管控 HFC政策法规（研究报告） 2018年 12月 28日HFC控制 政策 进展 报告 1 国际上的 HFCs控制 1.1 欧盟含氟温室气体控制政策 欧盟国家历来是积极应对臭氧层破坏、气候变化、大力推行温室气体减排的先驱，也是迄今在世界各地区中开展含氟温室气体排放控制方面走在最前面的国家。欧洲绝大多数国家严格淘汰 HCFC，且往往制定了早于蒙特利尔议定书的淘汰时间表。例如，丹麦禁止所有行业和场所使用 HCFC(202年 1月 )；芬兰适当放宽特殊行业 HCFC禁用时间；挪威 HCFC生产使用量 2013年减少 95%， 2015年全部淘汰；瑞典则已对 HCFC生产全面禁止。欧盟于 2006年通过 2006 40EC指令：“ 2011年开始控制汽车空调方面 HFC使用， 2017年完全淘汰 GWP值大于 150的工质”，主要针对 HFC-134a在汽车空调的使用。 2000年 6月，欧盟启动了“对应气候变化行动计划”，提出在包括 HFCs在内各领域减少温室气体排放，欧盟各国纷纷采取各种手段进行 HFCs排放削减和控制。经济手段和管制禁令成为继自愿行动之后欧洲国家采取 HFCs控制手段。丹麦提出，从 2001年 3月 1日起，根据 HFCs的“温室效应潜能” (GWP)值的大小征收不同的税值，例如 HFC-134a的 GWP值为 130，每公斤 HFC-134a征税 20美元左右，并计划从 2007年 1月起在新设备中禁用 HFCs；挪威提出，从 2003年起对 HFCs征税，而且其税值比丹麦高 80%；德国则在当时提出，从 2007年起汽车空调中使用的 HFC-134a将逐步被 CO2等技术替代；奥地利立法提出，从 2008年到 2012年，在汽 车空调和其它应用领域内淘汰 HFC-134a；瑞典则对大气寿命大于 2年的 HFCs，采取了与奥地利相似但略有不同的控制方案。欧洲各国采取的 HFCs管理措施如 表 1所示。 表 1 欧洲各国对HFCs等含氟温室气体采取的限制措施 国家 HFC限制措施 挪威 对含 HFC的进口产品及设备征收污染税 丹麦 在新设备中禁止使用几乎全部 HFCs；密封检查（泄漏 /排放预防）； HFCs征税；非 HFCs替代技术推广 奥地利 在新设备中禁止使用几乎全部 HFCs；对非 HFCs替代技术实行财政鼓励 瑞士 禁止多种 HFCs的使用 ； 对剩余 HFCs使用实施减排措施 ；限制 HFCs新用北京大学 环境科学 与 工程 学院 途的发展；非 HFCs替代技术推广； HFCs进口汇报制度 塞尔维亚 HFCs（ GWP>150）的进出口许可证制度及上报制度；禁止销售特定依赖于 F-Gas的设备或产品；密封检查及强制气体回收；记录保存 瑞典 2008年起，禁止 HFCs在汽车空调上的使用 1.1.1 控制含氟温室气体的两项立法法案 为了控制氟化温室气体 （ 包括氢氟烃 【 HFCs】） 的排放，欧盟通过了两项立法法案： F-Gas法 案 和 MAC指令 。 图 1 Projections of F-gas emisions in the EU without and with the measures in the F-gas Regulation and the MAC Directive1 1.1.1.1 1关于机动车空调系统的温室气体排放控制指令（ MAC指令） 2006年 5月 17日，欧盟颁布了关于机动车空调系统的温室气体排放控制指令（ MAC指令），该指令主要限定了机动车空调系统中使用的 HFC-134a及其他含氟温室气体。其内容包括对机动车空调系统的型式批准认证、改装及再填充、泄漏限值和泄漏检查等方面的规定，并确定了欧盟机动车空调系统停止使用GWP超过 150的制冷剂的时间。 MAC指令定义了和机动车空调相关的概念，其中几个较为重要的概念定义如下： 具体内容如 表 2所示： 1On the aplication, efects and adequacy of the Regulation on certain fluorinated grenhouse gases (Regulation (EC) No 842/206) EN 7 EN Taking into account the effects of the Regulation and the MAC Directive, the total emissions are expected to stabilise around todays level of 110 million tonnes of CO2eq. in EU-27 despite the growing use of many of their key applications, see Figure 1. 0.050,000.0100,000.0150,000.0200,000.0250,000.01995 2000 2005 2010 2015 2020 2025 2030 2035 2040 2045 2050thousandtonnesCO2eq.Without measures With measuresFigure 1: Projections of F-gas emissions in the EU without and with the measures in the F-gas Regulation and the MAC Directive The relative emission reduction is estimated to be less than 3 % in 2010. However, projections show that yearly emissions will be reduced by 28 % in 2020, by 44 % in 2030 and by 46 % in 2050. The costs related to the Regulation are estimated to be around 41 per tonne per CO2eq. reduced. Overall, four years after its entry into application, the Regulation has already contributed to the commitments under the Kyoto Protocol for the period 2008 to 2012. The Regulation, if properly applied in the short-term, has the potential together with the MAC Directive, to avoid almost half of projected emissions, stabilising emissions at todays levels. However, to reach this potential, the Commission calls on Member States to intensify their efforts towards rapid and proper implementation and enforcement. 