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					Some economic aspects of climate change
       Instruments and statistics
                                  by
                            Torstein Bye
           Director , Economics, Energy and Environment
                          Statistics Norway
                             tab@ssb.no




 • Introduction
 • Instruments – basic characteristics
 • Instrument classification
 • Instruments and statistics
 • A Norwegian example
 • Summary and conclusion

                                            London Group Canberra   27-30 April 2009   1
    Introduction
•   The Stern report (Stern, 2008)
     – Climate change and economic consequences Cost of mitigation, cost of
       adaptation, Cost efficient approach to mitigate
•   Eurostat/OECD definition of environmental related taxes
•   Combating climate change is about instruments – classification issues.
•   A range of instruments,
     – Economic instruments, technology instruments, regulatory instruments etc.
     – All instruments create shadow prices in the market –i.e. economic instruments
     – To understand effects are important when deciding upon what statistics we need
•   We produce a comprehensive number of consistent statistical tables
     – that allows us to perform consistent analyses both of driving forces,
     – and the impact of the instruments on emissions
     – Where does the statistics come from
•   We exemplify some interesting aspects
     – by combining actual figures for Norway from a set of such consistent tables.
•   Concludes
                                                       London Group Canberra   27-30 April 2009   2
Environmental taxes - classification
• (Eurostat 2001/OECD):
   – A tax whose tax base is a physical unit (or a proxy of it) of something
     that has a proven, specific negative impact on the environment
        It was decided to include all taxes on energy and transport, to include resource taxes but to
         exclude resource taxes on the petroleum sector, and to exclude VAT.
        It seems random and not principal?

• Pigou (1920) – The economics of welfare:
   – A tax that corrects for negative externalities related to economic
     activity (cf. the environment)
• Bye and Bruvoll (2008) – Multiple instruments to change
 energy behaviour – the emperors new clothes?
        Resource rent (Ricardo, Hotelling), monopoly rent
        Capture Infrastructure cost – Ramsey (1927) ?
        Income generation – Ramsey (1927)
        Externalities (Pigou (1920)
• Problem OECD: Value added tax, labour tax?
• Example: less than 20 percent of OECD/Eurostat env.taxes
 for Norway are really environmental taxes – cf. Bruvoll, Næss and
 Smith (2009) - forthcoming
                                                               London Group Canberra   27-30 April 2009   3
      Taxes and subsidies                                             Negative externality

      Discriminatory taxes                                            Positive externality
                                                                      Discrimination
                               D1   D0                     S
       D1   b   D0   b     Da
p1b
                                                                            Discriminatory subsidies
                t
p0
p1a
                                                                                        S0g   S1g               Sb



                                                                                                                     S0    S1
                                                               p1g

                                                                     rent               s


                x1b      x0b             x0a x1a   x1 x0       p0
                                                               p1b


                                                                                                                     D

 Bye and Bruvoll (2008):Multiple
 instruments to change energy behaviour
 – the emperor new clothes                                                  x0g   x1g         x1b x0b   x0 x1

                                                                                        London Group Canberra   27-30 April 2009   4
      Green and White certificates
           Taxes are bad – subsidies are bad – I do not want to pay
           GC: Free certificate on supply – purchaser obligation
           WC: Obligation to save – trade for supplier

 Green certificates -supply                                      White certificates -demand
                                         h(p)

                 g(p)                    h(p)+g(p)
                                                                     Db    Da
                                                             b
                                                                                                  S2                      S0
                                         h(p)+g(p+pc)   p1
                 g(p+pc)
                                                        p2
                 pc                                     p1a

p0
p1                                                      p0




                                       f(p)


                                       f(p+apc)

                               x0 x1
     x0g   x1g
                           x1b x0b                                 x1b x2b x0b x2a x1a   x0a x1        x0

