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New Zealand Strategy for Halon Management

The purpose of this strategy is to minimise the emission of halons into the atmosphere by overseeing their proper use, encouraging decommissioning and ensuring their safe storage, management and eventual destruction.

Background

Halons, or halogenated hydrocarbons, are manufactured chemical substances that are highly effective in extinguishing fires and suppressing explosions. Halons have been produced and in commercial uses since the 1960s. The two halons present in New Zealand in any quantity are:

  • Halon 1301 is a non-toxic gas at room temperature. It is ideal for fixed flood fire fighting systems in confined spaces. It is widely used in maritime and aviation applications where people are present and for specialised industrial situations.
  • Halon 1211 is a vaporising gas at room temperature. It can be toxic when used in confined spaces. It was widely used in portable fire extinguishers and in fixed unoccupied installations such computer rooms and electrical substations.

Halons are very aggressive depleters of the ozone layer. Halon 1211 is up to four times more destructive than CFCs, with one kilogram of halon 1211 being able to destroy 20 tonnes of ozone. Halon 1301 is up to sixteen times more destructive than CFCs.

There are now appropriate alternatives for almost all uses of halon 1211, and for halon 1301 in most new installations. There is, however, a continuing demand for halon 1301 to support existing fire fighting equipment in ship engine spaces (manned) and aircraft engine cells and cargo holds. The diminishing stocks and continued essential use applications of halon 1301 means it has a very high commercial value.

While halon 1211 now has virtually no resale value in developed countries, portable extinguishers are still essential in a limited number of sites such as the passenger compartments of commercial aeroplanes.

Since the Montreal Protocol on Substances which Deplete the Ozone Layer was signed in 1987, the international community has made significant progress in phasing out CFCs, halons, and other ozone depleting substances. To date, the emphasis has been on ceasing production and trade between developed countries. (Developing countries are also phasing out halons, but within a more liberal timeframe that recognises their limited economic capacities.) Stocks of ozone depleting substances already in existence can remain in use until current fixtures and equipment is decommissioned.

The steps taken to date have reduced emissions of ozone depleting substances into the atmosphere. The ozone layer is, however, at its most depleted and fragile. Further action is required to prevent greater damage to the earth's protective layer, and to make sure that the repair process starts at the earliest possible time.

Options for action have been reviewed. Scientific advisers to the Montreal Protocol have identified “…complete elimination and destruction of halon 1211 and halon 1301 as the most environmentally beneficial option to enhance the recovery of the ozone layer”.

Parties to the Protocol have therefore been requested to develop national or regional strategies for the management of halons, including emissions reduction and the ultimate elimination of their use.

The New Zealand situation

The import of halons into New Zealand has been banned since September 1990. (The only exemptions are for a narrow range of items deemed to be necessary for human health and safety.) The ban is given effect under the Ozone Layer Protection Regulations 1996. There are still considerable stocks in New Zealand in functioning systems and in storage following decommissioning.

New Zealand stocks of halons are estimated by the fire protection industry to be as follows:

Item Quantity
halon 1211 -bulk supplies 18,000 kg
halon 1211 - hand held fire extinguishers 62,000kg
Total halon 1211 80,000kg
halon 1301 15,000 kg

Stocks of decommissioned halon 1211 that might be inadvertently or deliberately released to the atmosphere have been identified as a significant risk. This is particularly applicable in industries subject to major restructuring, where new owners may not be aware of the existence or the hazardousness of the material.

As in many other countries, the fire protection industry has been pro-active in managing halons in New Zealand. Halon Recycling Ltd, a non-profit company specifically established by the fire protection industry, has:

  • Explored options for managing stocks of halon 1301. Commercial airlines have their own cleaning facilities. Suitable facilities for establishment of a halon bank for other operators are no longer available onshore. The industry has therefore brokered arrangements for access to the services of the Australian-National Halon Bank (ANHB) and its Principal Contractor, DASCEM Holdings Pty Limited (DASCEM).
  • Facilitated the collection and transportation of halon 1211 for destruction, and provided advice and information on alternative products. Over the last two years, Halon Recycling Ltd has managed a 25% Government subsidy which has been made available for the collection, transport and shipping costs of halon 1211 sent to Australia for destruction.

The ANHB is a purpose built facility which uses plasma arc conversion technology for the destruction of ozone depleting substances including halons. It also reclaims to new specifications, stores and manages essential use inventories of halons. The services are provided on a commercial basis, and are consistent with the Australian Government's commitment to the ANHB being a regional and international service facility for halon management.

Underpinnings of strategy

The aims of New Zealand's national halon management strategy are to:

  • encourage the decommissioning by June 2003 of all halon-based systems except essential uses for which feasible alternatives are not available
  • ensure that sufficient supplies of halon 1301 continue to be available while required to meet essential use needs
  • minimise emissions of halons through safe use and the collection, storage and early destruction of decommissioned material.

The strategy will be based on continued consultation and co-operation with the fire protection industry, aviation and Defence services, DASCEM and other sector groups.

Risks will be managed through:

  • distributing educational information to organisations and individuals holding halons
  • continuing to treat as a priority the decommissioned stockpiles which represent the greatest risk
  • minimising the temptation for holders to deliberately vent halons to the atmosphere (there will be no mandatory decommissioning)
  • encouraging the decommissioning of all systems for which appropriate alternatives are available.

Strategy 2000-2004

New Zealand expects that Halon Recycling Ltd will continue to be a major partner in halon management.

The fire protection industry is well placed to:

  • identify and liaise with organisations holding halons
  • disseminate information
  • act as a local collection point for material
  • act as a broker in arrangements with DASCEM.

Partnerships with other organisations such as the Ministry of Defence, aviation and transport groups will be developed as required.

Halon 1301

Commercial airlines will continue to manage their own stocks of halon 1301.

Other essential users of halon 1301, such as the Defence Forcesand the maritime industry, are already being advised to plan for future needs, and to negotiate cleaning and storage arrangements with DASCEM. Halon Recycling Ltd and the Ministry for the Environment will continue to work together on the provision of advice and information for these agencies.

Other users of halons will be advised of alternatives and encouraged to work towards decommissioning by June 2003. Information on alternatives will be provided.

The Ministry for the Environment will maintain a watching brief, to ensure that the New Zealand operators are assured of sufficient stocks to meet future needs, and that arrangements are consistent with the terms of the Montreal Protocol.

Halon 1211

The Government will aim for the decommissioning, recovery and destruction of all but essential use halon 1211. Priorities for the management of halon 1211 will be as follows:

  1. Safe storage and early destruction of decommissioned material
    The Ministry for the Environment will continue to support and, subsidise as feasible, the collection, transport and destruction of decommissioned halons. Those stocks, identified as being at greatest risk of venting, are the subject of initial campaigns. 20,000 kg was targeted for subsidised collection in the period January to June 2000.
  2. Voluntary decommissioning
    The Ministry for the Environment will work with industry to identify a date by which fixed systems using halon 1211 can be decommissioned. This is likely to be a date in 2003. Companies not already doing so will be encouraged to plan for replacement within a reasonable timeframe.
  3. Collect and destroy fire extinguishers held by individuals and small firms
    New Zealand will explore suitable schemes for collecting portable halon fire extinguishers held by individuals and small firms. Voluntary and subsidised programmes will be considered.
    The possibility of regulating against restocking and expanding of existing non-essential systems will be tested with industry in 2000-2001.

Review

The Strategy will be reviewed by June 2004.

Last updated: 16 September 2004