Refrigerants at a crossroads

By Eamonn Ryan

From Kigali-driven phase-downs and the looming end of R22 to the rise of natural refrigerants and hard lessons in ammonia safety, the HVAC&R industry is being reshaped by regulation, innovation and risk.

DFFE’s roadmap for phasing out global warming substances in HVAC&R

At FRIGAIR 2025, DFFE’s Margaret Molefi detailed South Africa’s roadmap for phasing out global warming substances in the HVAC&R industry.

Molefi, director for Hazardous Chemicals Management at the National Department of Forestry, Fisheries and Environment (DFFE) and representing the National Ozone Unit, delivered a crucial address at FRIGAIR 2025, illuminating the process of phasing out and phasing down global warming substances and their profound implications for the South African HVAC&R industry.

Molefi began by outlining the foundational international agreements guiding this transition: the Vienna Convention on the Protection of the Ozone Layer, which serves as a framework, and the Montreal Protocol, specifically designed to phase out the production and consumption of ozone-depleting substances such as Hydrochlorofluorocarbons (HCFCs). A significant milestone in this journey is the Kigali Amendment to the Montreal Protocol, ratified by South Africa in August 2022. This amendment, which primarily targets Hydrofluorocarbons (HFCs), mandates a significant phase-down, including a phase- out of R22 in a stepped manner.

At the national level, South Africa is leveraging its legislative framework to align with these international commitments. The Air Quality Act (promulgated in 2014 and amended in 2021) is currently used to control ozone-depleting substances. For the impending HFC regulations, the recently promulgated Climate Change Act (2024) will be the guiding legislation.

 

The emerging challenge of forever chemicals: PFAS and TFAS

Molefi introduced a new and emerging concern: the Stockholm Convention on Persistent Organic Pollutants (POPs), which addresses chemicals that persist in the environment and pose long-term ecological and health risks. While Hydrofluoroolefins (HFOs) were introduced as low-GWP alternatives to HFCs, certain HFOs can degrade in the atmosphere to form trifluoroacetic acid (TFA), an ultra-persistent compound increasingly grouped within broader discussions around PFAS (forever chemicals). This has become a growing area of concern for the HVAC&R sector as regulatory scrutiny expands beyond ozone depletion and global warming potential to long-term environmental persistence.

She pointed out that TFAs are found not only in refrigerants but also in critical HVAC components like wires, cables and insulators. Consequently, the Stockholm Convention will increasingly necessitate a transition away from refrigerants containing PFAS and may lead to their restriction. Currently, South Africa is processing an amendment to the NEMA (National Environmental Management Act) POPs regulation, which will prohibit the production, sale, distribution, import and eventual phasing out of these substances.

The life cycle management of refrigerants is also under scrutiny. The Basel Convention now classifies waste gases as hazardous, necessitating a circular economy approach to refrigerant life cycle management (reclamation, recycling, disposal).

SA’s green horizon

Molefi issued a strong warning regarding R22 (an HCFC), which is in its final phase- out stages. She explained that South Africa is transitioning from a 67.5% phase-out to a dramatic 97.5% phase-out by end-2025. This drastic reduction means R22 will become extremely expensive and not cost-effective.

While reclaimed R22 will be the only available option, pilot studies have shown that extremely little can be retained through reclamation. Molefi urged anyone still using R22 to transition to alternative systems that allow for ‘drop-in’ solutions. Her stark prediction: “within the coming two years, you may not have any R22 to work with”.

The focus then shifted to the HFC phase- down under the Kigali Amendment. South Africa ratified this amendment in August 2022, placing the nation at a ‘freezing stage’ where the baseline for HFC consumption needs to be established. The first reduction is slated for 2026.

“HFCs are used extensively across air conditioning, refrigeration and other applications like foam blowing agents and fire suppressants.”

Molefi outlined the proposed regulatory pillars to manage this transition. Phasing down consumption and quota system:

• Baseline establishment: The DFFE aims to establish a baseline for HFC production and consumption
• Import quota methodology: Based on the consumption baseline, a methodology for an HFC import quota system will be determined, along with mechanisms to control illegal imports and establish reporting requirements
• Quotas, allocated annually and progressively decreasing, will be strictly managed, with non-compliance leading to forfeiture
• Facilitating sector-based transition: Analysing current HFC use (with R134a, R404A and R507 being the highest consumed)
• Transition to low-GWP & PFAS-free alternatives: The core strategy is a widespread transition to refrigerants with low GWP and those free from PFAS
• Restriction of high-GWP HFCs: The DFFE will restrict the use of high-GWP HFCs and HFC blends in specific sectors and sub-sectors, particularly where lower- GWP technologies are already available or anticipated in the near future
• Prohibitions on new installations: There will be prohibitions on the manufacture, distribution, sale, installation, import and export of certain restricted HFCs for new systems
• Mandatory low-GWP equipment: The use of only low-GWP refrigerants in new equipment will be enforced for certain applications, such as air conditioning and heat pumps, especially where HFCs are entirely restricted

