industry and environment - DTIE

Chemicals management
The Montreal Protocol: lessons for successful
international chemicals management
Summary
The Montreal Protocol on Substances that Deplete the Ozone Layer was designed to phase
out the production and consumption of a number of CFCs and several halons. Adopted in
1987, the Protocol came into force in 1989. It has been amended to introduce other types of
control measures and to add new controlled substances. The Protocol is an example of policymaking
based on scientific, environmental and technological global assessments. Its successful
implementation can provide lessons for policy- and decision-makers in governments and
industry, as well as for international organizations implementing other international agreements
concerning chemicals.
Résumé
Le Protocole de Montréal sur les substances qui appauvrissent la couche d’ozone avait pour
objet de mettre progressivement fin à la production et à la consommation d’un certain nombre
de CFC et de plusieurs halons. Adopté en 1987, il est entré en vigueur en 1989. Il a été
amendé pour inclure d’autres types de mesures de réglementation et ajouter de nouvelles substances
réglementées. Il constitue un exemple d’élaboration de politiques fondée sur des évaluations
scientifiques, environnementales et technologiques mondiales. Le succès de sa mise
en œuvre peut servir de leçon aux responsables politiques et aux décideurs des gouvernements
et de l’industrie, ainsi qu’aux organisations internationales qui mettent en œuvre d’autres
accords internationaux sur les produits chimiques.
Resumen
El Protocolo de Montreal sobre Sustancias que Agotan la Capa de Ozono fue diseñado para
eliminar la producción y el consume de diversos CFC y halones. El Protocolo fue adoptado en
1987 y entró en vigor en 1989, y ha sido modificado a fin de incluir otros tipos de medidas de
control y sustancias controladas. Constituye un ejemplo de formulación de políticas con base
en evaluaciones científicas, ambientales y tecnológicas a nivel mundial. La exitosa ejecución del
Protocolo puede servir como modelo para los responsables de la formulación de políticas y de
la toma de decisiones dentro del sector gubernamental e industrial, así como para los organismos
internacionales responsables de la ejecución de otros convenios internacionales sobre
sustancias químicas.
In 1974 two American scientists, Mario Molina
and F. Sherwood Rowland, published an article in
the scientific journal Nature in which they hypothesized
that chlorofluorcarbons (CFCs) survive long
enough in the atmosphere to reach the stratospheric
ozone layer (which limits the amount of ultraviolet
radiation reaching the earth’s surface). There, according
to the authors, the CFCs are decomposed by
ultraviolet radiation. This liberates chlorine, which
is implicated in the thinning of the ozone layer.
Production of CFCs in the mid 1970s was soaring.
The article by Molina and Rowland created a
storm among scientists and the producers of these
chemicals. 1
In the mid 1980s the British Antarctic Survey
confirmed that severe depletion of the ozone layer
was occurring (the phenomenon which became
known as the “ozone hole”). The link between
CFCs and the Antarctic ozone hole was soon
established using satellite measurements. 2
Until then, it was generally considered that only
toxic and hazardous chemicals needed to be managed.
The rude surprise was that using non-toxic,
apparently harmless chemicals like CFCs could
indirectly cause catastrophes.
International efforts to respond to these discoveries
were initiated by UNEP in 1977 through the
World Action Plan on the Ozone Layer. In 1987
the Montreal Protocol on Substances that Deplete
the Ozone Layer was signed. 3 The Montreal Protocol’s
overall objective is to protect the ozone layer
by limiting the use of ozone depleting substances
(ODS) including, but not limited to, CFCs.
Several regional and global treaties whose purpose
was to manage toxic or hazardous chemicals
predate the Montreal Protocol (Table 1). All of
these treaties were aimed at preventing and managing
the direct risks of such chemicals.
The Montreal Protocol has become a flagship
global treaty. It is now accepted that all man-made
chemicals, toxic and hazardous or otherwise,
require strategic management.
Key elements of the Montreal Protocol
A science-based precautionary approach
Successful implementation of the Montreal Protocolhas
established a trend towards policy-making
based on global scientific, environmental and technological
assessments. In 1987 the Protocol did not
call for the complete elimination of production and
consumption of CFCs and halons. 4 Based on subsequent
global assessments, however, the Parties to
the Convention have agreed to the phase-out of
these substances, along with tightened control measures
and accelerated phase-out schedules.
Since 1989 a network of experts from nearly 40
countries has worked together on UNEP’s Scientific
Assessment Panel, 5 Environmental Assessment
Panel 6 and Technology and Economic
Assessment Panel. 7 They regularly produce reports
and interpret (on a consensus basis) their
observations and findings.
Progressive listing of chemicals
The Parties to the Convention have agreed to eliminate
the production and consumption of ozone
depleting chemicals. A short initial list has expanded
to include 96 chemicals and their 576 isomers.
About 16 of these chemicals are widely used.
Slowly but steadily: eliminating production
and consumption
The Parties might have agreed to eliminate production
only. However, a number of countries
imported these chemicals from producing countries
for uses such as air conditioning and refrigeration,
electronics manufacturing, fire-fighting
and agricultural production (Table 2). It was of
critical importance that sectors in which ODS
were consumed underwent a smooth transition
through the adoption of alternate technologies.
During negotiations on the Protocol, the Parties
have demonstrated their commitment to
move forward – but always with prudence. Policy-makers
have shown foresight in decisions based
on scientific assessments and observations provided
by the Scientific Assessment Panel. Another
consideration has been the rate of introduction
of alternative technologies and alternative chemicals,
provided by the Technology and Economic
Assessment Panel. The conclusions of the Environmental
Effects Panel concerning projected
impacts of ozone layer depletion have also been
taken into account.
Participation by developing countries:
common but differentiated responsibilities
The Montreal Protocol was the first international
agreement to recognize the common but differentiated
responsibilities of industrialized and
developing countries with respect to global environmental
problems. In 1985 industrialized
countries accounted for 85% of world consumption
of ODS. These countries took the lead in
phasing out ODS. They also approved a grace
period for developing countries implementing
control measures. In addition, they agreed to contribute
to a Multilateral Fund to meet the extra
costs that would be borne by developing countries
in phasing out ODS.
UNEP Industry and Environment April – September 2004 ◆ 23