Climate Policy

Bringing together many of the world's leading experts, this volume is a comprehensive, state-of-the-art review of climate change science, impacts, mitigation, adaptation, and policy. It provides an integrated assessment of research on the key topics that underlie current controversial policy questions. The first part of the book addresses recent topics and findings related to the physical-biological earth system. The next part of the book surveys estimates of the impacts of climate change for different sectors and regions. The third part examines current topics related to mitigation of greenhouse gases and explores the potential roles of various technological options. The last part focuses on policy design under uncertainty. Dealing with the scientific, economic and policy questions at the forefront of the climate change issue, this book will be invaluable for graduate students, researchers and policymakers interested in all aspects of climate change and the issues that surround it.

Copyright Cambridge University Press 2007

Greenhouse gas (GHG) emissions are widely acknowledged to be responsible for much of the global warming in the past century. A number of approaches have been proposed to mitigate GHG emissions. Since the burning of fossil-based fuels is an important source of GHGs, the policies on GHG-mitigation encourage the replacement of fossil-based energy with biomass energy. However, a large-scale development of biomass energy may lead to changes in agricultural land use, which are important sources of GHG emissions, and therefore undermine the effectiveness of GHG-mitigation policies. In this research, I analyze the impacts of GHG-mitigation policies on five types of agricultural land (cropland, managed forestry land, pasture land, un-managed forestry land, and un-managed grassland) as well as carbon stored in such land during the 21st century. The scholars in the MIT Joint Program of Science and Policy on Global Change use the Integrated Global Systems Model (IGSM) to simulate changes in climate in response to GHG-mitigation policies, while the researchers at the U. S. Marine Biological Laboratory (MBL) apply the Terrestrial Ecosystem Model (TEM) to simulate land productivities. Based on the predictions of land characteristics affecting land-use decisions, I develop an econometric model to predict the land use affected by climate, GHGs, and tropospheric ozone at the grid-cell scale of 0.5 * 0.5 longitude by latitude. I use the Emissions Prediction and Policy Analysis (EPPA) model to capture the regional land use driven by economic forces. Then, I develop the downscaling methods to link these two land-use effects. I conduct this research in two scenarios: in the baseline, I assume that there are no policies to mitigate GHG emissions during the 21st century; in the policy scenario, I assume that there are specific policies to limit GHG emissions during the 21st century. I confirm the hypothesis that biomass-energy production would lead to the conversion of the five types of agricultural land, and the carbon stored in such land would decrease; the GHG-mitigation policies, leading to more production of biomass energy and conversion of agricultural land, would cause an even more severe loss of the carbon stored in agricultural land. Although the GHG-mitigation policies would generally reduce the atmospheric GHG emissions by using more energy from biomass, such endeavors would be partly counteracted by the landuse conversion as a result of large-scale production of biomass energy.

Exposure of plants to ozone inhibits photosynthesis and therefore reduces vegetation production and carbon sequestration. The damaging effects of tropospheric ozone vary spatially because human activities responsible for the emissions of ozone precursors are highly concentrated in urban and industrial centers. We developed scenarios of ozone-precursor emissions and the resultant ozone concentrations using the MIT Integrated Global Systems Model (IGSM) through the year 2100 and explored the consequent effects on terrestrial ecosystems using the Terrestrial Ecosystem Model (TEM). We then used the Emissions Prediction and Policy Analysis (EPPA) model, a component of the IGSM, to evaluate the cost of increased mitigation efforts required to offset lost carbon sequestration. We considered both a global climate policy that limits future greenhouse gas (GHG) emissions and an air quality policy that limits pollutant emissions to their 1995 levels in the developed countries. We also considered agricultural management that includes optimal irrigation and fertilization and no irrigation and fertilization for croplands. We found that the loss of carbon sequestration in the U.S. at the end of the 21st century due to ozone pollution ranged from negligible to as much as 0.3 PgC yr$^{-1}$ depending upon the policy options pursued. We valued these reductions in terms of the change in the net present value of the cost to the U.S. through 2100 of a global carbon policy designed to approximately stabilize atmospheric CO$_{2}$ levels at 550 ppm. For the U.S., failure to consider ozone damages to vegetation would by itself raise the costs over the next century of stabilizing atmospheric concentrations of CO$_{2}$ by 11 to 19% (\$0.3 to \$0.6 trillion) because emissions from fossil fuels will need to be reduced more to compensate for the reduced carbon sequestration by terrestrial ecosystems. With a pollution cap, damages are reduced to 6 to 12% (\$0.2 to \$0.3 trillion) of the total cost. However, climate policy that reduces fossil fuel use and methane emissions would also reduce the emissions of the ozone precursors and therefore, ozone concentrations and ozone damages. The savings in reduced carbon emissions reductions costs are estimated to be between 1 and 17% (\$0.09 to \$0.3 trillion) of the cost of the climate policy. The cost estimates are sensitive to the assumed 5% discount rate and the details of the climate policy and how the burden is allocated among countries. Tropospheric ozone effects on terrestrial ecosystems produce a surprisingly large feedback in estimating climate policy costs that, heretofore, has not been included in cost estimates.

