
There are three major sectors of essential use of halon common to nearly all
Australian States and Territories:
 Aviation;
 Defence; and
 Maritime.
Small quantities of halon are also used in power and water utilities. These
uses are expected to be phased out within 3 to 5 years. There are also some
halon stocks installed in offshore gas/oil platforms moored semipermanently, and their stocks will be replaced progressively as the platforms
are refitted.
In addition to the halon installed in fire protection equipment, including spare
containers, stocks are maintained in a number of halon banks. A halon
inventory carried out in 1998 identified the following government and
commercial sectors holding stocks of halon:





The National Halon Bank (NHB)
Fire protection industry
Aviation industry
Department of Defence
Shipping Industry.
2.2
National Halon Bank (NHB)
The National Halon Bank was established in 1993 as a result of the December
1992 Prime Minister’s Environment Statement. The Statement noted that
Australia’s success with halon phase out meant that stocks of halon were
rapidly accumulating within government, business and the community from
decommissioned halon fire fighting systems and portable equipment. A
Halon Bank was needed to collect and store halon under controlled
conditions to prevent accidental release. The Prime Minister’s 1992 Statement
concluded:
“In accordance with the revised Montreal Protocol, new halon will
not be provided in developed countries from 1994. The halon
‘bank’ can then be used to supply essential uses in Australia and
overseas and to help meet the needs of developing countries.
Stocks not recycled will be destroyed.”
The NHB has become the second largest halon depository in the world.
5
The NHB is a Commonwealth owned facility operated under contract by
DASCEM Holdings Pty. Ltd. DASCEM Holdings Pty. Ltd. is a company
formed from the privatisation of the Department of Administrative Services
Centre for Environmental Management, the Government body that
established the Bank.
Ownership and accountability for the NHB was transferred from the
Commonwealth Department of Finance and Administration to Environment
Australia (EA) on 1 July 1999.
Halon held at the Bank originated from halon deposited by industry and
government agencies following the decommissioning of non-essential halon
fire protection systems. A service charge, sufficient to fund the collection,
storage and disposal of the halon was levied on deposits of halon 1211 and
some deposits of halon 1301. Private individuals and small businesses were
able to surrender their halon at no cost. This approach was agreed under the
ANZECC Strategy for Ozone Protection.
2.3
Fire Protection Industry
A small quantity of halon is held by the fire protection industry to meet the
essential uses of their clients. The fire protection industry has been
instrumental in the decommissioning and recovery of halon from the
commercial sector. Individual operators are authorised to hold halon under
State/Territory legislation.
2.4
Aviation
The aviation industry retains stocks of halon to service fire protection
equipment on Australian aircraft. Australia is also required to replenish
halon lost or used on foreign aircraft flying to Australia.
2.5
Department of Defence
The Department of Defence holds stocks of halon to meet the estimated
requirements for the life of current equipment and anticipated use in new
equipment. These stocks are held for the purposes of fire protection and
explosion suppression.
2.6
Shipping
The shipping industry holds small quantities of halon for topping up fire
protection equipment.
6
2.7
Halon still used in Australia
Other than banked stocks of halon, the total identified installed quantities of
halon (according to an inventory carried out in August 1998) are
approximately 20 tonnes of halon 1211 and approximately 180 tonnes of
halon 1301. These quantities include only those in essential use applications
or in non-essential applications where time has been allowed to arrange
decommissioning.
It is probable that additional halon systems exist in Australia which have not
yet been identified. Additional inventory work is required to locate and
decommission these halon systems.
7
3. FUTURE REQUIREMENTS OF HALON AND PROJECTED SURPLUS
3.1
Australia’s national obligations
Under the ANZECC Strategy for Ozone Protection, most States and Territories
require the decommissioning of non-essential fixed and portable halon fire
protection equipment. Failure to decommission surplus equipment can result
in legal action by State and Territory environmental agencies.
Exemption from legal action is only granted if the halon is required for
essential use purposes. The criteria for essential use is regularly assessed by
the National Halon Essential Uses Panel (NHEUP). The Panel consists of a
representative from the Insurance Council of Australia, the Fire Protection
Industry Association of Australia, the Australian Conservation Foundation
and the Plumbers and Gas-Fitters Employees’ Union. Its secretariat is
provided by Environment Australia (EA). The Panel makes recommendations
and sets interpretive precedents for all States and Territories in order to
eliminate unnecessary halon use.
Australia will maintain stocks of halon 1211 and 1301 for essential use for the