 

The PFAS imperative: a call for caution

Molefi stressed the critical issue of PFAS- affected refrigerants, warning the HVAC&R industry to exercise extreme caution as the Stockholm Convention actively phases out these ‘Forever Chemicals’. “We cannot ban on the other legislation and allow it on the HFC,” she warned, emphasising the need to consider the PFAS content of alternative refrigerants.

“Natural refrigerants (hydrocarbons, CO₂, ammonia, water) are abundant and energy- efficient, but their flammability and toxicity necessitate urgent investment in workforce training.” This involves:

• Qualification, certification and registration: beefing up and upgrading standards related to accreditation by the Quality Council for Trades and Occupations (QCTO) for servicing centres
• Qualified technicians: ensuring technicians are adequately trained to work with natural refrigerants across all sectors and for retrofitting existing systems
• System design and safety: focusing on proper system design and incorporating all necessary safety measures

Key aspects include overseeing disposal, facilitating collaborative equipment installation, establishing robust reclamation programmes, and implementing comprehensive life cycle management from leak prevention to destruction.

This holistic approach necessitates an upgrade of waste management legislation to address electronic and electrical waste from refrigeration and air conditioning. Furthermore, Extended Producer Responsibility (EPR) schemes will be put in place to manage the disposal of all HVAC&R waste.

 

Accelerating the transition: calls for collaboration and data

Molefi concluded with a powerful call for industry collaboration and timely data submission. The DFFE aims to develop the HFC Management Regulation for publication for comments soon. Prior to public comment, discussions will be held at the bi-annual HFC stakeholder meeting.

The DFFE is actively collaborating with other key government departments and regulatory bodies like NRCS and SABS to ensure integrated regulation and standards.

Molefi emphasised that improving accessibility to low-GWP alternatives depends heavily on industry participation, specifically through the submission of questionnaires distributed by the DFFE. Finally, Molefi underscored the DFFE’s proactive stance against dumping. They are working to expedite regulations to prevent South Africa from becoming a “dumping ground” for phased-out or restricted equipment from other countries, which would disadvantage local industries.

 

The return to natural refrigerants driven by regulation

The HVAC&R industry is, in essence, ‘going back to square one’ by increasingly returning to natural refrigerants, a full circle from their historical use.

Engineering advances continue to address traditional barriers, making CO₂ systems more accessible across diverse market segments from large supermarket chains to smaller retail formats.

With market penetration rates climbing rapidly – 30% in Europe and 5.8% in North America – and applications expanding beyond traditional refrigeration into heat pumps and air conditioning, CO₂ has moved from niche technology to mainstream solution.

At FRIGAIR 2025, Axel Schaddach, global sales driver SY system solutions and new business at Danfoss, presented a vision for ‘Sustainable Cooling’, highlighting Danfoss Climate Solutions’ commitment to decarbonising heating and cooling. His address profiled the company’s extensive portfolio, self-imposed sustainability targets and the critical global shift towards natural refrigerants.

Danfoss Climate Solutions, a global leader in engineering solutions, boasts a broad portfolio encompassing air conditioning, refrigeration and heating applications. Schaddach emphasised that Danfoss is not merely a component manufacturer; the company actively strives to make its own production and footprint as carbon-neutral as possible, exemplified by the Danfoss Nordborg campus achieving carbon-neutrality in 2022.

Through its advanced technologies, Danfoss aims to accelerate the green transition by promoting energy and resource efficiency. “Heat pumps are a ‘game changer’ for converting renewable electricity into thermal energy, fostering ‘sector integration’ by building synergies between heating and cooling.” Real-world examples showcased decarbonising factories with heat pumps, utilising excess heat in production, and major building retrofits to move away from fossil fuels. Schaddach also touched upon the critical role of cold chain technology in preventing food waste, a significant global concern amplified by digitalisation’s increasing cooling demands and urbanisation’s contribution to building emissions. Schaddach affirmed Danfoss’s comprehensive offerings for the refrigeration and food and beverage sectors, covering everything from controls and industrial refrigeration valves (including ammonia- specific designs) to micro-channel heat exchangers, plate heat exchangers and a diverse range of compressors (scroll, reciprocating and Turbocor). These are complemented by electronic controls for comprehensive system management.