4. ASSESSMENT OF THE NEED AND SCOPE FOR FURTHER EMISSION REDUCTIONS 4.1. Cost-efficient contribution from F-gases to emission reduction target The European Council reconfirmed in February 2011 the objective of reducing greenhouse gas emissions by 8095 % by 2050 compared to 1990. A cost-effective pathway to these targets would require reductions of non-CO2emissions outside agriculture, between 7273 % HFC控制 政策 进展 报告 表 2 MAC指令主要内容 MAC Directive（ MAC指令） Article 1 Subject matter 第一条 主题 English This Directive lays down the requirements for the EC type-approval or national type-approval of vehicles as regards emissions from, and the safe functioning of, air-conditioning systems fitted to vehicles. It also lays down provisions on retrofitting and refilling of such systems. 中文 本指令就车辆空调系统的排放和安全运行规定了对车辆的 EC型批准或国家型批准的要求。它还规定了关于改造和补充这种系统的规定。 Article 2 Scope 第 二 条 范围 English The Directive shall apply to motor vehicles of categories M1 and N1 as defined in Annex II of Directive 70/156/EEC. For the purpose of this Directive, vehicles of category N1 are limited to those of class I as described in the first table in point 5.3.1.4 of Annex I to Council Directive 70/220/EEC of 20 March 1970 on the approximation of the laws of the Member States on measures to be taken against air pollution by emissions from motor vehicles, as inserted by Directive 98/69/EC of the European Parliament and of the Council. 中文 该指令适用于指令 70/156 / EEC附件 II中定义的 M1和 N1类机动车辆。 就本指令而言， N1类车辆仅限于 1970年 3月 20日理事会指令 70/220 / EEC附件 I第 5.3.1.4节中关于法律近似的第 I类车辆。 成员国对欧洲议会和理事会第 98/69 / EC号指令所插入的机动车排放对空气污染采取的措施的评估。 Article 3 Definitions 第三条 定义 English For the purposes of this Directive the following definitions shall apply: 1. vehicle means any motor vehicle falling within the scope of this Directive; 2. vehicle type means a type as defined in section B of Annex II of Directive 70/156/EEC; 3. air-conditioning system means any system whose main purpose is to decrease the air temperature and humidity of the passenger compartment of a vehicle; 4. dual evaporator system means a system where one evaporator is mounted in the engine compartment and the other in a different compartment of the vehicle; all other systems shall be considered single evaporator systems; 5. fluorinated greenhouse gases means hydrofluorocarbons (HFCs), perfluorocarbons (PFCs) and sulphur hexafluoride (SF6) as referred to in Annex A of the Kyoto Protocol and preparations containing these substances, but excludes substances controlled under Regulation (EC) No 2037/2000 of the European 北京大学 环境科学 与 工程 学院 Parliament and of the Council of 29 June 2000 on substances that deplete the ozone layer; 6. hydrofluorocarbon means an organic compound consisting of carbon, hydrogen and fluorine, and where no more than six carbon atoms are contained in the molecule; 7. perfluorocarbon means an organic