ࡱ> {` KbjbjFF 4|,,Q>A  8l4^=2:(  !!!<<<<<<<$>h@<-!!!!!<  =-%-%-%!f  <-%!<-%-%49$h;  &BI #:<$.=0^=1:A#A,;;VAu;,!!-%!!!!!<<$!!!^=!!!!dDd Emissions Trading for Shipping a Briefing Paper Shipping Emissions Abatement and Trading (SEAaT), July 2005 _______________________________________________________________ Emissions trading is emerging as a key instrument in the drive to address a range of global and local pollution issues. The success of land based emissions trading schemes raises the possibility of developing an appropriate market based approach to reduce atmospheric emissions from ships. This paper gives the background of existing emissions trading schemes, and shares current work on exploring suitable emissions trading schemes for the global shipping industry. What is emissions trading? Emissions trading is an economic instrument for environmental improvement that enables parties to buy and sell permits for emissions or credits for reductions. The rationale behind emission trading is that the market will drive the identification of the marginal or lowest cost for emissions reductions, encouraging investment in further reductions, thus lowering the overall costs of reducing pollution. Developing from academic work in the 1950s and first implemented in the 1970s, emissions trading is now a proven policy option for regulators wishing to solve environmental problems without inhibiting competitiveness. It achieves environmental objectives in an economically optimum way. A range of types of trading schemes have evolved, with the most used falling into three broad groups: Cap and Trade schemes involve the trading of emissions allowances, which are allocated to emitters once a total emissions cap is established by regulators. The usual approach to establish a cap is to use current scientific and commercial criteria to develop a total acceptable emissions limit. Within this cap, each emission source is then free to buy and sell emissions allowances to enable their own emissions to be covered. Most established greenhouse gas trading systems operate as cap and trade schemes. Credit based schemes are usually an extension of cap and trade programs, and provide tradable emissions reduction credits to emitters that reduce emissions more than they would otherwise under business as usual situations. This often allows other sectors not covered by regulation to join an existing trading scheme, and has been used by a number of industries in the United States. Offsetting schemes allow emitters that can reduce emissions at lower cost trade with emitters that would require expensive measures to reduce emissions. The benchmark for trade is usually a legislative limit requirement, and a group of emitters work together to offset higher emissions from some sources against the over-achievement (vs the benchmark) of others. Offsetting schemes are used for water and air pollution management in Australia, and are often implemented as pre-cursors to a full trading scheme. Markets for emission reductions can be created by regulation or operate on a voluntary basis. All schemes operate on the principle that market forces will determine the value of emissions reductions available to trade. The establishment of the market provides cost transparency and enables emitters to pursue cost-effective emission reduction strategies. Emissions trading on land Existing emissions trading systems are providing governments, industries and other organisations with the opportunity to buy and sell emissions reductions. Schemes are being used in many industries and countries to reduce acid rain, smog-causing pollutants and greenhouse gases. Greenhouse gases The international emissions trading of greenhouse gases is one of three key mechanisms of the Kyoto Protocol, and national and regional schemes for greenhouse gases are being implemented or are under active consideration in the UK, Denmark, the EU, Canada, the Netherlands, Japan, and across a number of US states. The European Union Greenhouse Gas Emissions Trading Scheme (EU ETS) began in January 2005 and is the first multi-national scheme to address climate change. To date, 36 million tonnes of CO2 have been traded at an average value of around 10 per tonne. The market is expected to trade in excess of 200 million tones of CO2 during 2005. Other pollutants Some of the most successful and well managed trading schemes have developed to address a variety of air pollutants, including sulphur oxides (SOx), nitrogen oxides (NOx) and Volatile Organic Compounds (VOCs). The first emissions trading schemes were developed in the United States, introduced after the passage of the 1990  HYPERLINK "http://en.wikipedia.org/wiki/Clean_Air_Act_%28USA%29_%281990%29" \o "Clean Air Act (USA) (1990)" Clean Air Act, which authorized the  HYPERLINK "http://en.wikipedia.org/wiki/Environmental_Protection_Agency" \o "Environmental Protection Agency" Environmental Protection Agency to put a cap on how much  HYPERLINK "http://en.wikipedia.org/wiki/Sulfur_dioxide" \o "Sulfur dioxide" sulphur dioxide (which causes acid rain) a fossil-fueled plant was allowed to emit. These early schemes provide insight into the potential for long term environmental benefit achievable via emissions trading. In March 2005 the EPA announced the extension of the Acid Rain Program, the Clean Air Interstate Rule (CAIR). CAIR will permanently cap emissions of sulfur dioxide (SO2) and nitrogen oxides (NOx) in the eastern United States, and will use emissions trading to reduce SO2 by over 70 percent and NOx emissions by over 60 percent from 