2.5 Ozone-depleting substances and fluorinated greenhouse gases

ODS are gases that destroy the Earth's protective ozone layer when they reach the stratosphere. Over time they were replaced in many applications — e.g., refrigerants — by HFCs, which are a group of potent F-gases. Both ODS and F-gases contribute to global warming. F-gases accounted for 2% of total GHG emissions in the EU in 2023. In order to mitigate climate change, there is an urgent need to reduce GHG emissions and as such, the use of F-gases must be addressed. This briefing captures the frameworks that regulate ODS and F-gases in the EU and internationally. In addition, it highlights how they have been adjusted over time. It also points to areas that need to be addressed legally in order to achieve climate neutrality by 2050.

Key policies

The key EU policy regulating ODS use is the 2024 Ozone Regulation, which replaced the 2009 Regulation with the aim of further reducing ODS emissions and simplifying related rules. The Ozone Regulation regulates more substances and is more ambitious than the Montreal Protocol.

F-gases are covered by Regulation (EU) 2024/573 (F-gas Regulation), which replaces the 2014 Regulation. One notable difference between the two is the new requirement to phase out HFCs completely by 2050 through steeper phase-down steps.

Internationally, ODS and HFCs are regulated under the Montreal Protocol and its Kigali Amendment. The main substitutes for ODS are HFCs, which are used in refrigeration, air conditioning, foams used to insulate buildings, aerosols, fire safety and spray propellants in medical applications, among others.

Past trends (10-15 years)

Improving trends/developments dominate

Consumption of ODS — which is a parameter that indicates the level of ODS first placed on the market and tracks progress made in phasing out these chemicals — has remained below zero for most of the years since 2010. The figure can be positive under certain conditions, for example when products are stockpiled for future destruction. As such, the EU has achieved its phase-out goals under the Montreal Protocol (Figure 1).

The commitment in the EU and internationally to phasing out ODS is expected to enable a recovery of the ozone layer by mid-century. Some critical uses of ODS are still allowed under the Montreal Protocol, however. The EU reports annually on the phase out progression and the critical usages to the UNEP’s Ozone Secretariat.

After the 2010 ODS phase-out, demand for cooling and refrigeration in the EU remained high and HFCs were introduced as substitutes for ODS. They are potent GHGs and the primary emission source for F-gases; this is due to the fact that they are widely used in a range of applications, particularly in the refrigeration, air conditioning and heat pump sector.

Companies in the EU are required to report their activities (in physical quantities) related to ODS and F-gases in the areas of production, import, export, reclamation, destruction and feedstock use. Data from the reporting indicate that the EU is currently on track to reduce the amount of HFCs placed on the market (POM) (Figure 2). POM is the critical metric for assessing EU compliance in phasing out HFCs as defined in the F-gas Regulation. In 2024, the EU-wide placing on the market of HFCs decreased by 37% compared to 2023. This was 1% below the maximum quantity allowed by the F-gas Regulation, which was itself reduced by 40% over the same period (forthcoming results October 2025).

These reductions are also evidenced by the annual EU GHG inventory submitted to the United Nations Framework Convention on Climate Change (UNFCCC). The data indicate that the EU has been successful in reducing F-gas emissions by reducing their use.

Outlook (10-15 years)

Improving trends/developments expected to dominate

These reductions are also evidenced by the annual EU GHG inventory submitted to the United Nations Framework Convention on Climate Change (UNFCCC). The data indicate that the EU has been successful in reducing F-gas emissions by reducing their use.

Prospects of meeting policy targets 2030/2050

2030: Largely on track to meet targets

The most recent data show that the EU was successful in meeting its HFC phase-down compliance target for 2024; its HFC usage was 1% below the maximum level allowed that year.

Moving forward, two considerable HFC quota cuts enter into force, starting from 2024 and again in 2027 (Figure 2). In addition, for the 2024 and 2027 quotas respectively, HFCs placed on the market must not exceed 24% and 12% of the 2015 maximum base-value. Current market developments — such as the spread of compact refrigeration units based on alternatives to HFCs — indicate that the market is rapidly adapting to the POM targets set out by the F-gas Regulation.

Regarding ODS, the 2024 Ozone Regulation will ensure that the EU consistently meets and exceeds its international obligations under the Montreal Protocol. Moreover, as many ODS are powerful greenhouse gases (GHG), EU action to curb ODS emissions will also contribute to addressing climate change.

2050: Largely on track to meet targets

While emissions from F-gases are on an overall decline thanks to the planned HFC phase out, the use of sulphur hexafluoride (SF6) and nitrogen trifluoride (NF3) needs to be further addressed by the EU to holistically address GHG emission sources. These are the most potent F-gases and are commonly used in the electrical power sector for insulating switchgear and in the electronics industry as a cleaning and etching agent in the manufacturing of semiconductors, flat panel displays, and solar cells. While their use has already been restricted in many applications — and further restrictions are pending — emissions from the manufacture of solar panels and semiconductors are not regulated to date even though they are expected to increase significantly in the coming decades. Addressing these areas in a timely manner and enabling the development of alternatives will be key to achieving the goal of climate neutrality by 2050. For SF6, stringent rules will soon be put in place specifically for use in switchgear.

Robustness

Yearly company reporting under the EU Ozone and F-gas Regulations provides an insight into EU ODS and F-gas activities and usages. Historical F-gas emissions are derived from GHG inventories reported by Member States to the EU and to the UNFCCC, where estimates are subject to annual review and quality assurance. Information on future demand for F-gases is not publicly available. The likelihood of meeting HFC policy targets is therefore assessed based on current market developments.

Charts/maps

Figure 1. EU consumption of controlled ODS

Figure 2. EU progress under the HFC phase-down set out in the F-gas Regulation