service of the defence, aviation and maritime sectors. Although Australia will
bank stocks of halon up until 2030, both the defence and aviation sectors will
only use halon until an acceptable alternative is found to replace their fire
protection systems.
In regard to the maritime sector there are a number of alternatives to halon
that are currently available. These alternatives are installed on all new marine
vessels. Older marine vessels are allowed to continue using halon in fire
protection systems as the costs and practicalities of installing halon
alternatives are highly prohibitive.
A review is currently being conducted to determine whether halon systems
fitted in existing ships should be replaced by other approved systems or
whether they can be remain in service for the remaining operational life of the
ship. The final decision will be guided by the NHEUP.
Classification of essential uses of halon on ships is determined by criteria set
out in the ANZECC Strategy. In addition, the Guidelines on Supply of Halon to
Ships in Australian Ports provides practical and realistic advice to minimise
the use of halons on ships while recognising their need for essential
applications. The guidelines were developed following consultation between
8
the Australian Shipowners’ Association, the NHEUP and the Ozone
Protection Consultative Committee1.
Specifically, the guidelines provide for ships with halon systems designated
as an essential use (mainly manned engine rooms and machinery space
systems) to continue to be supplied with halon. Non-essential halon systems
are to be decommissioned/replaced at or before the next major five-yearly
survey (dry docking) of the vessel.
A copy of the Guidelines on Supply of Halon to Ships in Australian Ports is at
Appendix II to this document.
3.2
Surplus purified halon 1211 and 1301
The inventory of halon carried out in 1998 also included a projected
Australian use of halon for essential uses to the year 2030. Based on this
projection approximately 70 tonnes of halon 1211 and approximately 250
tonnes of halon 1301 has been set aside as an essential use reserve. This stock
will be retained at the NHB and made available to end users as required.
The inventory on projected use will be updated periodically to provide an
accurate basis for future policy decisions on halon.
3.3
Australia’s international obligation
Ozone protection is a global issue and Australia must consider its
international obligations regarding halon management when deciding to
destroy or recycle halon.
Such considerations include the finding by the Protocol’s Halon Technical
Options Committee (HTOC) that very few halon 1211 applications are
essential uses and stocks contained in existing equipment provide a more
than adequate supply to meet these essential use applications.
Australia has destroyed in excess of 1,000 tonnes of halon 1211 to date.
The HTOC has also reported through the 1988 TEAP2 Assessment Report that
global supply and demand for halon 1301 is currently in balance and will
remain so over the next 30 years. On this basis, HTOC advises against halon
1301 destruction, which may compromise rationalisation of halon production:
1
The Ozone Protection Consultative Committee (OPCC) was established in 1989 as a forum for
government, industry, community and conservation groups to provide a coordinated approach across
these sectors to ozone protection in Australia.
2
The Montreal Protocol Technical and Economic Assessment Panel.
9
The needs of “Critical Users” who still require halon 1301 –
including, at present, aviation and some defence, oil and gas, and
shipping – are being met by management of the existing inventory.
They are in approximate balance … with the rate at which the agent
is coming onto the market as systems reach the end of their useful
life and are decommissioned.
It is important to ensure that this balance is maintained, that the
halon retains its asset value, and that it finds its way to the Critical
Uses. Until there is a clear surplus of halon 1301, widespread
destruction cannot be recommended.”
1998 TEAP Assessment Report (pp 11-12)
Australia is guided by the conclusions of the HTOC on the responsible
management of remaining halons:
“The phase out of production of halon in non-Article 5(1) countries
has resulted in recycled halon being the only available supply in the
developed countries, and the primary supply of halon 1301
elsewhere. The key to ensuring an adequate halon supply for
Critical Uses, while at the same time minimising unnecessary
emissions, is to develop programmes to encourage the wise
management of this resource.
Repositories and clearinghouses provide a sound pathway for
halons to be directed to Critical Uses, and also allow for tracking of
material if deemed necessary. They are also the key to responsible
trade across international boundaries, and should be supported and
encouraged by national governments …”
1999 HTOC Assessment Report (pp 101-102)
The export of surplus halon 1301 from Australia to Protocol Parties to meet
essential use needs is likely to offset production or imports of newly
produced halon in those countries.
3.4
Meeting national and international obligations
In light of Australia’s
Commonwealth will:

national
and
international
obligations,
the
continue to ensure a supply of halon 1211 and 1301 for essential uses
applications in Australia, to be stored at the NHB up to 2030;
10

sell Commonwealth owned surplus halon 1301 (maximum approx 310
purified tonnes3) to Montreal Protocol Parties for essential use
applications. Although all halon in the NHB is ‘Commonwealth owned’,
for the purpose of international sale, the Commonwealth will limit sales of
halon 1301 to an amount not exceeding the total deposits estimated to
have been made by the Commonwealth and its own Agencies.

sell Commonwealth owned surplus halon 1211 to Montreal Protocol
Parties for essential use applications, and

undertake ongoing stocktaking of halon including validation of projected
usage requirements.
Note: This section was amended in February 2007 to remove the prohibition of commercial sales of halon.
3
This figure is higher than the 260 purified tonnes identified in the key elements of the Strategy (see
Appendix I) and represents a more recent estimation as at January 2000.
11
4. NATIONAL HALON BANK (NHB) - A REGIONAL ENVIRONMENT
FACILITY
4.1
A world class facility
The NHB is a “state of the art” facility, currently unmatched throughout the
world for the completeness of its halon banking and ODS services. It is a
unique facility that will be developed by Environment Australia as a regional
and international facility to assist with responsible management of ODS. The
NHB operation has, perhaps, the unusual opportunity of setting an
international benchmark against which other potential facilities can be
measured.
4.2
Development of the NHB
In 1997, DASCEM Holdings Pty. Ltd. were contracted to take responsibility
for three management contracts, to manage the NHB activities on behalf of
the Commonwealth Government. The contracts are:
 The Management Agreement – to operate the Tottenham (Melbourne),
Decanting, Conversion and Recycling Facility plus continue the
commercial collection program;
 The Community Service Obligation (CSO) Program Agreement – to
manage the CSO Program including the design and implementation of
public awareness campaigns and undertaking a community and small
business halon collection program as well as collectable and dumped halon
programs; and
 The Sale of Halon 1301 Agreement – to sell halon on behalf of the
Commonwealth to approved users in Australia and overseas.
Under these arrangements the NHB has primarily functioned as a domestic
halon 1211 and 1301 decanting, purification, destruction and storage facility.
4.3
Opportunities beyond 2000
Since Australia has managed to phase-out supply and use of halons without
significant technical or economic disruption, it has strong grounds to claim
international environmental leadership in halon phase-out policy and
program performance and the associated development of expertise in halon
management. Australia is now well placed to provide technical support to
developing countries in our region and to provide halon management
expertise and technology in order to minimize global ozone depletion.
12
The NHB is the only facility of its type in the world providing a “cradle to
grave” halon banking service. Although the Australian domestic halon
program is substantially completed, the NHB can continue to play a
significant role as an Asia-Pacific regional banking facility with the potential
and opportunity to provide a range of halon management services to other
countries.
It is likely that few such facilities, which are very expensive and complex to
establish, will be established in other parts of the world. It is expected that
many countries will seek to make use of Australia’s NHB. The potential exists
for the NHB to help other countries with:
 the development of their phase-out programs;
 the reclamation, recycling and reuse of their halon stocks;
 the destruction of excess and contaminated halon; and
 provision of halon to meet their own critical use needs.
To take advantage of these opportunities, the Commonwealth will also allow
the import of recovered halon from the Protocol Parties for decanting,
purification, storage, destruction and/or re-export to the country of origin for
redeployment for essential use applications.