compound consisting of carbon and fluorine only, and where no more than six carbon atoms are contained in the molecule; 8. global warming potential means the climatic warming potential of a fluorinated greenhouse gas relative to that of carbon dioxide. The global warming potential (GWP) is calculated in terms of the 100 year warming potential of one kilogram of a gas relative to one kilogram of CO2. The relevant GWP figures are those published in the third assessment report adopted by the Intergovernmental Panel on Climate Change (2001 IPCC GWP values); 9. preparation means a mixture composed of two or more substances at least one of which is a fluorinated greenhouse gas. The total global warming potential of the preparation shall be determined in accordance with Part 2 of the Annex; 10. retrofitting means installing an air-conditioning system in a vehicle after it has been registered. 中文 就本指令而言，以下定义适用： 1.“车辆”是指属于本指令范围内的任何机动车辆 ; 2.“车辆类型”是指 70/156 / EEC指令附录 II B节中定义的类型 ; 3.“空调系统”是指任何主要目的是降低车辆乘客舱的空气温度和湿度的系统 ; 4.“双蒸发器系统”是指一个系统，其中一个蒸发器安装在发动机舱中，另一个蒸发器安装在车辆的不同车厢内 ;所有其他系统应被视为“单蒸发器系统” ; 5. “氟化温室气体”是指京都议定书附件 A提及的氢氟烃 (HFCs)、全氟烃 (PFCs)和六氟化硫 (SF6)以及含有这些物质的制剂，但不包括根据欧洲议会和理事会 2000年 6月 29日第 2037/2000号条例 (EC)管制的关于消耗臭氧层的物质。 6.“氢氟烃”是指由碳、氢和氟组成的有机化合物，分子中不含超过六个碳原子； 7.“全氟碳”指仅由碳和氟组成的有机化合物，其中分子中不含超过六个碳原子； 8.“全球变暖潜力”是指氟化温室气体相对于二氧化碳的气候变暖潜力。全球变暖潜势（ GWP）是根据 1千克气体相对于 1千克 CO2的100年变暖潜势计算的。相关的全球气候普查数字是政府间气候变化专门委员会通过的第三份评估报告 (2001年 IPCC全球气候普查数值 )中公布的数字； 9.“制备”是指由两种或更多种物质组成的混合物，其中至少一种HFC控制 政策 进展 报告 物质是氟化温室气体。 制剂的全球变暖潜能值应根据附件第 2部分确定 ; 10.“改装”是指在注册后在车辆中安装空调系统。 Article 4 Obligations of the Member States 第四条 成员国的义务 English 1. Member States shall grant, as appropriate, EC type-approval or national type-approval, with regard to emissions from air conditioning systems, only to vehicle types that satisfy the requirements of this Directive. 2. For the purpose of granting whole vehicle type-approval pursuant to Article 4(1)(a) of Directive 70/156/EEC, Member States shall ensure that manufacturers supply information on the type of refrigerant used in air-conditioning systems fitted to new motor vehicles. 3. For the purpose of type-approval of vehicles fitted with air-conditioning systems designed to contain a fluorinated greenhouse gas with a global warming potential higher than 150, Member States shall ensure that, in accordance with the harmonised leakage detection test referred to in Article 7(1), the leakage rate of such gases shall not exceed the maximum permissible limits laid down in Article 5. 中文 1. 对于空调系统排放物，成员国应酌情只对满足本指令要求的车辆类型给予 EC类型批准或国家类型批准。 2. 为了根据第 70/156/EEC指令第 4(1)(a)条批准整车型号，成员国应确保制造商提供有关用于安装新机动车的空调系统的制冷剂类型的信息。 3. 为了对装有设计成含有全球变暖潜能大于 150的氟化温室气体的空调系统的车辆进行类型审批，会员国应确保，根据第七条第 (1)款所述的协调泄漏检测试验，此类气体的泄漏率不得超过第 5条规定的最大允许限度。 