2003 levels. Exchanges and registries, similar to the more familiar stock exchanges, are developing to match buyers and sellers of emissions reductions. In June 2005, the Netherlands will commence a NOx trading scheme for large industrial emitters. The government has set a cap for the NOx emissions of around 265 companies. If companies are over the cap, or rise above it due to increased production, then they have to take measures. This can be done in two ways: taking technical measures to reduce the emissions or buying the right to emit extra NOx (in the form of NOx emission rights) from companies that emit less than they are allowed to. The scheme is targeting a 40% decrease in NOx emissions by 2010 from the 87,000 tonnes emitted by industry in 2000. Trading is supported by the Environmental Emissions Exchange (EEExchange), an electronic platform to enable companies to trade their emissions rights. The exchange puts companies in contact with buyers or sellers of emissions reductions and also fully processes transactions at the contractual, financial and administrative levels. Benefits of emissions trading Experience with a range of trading schemes has demonstrated some clear benefits to using emissions trading to effect environmental change: Emissions trading can lead to improved compliance with the environmental requirement. The ability to sell emissions credits to others less able to achieve emissions reductions provides financial incentive for emitters to comply with legislation. This encourages environmentally responsible behaviour. Established emission goals can be met in a cost effective way, letting the market determine the lowest cost pollution control opportunities. In todays global marketplace, the achievement of environmental objectives must be done in the most cost effective way possible to protect competitiveness. Emissions trading markets encourage emitters to seek out and implement low cost ways of reducing emissions. Emissions trading encourages the development of innovative environmental technologies. Clear and managed trading schemes provide the foundation for investment in new technologies, giving confidence to stakeholders that markets will be available for their products. Emissions trading schemes are flexible. Some successful schemes have been extended to cover emitters that might not otherwise be covered by regulation, thereby improving the environmental outcome. Emissions trading supports goal based outcomes. Market based mechanisms avoid the need for regulators to be overly prescriptive on inputs or to dictate specific technological solutions, which historically have often been unsustainable over the long term and/or have unintended consequences. Experience indicates that an emissions trading program, if designed and implemented effectively, can achieve environmental goals faster and at lower costs than traditional command-and-control alternatives. When markets are established and costs to reduce pollution are transparent, emitters have the flexibility to find and apply the lowest-cost methods for reducing pollution. Most air quality management policies across the globe now include some form of emissions trading as a complementary means of achieving better air quality. The potential for emissions trading for shipping The ratification of IMO MARPOL Annex VI ensures that the first international legislation restricting atmospheric emissions from shipping activity comes into effect. Additional regional legislation was passed by the European Parliament in April 2005, also enforcing the reduction of SOx from ships. Both regulations encourage the development of pollutant abatement technologies to reduce emissions, as an alternative to the use of lower sulphur fuel while inside the Sulphur Emissions Control Areas (SECAs). In existing trading schemes, emission reductions are generated by actions such as installing more advanced pollution control technology or switching to cleaner fuels. IMO MARPOL Annex VI allows the use of onboard technology as a method of reducing SOx (exhaust gas scrubbing for example) and NOx (selective catalytic reduction or humid air motors for example) to comply with the requirement for reduced emissions. Such technologies have the potential to significantly reduce emissions well below the legislative limits, and could provide the basis for developing emissions trading schemes for shipping. The benefits that may be achieved by the use of market mechanisms for shipping has been reviewed in a report commissioned by the European Union and undertaken by NERA , and an additional report further examining the possible use of economic instruments for shipping is due to be submitted to the European Commission in September 2005. In its recommendations, the 2004 NERA report notes that further work is necessary to develop the details of appropriate schemes, and suggests that three approaches to emission trading be investigated voluntary port dues differentiation, offsetting and credit based schemes. Developing an appropriate emissions trading scheme to incorporate the globally mobile shipping industry will require input from all stakeholders. A successful emissions trading scheme for shipping will need to incorporate as a minimum the following critical components: Measurement and verification of emissions Trading rules Enforcement Administration of the scheme The complexity and variability of the shipping industry adds to the size of this task, but experience in other industries suggests that the benefits available from implementing an emissions trading scheme are