Advice on legislation or legal policy issues contained in this paper is provided for use in parliamentary debate and for related parliamentary purposes. This paper is not professional legal opinion.
Briefing Paper No. 02/2007 by Stewart Smith
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There are two main categories of economic instruments useful for controlling
pollution; those that create property rights to environmental resources and
those that act on prices (eg taxes). The property rights approach aims to
provide incentives for individuals to conserve their environment by clarifying
their rights to and responsibilities for common property. One way to do this
is to create a system of tradeable permits. Tradeable permits are quotas,
allowances or ceilings on pollution emission levels that, once allocated, can
be traded subject to a set of prescribed rules. The ownership of a tradeable
permit allows a firm to pollute up to a certain limit. If the firm wishes to
expand production, then they must either invest in pollution control equipment
or purchase more permits. Firms which choose to emit less than their allowance
may sell their surplus permit to other firms or use them to offset excess
emissions in other parts of the plant. In this pollution control regime, firms
with the lowest abatement costs have an incentive to control more emissions,
and those with high abatement costs have an incentive to buy permits instead of
investing in costly pollution control equipment. The market is left to
determine the most efficient way to control pollution within a regulatory
framework.
The Kyoto Protocol required Annex 1 Parties (ie, industrialized countries) to
reduce greenhouse gas emissions relative to a 1990 base. Australia was
permitted to ‘reduce’ emissions to 108% of the 1990 level. The
Protocol, which Australia has not ratified, established three mechanisms
designed to help Annex 1 Parties cut the cost of meeting their emission
targets. One of these was carbon emissions trading.
The European Union States have agreed to fulfil their commitments to reduce
greenhouse gas emissions under the Kyoto Protocol jointly. The EU Emissions
Trading Scheme was launched on January 1 2005. From this date, certain
installations needed a greenhouse gas emissions permit. The scheme is the
largest ‘cap and trade’ scheme in the world and is the core
instrument for Kyoto compliance in the European Union. After 18 months of
operation, one of the main lessons from the EU scheme is that the simplicity
and predicability of the scheme needs to be improved. The scheme is growing in
membership and coverage, with the aviation sector likely to be included in the
scheme from 2011.
In Australia, proposals for a national emissions trading scheme have been put
forward by the States and Territories. These proposals are reviewed, along
with comments from industry and community groups. Whilst the Commonwealth
Government has historically been critical of a domestic emissions trading
scheme, it has recently announced a task force to assess what characteristics a
global and domestic scheme should have. The Prime Minister has also stated
that market mechanisms, including carbon pricing, will be integral to any
long-term response to climate change.