The carbon tax/cap-and-trade royal rumble

Wed, 05/13/2009 - 10:51am

By Phil Levy

There's an internet fight going on about how to limit emissions of greenhouse gases. In Corner #1, we have the Cap-and-Trade Kids, advocating limits on the amount of gases emitted. In Corner #2, we have the Pigou Clubbers, arguing for a carbon tax. Backing cap-and-trade are President Obama, Senator McCain (during the campaign), the European Union, and much of the rest of the world. Backing the carbon tax are ... Andrew Sullivan and a bunch of economists, nominally led by Harvard's Greg Mankiw. This seems a little lopsided.

What's interesting is that there are those arguing that the fight should be called off before a punch is even thrown. The winner will have to take on The Status Quo, and cap-and-traders want to go into that fight unblemished. Since they're the only ones with a chance, the argument goes, the Pigou Clubbers should toss in the towel now.

This raises some interesting questions. Is there any difference between cap-and-trade and a carbon tax? Is cap-and-trade the only politically viable approach? And would either have a chance against The Status Quo, who is drawing new fans in the midst of the economic downturn?

First, there is a difference. Cap-and-trade can do a very good impersonation of a carbon tax when we know the demand for emissions with certainty, when we do a great job of regulating, and when we auction off all the emissions permits. If we're uncertain about the demand for producing emissions, if it is hard to keep tabs on what various emitters are doing, or if politics intrudes into the process of handing out emissions permits, then the two approaches veer apart.

For ease of use and immunity from political meddling, the carbon tax is the clear winner. Taxes can be applied early in the fuel distribution process, which makes the logistical task much easier. That sort of upstream application would make attempts at political interference much more transparent, as well. So what about uncertainty? The big critique of a carbon tax is that it cannot guarantee a country will come in under a pre-set emissions cap. If the desire to pollute is really, really high one year, we could find that a given tax won't serve as a sufficient deterrent, and we'll blow past our limits.

Europe, though, has had the opposite problem with their cap-and-trade system. In the first phase of the program, they printed more permits to pollute than anyone wanted. That drove the price of permits near zero, deeply annoying anyone who had paid up for the right to pollute. It also meant that the system was ineffective in restraining pollution. That would be hard to do with a carbon tax. 

The Cap-and-Trade Kids argue that, whatever the economic merits, their approach is the only one with a political chance. But why? Carbon taxes have certainly been seen as a political third rail, at least since President Bill Clinton dropped a proposed BTU tax in 1993. People don't want to have to pay more for energy. But how does cap-and-trade overcome this critique? If it's going to rein in eagerness to pollute, it will have to raise the cost of pollution. It may be possible to win support by pretending this won't happen, but it's worth thinking hard about whether such deception is a sound basis for creating a major long-term policy.

And what of the big ruckus with The Status Quo? Australian cap-and-traders just postponed their fight. Prime Minister Kevin Rudd gave a number of reasons, including the need for business certainty (a plus for a carbon tax, by the way) and the impact of the global financial crisis. Does it make any sense to raise taxes, implicitly or explicitly, in the midst of a recession?

Actually, it might. It would depend what we did with the revenue. Imagine we used it to finance a cut in payroll taxes. That would make it more expensive to pollute, but cheaper to hire people. That could be a nice combo. I wouldn't bet much on the political chances of the carbon tax, but it's got enough promise to at least go down swinging.  

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CDM

I thought another argument used by the cap and traders was the clean development mechanism in which an entity (corporation or nation?) sponsors a reduction in GHG emissions in a developing country as a means to meet their emission allowance. Could a similar mechanism work under a carbon tax?

Carbon taxes will not reduce emissions

There is something that most economists and analysts fail to acknowledge. The end goal is ABSOLUTE reductions in C02 emitted. Any policies that result in greater efficiency or cost-shifting will NOT result in reduced emissions in the long run.

Think it all the way through. My wife and I were spending $100/month to heat our home to 70º F. We got ourselves a brand spanking new high-efficiency furnace that heats our home to 70º F for $65/month. That's not what we do though. We heat our home to 73º F for $100/month. No CO2 offset.

High mileage cars just lead to longer commutes and more long distance trips--the percentage of income spent on travel will inevitably remain the same. You can argue that a carbon tax will raise the cost of emitting--but if it is accompanied by offsetting tax breaks elsewhere, and income stays the same, one way or the other, the same amount of CO2 will get emitted. Income gets spent--and if there are no absolute limits on CO2 emission, one way or the other the spending of that income will cause CO2 to get emitted.

