An evaluation of the phase-out management system of an ozone depleting substance HCFC-22 and its environmental and socioeconomic implications in Botswana

Abstract

Climate change and ozone depletion are topical challenges the world over and are both attributed mainly to human activities, particularly emissions of ozone depleting substances (ODSs). One such substance is chlorodifluoromethane (HCFC-22), a cheap, widely used refrigerant with a high global warming potential of 1780. Botswana is a signatory to the Montreal Protocol (MP), which guides international efforts to phase-out HCFC-22 and requires signatories to develop and implement a country-level Hydrochlorofluorocarbon Phase-out Management Plan (HPMP). This study, which used a mixed methods approach, was conducted to evaluate the phase-out of HCFC-22 management strategies and their environmental and socioeconomic implications in Botswana. A census of nine HCFC-22 importing companies was conducted and probability sampling proportional to size was used to select a sample of 159 respondents from the Department of Meteorological Services, HCFC-22 importers, customs officers from 20 purposively selected Botswana entry ports and HCFC-22 consumers from the importing companies. Category-specific respondent questionnaires and interview guides, site visits and assessment of records were used to gather data. Of particular interest were the annual HCFC-22 importation figures for each company, the Botswana Unified Revenue Services and the National Ozone Unit, as well as the level of compliance of the companies’ HCFC-22 phase-out management practices with relevant national regulations, the Botswana HPMP and the MP resolutions. Botswana’s HCFC-22 importers were found to be moderately to highly compliant to nonregulatory elements rather than regulatory elements. Overall, HCFC-22 consumption decreased from the baseline to 10.5% for the first stage (2013-2015), which was slightly more than the 10% reduction expected. A steady decrease in HCFC-22 consumption was noted towards the 35% target for 2020, largely due to awareness-raising initiatives directed at the surveyed stakeholders. Absolute HCFC-22 consumption dropped by approximately 510400 kgs from 2011-2017 or 28072 ozone depleting potential saved. On the downside, gaps were identified in the industry-wide quota-system, data reporting, prevention of illegal ODS trade, service technician training, user knowledge of alternatives and disposal of ODS equipment. The study recommends the use of a planning, policy formulation and implementation framework that integrates and balances three fundamentals, namely, stakeholder involvement, the process and the plan enablers.