                                                                             London Group Canberra          27-30 April 2009   5
Brown certificate – or carbon trade
                                                 Limit the
       Da         Db
                                                 amount:
                             p0b
                                                 A shadow
                                                 price occur
 p*                          p*                  Initial
                                                 allocation
 p0a
                                                 Distribution of
                                                 cost and
                                                 benefits
            A0a        A0b
            A1a        A1b
                                                 Taxes an
                                                 subsidies
                                   London Group Canberra   27-30 April 2009   6
Supplementary instruments
• Regulation - shadow price – “tax” – “subsidy”
• Standards - shadow price – “tax” and “subsidy”
• R&D – subsidy – and a “tax”
• Market concentration – regulation?
   – Good for the environment - Tax and subsidy


Fundamentally:
• All instruments are fundamentally a combination of:
   – a “tax” and a “subsidy”
• When producing statistics:
   – we should remember that and treat them equally

                                           London Group Canberra   27-30 April 2009   7
  Instruments and statistics - fundamentals
                                                                                                                                        Intermediat
Sector                                     Gasoline       Fuel oil   Coke       Coal        Wood      Waste     Intermediates
                Sector       Sector                                       Fuel oil Fuel oil
                                                              Gasoline Gasoline      Coke     Coke
                                                                                                 Coal       Wood Wood
                                                                                                         Coal         Waste Waste       es
                                                                                                                                 Intermediates
                         Agriculture
                                         Agriculture Agriculture
 Primary industries    Fisheries
                  Primary industries industries
                             Primary Fisheries        Fisheries
                         Forestry         Top
                                         Forestry   down versus bottom up approach
                                                     Forestry
                                              The fundamental bottom up approach
                                                     Pulp and
                                                      –
                         Pulp and paper Pulp and paper output or activity tables
                                              Input paper
                         Machinery
   Manufacturing Manufacturing                A detailed sector list coefficient of compound x on the cell activity
                                                             Emission
                                           Machinery Machinery
                                Manufacturing
                                              A detailed commodity1     list
                                                     Metals from table
                         Metals            Metals
                         Other                Amount of emission carrier
                                           Other
Construction
                                              Physical orTechnology information prices)compound x – the product of
                                                     Other
                                                                   Amount of emissions of
                                                              economic values (fixed
                ConstructionConstruction
                                                             CO2 and national account table in CO2
                                              Energy account– straightforward – carbon 1 and 2 out
Electricity etc Electricity etc
                              Electricity etc Bridging table to energy balances
                         Banking
                                                             CH4 – burning technology
                                           Banking
                                                     BankingHFC, to the statistical work
                                              Brings discipline CFC, SF6 – Process technology
                         Insurance
  Private Services Private Services           Analyses of driving forces
                                           Insurance
                                                     Insurance
                                Private Services
                         Transport            Analysis of the effects of instruments
                                           Transport
                                                     Transport
                         Other                The role of UN
                                           Other
                                                      Other
Public services Public services
                             Public services
Residential     Residential
                             Residential


                                                                                                   London Group Canberra     27-30 April 2009         8
   Instruments and statistics – “technologies”

                                                                                                                Intermedia
Sector          Gasoline         Fuel           Coke           Coal            Wood           Waste                 tes



                P   T   S    P    T     S   P    T     S   P    T     S    P    T     S   P       T       S     P    T   S

                Table 3 - split into processes (P) - Transport (T) and Stationary (S) end uses –
                Why;
Agriculture         - discriminatory or
                    - different environmental impact
                    - tax rates per unit
Manufacturing       - subsidies vary
                    - allowances vary?
                    - certificates vary?
                    - regulation vary?
Services        Tax rates for each emission activity
                Same principle for all instruments
                OECD data base of environmental taxes, exemptions, reimbursement, caps etc
                http://www.oecd.org/env/policies/database - cf the criticism above
Households