Cap and trade on the other hand, properly implemented, WILL result in an absolute reduction. X tons of coal, Y barrels of oil, and Z mcf of natural gas are avaliable for sale this year. Bid on your slice of that pie--and next year the pie shrinks 5%. Now you HAVE to start getting your energy from wind, solar, nuclear, biomass, and hydro-electric--because you CAN'T get it from fossil carbon. Real investments have to be made, real changes in behavior have to occur--and probably, in the short term, real losses of income will occur.

Cap and trade is easier to administer, too. Coal, oil and natural gas enter distribution at a limited number of points in the economy, with a limited number of buyers and sellers. Resellers will be of no consequence. These are commodities sold by weight or volume and easily measured. A market for permits to SELL fossil carbon is easily set up and easily monitored for cheating, too.

A carbon tax will not work, will be an administrative nightmare, and will not cause structural change. Cap and trade will.

Cap and trade on the other

Cap and trade on the other hand, properly implemented, WILL result in an absolute reduction. X tons of coal, Y barrels of oil, and Z mcf of natural gas are avaliable for sale this year. Bid on your slice of that pie--and next year the pie shrinks 5%.

OK, a cap and trade system that worked like that would reduce the amount of coal, oil, and natural gas that got burned. but how likely is it? It would have to be worldwide, otherwise all the carbon we don't buy will be bought and burned by foreigners. Still, it would be a good thing if the whole world agreed to slow the rate that we burn fossil fuels.

Cap and trade is easier to administer, too. Coal, oil and natural gas enter distribution at a limited number of points in the economy, with a limited number of buyers and sellers.

That applies to carbon tax too. Impose the tax at those bottlenecks and then let them pass the costs on to buyers. Simple and easy.

And then anybody who can produce stuff using less fossil fuel can sell it cheaper. If you get tax breaks and you have the chance to spend the same money to get more stuff that use less fossil fuel instead of fewer stuff that uses more, won't you do that? The more that use of fossil fuel becomes uncompetitive -- because it is taxed while other energy sources are not -- the more we shift to other energy sources. At the rate we can manage to.

Let's look at how easy it is for government to cheat. With carbon tax the natural result is for government to take the money and spend it, so the public is poorer. That's bad. With cap and trade the natural result is for government to give away stuff to the businesses they like, ad the expense of everybody else. And actual reductions in fuel use won't last past the next economic slowdown, if experts say that cap-and-trade is slowing the economy. Certainly not past the next war. When there's a war on the military gets whatever fuel it needs.

So, if the government collects taxes from fuel suppliers and we're all poorer, we still have plenty of incentive to reduce our fossil fuel use. It's a bad thing but it still works. But if the government gives away goodies to its friends and then doesn't restrict fuel use, that's a bad thing and it doesn't work.

I think we do better with a carbon tax that includes a pledge that all revenues from the tax will be redistributed equally to voters. That will slow down the government from just taking the money. The pledge probably won't last past the next war, but at least it ought to work for awhile. Use some of that tax money for something else and the voters know you're taking it directly from their pockets.

Cap and trade is too easy for the government to cheat. Carbon tax is better.

Cap, Trade, Lose

Hubris, distrust of markets and a fervent desire for political camouflage are the three legs supporting the case for cap-and-trade.

The hubris resides in the serene faith that regulating the carbon-equivalent emissions of the entire American economy is an easy matter of "proper implementation." Distrust of markets -- in particular, of the oft-demonstrated principle that raising the price of a good or service tends to make people use less of it -- is not always accompanied by the yearning for government control, for government commands and public obedience expressed by the poster just upthread. It's clear enough, though, from the argument that carbon taxes mean more regulation and complexity (never mind that for the most part they represent simple increases in the taxes we already pay) while cap-and-trade would be a breeze by comparison.

The desire for political camouflage is at least as important as the other two legs. Supporters of cap-and-trade in the administration and Congress want to increase energy prices; they just don't want to be blamed for it. They want to be able to point to a system, an entity, a faceless bureaucracy when their constituents come to them with complaints about $4/gallon gas -- more than anything, they want to be able to say that higher energy prices aren't their fault.

A natural impulse, especially given the state of Congress these days, but camouflage only works if it disguises what one is trying to do. Cap-and-trade won't. The issue is between raising energy prices through taxation before global energy markets do it for us, and holding on to cheap energy policies until the world won't let us do it anymore. Advocates of the second course have inertia and public sentiment on their side. What cap-and-trade gives them is a third, crucial political weapon -- it lets them charge their opponents with misleading the American people about their intentions. This charge will be widely believed, because it happens to be true.

