greenhouse gas emissions
The proposed Clean Power Plan to reduce carbon emissions from existing power plants is a long overdue turning point in America’s response to climate change.
EPA’s approach gives the states tremendous flexibility to design strategies that work best for them. States have always been incubators of innovation, and they will drive technological and policy innovation as they encourage low-cost solutions to implement the plan.
We need to encourage that innovation – by cities, states, and businesses -- to show the path forward to a clean energy economy.
C2ES submitted comments today as part of the EPA’s process to seek stakeholder input to the proposed rule before finalizing it in June 2015.
Here are five suggestions that could make EPA’s framework even better.
On June 2, 2014, the U.S. Environmental Protection Agency (EPA) released its proposed Carbon Pollution Standards for Existing Power Plants (known as the Clean Power Plan), per its authority under Section 111(d) of the Clean Air Act (CAA). The development of this rule was announced by President Obama during his June 25, 2013, climate policy speech. The Clean Power Plan would establish different target emission rates (lbs of CO2 per megawatt-hour) for each state due to regional variations in generation mix and electricity consumption, but overall is projected to achieve a 30 percent cut from 2005 emissions by 2030, with an interim target of 25 percent on average between 2020 and 2029.
See more resources and maps at the C2ES Carbon Pollution Standards Resource Page.
What is in EPA’s proposal?
Typically, EPA regulations are set at the federal level and then administered by states. For example, EPA sets a limit on the level of smog in the atmosphere, and states then submit plans for how they will meet that standard. Once approved by EPA, states then administer these plans, known as State Implementation Plans.
The proposed Clean Power Plan is similar in that states would be given a target emissions rate, but have broad flexibility to determine how to achieve that target. Each state would be assigned a carbon emissions baseline based on its level of carbon emissions from fossil-fired power plants divided by its total electricity generation. (See our Proposed State Emission Rate Targets Map.) Electricity generation in this case includes fossil generation, nuclear, renewables, plus generation avoided through the use of energy efficiency programs. A target for 2030 is then established for each state based on its capacity to achieve reductions using the following four “building blocks” identified by EPA:
1. Make fossil fuel power plants more efficient.
2. Use low-emitting natural gas combined cycle plants more where excess capacity is available.
3. Use more zero- and low-emitting power sources such as renewables and nuclear.
4. Reduce electricity demand by using electricity more efficiently.
Each state could then meet its established target however it sees fit. States could join multi-state programs to reduce emissions collectively, for example through a cap-and-trade program.
How much flexibility will states have to minimize costs?
States would have considerable flexibility to adopt a variety of approaches to reduce carbon dioxide emissions from the power sector, if they can demonstrate that they will achieve the emissions target.
Among the possibilities:
- States could allow emissions credit trading among power plants owned by the same operator. This means that if one power plant reduced its emission rate below the state target, it could trade credits to a power plant that could not meet the target so that the company overall would be in compliance.
- States could allow emissions trading between power companies and even across state lines (such a program would be similar to the Regional Greenhouse Gas Initiative). Averaging or trading across power plants, companies, and states cut overall compliance costs by taking advantage of the lowest-cost opportunity for emissions reductions.
- States could use energy efficiency or renewable energy for compliance, provided that the total emissions met an EPA-approved target.
- States could also set a standard that is more stringent than what would be required by EPA's guidelines.
How much will this rule cost?
EPA projects that the compliance costs for this rule would be between $7.3 billion and $8.8 billion annually by 2030. EPA projects that this would lead to about a 3 percent increase in electricity rates by 2030. The rule would deliver considerable benefits as well, including a total of $55 billion to $93 billion in public health benefits by 2030, as projected by EPA. The rule could also reduce electricity consumption, meaning a homeowner’s electricity bill could stay the same or even decrease. It is important to weigh any costs of the Clean Power Plan against the costs of allowing carbon dioxide emissions to continue to rise unabated, contributing to climate change. The costs of climate impacts such as more frequent and intense heat waves, higher sea levels, and more severe droughts, wildfires and downpours, are projected to be much higher.
What can power plants do to reduce emissions?
An individual power plant could reduce its greenhouse gas emission rate by using fuel more efficiently or by switching to a lower carbon fuel, such as natural gas or biomass instead of coal. However, states would be complying with this rule on a statewide basis using any number of emission reduction options. As long as states met carbon dioxide targets broadly, action would not necessarily be required at particular power plants. States could meet their emissions targets by increasing their consumption of renewable electricity relative to fossil-generated electricity or improving energy efficiency. Options to reduce carbon dioxide emissions in the power sector are illustrated in Figure 4.