Environment Australia will facilitate the development of the NHB as a
regional environment facility for best practice in ODS management.
These opportunities are applicable to all enterprises in Australia with the
capacity and technology to decant, purify, destroy and store halon 1211 and
1301, other ODS and hazardous wastes. This will ensure that a competitive
commercial advantage is not accorded to one particular enterprise, as
stipulated by the Australian Competition and Consumer Commission.
13
5. FINANCE OF THE NHB
5.1
NHB funding beyond 2000
At present, all costs associated with the ongoing decanting, purification,
destruction and storage of halon are borne by the Commonwealth and offset
by halon deposit fees. Following the completion of Australia’s halon program
in October 2000, Environment Australia will continue to develop halon
management policy and to manage the NHB.
Following the completion of the current collection program in October 2000
the government will ensure adequate funding for the further development of
halon policy and the NHB as a regional environmental facility.
5.2
User pays
In order to manage contracts and minimise costs for the ongoing operation of
the NHB, Environment Australia will consider user pays arrangements for
ongoing storage and maintenance of halon for critical equipment. These
arrangements will ensure that essential users bear the costs associated with
decanting, purifying and storing their halon requirements held at the NHB.
These costs may include, but are not limited to:
 purchase of nominated quantities of halon if not user supplied;
 purchase of storage cylinders and/or lifetime cylinder monitoring and
maintenance;
 cylinder storage charges;
 program administration charges; and
 destruction costs of halon which is no longer required to service essential
fire protection equipment.
5.3
Revenue raised by the sale of halon 1301
Critical to the success of the NHB becoming a self-funding viable operation is
the sale of Commonwealth owned surplus halon 1301 in the NHB to Protocol
Parties for essential uses.
As before, although all halon in the NHB is ‘Commonwealth owned’, for the
purpose of international sale, the Commonwealth will limit sales of halon
1301 to an amount not exceeding the total deposits estimated to have been
made by the Commonwealth and its own Agencies.
The Commonwealth will not sell halon deposited with an associated fee in the
NHB by States, Territories and industry unless formal agreement is reached
between the Commonwealth and the depositor to sell to Protocol Parties for
essential use applications, as recognised under the Protocol.
14
The Commonwealth Government has determined that revenue from the sale
of surplus halon 1301 and other activities of the NHB will be returned in full
to ozone protection including costs associated with the management of the
NHB.
Ozone Protection Programs include, but are not limited to:
 bilateral projects with Article 5 Parties, (essentially developing countries);
 funding Australia’s contributions to the Protocol’s Multilateral Fund;
 joint venture projects with Article 2 Parties (essentially developed
countries); and
 supporting and funding of domestic phase-out and public awareness
projects.
CONCLUSION
The AHMS meets Australia’s commitment under Decision X/7 of the
Montreal Protocol, to develop a national strategy for the management of
halons and the phase-out of halon use in Australia.
By restricting the availability of halon to essential uses, Australia will
encourage the use of halon substitutes and minimise the damage of halon on
the ozone layer.
The development of the NHB has ensured the safe recovery, storage and
destruction of halon in Australia. Its ongoing development as a regional
environmental facility will assist other countries to phase out their surplus
halon stocks while ensuring the responsible management of halon for
essential uses.
This Strategy underscores the vital role Australia can play in managing halon
within Australian and the Asia - Pacific region. The Strategy will be revised
regularly to reflect international, technological and environmental
developments relating to halon management.
15
APPENDIX I
KEY ELEMENTS OF THE AUSTRALIAN HALON MANAGEMENT
STRATEGY (AHMS)
General principles