No one, not even Barack Obama, is clever enough to make necessary changes in public policy while never trying to persuade the public that an unpopular idea is true. Cap-and-trade advocates think that a lot of happy talk about mandatory reductions and certain limits will get them off the hook with the public for wanting Americans to pay a lot more for energy. American politics will prove them wrong.

Buy More stuff

You have missed the point:
And then anybody who can produce stuff using less fossil fuel can sell it cheaper. If you get tax breaks and you have the chance to spend the same money to get more stuff that use less fossil fuel instead of fewer stuff that uses more, won't you do that?

When you get to buy more stuff, the amount of CO2 goes up, unless there is a hard cap. My furnace is much more efficient, it saves me money, which I then spend on keeping the temperature in my house higher.

Let's say, through efficency and alternative fuels, that we reduce the cost of food, transportation, and home energy use by 20%. How do you think people will spend those savings? Will they fly to Disneyland? Drive to the Grand Canyon? One way or another, they will spend--and total CO2 emitted goes up--perhaps not as much as it would without the changes--but it still goes up. We are after ABSOLUTE reductions in emissions, not slow downs in the rate of increase!

I want the market to do the work, not regulation. An open dutch auction gets held monthly for 1/12 of the year's fossil carbon production and importation quota. Bid what you think it's worth to you. Highest bidder gets as much of the quota as they want. Others can buy leftovers at that bid--no takers, then the next highest bidder takes their slice, and so on. Dutch auctions are VERY economically efficient allocators.

All sorts of market-driven innovation goes on afterwards. producers are given enormous incentive to produce their fossil carbon with the smallest input possible. Alternative energy gets an enormous boost because it exists outside the limits--exceeding which will mean bidding on the open market for a scarce commodity. Conservation becomes an ongoing concern--because there is a certainty that next year's quota will be going DOWN. There will be immense innovation and desire for change.

Any TAX is going to run into incredible right-wing vitriol. Any attempt to INCREASE it will have NO political friends. The gas tax hasn't gone anywhere in who-knows-how-long. A cap-and-trade, on the other hand can be set up ONCE with known parameters. Those who adapt quickest will become politcal friends with those ensuring it doesn't get watered down or monkeyed with--they will have a competitive stake in maintenance of the cap-and-trade's limits and goals. Carbon taxes will never have that.

The dutch auction for fossil carbon production and importation quotas is about as transparent a process as you can get. The same cannot be said for the tax code!

You have missed the

You have missed the point:
"And then anybody who can produce stuff using less fossil fuel can sell it cheaper. If you get tax breaks and you have the chance to spend the same money to get more stuff that use less fossil fuel instead of fewer stuff that uses more, won't you do that?"

When you get to buy more stuff, the amount of CO2 goes up, unless there is a hard cap. My furnace is much more efficient, it saves me money, which I then spend on keeping the temperature in my house higher.

You have missed the point.

If heating costs more but you get a more efficient furnace, you can keep your house the same temperature and still not pay more. You use less fuel to heat your house.

Now say you get money from the government from the carbon tax. You can fly to Disneyland and it costs more because of the carbon tax. Or you can buy a big-screen TV and it doesn't cost more because the company that makes it found ways to use less carbon. Won't you be more likely to buy the TV instead, compared to before?

You can spend your carbon-tax money on things that don't use much carbon and get a lot for your money. Or you can spend it on things that do use as lot of carbon and a big chunk of your money goes to the carbon tax, to give away to other taxpayers.

On the other hand, with your cap-and-trade, you assume that the government will do the politically unpopular thing and reduce the amount of fuel that can legally be sold in the USA, and then when prices go up it will be the oil and coal companies that get the big profits. You think that's better? Why?

Any TAX is going to run into incredible right-wing vitriol. Any attempt to INCREASE it will have NO political friends.

If the money is given back to the voters, it will have a lot of friends. Maybe not big-spending lobbyists, though.

The unintended consequences of interfering with functioning mkts

Something else to consider. Hypothetically, let's impose a carbon tax that doubles the cost of fossil carbon. What happens? Initially there is sticker shock. Then those sectors and firms that have pricing power inflate their prices to cover the expense. Demand for fossil carbon drops--so does the price. Somewhere, at less that double the initial price, equilibrium is reached. But over the long run, inflation sets in. Eventually, wages and prices across the economy deal with the new carbon price -- BY ADJUSTING EVERYTHING ELSE upward. Think about what the gas tax is in real tems, after inflation. It is contantly being whittled away. A carbon tax will face that same problem.

