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New Zealand strategy for the management of chlorofluorocarbons (CFCs)

October 2001

This strategy has been prepared in response to a decision of the Parties to the Montreal Protocol, that Parties should have

“…a strategy for the management of CFCs, including options for recovery, recycling, disposal and eventual elimination of their use” (MOP XI, Decision XI/16).

Use of chlorofluorocarbons (CFCs) in New Zealand

CFCs are one of a group of halogenated substances, or halogens - synthetic substances containing chlorine and bromine, developed in the 1930s as safe, non-flammable and non-toxic refrigerants. They were widely used until it was discovered in the 1980s that they were the main source of harm to the ozone layer.

New Zealand never manufactured CFCs, and its pattern of use differed from that of many overseas countries. The use of CFCs as solvents in the electronics industry was always minor in New Zealand, and their use in aerosols was eliminated by the late 1980s. Use of CFCs in the early 1990s was more or less evenly split between foams and the refrigeration/air-conditioning sector.

Underpinnings of strategy

Uncertainties about quantities of CFCs remaining in New Zealand

As in other countries, the exact amount of CFC still in use in New Zealand is uncertain. On the basis of quantities imported up to 1996, we believe that 10-20,000 tonnes of CFCs may remain in industrial refrigeration systems, air conditioning plant, car air conditioning systems and old domestic refrigerators. Surveys of use have been undertaken but, because of the levels of uncertainty involved, officials are reluctant to extrapolate national figures from survey data.

Constructive relationship with industry and the public

Relationships between government agencies and the refrigeration industry (suppliers, the service sector and end users) have been open and generally constructive. Consumption of controlled substances, and their wilful release into the atmosphere, is prohibited by legislation. On other policy issues, however, New Zealand has placed a strong reliance on voluntary measures. The refrigeration and vehicle air-conditioning industries and local authorities all implement recovery programmes. There has also been strong public support for ozone protection issues generally and containment of refrigerants in particular. (Many members of the public, for example, actively look for sites where the refrigerant will be recovered from their end-of-life refrigerators.)

Elements of strategy

Legislation

The Ozone Layer Protection Act 1996 and its regulations provide for ozone layer protection and give effect to New Zealand’s obligations under the Montreal Protocol. In particular, the legislation:

  • Prohibits the manufacture and importing of CFCs (except for uses determined by the Parties to the Montreal Protocol to be essential).
  • Establishes import, export and phase-out regimes for ozone depleting substances.
  • Can require individuals and industry groups handing ozone depleting substances to develop codes of practice.
  • Provides penalties for illegal trade in or manufacture of ozone depleting substances.
  • Prohibits the release of ozone depleting substances while installing, working on or dismantling refrigeration, air conditioning or related equipment.

Recycling, recovery and disposal

New Zealand encourages the recovery of CFCs for reuse in existing plant and machinery. Recovery of refrigerant is not universal, but it is strongly promoted by industry groups. Recovery of refrigerants is undertaken at most major landfills and by reputable refrigeration engineers and vehicle dismantlers.

There are currently no proposals to prohibit the use of recycled CFCs, or to set target dates beyond which machinery containing CFCs cannot be used. The decision not to prohibit the use of CFCs reflects economic factors in part. The decision also reflects New Zealand's view that prohibiting use is likely to lead to unnecessary emissions. Conversely, while equipment remains in use, there is an incentive for engineers to recover CFCs for recycling.

Since 1995, the refrigeration industry has operated a levy scheme to fund the transport and destruction of “end of life” CFCs and HCFCs. (This is generally material that cannot be cleaned for reuse, or that the holder does not wish to resell.) The levy is based on sales of HCFCs in New Zealand. The levy scheme is industry-run, and although the Government strongly endorses the scheme, there is no direct Government involvement in its operation.

All CFCs collected under the levy scheme are for environmentally safe destruction. To date, over 18,000 kilograms have been exported to Australia for destruction in a purpose-built facility.

Vocational training and education

Since 1991 the Institute of Refrigeration Heating Air Conditioning Engineers (IRHACE) has required its members to use a Code of Practice that aims to minimise unnecessary emissions of CFCs. The Code covers the life of products from design and installation through to maintenance, and recovery of refrigerants at the end of life.

The compulsory training of people handling refrigerants has been considered by the Government, but not proceeded with. IRHACE has run organised training workshops. Development of course materials is Government-funded. The course emphasises the need to minimise emissions of all fluorocarbon refrigerants, and it will be integrated into New Zealand’s national vocational training system.

The motor trades industry also actively promotes responsible behaviour among its members. The two professional associations covering vehicle air conditioners require their members to undertake officially recognised training qualifications. The training courses promote containment and recovery of CFCs. The Motor Trade Association has produced a Code of Practice which is approved by the Minister for the Environment and which is used by all professional auto air conditioning technicians in New Zealand.

Public education

Information to the public about CFC issues has been provided. The most recent campaign emphasised the need to have vehicles, refrigerators and other appliances containing refrigerants well maintained, to use qualified tradespeople and to make sure refrigerants are recovered at the end of life. As well as addressing the public as a whole, the campaign made a special effort to reach owners of plant and large buildings likely have air conditioning and refrigeration systems.

Links with other strategies

This particular document has been prepared to meet UNEP’s request for a strategy on CFCs. The once widespread use of CFCs and their potency in relation to both ozone depletion and global warming mean they need special attention. Other refrigerants, HCFCs and HFCs, however, also pose environmental risks. The policies laid out in this document, such as encouraging containment, recovery, recycling and safe destruction apply equally to these other refrigerants. Ultimately, New Zealand expects to promote “whole of life” policies in relation to refrigeration and air conditioning equipment, so that the impacts on the environment of refrigerants and energy use are minimised in a cost-effective manner.

Last updated: 16 September 2004