The cost of not addressing it is more distributed: at some point you can't go outside anymore since the UV index is so high, sunscreen can't block high-intensity UV-B and UV-C, plants get damaged to the point of catastrophic crop failures... you can live in denial about climate change in developed countries (for a limited time anyway) but ozone affects everyone.

True but at the time the ozone hole was mostly over the Antarctic so the average person didn't feel its effects which wouldn't then contribute to the change in policy.