worth this investment. For example, the US Acid Rain Program claims benefits of some $32 billon over the policy alternatives. Current exploratory work In April 2005, a group of ship owners commenced a pilot project designed to explore how the concept of offsetting might be applied to reduce SOx emissions from ships. The project is being co-ordinated by Shipping Emissions Abatement and Trading (SEAaT), a cross industry group with the aim of encouraging and facilitating the cost effective reduction of shipping emissions to air. Working from the legislative benchmark of 1.5% sulphur fuel equivalent, the ship owners are co-operating to jointly achieve this benchmark using an offsetting mechanism, with the lower emissions of some ships being used to offset the higher emissions of others. The pilot project is collecting fuel consumption and position data from 45 participating vessels, which is then used to calculate SOx emissions caused by the ships activities when operating in the North Sea SECA. Ships will generate additional reductions by the simulated use of 0.2% sulphur fuel, or the virtual installation of abatement technology which reduces SOx levels to 0.2% sulphur fuel equivalent. The additional reductions generated by these ships are offset against emissions from other vessels such that the group achieves overall levels are at least as low as would be achieved with the use of 1.5% sulphur fuel. The diagram below demonstrates how the offsetting pilot program will achieve the legislative benchmark, and how trading between participants will occur to explore the financial incentive and market development.  Shipowners are participating in the pilot project for a range of reasons, among them: to understand how they might contribute to the reduction of emissions while they prepare for the use of technology or cleaner fuel; to explore how to acquire emission reductions at a cost lower than reducing their own emissions, and evaluate the possibilities of monetizing some of their investment in technologies that significantly reduce emissions and hence create credits to gain experience of trading in order to better position themselves for the possible establishment of full-scale emission trading programs in the future. The pilot project is planned to continue until December 2005, and will inform a broad range of stakeholders of learnings and recommendations. Benefits and challenges of implementing emissions trading at sea There is a growing pool of experience in and knowledge of emissions trading in a range of industries that can be used to assist the shipping community to understand the benefits and challenges of emissions trading. Benefits of emissions trading schemes for shipping include: The early implementation of simple SOx offsetting schemes would encourage innovation and investment in a range of technologies to reduce SOx emissions. The flexibility to trade emissions reductions would provide ship owners with another means of complying with MARPOL Annex VI, by providing a powerful financial incentive. While immediately applicable to existing legislation reducing SOx, a successful emissions trading scheme could be extended to other emissions from ships. Some challenges include: Administration and co-ordination of a global fleet Implementation of technology to monitor and verify emissions The lack of an internationally recognized framework for developing emissions trading for shipping. By gaining experience in simple forms of emissions trading, such as offsetting, the shipping community could begin to debate and evaluate the viability of emissions trading for shipping. The future of emissions trading The outlook for emissions trading suggests that its use will continue to expand. Existing trading schemes will be closely monitored by industry, government and environmental groups, and the structure of programs will improve to balance economic and environmental interests. Trading systems will play an increasingly important role in the future of legislation, compared to command-and-control regulations, charges and taxes, and will continue to produce faster and more effective results in a more cost-effective way. Summary and Conclusion Emissions trading schemes are being used successfully across a range of industries and pollutants to improve air quality in a cost effective way. Emissions trading systems have the potential to complement existing International Maritime Organisation regulations controlling air pollution and could help to reduce shipping emissions in an environmentally and economically effective manner. Benefiting from the experience gained in a range of schemes operating both locally and internationally, the IMO could begin to consider the role that emissions trading might play in reducing shipping emissions.  The Acid Rain Program commenced in 1995, a cap-and-trade scheme to reduce sulphur oxides (SOx) and nitrogen oxides (NOx), and has been successful in accelerating the rate of emission reductions. This scheme gave power plant operators the flexibility to choose the most cost effective means to reduce emissions. Over 400 power plants were able to comply with their emissions targets to cut acid rain at a far less cost than anticipated. Between 1995 and 1997, SOx emissions from these plants were reduced by 30% more than originally required under the Clean Air Act. In first few years of the Program, pollution reduction technology costs dropped by 40%, and the sulphur removal efficiencies of abatement equipment improved from 90% to 95%. 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