Moreover, if a significant portion of demand gets substituted, fossil carbon's prices will DROP. If every vehicle in the US becomes a plug-in electric, do you want to guess at the price of oil? $30/bbl? $20/bbl? Any economist who has looked at very long term commodities will tell you they NEVER get exhausted--they get replaced. We didn't run out of whales or whale-oil. Those commodities didn't run out. They became worthless BEFORE they ran out--because petroleum was better and cheaper. A tipping point arrived.

The political will to impose a carbon tax and march it upward in the face of falling fossil carbon prices until the tipping point is reached will be virtually impossible to sustain in the 24 hr news cycle and the permanent election campaign environment today. A cap-and-trade can be a one-time politcal enterprise, done correctly.

Moreover, some egghead will have to decide, repeatedly, how high to set the carbon tax. Look at how well that has work with interest rates under Greenspan, Bernanke et al. Let the market decide it. Under a cap-and-trade, the price of fossil carbon could even FALL as it is being phased out, if efficiency and substitution take hold strongly and quickly enough. That will almost certainly not happen by design with a carbon tax.

Off Topic

imbalance of power

The furnace analogy - the assumption that energy use won't go down with more efficient climate control works only to a point. I won't be raising the temp in my house to 80, but as the population continues to grow, we will be able to support more people on the same level of energy output.

I find it interesting that all your comments assume this is an either/or proposition. From my reading, scientists admit that all human activity currently produces only 3.6% of global CO2 emissions. Cynics like me see cap&trade, and carbon taxes as both a power and money grab by governments acting under the cover of environmental political correctness.

The economic impact of a cap & trade system with a firm carbon cap has not been discussed here.
How do we maintain economic stability in the absence of economic growth? How do we maintain global competitiveness against countries that leverage our self imposed limits on business to undercut the prices of our products worldwide? As recently discussed in another FP article, governments around the world have been actively supporting their fossil fuel energy companies, and buying up control of most of the worlds supplies while the US government is actively demonizing producers, strengthening barriers to exploration, production, and refining, leaving only 12% of current reserves aqvailable to private producers. Alternative sources will not be able to supply our needs for many decades, yet we are backing ourselves into an untenable corner. Environmentalists may see a lack of supply as a positive but we know it will actually lead to destabilization.
How do we prevent existing enterprises from monopolizing existing co2 caps and using them as barriers to competition?
Will new businesses with carbon emissions, like the local dry cleaners, restaurant, or manufacturing plant, suddenly be prohibited by over zealous politicians using CO2 as political cover for no-growth policies?

All of these are schemes designed to ARTIFICALLY raise energy costs for politically incorrect fuels. Probably most importantly, these energy taxes transfer massive levels of income and power from the private sector to the public sector. As a society founded on the basis of limited, and citizen conntrolled government, what will be the long term impact on the balance of power between citizens and governments?

From my reading, scientists

From my reading, scientists admit that all human activity currently produces only 3.6% of global CO2 emissions.

Sure, but that's the *increase* in carbon available to the carbon cycle. Back in the days of the dinosaurs there were no ice ages (though there were ice ages before and since). They had a climate that was well-suited to dinosaurs. But they slowly trapped carbon in forms that were inaccessible, and eventually the climate changed to something that better suited us.

Now we're releasing that carbon. Never mind that it's only a few percent per year of the cycle. It's like, if we kept increasing the national debt by just a few percent a year, it might eventually become unmanageable even though the increase was small relative to the total debt.

Cynics like me see cap&trade, and carbon taxes as both a power and money grab by governments acting under the cover of environmental political correctness.

That can easily happen. It's a serious concern.

How do we maintain economic stability in the absence of economic growth?

It was always a balancing act to get "stability" while we were growing. We can't base continued growth on continued increase in fossil fuel use because we'll run out. So we have to solve the problem you say is not solved, one way or another. Or else grow on alternate energy.

How do we maintain global competitiveness against countries that leverage our self imposed limits on business to undercut the prices of our products worldwide?

That's another serious issue. I say, it would take a lot of international cooperation to do much to alleviate global climate change. It looks like that cooperation will not happen, so we must instead prepare to adapt to climate change. This will be a great big issue but we can't even start until we get a US political consensus, and we're far from that. So -- to the extent that the US government can secretly prepare -- we should arrange to have the resources available when we do get that consensus rather than waste them now. But the current political consensus is that we should try to run the economy as fast as we can. I dunno. It's a tough problem.

As recently discussed in another FP article, governments around the world have been actively supporting their fossil fuel energy companies, and buying up control of most of the worlds supplies while the US government is actively demonizing producers, strengthening barriers to exploration, production, and refining, leaving only 12% of current reserves aqvailable to private producers.