The Commonwealth will continue to encourage the use of halon
substitutes and replacements acceptable from the standpoint of
environment and health, taking into account their impact on the ozone
layer, on climate change and on any other global environmental issues.
 The Commonwealth will totally phase-out halons when viable benign
alternatives become available.
 The Commonwealth will maintain at the National Halon Bank (NHB) a
centralised Australian halon bank/ information clearing-house. Halon
essential usage will be monitored and future usage projections updated on
a regular basis.
 The Commonwealth will update the AHMS as a result of scientific
discoveries, essential use consumption, changes in essential use needs,
overseas decommissioning, and other developments.
National inventory of halon stocks

Estimated banked stocks of halon 1211 (as at August 1998) are equivalent
to about 640 purified tonnes. This is reducing by approximately 50 tonnes
per month as a result of destruction being undertaken by the NHB.
 Estimated banked stocks of halon 1301 (as at August 1998) are equivalent
to about 670 purified tonnes.
Projected future halon essential use requirements / storage

The projected halon 1211 essential use requirement in Australia to 2030 is
70 tonnes.
 The projected halon 1301 essential use requirement in Australia to 2030 is
250 tonnes.
 These quantities to be stored at the NHB up to 2030.
 The Commonwealth will investigate the feasibility of tagging stored halon
to particular end users and offsetting storage costs through end user
contribution.
16

The Commonwealth will undertake ongoing stocktaking of halon
including validation of projected usage requirements and conduct, in
particular, a more rigorous survey of halon 1301 usage and replenishment
history for foreign-flagged ships visiting Australian ports.
Projected surplus halon stocks

The projected surplus to Australia’s domestic needs of purified halon 1211
stock (as at August 1998) is equivalent to about 570 purified tonnes. This
is reducing at the approximate rate of 50 tonnes per month through
destruction.
 The projected surplus to Australia’s domestic needs of purified halon 1301
stock (as at August 1998) is equivalent to about 420 purified tonnes.
Future use of surplus halon stocks

The Commonwealth will continue to sell Commonwealth owned surplus
halon 1211.
 The Commonwealth will continue to sell domestically surplus 1301 for
approved essential use applications.
 The Commonwealth will sell surplus halon 1301 (approx 260 purified
tonnes4) to Montreal Protocol Parties for use in essential use applications.
 The Commonwealth will destroy surplus halon 1301 deposited in the
NHB by States/Territories and industry unless formal agreement is
reached between the Commonwealth and the depositor to sell to Montreal
Protocol Parties for essential use applications.
Note: This section was amended in February 2007 to remove the prohibition of commercial sales of halon.
Import of used and recycled halons for destruction

The Commonwealth will import recovered halon from Montreal Protocol
Parties for decanting, purification, storage, destruction and/or re-export to
country of origin for redeployment to essential use applications – on a user
pays principle.
Oversight and development of the National Halon Bank

The NHB is an environmental facility. It provides an essential, state-of-theart, best practice ODS and hazardous waste destruction capability with
significant potential to assist global environmental management.
Placement within the Department of the Environment, Water, Heritage
and the Arts (DEWHA) will assist its development as a regional
environmental facility.
4
This figure represents an earlier estimation and has been updated to 310 purifies tonnes as at January
2000.
17


