Australia and New Zealand: HFC phase-down, refrigerant handling licences and AS/NZS 5149

Australia: the law and the phase-down

In Australia refrigerants are regulated by the Ozone Protection and Synthetic Greenhouse Gas Management Act 1989 and its regulations. The Act covers both ozone-depleting substances and synthetic greenhouse gases, that is HFCs ^[1][2]. The HFC phase-down started on 1 January 2018 and is managed with import quotas. The quotas fall in steps until imports in 2036 are 15 % of the baseline. The baseline is calculated from the average HFC imports in 2011–2013 plus a share of the HCFC imports ^[1].

Australia does not manufacture HFCs, so the import quotas control the entire supply. The quotas affect the price and over time make low-GWP refrigerants and natural refrigerants more attractive. The quotas cover bulk HFCs only; refrigerant in pre-charged equipment is not counted. Quotas are allocated for two-year periods. For 2026–27, 95 % of the quota goes to existing importers in proportion to their imports in 2023–24, and 5 % is open to others (determination F2025L00848). A national Environment Protection Agency has operated since 1 July 2026, and HFCs are on the work plan of the Industrial Chemicals Environmental Management Standard (IChEMS) for 2026–27.

Licences and trading authorisations

The licensing scheme is run by the Australian Refrigeration Council (ARC), appointed by the government in 2005 ^[2][3]. Under the Regulations the CEO of the National Environmental Protection Agency (NEPA) grants licences and quotas and appoints the RAC Industry Boards (reg. 120) ^[8][10]. There are two main types:

• Refrigerant Handling Licence (RHL): for people who work on refrigeration and air conditioning equipment containing refrigerants covered by the rules. The licence shows that the person has the right training for the work it covers.
• Refrigerant Trading Authorisation (RTA): for businesses and people who buy, store, sell or dispose of such refrigerants. Only authorisation holders may buy bulk refrigerant.

The Regulations (reg. 131, Table 131) define four refrigerant handling licences, besides the restricted licence (reg. 133) and the trainee licence for work under supervision (reg. 134) ^[8]:

Under reg. 135(1) every licence holder must ^[8]:

• use only refillable containers for refrigerant,
• not engage in prohibited refrigerant charging (see below),
• hand recovered refrigerant to a refrigerant trading authorisation holder or to a refrigerant destruction facility (halon excepted),
• put the licence number on invoices, receipts and quotes, if not employed or hired by an RTA holder.

Licence and authorisation holders must follow the refrigerant handling code of practice. New editions of the codes for Australia and New Zealand (Part 1 and Part 2, 2025 edition) have applied since 20 February 2025; they are listed as licence standards in items 23–24 of section 6 of the Qualifications and Standards Determination 2024 ^[9]. Following them is mandatory for everyone who holds a licence or authorisation through ARC ^[3]. The codes describe, among other things, how to avoid releases, recover refrigerant, test for leaks and document the work.

Australia: releases, recovery and safety

It is prohibited to release refrigerants covered by the rules, except for small quantities that cannot be avoided during correct work. Refrigerant removed from a system must be recovered and handed in for recycling or destruction. The industry's take-back scheme accepts used refrigerant ^[2].

Regulations 2AAA and 111A prohibit prohibited refrigerant charging. Equipment designed to run on one refrigerant, as shown on its compliance plate or in the manufacturer's manual, may not be charged with another HCFC or HFC if the design refrigerant is not a scheduled substance, or if the new refrigerant has a higher GWP than the design refrigerant. In practice, equipment designed for R290, R600a or CO2 may not be filled with an HFC, and an HFC unit may not be charged with an HFC of higher GWP. The only exception is where the equipment is essential for health or public safety and no suitable alternative is available (reg. 2AAA(4)). It is an offence of strict liability (50 penalty units) and a civil penalty provision (60 penalty units) ^[8].

Safety in refrigerating systems is governed by the AS/NZS 5149 series, parts 1–4, which is based on ISO 5149. It sets safety classes, the maximum refrigerant quantity per room, requirements for machinery rooms and pressure testing. Factory-made appliances are covered by product standards in the AS/NZS 60335 series. The states have their own rules on work health and safety and gas, and for flammable refrigerants such as hydrocarbons a state may require an additional qualification. Check the rules in the state where you work.

Under the model Work Health and Safety Regulations 2011 (Commonwealth version), Schedule 5, the design of pressure equipment in hazard levels A–D under AS 4343:2014 must be registered, and the pressure vessel itself must be registered in hazard levels A–C, except serially produced vessels and gas cylinders. Pressure piping design is not on the design list. The states have their own versions of the regulations, which we have not checked ^[11].

Australia: import ban on high-GWP air conditioning

In addition to the quotas for bulk refrigerant, Australia prohibits the import and manufacture of certain air conditioning equipment designed for refrigerants with a GWP above 750 ^[6]. The bans cover equipment with no more than 2.6 kg of refrigerant that is designed to cool or heat rooms for people. They also apply when the units are imported without refrigerant. Equipment already imported or manufactured before the date may be sold ^[6]. R410A (GWP 2,088) is covered, while R32 (GWP 675) and R290 are permitted.

• Since 1 July 2024: outdoor units for single-split systems with one indoor unit, portable units and window or wall units.
• Since 1 July 2025: outdoor units for multi-split systems with several indoor units, including VRF systems.
• The definitions in reg. 2 cover only the outdoor unit of a split system, portable units and single wall or window units that are designed mainly to cool or heat a stationary space for human comfort, so vehicles and data centre cooling fall outside them. Ducted systems are not named in the regulation text; the authority's guidance says they are exempt ^[6][8]. Confirm this with NEPA or DCCEEW for the specific unit. Equipment licences can also be granted for medical, defence, safety and similar uses (reg. 3DA(2)) ^[8].

New Zealand: permits to import HFCs

New Zealand has ratified the Kigali Amendment and introduced the phase-down through the Ozone Layer Protection Act 1996 and the Ozone Layer Protection Regulations 1996 ^[4][5]. Since 1 January 2020 bulk HFCs may only be imported with a permit from the Environmental Protection Authority (EPA). Permits are issued in decreasing quantities over time, counted in tonnes of CO2 equivalent ^[5]. Up to 80 % of the permitted quantity is allocated to previous importers, and at least 20 % is allocated through special permits. There are also permits to import recycled HFCs ^[5].

Under the Climate Change Response Act 2002 it is an offence to knowingly release synthetic greenhouse gases while working on refrigeration equipment. Since 2020 synthetic refrigerants have been declared priority products with product stewardship requirements ^[4]. As in Australia, the safety requirements for refrigerating systems are in AS/NZS 5149.

Points to consider

• In Australia: check that both the technician (RHL) and the company (RTA) hold valid papers from ARC before refrigerant is bought or handled.
• Follow the 2025 code of practice. It is a condition of the licence.
• In New Zealand: expect high-GWP HFCs to become more expensive as the import permits shrink.
• For new systems: choose a low-GWP refrigerant and check the charge limits under AS/NZS 5149.