                                                                          London Group Canberra       27-30 April 2009       9
    Instruments and statistics
•   Taxes – Table 4x-x (taxes and discrimination – accounts)
      – Tax rate on volumes of proven environmental impact -
            Ex. emissions of carbon dioxide.
      – Data collection and definition – are tax rates split ?:
            Simple in theory – difficult in practice ? cf. Eurostat (2001)
                – Ramsey, environmental, energy, resource, transportation infrastructure,
                  –   Bye and Bruvoll (2008b)
            Harmonize with the total collected taxes measured in public accounts
                – (i.e. a tax account matrix).
      – Steinbach et al. (2008a)
            Environmental taxes in the context of the SEEA
•   Subsidies – table 5x-x (complexity versus registers)
      – Measure keeps prices below their market value for consumers and above market value for producers
      – In practice - direct transfers or tax credits (foregone income)
      – In UNEP (2004) direct transfers, public R&D, preferential tax treatments, price controls and loans-
        lower than market interest rate
      – Our paper has a much broader definition of subsidies - only possible to calculate indirectly –cf.
        market responses – relevant data for analysis – make analysis possible
      – Data collection
            Subsidies are normally launched to investment projects in terms of a specific amount or a lump sum
            to producing facilities based on a production basis (for instance a feed in tariff – i.e. a unit subsidy)
            for facilities that want to save the use of input (energy efficiency projects) on the demand side, either lump sum
             or per unit.
            Lump sum subsidies are normally linked to some kind of volume measures, i.e. they may be transformed to a
             unit measure.
            In practice this measure is complex and some data transformation processes are needed to make the measures
             comparable in units.
            Subsidies are normally directed towards detailed projects, i.e. these data are on matrix form, cfr. table 3.
            The bright side - government will normally establish some kind of a register
      – Steinbach et al. (2008b) discusses Environmental subsidies in the context of the SEEA manual.

                                                                                London Group Canberra   27-30 April 2009    10
    Instruments and statistics
•   Carbon market – table 6x-x – cf create 50 percent reduction in 2050?
     – Shadow price of regulation – equals the ”tax”
•   Two sets of additional statistical tables
     – Initial assignment of free allowances in volumes
          (implies also a value transfer – volume times the market price)
     – Economic and volume capturing the trading of emission permits
     – Aggregates over the columns in table 3:
          normally directed towards sectors and not activities – but who knows what happens
•   Data source
     – The assigned amount of allowances may be collected from public registers
           grandfathered, i.e. based on historic emissions,
           other free emissions (for instance for new facilities).
           Surrendered emission,
           The “verified” emissions follow from table 3.
     – Trade of permits – both volumes and values (some may not be tradable)
           Allowances – public registers
           CDM trade –public registers
           JI trade –public registers
           Verified emissions – table 3
           Net trade on exchange – accounting principle
     – The permit market in the context of the SEEA manual and the SNA - Olsen
       (2008).
                                                            London Group Canberra   27-30 April 2009   11
    Instruments and statistics
•   Green certificates – table 7x-x – cf at least 20 percent of EU market in 2020
     – Approval - delivery of the number of certificates by technology choice and firms
       in public registers
     – The value of the certificate on the pool /exchange
     – Energy balance (residential) or the energy account (territorial) framework
           depends upon national or international framework?
•   White certificate - table 8x-x – cf. at least 20 percent of EU market in 2020
     – Public register of how much each firm/sector is supposed to save
     – The principal agent assumption eases the data collection.
          Each agent (for instance a distribution company for electricity) has to verify
           the savings and the cost for each principal (consumer)
•   Regulation table – table9x-x
     – Regulations are normally set up by public firms on a firm specific regime.
     – Public sector should follow up on their own regulation
           both the regulated and the verified outcome is registered – consistency check to table 3
     – The information needed then should be based on these registers.

                                                              London Group Canberra   27-30 April 2009   12
             A Norwegian example (table 3,4,6) – CO2 “taxes”
NOK/tonne CO2
350,00

                                                                                                                                                                                                                                                Extraction of oil and gas


                                                                                                                                                                                                                          Households
300,00




250,00
                                                                                                                                                                                                 Land transport
                                                                                                                                                                                                 ex/cabs, railw ay
                                                                                                                                                                                                 and bus transport

200,00                                                                                                                                                                  Domestic sea transport
                                                                                                                                                                                                                                                           oct 2008: 25 €/tonne CO2

                                                                                                                                                                                                                           Average CO2-tax in Norw ay: 184 NOK/tonne CO2


150,00


                                                                                                                                                                                                                                                           dec 2008: 15 €/tonne CO2
                             Production of refined oil products