To incorporate market and non-market effects of climate change into a computable general equilibrium (CGE) model, we begin with the basic data that supports CGE models, the Social Accounting Matrix (SAM). We identify where environmental damage appears in these accounts, estimate the physical loss, and value the loss within this accounting structure. Our approach is an exercise in environmental accounting, augmenting the standard national income and product accounts to include environmental damage. Examples of applying the approach in two areas are provided: air pollution health effects and economy-atmosphere-land-agriculture interactions.
We estimate market and non-market effects of air pollution on human health for the U.S. for the period from 1970 to 2000. The pollutants include tropospheric ozone, nitrogen dioxide, sulfur dioxide, carbon monoxide, and particulate matter. The health effects from exposure to air pollution are integrated into the MIT Emissions Prediction and Policy Analysis (EPPA) model, a computable general equilibrium model of the economy that has been widely used to study climate change policy. Benefits of air pollution regulations in USA rose steadily from 1975 to 2000 from $50 billion to $400 billion (from 2.1% to 7.6% of market consumption). We also estimate the economic burden of uncontrolled levels of air pollution over that period. In another case study, we examine the health-related economic benefits and costs of policy actions for China. We found that economic burden of uncontrolled levels of air pollution is lower that in the U.S. because of lower wage rates but macroeconomic impact is bigger than in the U.S. (in 2000 the economic burden in the USA is 4.7% of market consumption, in China - it is 10% of market consumption).
For assessing the impacts of environmental change on vegetation (crop productivity, forest productivity, pasture), we have augmented the EPPA model by further disaggregating the agricultural sector. This allows us to simulate economic effects of changes in yield (i.e., the productivity of cropland) on the regional economies of the world, including impacts on agricultural trade. We examine multiple scenarios where tropospheric ozone precursors are controlled or not, and where greenhouse gas emissions are abated or not. In general, a change in food consumption is smaller than a change in agriculture yield due to resource reallocation from or to the rest of the economy.

Climate policy decisions are necessarily sequential decisions over time under uncertainty, given the magnitude of uncertainty in both economic and scientific processes, the decades-to-centuries time scale of the phenomenon, and the ability to reduce uncertainty and revise decisions along the way. Thus, an appropriate choice of analytical method is decision analysis. However, applying decision analysis in the context of idealized government decision makers over a century raises the question of how to deal with the fact that political systems tend to exhibit path dependency, a force that makes large policy shifts difficult and rare, and limits most decisions to small incremental changes. This paper explores the effect of considering path dependency in an application of decision analysis to climate-change policy decisions, presenting two alternative methods for modeling path dependency. I demonstrate that consideration of path dependence in the context of climate policy justifies greater near-term emissions reductions. The more general result of path-dependency is to shift the near-term strategy towards a more moderate hedging strategy, because drastic shifts later will be difficult.

