2023-10-25-未来能源研究所-碳边界调整_设计要素_选项和政策决策_17页_2mb

Carbon Border Adjustments (CBAs) Report Summary

Report: Carbon Border Adjustments: Design Elements, Options, and Policy Decisions
Authors: Raymond Kopp, William Pizer, Kevin Rennert
Organization: Resources for the Future (RFF)
Date: October 2023

Key Objectives

• To analyze design elements of Carbon Border Adjustments (CBAs) as policy tools.
• To identify options for policymakers (e.g., EU CBAM, FAIR Act, Clean Competition Act).
• To address competitiveness, emissions leakage, and global trade implications.

Design Elements

1. Covered Products

   • Products with high GHG intensity (e.g., iron/steel, aluminum, cement).
   • Must be traded in competitive international markets and face high decarbonization costs domestically.

2. Fees

   • Linked to costs of GHG compliance in domestic regulations.
   • Examples: EU CBAM uses EU ETS allowance prices; US CCA uses social cost of carbon.

3. GHG Intensity Measurement

   • Defined as CO₂ equivalents (COe) per ton of product.
   • Boundaries: EU CBAM includes Scope 1 & 2 emissions; others differ (e.g., CCA excludes some upstream emissions).

4. Baseline

   • For CCA, fees apply only if GHG intensity exceeds U.S. average. Exemptions disallow charges below thresholds.

5. Data and Methods

   • Requires product-level emissions data (not available in most domestic systems).
   • EU CBAM mandates detailed reporting, while U.S. bills rely on default values.

6. Domestic Strategies

   • Synergy with domestic policies (e.g., EU CBAM integrates with ETS, U.S. CCA aligns with performance standards).

7. Clubs and Exemptions

   • "Policy Clubs": Countries with carbon prices free from CBAs (e.g., EU).
   • Exemptions: Low-income nations or countries with similar climate policies.

8. CBA Expansion

   • Scope may include downstream manufactured goods to prevent leakage.

Policy Observations

• Effectiveness: CBAs aim to ensure domestic competitiveness while reducing global emissions.
• Trade Impacts: CBAs may distort international trade, requiring additional diplomatic coordination (e.g., WTO alignment).
• Global Equity: Domestic welfare vs. developing nations' impacts remain debated.
• Emerging Trend: EU CBAM sets precedent, with U.S. legislative proposals following suit.

Questions for Consideration

• How will CBAs interact internationally without harmonization?
• What CBA designs align with WTO rules?
• How can CBAs promote global decarbonization equitably?

Conclusion:
CBAs are a growing tool in climate policy, balancing domestic competitiveness with emissions reduction. However, their design complexity and potential trade friction highlight the need for international cooperation.