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10/1/02007 David Downie 1 Global Policy to protect Stratospheric Ozone David Leonard Downie Columbia University Guest Speaker V 1003: Science & Society – Fall 2007
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Page 1: Global Policy to protect Stratospheric Ozone · 2016-01-21 · Ozone Regime 2007 Montreal Adjustment: 191 Parties to the Montreal Protocol reached a historic agreement late Friday

10/1/02007 David Downie 1

Global Policyto protect

Stratospheric Ozone

David Leonard DownieColumbia University

Guest Speaker V 1003: Science & Society – Fall 2007

Page 2: Global Policy to protect Stratospheric Ozone · 2016-01-21 · Ozone Regime 2007 Montreal Adjustment: 191 Parties to the Montreal Protocol reached a historic agreement late Friday

10/1/02007 David Downie 2

Ozone Hole

Darkest blue areasrepresent regions ofmaximum ozone depletion

1979

19821984 1986

1988 1990

19921994

1997

1999

2004

Page 3: Global Policy to protect Stratospheric Ozone · 2016-01-21 · Ozone Regime 2007 Montreal Adjustment: 191 Parties to the Montreal Protocol reached a historic agreement late Friday

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Global Ozone Policy - Why Care?

1. Very Important Issue - Ozone in stratospherehelps shield earth from UV radiation.

2. Very Difficult Problem to Solve - ozone-depleting substances (ODS) were consideredessential to modern life and potentiallyimpossible to replace.

ODS include: CFCs, Halons, Methyl Bromide,HCFCs, MC, CTC, Bromochloromethane (BCM)

Page 4: Global Policy to protect Stratospheric Ozone · 2016-01-21 · Ozone Regime 2007 Montreal Adjustment: 191 Parties to the Montreal Protocol reached a historic agreement late Friday

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Global Ozone Policy - Why Care?

3. A Successful and Influential Example

Global membership.Strong set of binding rules (international law).

1985 Vienna Convention1987 Montreal ProtocolAmendments and Adjustments to the Protocol(1990 London Amendment, 1992 Copenhagen,1995, 1997, 1999, 2007).Decisions by MOPs.

Page 5: Global Policy to protect Stratospheric Ozone · 2016-01-21 · Ozone Regime 2007 Montreal Adjustment: 191 Parties to the Montreal Protocol reached a historic agreement late Friday

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Successful Example – So FarRobust Set of Component Institutions

Regime Principles, Norms, Rules, & ProceduresMultilateral FundGEFAssessment Panels (Science; Environmental Effects;Technology and Economic Assessment)Non-compliance procedures (ImplementationCommittee)Implementing Agencies (UNEP, World Bank, UNDP,UNIDO)

Elements incorporated into future treaties (andintentionally not-incorporated)

Page 6: Global Policy to protect Stratospheric Ozone · 2016-01-21 · Ozone Regime 2007 Montreal Adjustment: 191 Parties to the Montreal Protocol reached a historic agreement late Friday

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Successful Example – So Far

Effective International PolicyProduction and consumption of almost all ODS (CFCs, etc.)declining on global scale.Atmospheric concentrations of most ODS stabilized ordropping.Stratospheric concentrations of Cl and Br dropping.Production and Consumption of CFCs and several other ODSnearly eliminated in OECD countries, as required.Developing countries largely met CFC freeze in 2000 andmeeting or expected to reductions.Positive Impact on Climate Change (CFCs about 1000 timesGWP as CO2; Ozone Regime responsible for eliminatingequivalent of about 10-20 years of CO2 emissions).

Page 7: Global Policy to protect Stratospheric Ozone · 2016-01-21 · Ozone Regime 2007 Montreal Adjustment: 191 Parties to the Montreal Protocol reached a historic agreement late Friday

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Key Causal Factors Shaping the Developmentof International Ozone Layer Policy

1. Advancing Scientific and Technical Knowledge(information and consensus)

2. Economic Interests (changing patterns; regimeinfluence interests)

3. Existing Institutions / Regime / Policy Structure –international institutions and regime/policy designmatters

These groups of meta-factors create `structures’ that influenceoutcomes.

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1. Advancing Scientific and TechnicalKnowledge/Information

“Framed” the Debate - “Constrained” ActorsInfluenced Epistemic Community DevelopmentInfluenced Public OpinionFormal/Acknowledged Role in Treaty - Basisfor Treaty ExpansionSln K provided confidence – allowed for rapidinnovation

Page 9: Global Policy to protect Stratospheric Ozone · 2016-01-21 · Ozone Regime 2007 Montreal Adjustment: 191 Parties to the Montreal Protocol reached a historic agreement late Friday

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2. Economic Interests“Traditional” Retarding ImpactShaped National Proposals for InternationalRegulationsRegulation Produced InnovationInternational Regulation ‘Re-Cartelized’ ODSProduction – allowed for rapid policy expansionMultilateral Fund Worked – economically andpoliticallyEffective Incentives in USA – excise tax.

