After a depressing battle in the comments section of a recent
Megan McArdle post about who pays for carbon permits, I feel that it's necessary to expand on my case against allocating carbon emission permits without an auction. This is one of the many issues where economic intuition is essential to understanding the effects of policy, and there are two myths that are particularly important to confront.
Myth:Requiring polluters to pay for emissions permits in an auction raises consumer prices, but giving them away allows consumers to avoid increased prices.
Reality:In any cap-and-trade system, the effect on consumer prices depends on how many permits are handed out,
not on how they are initially allocated. The reason is that if permits are given away, the quantity allocated to each company cannot be set according to current emissions. By allowing polluters to receive more free permits by emitting more carbon, such a policy would defeat the entire point of a carbon price.
Therefore, permits must be determined by some set variable that has no relation to current emissions. One common choice is
past emissions. Since a company cannot do anything to change its level of past emissions, giving it a quantity of free carbon permits based on past emissions will not alter its incentives in any way.
The only element of a cap-and-trade regime that
does affect the company is the market carbon price, but this price is determined by the aggregate supply of carbon permits, not their initial allocation. At a given carbon price X, the cost to the company of emitting an additional ton of carbon dioxide is the same whether or not you have 0 permits or 1,000,000 permits. If you've taken introductory economics, you are probably familiar with the concept of a
sunk cost. A free allocation of carbon permits based on past behavior is meaningless in exactly the same way: it is a sunk benefit, and has no impact on the cost of production or any other variable relevant to market equilibrium.
This is the key point. Since a sunk benefit doesn't impact any variable relevant to market equilibrium, it won't affect the key outcomes of that equilibrium: price and quantity. As far as consumer prices are concerned, it doesn't matter whether the permits are auctioned off or handed to random people on the street. This makes our choice quite clear. Government can rebate the money from an auction back to taxpayers, or use it to offset undesirable, distortionary taxes. If permits are given away, any companies lucky enough to receive them will just use the additional revenue to improve profits. Either way, the existence of a carbon price will force consumer prices up; the only question is
where all the money will go.
Now, there is one exception: highly regulated utility markets, where profit margins are either implicitly or explicitly restricted. If companies in these markets receive free permit allocations, some of the money will probably go back to consumers in the form of lower prices, or at least less of a price increase.
Maybe, then, free allocations aren't so bad? No, because lower consumer prices defeat much of the purpose of a carbon price. In a utility market, a carbon price acts in two ways: first, to make the utility provide its service in a less carbon-intensive way, and second, to encourage residential, commercial, and industrial users of the utility to use its service more efficiently. Lower prices through free permit allocations leave the first channel of carbon reduction intact, but they destroy the second one, which is arguably just as important.
Additionally, even if you want to avoid increases in consumer prices at all costs, the highly regulated utility markets I discuss account for less than half of carbon emissions, and even there only some of the money from free permit handouts is likely to find its way into reducing consumer prices. At best, the division of gains from a handout of carbon permits will be around 25% to consumers, and 75% to whatever industry incumbents are lucky enough to receive the permits. Since consumers will pay almost 100% of the increased costs that come with a carbon price, this is clearly not a good deal. The vast majority of people will be better off if the government holds an auction to distribute the permits and rebates the revenues back to taxpayers.
Myth:Giving away permits will help insulate carbon-intensive industries from the pain that comes with a carbon price.
Reality:In a narrow sense, this is true. Giving away permits will improve the profitability of companies who have historically emitted lots of carbon. Almost no one, however, thinks that improving the cash flow of polluting corporations is an inherently worthwhile goal. Instead, people are worried about the effect on
jobs, and this is where permit giveaways are completely irrelevant.
Say that you are the CEO of PollutaCorp. In the past, you've produced 1 million widgets and 1 million thingamajigs each year, and manufacturing each widget and thingamajig causes the emission of one ton of carbon dioxide. Your profit margin on each widget is $100, while your profit margin on each thingamajig is only $25.
Now a cap-and-trade system is imposed, and you don't receive any free permits. The market price for carbon turns out to be $50 per ton, and the impact on your business is clear: widgets are still profitable, but thingamajigs now lose you money. Since you lead a profit-maximizing corporation, you decide to shut down production of thingamajigs and lay off all the workers in that part of your company.
Now let's consider a slightly different scenario. The market price for carbon is still $50 per ton, but you received 2,000,000 permits as part of the initial allocation process, enough to cover the emissions created by every widget and thingamajig. What do you do?
The exact same thing. You can make $25 on each thingamajig and cover your emissions with free permits, but you can make $50 for each thingamajig you once produced by halting production and selling the permits. The profit-maximizing choice is the same, and all the thingamajig assembly line workers are laid off anyway.
We're left with a single, basic point: as I said earlier, free permit allocations are sunk benefits. They do not change company incentives in any way, and this applies
both to the market for products
and the market for labor. Handing away permits to existing polluters simply won't save any jobs.