The NHB and associated halon programs will be transferred to the DEH.
DEH will be properly funded to further develop halon policy and manage
the NHB and its expanded role as a regional environmental facility.
 Revenue from the sale of halon and other NHB operations will be returned
in full to ozone protection.
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APPENDIX II
GUIDELINES ON SUPPLY OF HALON TO SHIPS IN AUSTRALIAN
PORTS
The following guidelines for supply of halon to ships in Australian ports were
agreed, in principle, by members of the Ozone Protection Consultative
Committee (OPCC) in April 1998. It is the recommendation of the OPCC that
no legal action should be taken by environmental authorities against vessel
owners who have been granted essential use status for the halon in the
defined systems within their vessels.
ESSENTIAL USE CRITERIA
The National Halon Essential Uses Panel (NHEUP) makes recommendations to
State and Territory environment authorities on whether halon fire protection
systems on marine vessels is essential, and should be exempted from
State/Territory halon decommissioning legislation, in line with criteria set out
in the Revised Strategy for Ozone Protection in Australia, as follows:
(1)
that there is a state of danger, imminent or otherwise, to human life:(a) in an installation where human occupancy is critical and evacuation
is not possible; or
(b) where the continued operation of the installation is necessary to
protect human life.
(2)
a fire caused loss of property or the function served by an installation,
critical to the community, may have far reaching consequences; and
(3)
an acceptable alternative means of fire protection does not exist.
In most States and Territories:
 the possession, purchase or sale of halons without authorisation from
environment authorities is prohibited; and
 purchase/sale and discharges of halon must be reported to environment
authorities.
Consistent with these criteria, the NHEUP has made the following
recommendations concerning the supply of halons to ships in Australian ports.
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TRADING AND OFFSHORE VESSELS TO WHICH THE NAVIGATION
ACT 1912 APPLIES
Definitions:
Trading Ship: A ship that is used, or intended to be used, in any business or
commercial activity, including a ship used for the carriage of passengers or
cargo for hire or reward, or the provisions of services to ships or shipping, but
does not include a Commonwealth ship, a fishing vessel, an off-shore industry
vessel, an inland waterways vessel or a pleasure craft (as defined in section 6 of
the Navigation Act 1912).
Offshore Industry Vessel: a ship that is used or intended for use in any operations
or activities associated with exploring or exploiting the natural resources of the
continental shelf of Australia, the sea bed of the Australian coastal sea and the
sub-soil of that seabed (as defined in section 8 of the Navigation Act 1912).
Essential Halon Systems
Fire protection systems in the engine, pump room and machinery spaces of
trading and offshore vessels designated with essential use status by
State/Territory environment authorities should continue to be supplied with
halon following case by case reviews of the essential use status of halon systems
on these vessels.
Non–Essential Halon Systems
The NHEUP has indicated that there is justification to defer the conversion or
replacement of non-essential halon systems on ships until their next major
survey. This is due to the difficulty of taking a ship out of service other than for
scheduled major surveys (when ships are dry docked and overhauled). Ships
must undergo a major survey at least every five (5) years in accordance with the
requirements of the International Convention for the Safety of Life at Sea (the
SOLAS Convention). This is often the most convenient time to remove nonessential halon equipment.
Supply of halon for non-essential systems on ships should only be considered
if:
 the NHEUP has assessed the systems (or systems on the class of vessel) in
relation to the essential use criteria and recommended that continued use of
halon is warranted; or where a State/Territory environment authority has
approved continued use of halon.
Halon for non–essential systems should continue to be supplied until the date
of the next scheduled major survey.
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However, in circumstances where replacement of a non-essential fire protection
system requires approval of an alternative by AMSA, the NHEUP recommends
that the authorisation of a period of grace of up to 12 months should be
considered following approval of the alternative to allow time for the operator
to incorporate the work into the next scheduled major survey.
The NHEUP may also specifically recommend a decommissioning date for
particular halon systems contained on a particular ship(s). Consideration
should be given to the supply of halon to these vessels on a case by case basis.
FOREIGN VESSELS
Foreign vessels will generally not hold an essential use permit from a State or
Territory environment authority. In order to minimise delays to foreign ships
in Australian ports, halon should be supplied for essential and non–essential
systems on a “one–off” basis, to vessels with flags registered in Montreal
Protocol signatory countries.
Supply should be limited to minimum quantities essential for operation. Halon
will not be supplied to vessels registered in non Montreal Protocol signatory