Page 10: Global Policy to protect Stratospheric Ozone · 2016-01-21 · Ozone Regime 2007 Montreal Adjustment: 191 Parties to the Montreal Protocol reached a historic agreement late Friday

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3. International Institutions andExtant Regime / Policy Structure

Int. Institutions provided foundation, basis &opportunity to initiate, sustain and build policy.Pre-emptive (at least originally)

Control Measures - Clear, Strong, Simple, Binding,Total Phase-Out Goal, Differentiated ResponsibilitiesAbility to Grow in Response to New Information

Requirement to consider action; Information to basedecision (Assessment Panels); Ability to make decisions;Rapid implementation of decisions possible (Amendment andAdjustments, Decisions of Parties, MF)

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3. International Institutions andExtant Regime / Policy Structure

Financial Mechanism - Multilateral Fund(hugely imp political deal; membershipcarrot; economic interests; adjustmentcosts).Trade Sanctions (membership stick)Non-Compliance ProceduresUNEP as designated regime organization

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Ozone Regime1930s CFCs are invented1974 CFC – Ozone Theory Published1977 – 1978 First International Meetings1977 – 1981 Domestic Controls:

U.S.A., Canada, Nordic Countries, European Community

1979 Margaret Thatcher Elected1980 Ronald Reagan Elected

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Ozone Regime

1982 Intergovernmental Negotiating Committee formed.

1983 “Toronto Group” Proposal.1985 Ozone Hole Discovery published.1985 Vienna Convention.

Framework treaty.No controls.No mention of CFCs.

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Ozone Regime

1987 Montreal Protocol.Centerpiece of the regime.50% cuts on 5 CFCs and 3 Halons by 2000.10-year grace party for developing countries(Article 5).Assessment panels.Amendment and adjustment procedures.

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Ozone Regime

1990 London Amendment and Adjustments.

• 100% cut on 15 CFCs, Halons, CT, MC by 2000from 1986 levels.

1992 Copenhagen Amendment and Adjustments.• 100% cut on 15 CFCs, Halons, CT, MC by 1996

from 1986 levels.• HCFCs and Methyl Bromide added.

Page 16: Global Policy to protect Stratospheric Ozone · 2016-01-21 · Ozone Regime 2007 Montreal Adjustment: 191 Parties to the Montreal Protocol reached a historic agreement late Friday

10/1/02007 David Downie 16

Ozone Regime

1995 Vienna Amendment and Adjustments.• HCFCs consumption controls increased.• Grace period – informally adjusted/expanded for

developing countries.

1997 Montreal Amendment and Adjustments.• Methyl Bromide to be phased out by 2005 – with

loophole retained.

1999 Beijing Amendment and Adjustments.• HCFC production controls; restrictions on HCFC trade

with non-Parties; production and consumptioncontrols for new group of substances,Bromochloromethane (BCM)

Page 17: Global Policy to protect Stratospheric Ozone · 2016-01-21 · Ozone Regime 2007 Montreal Adjustment: 191 Parties to the Montreal Protocol reached a historic agreement late Friday

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Since 1999

Efforts to increase controls MB (USAopposition at times).

Efforts to speed controls on HCFCs.

Enhances focus on FTA in particular areas toensure full compliance by developingcountries.

Page 18: Global Policy to protect Stratospheric Ozone · 2016-01-21 · Ozone Regime 2007 Montreal Adjustment: 191 Parties to the Montreal Protocol reached a historic agreement late Friday

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Ozone Regime

2007 Montreal Adjustment: 191 Parties to the MontrealProtocol reached a historic agreement late Friday night,September 21, 2007 to strengthen the ozone treaty byspeeding up by ten years the phase-out of HCFCs.

The agreement will advance the recovery of the ozone layer byseveral years and, because HCFCs are GHGs, reduce GHGemissions by up to 25 billion tons of CO2 equivalent—fivetimes more than the Kyoto Protocol will do during its initialreduction period from 2008 to 2012.

As part of the agreement, developed country Parties promisedto continue paying into Multilateral Fund.

Page 19: Global Policy to protect Stratospheric Ozone · 2016-01-21 · Ozone Regime 2007 Montreal Adjustment: 191 Parties to the Montreal Protocol reached a historic agreement late Friday

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2007 Montreal Adjustment:Developed Country Parties:

Baseline: 1989 levels (plus 2.8% of 1989 CFC levels).75% reduction on 1 Jan 2010 (up from 65%)90% on 1 Jan 2015Continuing use of 0.5% from 2020 to 2030

Developing Country Parties: (old schedule – 2016 freeze at2015 level and 100% cut in 2040)

Base level 2009-2010 average (incentive?)Freeze on 1 Jan 201310% reduction on 1 Jan 201535% on 1 Jan 202067.5% on 1 Jan 2025Continuing use of 2.5% from 2030 to 2040

Page 20: Global Policy to protect Stratospheric Ozone · 2016-01-21 · Ozone Regime 2007 Montreal Adjustment: 191 Parties to the Montreal Protocol reached a historic agreement late Friday

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Future Success?

New Scientific ChallengesNew ODS?Relation to climate change.CFCs and HCFCs in developing countries –will complete phase-outs really occur.Methyl bromide – exemptions.Enough time?

Page 21: Global Policy to protect Stratospheric Ozone · 2016-01-21 · Ozone Regime 2007 Montreal Adjustment: 191 Parties to the Montreal Protocol reached a historic agreement late Friday

10/1/02007 David Downie 21

Thank you

Questions: 212-854-5725 [email protected]


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