This looks quite appropriate to me, though I can't really guess the government's intentions. Our current oil use is unsustainable. We must import a whole lot of oil, and we can't continue to do that. When the global economy falls apart we will need to have US oil -- because we won't be able to buy foreign oil. So a policy of "Burn America First" would be wrong. Better to keep US oil in the ground and underestimate reserves, so we'll have something left when the crunch comes.

But the government's strategy may not be that long-term. The approach may instead be to figure that our foreign wars run on oil, and we can't depend on foreign oil -- we might not have the money to pay for it, for example. So we may need to ship US oil to foreign countries so we can fight there, and that means we need to have that oil available and not already burned to support american consumers' consumption.

And anyway, maybe the US government has lots and lots of competing groups each with their own strategy, and they mostly cancel out, and the net result is policies that are pretty much random.

Alternative sources will not be able to supply our needs for many decades, yet we are backing ourselves into an untenable corner.

If it's true that alternate sources won't supply our needs for many decades, then we're already backed into an untenable corner. The world won't have enough fossil fuels to supply our needs for many decades. We're stuck.

In the short run it might make sense to use military force to keep oil prices down and to make sure we get our share. In the medium run it does not -- it will take more fossil fuels to apply that force than we get back. And as our energy resources go down, so does our ability to project force. We will probably always be strong enough to disrupt global trade -- we can easily destroy oil tankers and bomb refineries, and we can send cruise missiles to attack inland refineries etc. But we won't stay strong enough to prevent others from disrupting trade, and we will be unable to force them to trade with us on our terms.

So again, we will need domestic oil. We will have to reduce demand to match supply, and it's valuable for us to burn other people's oil first, while we can, and leave our own oil in the ground. We'll have many decades of declining standards of living until the new energy sources come online.

The faster we can get those alternatives online the better off we'll be.

How do we prevent existing enterprises from monopolizing existing co2 caps and using them as barriers to competition?

We can't. Cap-and-trade is a handout to favored corporations. There might be some sort of fair way to do it, that I haven't seen or thought of. But "the devil is in the details".

Will new businesses with carbon emissions, like the local dry cleaners, restaurant, or manufacturing plant, suddenly be prohibited by over zealous politicians using CO2 as political cover for no-growth policies?

Maybe for awhile. Then we'll decide that it didn't work and set aside the caps, leaving us with the original problems back.

So I say, provide economic incentives to make and use alternate fuels, and then let the economy equilibrate however it can. Suppose for example that airline tickets go up so much that a whole lot of corporations decide they can mostly get by with teleconferencing etc. That rips the bottom out of the airline fee schedules, and tourist rates go so high that dries up too, and airlines mostly go out of business -- we wind up with a few big planes carrying mostly freight, or possibly a larger number of smaller planes carrying mostly freight. If the government tries to make the various decisions about how to do that, it will get it wrong. There's no good way for the US government to preside over the death of the airline industry. So let the markets sort it out -- except it will be hard to keep the government from getting intimately involved. It's a problem.

All of these are schemes designed to ARTIFICALLY raise energy costs for politically incorrect fuels.

And correctly so. Other things equal, market forces will lead to using up the fossil fuels as fast as we can, and then dealing with the resulting crash after we lack the energy to rebuild. It's a good thing to slow the depletion of fossil fuels, and increase the adoption of alternatives.

But legislation intended to do that might likely get hijacked and turned into scams. So my proposal for a carbon tax is that 100% of revenues should be distributed equally to the voters. Then the tax has expenses to government -- the money to run the program must be found elsewhere -- but no income to the government. Transfer money from people who use more fossil fuels to people who use less. Provide an artificial incentive to conserve fossil fuels and to use alternative fuels whenever they are available.

I don't see any approach to reduce the scam potential for cap-and-trade, so I think that one is a worse idea.

Psychological (egg) shell comes first then the economic chicken

The words “Green” and “Global warming” are psychologically front loaded that later hatches the economic body that feeds on our freedoms. The earths temperature fluctuates similar to are own bodies and planets in our solar system (with no humans inhabitant). I believe its an erroneous belief (that uses volume over the facts) that attempts to create demand from nothing and does nothing more than imprisons the society mind set that seems to spark socialism, feudalism and centralized planning that makes the people invisible and has a history of revolution and collapse. It uses to be in the name of the masses (people) now it in the name of the planet: psychological economics. Develop the psychology (the mind set) then set the economics around it, cap and trade our freedom (individual power) away. I understand the psychology can dictate economic but do we need to add an extra step and dictate psychology. Isn’t this just taking the productive goose (America) that is laying golden egg and making them green (turning something in to nothing so the other non golden egg producing geese are equal)?