In his speech at the Brookings institution a few weeks ago,
Larry Summers made a great point about uncertainty:
As Federal Reserve Chairman Ben Bernanke’s doctoral thesis demonstrated 30 years ago, unresolved uncertainty can be a major inhibitor of investment. If energy prices will trend higher, you invest one way; if energy prices will be lower, you invest a different way. But if you don’t know what prices will do, often you do not invest at all. That is why we must move forward as rapidly as possible to reduce uncertainty and carefully create a new cap-and-trade regime.
This is quite right. Uncertainty is a major inhibitor of investment. It's important to consider, however, the kind of uncertainty that's relevant for investors in green technology: uncertainty in
prices. If you plan to invest in carbon-free electricity generation that will cost 5 cents more per kilowatt hour that coal, you want to be sure that the price of carbon is at least enough to increase the cost of coal generation by 5 cents, so that your project will be competitive in the future.
Unfortunately, this is exactly the kind of uncertainty that a basic cap-and-trade regime does not eliminate. Instead, a cap eliminates quantity uncertainty, and although the idea of reducing emissions by some precise amount has acquired wide (and unjustified) support in the environmental community, it is meaningless to investors running cost/benefit analyses. If I'm investing in a big project, I don't care that exactly X tons of carbon will be emitted in 2020. I care about the price implications, because they will determine my profit.
In fact, fixed caps will lead to high volatility in the price of carbon. The American public is painfully aware of the massive rise in gas prices in the previous two years, where slight shifts in supply and demand (both nearly constant in the short run) required a massive price runup to bring the market to equilibrium. We are also well aware of the sudden price collapse that came once the economy headed downhill and demand fell. The moral is clear: when supply and demand are inelastic, changing little in the short run in response to price, we get large and unpredictable swings in prices. With cap-and-trade, the problem is even a little worse, because supply is not only inelastic but actually fixed—I can only imagine the populist rage during price spikes! Needless to say, this will not help investors feel secure.
This is the best argument for a carbon tax over cap-and-trade: although both create markets in carbon and are in many ways very similar, the crucial difference is that price certainty is
much more important that quantity certainty. Indeed, in a very different context, this is why the Federal Reserve targets interest rates (prices) rather than monetary aggregates (quantities). You can even see the effects of a hard quantity cap in historical data:
just look at how unstable the effective federal funds rate became when the Fed announced a move to monetarist targeting in 1979, and how it settled down when the Fed finally changed course. (To be fair, the Fed's embrace of monetarism was really a ploy to get the public to accept the massive increases in interest rates—and the ensuing recession and unemployment—it thought necessary to end inflation. But this doesn't discount the powerful evidence their decision provided on how fixed supply can lead to massive price volatility.)
All is not lost for cap-and-trade, however. There are a few basic ways we can alter the policy to make prices more stable, essentially bringing it closer to a simple carbon tax:
First, we can implement a
safety valve that allows polluters to buy additional permits at some preset price. This effectively puts a maximum on the price of permits in a cap-and-trade system, preventing prices from rising outrageously high in a supply crunch. It's inevitable that Congress would take some ad-hoc action to limit prices after a severe increase anyway, and a safety valve only systematizes this response and makes it more predictable. Although some commentators are
extremely critical of safety valves, I think that most of the complaints are off-base. Granted, a very low safety valve renders cap-and-trade almost useless, but that doesn't imply that all levels of safety valve are inappropriate. Critics also seem to miss the fact that the lower uncertainty offered by a safety valve allows us to be more aggressive in setting the cap targets themselves—we don't have to tread lightly because of the worry that a tight cap will cause the price to explode to $500 a ton. The one possible weakness is that a safety valve might be inconsistent with an international carbon-trading regime—but we're not going to have such a regime in the immediate future anyway, and we could design a new one to incorporate features like a universal safety valve.
We can also allow borrowing and saving of emissions permits across years. This will substantially ease the volatility that arises from a fixed cap: when prices spike, polluters can "borrow" future permits from the government (with interest, of course) to ease the supply crunch, and when prices collapse speculators can scoop up permits to sell for more down the road. It also relieves the unnatural focus on yearly emissions embedded in a cap-and-trade system—it's much more important that only X tons of carbon are emitted in the next decade than that exactly X/10 tons are emitted in each year, and Herculean efforts to ensure the latter goal are pointless.
In an ideal world, I'd probably implement both of these changes—especially borrowing and saving of permits, which is perfect for smoothing prices—but even just one of them would be an enormous improvement. Price uncertainty is a serious weakness of the cap-and-trade concept, particularly when compared to a carbon tax, which by its very nature enforces price certainty. A few simple reforms can make it a lot better.
I don't need to tell this to Larry Summers, of course—he's a great economist, he's 1000 times smarter than I am, and he's well acquainted with these issues. In fact, I suspect that he implies at least one of the two proposals above when he talks about "carefully" creating a cap-and-trade regime. I just hope that the rest of Washington is smart enough to get this policy right.