Article 5 Type-approval 第五条 型号批准 English 1. With effect from six months from the date of adoption of a harmonised leakage detection test, Member States may not, on grounds relating to emissions from air conditioning systems: (a) refuse, in respect of a new type of vehicle, to grant EC type-approval, or national type approval; or (b) prohibit registration, sale or entry into service of new vehicles, if the vehicle fitted with an air-conditioning system designed to contain fluorinated greenhouse gases with a global warming potential higher than 150 complies with the requirements of this Directive. 2. With effect from 12 months from the date of adoption of a harmonised leakage detection test or 1 January 2007, whichever is later, Member States shall no longer grant EC type-approval or national type-approval for a type of vehicle fitted with 北京大学 环境科学 与 工程 学院 an air-conditioning system designed to contain fluorinated greenhouse gases with a global warming potential higher than 150, unless the rate of leakage from that system does not exceed 40 grams of fluorinated greenhouse gases per year for a single evaporator system, or 60 grams of fluorinated greenhouse gases per year for a dual evaporator system. 3. With effect from 24 months from the date of adoption of a harmonised leakage detection test or 1 January 2008, whichever is later, in respect of new vehicles fitted with air-conditioning systems designed to contain fluorinated greenhouse gases with a global warming potential higher than 150, unless the rate of leakage from that system does not exceed 40 grams of fluorinated greenhouse gases per year for a single evaporator system or 60 grams of fluorinated greenhouse gases per year for a dual evaporator system, Member States shall: (a) consider certificates of conformity to be no longer valid for the purposes of Article 7(1) of Directive 70/156/EEC; and (b) refuse registration and prohibit sale and entry into service. 4. With effect from 1 January 2011 Member States shall no longer grant EC type-approval or national type-approval for a type of vehicle fitted with an air-conditioning system designed to contain fluorinated greenhouse gases with a global warming potential higher than 150. 5. With effect from 1 January 2017, in respect of new vehicles which are fitted with an air-conditioning system designed to contain fluorinated greenhouse gases with a global warming potential higher than 150, Member States shall: (a) consider certificates of conformity to be no longer valid for the purposes of Article 7(1) of Directive 70/156/EEC; and (b) refuse registration and prohibit sale and entry into service. 6. Without prejudice to relevant Community law, in particular Community rules on State aid and Directive 98/34/EC of the European Parliament and of the Council of 22 June 1998 laying down a procedure for the provision of information in the field of technical standards and regulations and of rules on Information Society services, Member States may promote the installation of air-conditioning systems which are efficient, innovative and further reduce the climate impact. 中文 1.自采用协调泄漏检测试验之日起六个月内，会员国不得以与空调系统排放物有关的理由采取下列措施： (a)对于新型车辆，拒绝批准欧共体型号批准或者国家型号批准； (b)禁止登记、销售或使用新车辆， HFC控制 政策 进展 报告 如果装有设计成包含全球变暖潜能高于 150的氟化温室气体的空调系统的车辆符合本指令的要求。 