ARBEJDSDOKUMENT FRA KOMMISSIONENS TJENESTEGRENE RESUMÉ AF RAPPORTEN OM KONSEKVENSANALYSEN [ ] Ledsagedokument til Forslag til EUROPA-PARLAMENTETS OG RÅDETS FORORDNING om fluorholdige drivhusgasser, om ændring af direktiv (EU) 2019/1937 og om ophævelse af forordning (EU) nr. 517/2014

EN EN
EUROPEAN
COMMISSION
Strasbourg, 5.4.2022
SWD(2022) 97 final
COMMISSION STAFF WORKING DOCUMENT
EXECUTIVE SUMMARY OF THE IMPACT ASSESSMENT REPORT
Accompanying the document
Proposal for a
REGULATION OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL
on fluorinated greenhouse gases, amending Directive (EU) 2019/1937 and repealing
Regulation (EU) No 517/2014
{COM(2022) 150 final} - {SEC(2022) 156 final} - {SWD(2022) 95 final} -
{SWD(2022) 96 final}
Offentligt
KOM (2022) 0150 - SWD-dokument
Europaudvalget 2022
EN EN
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Emissions from fluorinated greenhouse gases (F-gases) result in climate warming.
Preventing such emissions is an important contribution to achieve the EU’s climate
targets in the European Green Deal and living up to our commitments under the Paris
Agreement on Climate Change and the Montreal Protocol on substances that deplete
the ozone layer that regulate F-gases. Cost-efficient action at EU level on F-gases will
support Member States to reach their national greenhouse gas target under the Effort
Sharing Regulation.
Regulation (EU) No 517/2014 on fluorinated greenhouse gases is the EU’s main
instrument to avoid F-gas emissions and to comply with the Montreal Protocol. F-gases
are man-made chemicals that are used for many different purposes, e.g. as refrigerants
in cooling equipment and air conditioners including heat pumps, in chemical production,
as the propellant in asthma sprays or as insulating materials in electrical transmission
equipment or foams in buildings. Emissions occur when the gases are produced, used in
products or equipment or when the latter are disposed of.
An evaluation found that the F-gas Regulation reduces emissions considerably and that
it works relatively well. However, the Regulation requires more ambition in light of
the reinforced EU’s 2030 climate target and the goal of reaching climate neutrality
by 2050. Furthermore, Montreal Protocol compliance cannot be ensured in the
longer term with the current rules. There are also some implementation challenges
including the need to stop illegal activities, and some gaps and inefficiencies in
monitoring. A review also offers the possibility to enhance the Regulation's clarity and
coherence with other policies.
The Commission will propose a revision to the Regulation on the basis of this
impact assessment. Three option packages were designed to address the issues
identified to a varying extent. Option 1 consists of measures that ensure compliance
with the Montreal Protocol, and seeks to save additional emissions and
improvements that can be done at quite low costs and effort. Option 2 includes, in
addition, measures that reduce emissions further and ensure more comprehensive
monitoring and control, associated with moderate costs. Option 3 includes all measures
considered useful and technically feasible, also including those that may come at a high
cost or effort.
Option 2 is the preferred combination of measures. The first option package appears
insufficient in the current political context as it fails to save more emissions than the
baseline by 2050, despite removing a quantitatively important exemption from the quota
system, and the third option package appears too costly compared to the benefits it would
generate, i.e. leading to a very high burden for a few sub-sectors while resulting in only
few additional emission savings compared to Option 2.
Compared to today, Option 2 will further restrict the quota amount available for
placing hydrofluorocarbons on the market each year until 2050, and EU producers and
importers will have to start paying for their quota rights. Several types of new
equipment will also become subject to F-gas prohibitions (e.g. air conditioning and
switchgear) and emission prevention measures are extended. Option 2 will align the
2
Regulation with the Montreal Protocol by removing some exemptions, by
introducing a separate production phase-down for hydrofluorocarbons, and by ending
trade with non-Parties from 2028. Moreover, specific requirements on customs
processes and economic operators will be introduced to prevent illegal activities, while
equipment service personnel will be more broadly trained on alternative
technologies. Finally, monitoring and company reporting activities will become both
more complete and fit-for-purpose.
Option 2 will save emissions amounting to 40 MtCO2e by 2030 and 310 MtCO2e by
2050 on top of the amount the current Regulation would achieve (i.e. savings of 430 and
1990 MtCO2e, respectively). While some users of equipment will face price increases for
hydrofluorocarbons due to stricter quota limits, overall Option 2 will result in cost
savings for equipment users in the long run due to energy savings. The administrative
costs will increase moderately for industry, Member States and the Commission, notably
for measures to align with the international rules and achieve better controls.
In response to the natural gas crisis due to recent geopolitical events, the Commission has
proposed to advance the roll-out of heat pumps. While it is important to increase both the
energy efficiency and limit the direct F-gas emissions of heat pumps, the quota system in
Option 2 provides sufficient margin for this higher growth, even if a slightly slower
conversion of small heat pumps to climate-friendly alternatives is considered.
Thus, the phase-down appears coherent with the targets for renewable energy, even
if the significantly higher heat pump growth needed in the light of the current
natural gas energy crisis and a resulting slightly slower conversion of small heat
pumps to climate-friendly alternatives is taken into account.
Stakeholders were consulted extensively. They agree that it is necessary to review the
Regulation now and that the review should build on existing measures. Industry, Member
States and NGOs, in general, support the measures addressing the implementation
challenges and compliance with the Montreal Protocol. Regarding the ambition level
for the HFC phase-down and prohibitions, notably related to F-gas use in heat pumps,
some industry stakeholders consider that the current Regulation is sufficiently ambitious,
whereas innovators and manufacturers of climate-friendly technologies are pushing for
stronger policy drivers to market their solutions. The latter is also supported by NGOs
and many competent authorities. This is reflected in the three options examined.