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Billy Pizer, Sanford School of Public Policy and Nicholas Institute for Environmental Policy Solutions, Duke University
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Billy Pizer, Sanford School of Public Policy and Nicholas Institute for Environmental Policy Solutions, Duke University
1.
Carbon Pricing and Fiscal Reform: State Cap and Trade vs Federal Carbon Pricing Billy Pizer North American Climate Policy Forum June 23, 2016
2.
Main Points • Over the last decade, cap and trade programs increasingly use auctions and allowance value for “policy purposes” not just distributing cost. • Unless a carbon tax is part of large package of tax reforms, may be hard to distinguish fiscal reform from fiscal policy. •
While cost‐effective, federal carbon pricing threatens state‐level revenues from cap‐and‐ trade.
3.
2015 Cap‐and‐trade Revenue • California – $2B in “auction revenue” (not including consignment) –
50% of total allowance value • Regional Greenhouse Gas Initiative – $0.4B in auction revenue – 100% of total allowance value • European Union – $5B in auction revenue – 40% of total allowance value • Both auction revenue and non‐auction allowance value is used in a variety of ways
4.
Use of “Auction Revenue”: CA Source: McCormack and Burtraw (2015)
5.
Use of Total Allowance Value: CA Source: McCormack and Burtraw (2015)
6.
Use of Total Allowance Value: RGGI Source: McCormack and Burtraw (2015)
7.
Use of Auction Revenue: EU Source: Löfgren, Burtraw, Wråke, and Malinovskaya (2015)
8.
Fiscal reform versus fiscal policy? FISCAL REFORM Introduce carbon tax Cut labor and other taxes BUT THEN… Raise labor and other taxes Increase spending on necessary policies versus: CAP AND TRADE PROGRAM Introduce cap and trade Use revenue for necessary policies
9.
What happens to state cap and trade programs with a federal carbon price? • Say you need $15 total carbon price to meet CA cap. • Could be met by a $15 CA allowance price and $0 federal price. •
OR, could be met by a $5 CA allowance price and $10 federal price. • OR, could be met by a $0 CA allowance price and $15 federal price. • A federal carbon price will eat away at state carbon revenues.
10.
Concluding thoughts • Unless one key piece of major tax reform, “fiscal reform” may not be a strong argument for carbon tax versus auctioned cap and trade program (though many other distinctions b/w tax and trading) – Carbon pricing with a carbon tax or cap and trade can raise revenue. Any use of those revenues can be changed in the future. •
Federal carbon pricing is more cost‐effective than a patchwork of state programs. • Existing state programs are using cap and trade revenues. These could be diminished by federal carbon pricing.
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