© 2008 Informs

This paper investigates the potential for a carbon tax to induce R&D, and for the consequent induced technical change (ITC) to lower the macroeconomic cost of abating carbon emissions. ITC is modelled within a general equilibrium simulation of the U.S. economy by the effects of emissions restrictions on the level and composition of aggregate R&D, the accumulation of the stock of knowledge, and the industry-level reallocation and substitution of intangible services derived therefrom. Contrary to other authors, I find that ITC's impact is large, positive and dominated by the latter "substitution effect," which mitigates most of the deadweight loss of the tax.

Policies to avert the threat of dangerous climate change focus on stabilizing atmospheric carbon dioxide concentrations by drastically reducing anthropogenic emissions of carbon. Such reductions require limiting the use of fossil fuels-which supply the bulk of energy to economic activity, and for which substitutes are lacking-which is feared will cause large energy price increases and reductions in economic welfare. However, a key determinant of the cost of emissions limits is technological change-especially innovation induced by the price changes that stem from carbon abatement itself, about which little is understood.

This thesis investigates the inducement of technological change by limits on carbon emissions, and the effects of such change on the macroeconomic cost of undertaking further reductions. The analysis is conducted using a computable general equilibrium (CGE) model of the US economy-a numerical simulation that determines aggregate welfare based on the interaction of prices with the demands for and supplies of commodities and factors across different markets. Within the model induced technical change (ITC) is represented by the effect of emissions limits on the accumulation of the economy's stock of knowledge, and by the reallocation of the intangible services generated by the stock, which are a priced input to sectoral production functions.

The results elucidate four key features of ITC: (1) the inducement process, i.e., the mechanism by which relative prices determine the level and the composition of aggregate R&D; (2) the effects of changes in R&D on knowledge accumulation in the long-run, and of contemporaneous substitution of knowledge services within and among industries; (3) the loci of sectoral changes in intangible investment and knowledge inputs induced by emissions limits; and (4) the ultimate impact of the accumulation and substitution of knowledge on economic welfare.

The determination of long-term goals for climate policy, or of near-term mitigation effort, requires a shared conception among nations of what is at stake. Unfortunately, because of different attitudes to risk, problems of valuing non-market effects, and disagreements about aggregation across rich and poor nations, no single benefit measure is possible that can provide commonly accepted basis for judgment. In response to this circumstance, a portfolio of estimates is recommended, including global variables that can be represented in probabilistic terms, regional impacts expressed in natural units, and integrated monetary valuation. Development of such a portfolio is a research task, and the needed program of work suggested.

Many trace atmospheric constituents affect the radiative budget of the atmosphere. The Kyoto protocol includes carbon dioxide (CO2), methane (CH4), nitrous oxide (N2O), perfluorocarbons (PFCs), hydrofluorocarbons (HFCs), and sulfur hexafluoride (SF6). A variety of studies suggest that potential carbon sinks and opportunities to limit emissions of other greenhouse gases (GHGs) may reduce the cost of control. They also point to the risks of failing to control gases with very long lifetimes. Few studies have yet considered an integrated evaluation of the costs of multi-gas control strategies, or the implications of reductions in different mixes of GHGs on atmospheric composition, climate, and ecosystems. Using the MIT Integrated Global System Model (IGSM) as recently modified we examine multi-gas control as envisioned by the Kyoto protocol, exploring the costs of emissions reduction and the consequences for the atmosphere, climate, and ecosystems. The basic components of the IGSM are an Emissions Prediction and Policy Analysis (EPPA) model, a Natural Emissions Model, a coupled Atmospheric Chemistry and Climate Model, and a Terrestrial Ecosystems Model. We stop short of quantifying damages in monetary terms. Our ecosystem results illustrate tradeoffs that result from different control strategies. We find that inclusion of sinks and abatement opportunities for gases other than CO2 could reduce the cost of meeting the Kyoto agreement by 60 percent. Assuming the protocol is extended unchanged to 2100, we find little difference in climate and ecosystem effects between 2010 and 2100 for a strategy that achieves the required reduction with a multigas as compared to a CO2-only strategy. Under a more aggressive policy, increasing the reductions in Annex B countries and extending reductions to the rest of the world after 2010, significant differences in effects develop between the two strategies. This latter result indicates that 100-year GWPs as currently estimated fail to capture important time horizon and climate-chemistry interactive effects, and this failure can be significant for policy.

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