2.自采用协调泄漏检测试验之日起 12个月或 2007年 1月 1日起，以较晚者为准，会员国不再对装有空调系统的车辆给予 EC型式批准或国家型式批准，该空调系统被设计成包含具有全球变暖潜能的氟化温室气体。 al高于 150，除非对于单个蒸发器系统，来自该系统的泄漏率每年不超过 40克氟化温室气体，或者对于双蒸发器系统，每年不超过 60克氟化温室气体。 3.自采用统一泄漏探测试验或 2008年 1月 1日起 24个月后，以较晚者为准，适用于装有空 调系统的新车辆，该系统旨在容纳全球变暖潜能值较高的氟化温室气体 150以上，除非该系统的泄漏率单个蒸发器系统每年不超过 40克氟化温室气体，或双蒸发器系统每年不超过 60克氟化温室气体，成员国应： (a)为了第 70/156 / EEC号指令第 7条第（ 1）款的目的，认为合格证不再有效 ; (b)拒绝注册并禁止销售和投入使用。 4.自 2011年 1月 1日起，成员国不再批准一种装有空调系统的车辆的 EC型式认可或国家型式认可，该系统旨在容纳全球变暖潜能值高于 150的氟化温室气体。 5.自 2017年 1月 1日起，对于装有空调 系统的新车辆，该系统旨在容纳全球变暖潜能值高于 150的氟化温室气体，成员国应： (a)为了第 70/156 / EEC号指令第 7条第（ 1）款的目的，认为合格证不再有效 ; (b)拒绝注册并禁止销售和投入使用。 6.在不损害相关共同体法律的情况下，特别是关于国家援助的共同体规则和 1998年 6月 22日欧洲议会和理事会第 98/34 / EC号指令，规定了在技术标准领域提供信息的程序 关于信息社会服务的法规和规则，成员国可以促进安装高效，创新和进一步减少气候影响的空调系统。 Article 6 Retrofitting and refilling 第六条 改装和填充 English 1. With effect from 1 January 2011, air-conditioning systems designed to contain fluorinated greenhouse gases with a global warming potential higher than 150 shall not be retrofitted to vehicles type-approved from that date. With effect from 1 January 2017, such air-conditioning systems shall not be retrofitted to any vehicles. 2. Air-conditioning systems fitted to vehicles type-approved on or after 1 January 2011 shall not be filled with fluorinated greenhouse gases with a global warming potential higher than 150. With effect from 1 January 2017 air conditioning systems in all vehicles shall not be filled with fluorinated greenhouse gases with a global warming potential higher than 150, with the exception of refilling of air-conditioning systems containing those gases, which have been fitted to vehicles before that date. 北京大学 环境科学 与 工程 学院 3. Service providers offering service and repair for air-conditioning systems shall not fill such equipment with fluorinated greenhouse gases if an abnormal amount of the refrigerant has leaked from the system, until the necessary repair has been completed 中文 1.自 2011年 1月 1日起，设计用于控制全球变暖潜能值高于 150的氟化温室气体的空调系统，不得改装自该日批准的车型。自 2017年1月 1日起，此类空调系统不得改装任何车辆。 2.在 2011年 1月 1日或之后批准的车辆上安装的空调系统，不得装满全球变暖潜能值高于 150的氟化温室气体。自 2017年 1月 1日起，所有车辆的空调系统不得充满氟化温室气体，全球变暖潜能值高于150，除了重新装满含有这些气体的空调系统，这些气体已在该日期之前安装在车辆上。 3.如果制冷剂的异常数量从系统泄漏，直到必要的维修工作完成，提供空调系统维修和维修的服务提供者不得向这些设备注入氟化温室气体。 Article 7 Implementing measures 第七条 实施措施 English 1. By 4 July 2007, the Commission shall adopt the measures for the implementation of Article 4 and Article 5, and in particular: (a) the administrative provisions for the EC type-approval of vehicles; and (b) a harmonised leakage detection test for measuring the leakage rate of fluorinated greenhouse gases with a global warming potential higher than 150 from air-conditioning systems. 2. The Commission shall adopt the measures in accordance with the procedure referred to in Article 13 of Directive 70/156/EEC. 3. The Commission shall publish these measures in the Official Journal of the European Union. 4. The procedure referred to in paragraph 2 shall ap