“A core aspect of our business revolves around condensing units, with product development heavily influenced by global regulations, particularly various ‘green land plans’.

“A key driver of this shift is Europe’s F-gas Regulation, which imposes a quota on CO₂ equivalence, directly impacting refrigerant availability. Similar regulations exist in other regions like China and North America, dictating permissible refrigerants and varying thresholds for chillers, condensing units, and rack packs.” He presented a table showing that the F-gas Regulation’s CO₂ equivalent quota, which was 45.5 million tons in 2024, will be less than half by 2027. “Given that common refrigerants like R448A and R449A have a GWP of around 1 400, continuing to use the same amount for new installations and retrofits will become ‘more or less impossible,’ necessitating a shift towards new refrigerants.”

For centralised supermarket systems and rack packs, the market is increasingly moving towards CO₂.  Schaddach noted that 50% of the food retail market in Europe already utilises CO₂ driven by minimal price differences and retailers’ preference for a single refrigerant across installations. For standalone installations, particularly in the Horeca (hotels, restaurants and cafes) segment, while the market is also moving towards CO₂, options like HFOs and propane are considered. However, propane faces charge limits that restrict its application to smaller capacities (up to 2kW) and require close proximity between the condensing unit and condenser.

Danfoss offers a full-fledged portfolio of condensing units, ranging from just over 500 watts to 50kW of cooling capacity, available in both European and African markets, including South Africa. These units are designed for use with current refrigerants like R448A and R449A, but also with the next generation of HFO refrigerants, emphasising flexibility for future retrofitting.

A significant advantage of Danfoss units is their integration of micro- channel heat exchangers, offering two primary benefits:

• They require significantly less refrigerant compared to traditional fin-and-tube condensers, crucial given stringent quotas
• The combination with Danfoss compressors results in superior Coefficient of Performance (COP), leading to lower energy consumption and a smaller carbon footprint

Schaddach emphasised the importance of considering the total cost of ownership, noting that units can pay off their initial cost through electricity savings alone. The reduced refrigerant charge also offers significant financial savings, as refrigerant is a substantial investment. Micro-channel heat exchangers also offer benefits in terms of cleaning and resistance to environmental factors.

Danfoss’s design philosophy for condensing units focuses on cost reduction, resource efficiency, durability, longevity (evidenced by rigorous salt spray tests), and repairability.

 

Efficiency and CO₂ solutions

Schaddach introduced the Optima Plus condensing units, embodying a plug-and-play concept with enhanced efficiency. These units feature an electronic controller for simplified commissioning (less than seven steps) and optimised fan speed management. Optima Plus units are also stackable, saving installation material and space.

Variable speed inverter technology is presented as an ideal solution for applications with multiple evaporators, even those running at different temperatures. This technology brings benefits of efficiency, reduced refrigerant usage and optimal performance, especially in partial load conditions.

To validate these theoretical benefits, Danfoss conducted a field test in a supermarket utilising four condensing units. After initially running a comparative digital solution, Danfoss replaced them with its Optima Inverter units. The real-life test showed 6 700 kilowatt-hours saved annually, extremely close to theoretical predictions, translating into significant operational expense reductions and a corresponding decrease in CO₂ equivalents.

Danfoss’s semi-hermetic compressors are highlighted for their “rock solid” durability, long lifetime, and full serviceability, ensuring prolonged use. Packaged condensing units featuring these semi-hermetic compressors are available with both variable speed (for energy efficiency) and fixed speed options (for longevity and serviceability). These units are particularly well-suited for high ambient conditions due to their generously-sized condensers.

Schaddach also recounted a customer-driven innovation where a serviceable semi-hermetic unit with heat recovery capabilities was customised, allowing the customer to utilise excess heat for boiling water in food service operations – a “next level of sustainability”.

Finally, Schaddach affirmed Danfoss’s current CO₂ solutions and ongoing efforts to expand their portfolio, particularly with semi-hermetic CO₂ compressors. He described their smaller CO₂ units as a “truly plug and play concept” similar to the Optima Plus. Recognising that installers sometimes find high-pressure CO₂ systems challenging, Danfoss has designed their units with electronic controllers that simplify commissioning. A significant advantage of these CO₂ units is their design for high ambient temperatures and robust infrastructure, making them an excellent solution for demanding climatic conditions.

In a brief Q&A, Schaddach clarified that Danfoss does not manufacture evaporators themselves but collaborates with manufacturers in certain markets. He noted a positive trend with more display cabinet manufacturers optimising their products for CO₂, moving towards systems that can operate at 80 bar and beyond, further enhancing efficiency and sustainability in the HVAC landscape.

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