                                                                                                                                           Plastic, rubber production




100,00
                                                                                           Cement, lime and gypsum

                                                                                                                     Iron and steel
             Gas terminals




 50,00
                                                                                 Fishing
                                                                  Aluminum




  0,00
         0                                                                   5                                                        10                                         15              20                  25                30                35                 40                   45
                                                                                                                                                                                                                                                                                     mill. tonnes CO2


                                                                                                                                                                                                                                London Group Canberra             27-30 April 2009            13
  A Norwegian example–who pays how much?

NOK/tonne CO2
                                                                                                                        Landfills
850
800
750
700
650
600
550
500
450
400
          EU/ETS oct 2008: 25 €/tonne CO2                                                  Extraction of oil and gas
350
                                                                           Households
300
250                                         Sea- and land transport                        ~0.3 bill. €
200
150
           ~0.4 bill.€
100
            ”Processing emissions
                                                                                        ~0.8 bill. €
 50
  0
      0          5             10      15            20               25           30            35              40                 45
                                                                                                                       mill. tonnes CO2
                                                                                  London Group Canberra      27-30 April 2009            14
Summary and conclusion
• Mitigation is about instruments
• What is an environmental tax?
• Complex instruments introduced
• All instruments are combinations of “taxes and subsidies”
• Statistics for just one instrument is “a lie”?
• Statistics for all instruments on the same principle
• Input/output matrix
• Tax rates
• Registers
• Accounting
• Analyses made possible
   – Driving forces
   – Effect of instruments – partially/bilaterally/trilaterally/multilaterally
                                                   London Group Canberra   27-30 April 2009   15
Some questions raised:
•   The paper advocates that all instruments in climate policy reduce to a combination of taxes and
    subsidies. Does the London Group agree?
•   The paper advocates that it is important that statistics gather information on instruments in
    climate policy in a detailed manner, which makes it possible to study the market and technology
    effects of instruments. Does the LG agree?
•   To follow the impact of climate policy it is important that as many instruments as possible are
    included in the statistics. For some instruments it seem easy, for others it is more complex.
    However, research on how to include complex instruments should be emphasised?
•   The paper advocates that the statistical detailed setup for instruments should follow the
    statistical setup for emissions (i.e. the national and energy account setup). Does the LG agree?
       – For statistical purposes this eases the data gathering as values may be based on tax rates
          and emission accounts.
       – Consistency may be checked by aggregation of these tax rates emission accounts
          calculations and total public tax accounts.
•   Emission permits should be included in the statistical system on the same basis?
       – This includes tradable permits in the markets, which may be calculated indirectly, see
          below
       – This includes JI – which may be found in national registers
       – This includes CDM – which may be found in national registers
       – This includes free allowances –which may be found in national registers
•   We should include new instruments as green and white certificates?
•   Statistics for regulations should be gathered – how to include them should be studied further?
•   Important lessons are to be learned from the OECD-database
       – However the DEFINITIONS of environmental taxes ARE disputed?
                                                               London Group Canberra   27-30 April 2009   16
      Norwegian environmental taxes as share of ”environmentally related taxes”
      reported to Eurostat
                                                                     CO2 taxes
                                                Other
                                                                                Other environmental taxes
                                                                                 (taxes on other climate gas emissions, NOx,
                                     Electricity                                SO2 and waste)
                                   consumption
                                         tax
                            Diesel tax,
                            envir. elements
                            excepted

                             Petrol tax, environm.           Motor vehicle
                             elements                        registration tax
                             excepted

                                            Annual
                                             motor
                                            vehicle
                                                tax


                                                                            Total reported taxes: 8.2 bill Euro
                                                                            Environmental taxes: 1.4 bill Euro (<20%)


Sources:   Bruvoll, Næss and Smith (2009) (forthcoming)
           Ministry of Finance (2007): An evaluation of Norwegian excise taxes, NOU 2007:8
                                                                             London Group Canberra   27-30 April 2009   17

				
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