Foreign Relations of the United States, 1981–1988, Volume XLI, Global Issues II

363. Minutes of a Domestic Policy Council Meeting¹

Washington, May 20, 1987, 2 p.m.

PARTICIPANTS

• Messrs. Meese, Hodel, Herrington, Thomas, Taft, Newman, Wright, Woods, Cribb, Bauer, Ms. King, Messrs. Brashear, Harlow, Sprinkel, Graham, Green, Gray, Sweet, Ms. Schafer, Messrs. Fletcher, Wallis, Dorsey, Habicht, Calio, Benedick, Watson, Galebach

Stratospheric Ozone

The Attorney General opened the meeting by introducing Mr. Benedick who gave an overview of the events leading to the current round of international negotiations² to cut back on the production of compounds that appear to reduce the stratospheric ozone layer. Mr. Benedick pointed out that the negotiations on stratospheric ozone began in 1982 under the Vienna Convention,³ and that procedures were established to develop a protocol for a worldwide reduction of chlorofluorocarbons (CFCs) and other compounds that deplete the ozone layer. That protocol should be presented to the Senate for ratification sometime during the Fall of 1987. He also mentioned the hole in the ozone layer over Antarctica discovered by the British in 1985 as giving impetus to the negotiations, and said the Environmental Protection Agency is required under court order to determine ways in which the domestic production of CFC’s can be regulated. During the Spring of 1987, the U.S. negotiating team has met several times with representatives of member countries and are now ready to complete the draft protocol in preparation for a meeting in September 1987 when participating countries would sign it.

Mr. Meese asked Mr. Watson to outline scientific knowledge about the ozone depletion problem. Mr. Watson described the problem, including the weaknesses and disagreements in the current scientific models being used. Messrs. Graham, Fletcher, Thomas, and Secretary Hodel discussed the nature of the science on ozone depletion and whether it was caused by a natural phenomena or man made chemicals. No conclusions were reached. Mr. Benedick discussed the areas in which Council guidance was being sought to develop a U.S. position on the protocol. They included chemical coverage, stringency and timing, a control formula and trade provisions, and participation. Mr. Benedick said that the delegation is attempting to reach the broadest possible involvement of as many nations as possible, pointing out that the European Communities, Japan and Russia, have resisted controls but are now coming closer to the U.S. position.

Mr. Hodel said that there may be other ways to control CFC’s and suggested that the Germans be asked to ban aerosol products as the U.S. has done. He also suggested that we look closely at how countries vote on sanctions if other nations do not comply with the protocol agreement. Mr. Thomas stated that the issue of weighted voting is still to be negotiated. Mr. Hodel stated that compliance with the protocol should be monitored and not left to an “honor system.” Mr. Graham stated that the science was very uncertain, and that the effect of ultraviolet light on humans is controllable. He said that scientists should continue to measure the true depletion of ozone before agreeing to a required reduction of ozone depleting chemicals.

Mr. Hodel stated that if the objective of an international agreement is to reduce ozone, there are several ways to reach that objective. He suggested that we seek the broadest possible participation, including the U.S./E.C./Japan/USSR and other CFC producing nations. Others could cut back aerosols as we have done, then follow with a freeze if necessary. If our objective is to protect the health of the people, then the Working Group should look at ways to protect public health rather than controlling ozone depleting chemicals. Mr. Wallis stated that when science and technology conflicts with politics, we have problems. He agreed we are facing pressure from lobby groups and from Congress to control the chemicals that deplete the ozone layer, and said we should end up with the position being taken by the negotiating team. He felt we should support weighted voting based on CFC production. Mr. Thomas explained that the EPA is mandated by the Clean Air Act to issue domestic regulations to control ozone depleting chemicals, thus we may be forced to take unilateral action if we do not get participation in an international protocol. Mr. Sprinkel said the costs and benefits of a protocol should be investigated. Mr. Taft expressed concern about the inclusion of halons in the protocol because of extensive Defense Department use. Mr. Meese summarized the issues that should be addressed by the Working Group and brought to the Council at another meeting, including the science of ozone depletion, a cost/benefit analysis, how halons should be treated, and what court and legislative actions are pending.

1. Source: Reagan Library, Risque Files, Ozone Layer Protection [1]. No classification marking. The meeting took place in the Roosevelt Room at the White House.
2. See Document 362.
3. See Document 349.