countries.
In line with requirements of most State and Territory environment authorities,
supply of halon to foreign ships requires authorisation and must be reported by
State/Territory environment authorities to DASCEM Holdings Pty. Ltd.
(manager on behalf of the Australian Government of the national halon bank)
for inclusion on its register.
Operators should be advised that further halon will only be accessible either on
production of an essential use permit from a State or Territory environment
authority, or at the discretion of the authority (or Minister).
INLAND WATERWAYS VESSELS OPERATED UNDER
JURISDICTION OF THE COMMONWEALTH OF AUSTRALIA
THE
Definitions:
Inland Waterways Vessel: a ship that is used or intended to be used wholly in
the waters other than waters of the sea (as defined in section 6 of the
Navigation Act 1912), but does not include a vessel owned by the
Commonwealth.
Sea: includes any waters within the ebb and flow of the tide.
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Essential Systems
Fire protection systems in the engine and machinery spaces of inland
waterways vessels operating under the jurisdiction of the Commonwealth of
Australia (ie. under AMSA survey) with essential use status should continue
to be supplied with halon following a case by case assessment.
Non-Essential Systems
Inland waterways vessels operating under the jurisdiction of the
Commonwealth of Australia (ie. under AMSA survey) are to decommission
non-essential halon fire protection systems at the next scheduled major
survey. The NHEUP will provide advice on further extensions of time for
decommissioning in exceptional cases.
However, in circumstances where replacement of a non-essential fire
protection system requires approval of a halon 1301 alternative by AMSA, the
NHEUP recommends that the authorisation of a period of grace of up to 12
months should be considered following the approval of the alternative to
allow time for the operator to incorporate this work into the next scheduled
major survey.
VESSELS OPERATED UNDER THE JURISDICTION OF A STATE OR
TERRITORY MARINE AUTHORITY
Definitions:
Vessels as defined by the following Acts of Parliament:
Victoria:
Marine Act 1988
New South Wales: Commercial Vessels Act 1979
Queensland:
Transport Operations (Marine Safety) Act 1994
Western Australia: Supreme Court Act 1935
South Australia:
Harbours & Navigation Act 1993 & Marine Act 1936
Northern Territory: Marine Act 1996
Tasmania:
Marine and Safety Authority Act 1997
ACT
Lakes Act 1976
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Vessels operated under the jurisdiction of a State/Territory Marine Authority
are to decommission all halon fire protection systems in line with relevant State
or Territory ozone protection legislation, marine safety regulations and where
relevant, acceptance of system alternatives by State Marine Authorities.
Where replacement of a non-essential fire protection system requires approval
by State Marine Authorities, the NHEUP recommends that due regard should
be given to allowing an appropriate lead time for the operator to incorporate
this work into the next scheduled major survey for the vessel(s).
Ozone Protection Consultative Committee
April 1998
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APPENDIX III
DECISION X/7 OF MONTREAL PROTOCOL
Decision X/7. Halon-management strategies
Noting that in the executive summary of its 1998 report, the Scientific
Assessment Panel identifies complete elimination and destruction of halon1211 and 1301 as the most environmentally beneficial option to enhance the
recovery of the ozone layer,
Noting that the Technology and Economic Assessment Panel, in its 1998
report pursuant to decision IX/21, concludes that by definition all non-critical
uses of halon-1211 and 1301 can be decommissioned, taking into account the
costs and benefits of such operations,
1. To request all Parties to develop and submit to the Ozone Secretariat a
national or regional strategy for the management of halons, including
emissions reduction and ultimate elimination of their use;
2. To request Parties not operating under Article 5 to submit their strategies to
the Ozone Secretariat by the end of July 2000;
3. In preparing such a strategy, Parties should consider issues such as:
(a) Discouraging the use of halons in new installations and equipment;
(b) Encouraging the use of halon substitutes and replacements
acceptable from the standpoint of environment and health, taking
into account their impact on the ozone layer, on climate change and
any other global environmental issues;
(c) Considering a target date for the complete decommissioning of
non-critical halon installations and equipment, taking into account
an assessment of the availability of halons for critical uses;
(d) Promoting appropriate measures to ensure the environmentally
safe and effective recovery, storage, management and destruction
of halons;
4. To request the Technology and Economic Assessment Panel to update its
assessment of the future need for halon for critical uses, in light of these
strategies;
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5. To request the Technology and Economic Assessment Panel to report on
these matters to the Twelfth Meeting of the Parties.
Prepared by:
Ozone and Synthetic Gas Team
Environment Quality Division
PO Box 787
CANBERRA
ACT 2601
Ph: 1800 803 772
Fax: (02) 6274 1610
Email: ozone@environment.gov.au
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