Figure 1: Opportunities to reduce carbon dioxide emissions in the power sector
How will existing state policies, such as the Regional Greenhouse Gas Initiative, be affected?
States would have significant flexibility in setting regulations for existing power plants within their borders, but are required to follow the broad limits in EPA’s proposed rule. Since states have been given the authority to use market-based mechanisms, the nine Northeast states participating in the Regional Greenhouse Gas Initiative (RGGI)would be able to demonstrate that their cap-and-trade program for power plants satisfies the required emission reductions, and that further regulation is therefore unnecessary. Policy measures that states might employ to achieve their carbon targets are listed in Table 1.
Table 1: Policy options to reduce power sector carbon dioxide emissions
|Power plant performance standard||Each power plant must achieve a set emissions intensity||California, New York, Washington|
|Renewable Portfolio Standard||Utilities must deliver a set percentage of renewable electricity||Colorado, Hawaii, Kansas, Missouri, Nevada, Rhode Island, and others|
|Energy Efficiency Resource Standard||Utilities must cut demand by a set amount by target years||Arizona, Connecticut, Maryland, Minnesota, Texas, and others|
|Decoupling||Reduce utility incentive to deliver more electricity by decoupling revenue and profit||California, Idaho, Massachusetts, Michigan, Oregon, and others|
|Net Metering||Encourage residential solar by paying homeowners to put excess electricity back on grid||Arkansas, Colorado, Georgia, Louisiana, and others|
|Cap & Trade||Issue a declining number of carbon allowances, which must be surrendered in proportion to each plant’s emissions||California, Regional Greenhouse Gas Initiative|
|Carbon Tax||Charge a tax for emitting carbon||British Columbia|
|Grid Operator Carbon Fee||Add a carbon price to grid operator decision over which power plants to run||None currently|
|Appliance Efficiency Standards||Require new appliances sold to meet set electricity consumption standards||California, Florida, New Jersey, and others|
|Commercial & Residential Building Codes||Require new buildings to include electricity saving measures||California, Illinois, Maryland, Mississippi, and others|
What happens now?
EPA has been directed by President Obama to work closely with states, power plant operators, and other stakeholders as it finalizes its guidelines due to their novelty and far-reaching implications. Administration officials have said they aim to issue a final rule in the summer of 2015. The target date for states to submit their proposed plans to EPA is June 30, 2016, but states can apply for a one-year extension. After a plan is submitted, EPA will have a year to either approve plans or send them back to states for revision. If a state does not submit an adequate plan, EPA is authorized to impose a federal plan to drive the necessary reductions.
It is important to note that this action is not voluntary on the part of EPA. According to the Supreme Court in Massachusetts v. EPA (a decision that was recently reaffirmed), EPA is legally required to regulate greenhouse gases under the Clean Air Act if it finds them to endanger public health and welfare, just as EPA has addressed more traditional pollutants for the past 43 years. In 2010, EPA settled a suit with several states and environmental groups by agreeing to finalize greenhouse gas standards for existing power plants by May 26, 2012.
Why is regulation of greenhouse gas emissions from existing power plants important?
Electric power generation is responsible for nearly 40 percent of U.S. carbon dioxide emissions.
Figure 2: 2013 U.S. CO2 Emissions
Source: Energy Information Administration
Since the federal government adopted new vehicle efficiency standards last summer to address transportation emissions through 2025, the power sector represents the greatest opportunity for greenhouse gas reductions.
Figure 3: Electric Power Sector Carbon Dioxide Emissions without Proposed Emission Standards
Source: Energy Information Administration
Power sector emissions have declined over the past five years in part due to the economic downturn, increased energy efficiency, greater use of renewable energy and a switch from coal, the most carbon-intensive fossil fuel, to natural gas, the least carbon-intensive (in terms of combustion). In the absence of any policy changes, the U.S. Energy Information Administration projects that as the economy grows and natural gas prices rise slowly over the next five years, emissions will rise. The Clean Power Plan will have to push against these underlying trends.
Figure 4: Distribution of Fossil Fuel Power Plants across the Contiguous United States
Additional resources can be found on the C2ES Carbon Pollution Standards Resource Page.
February 25, 2014
Climate Leadership Award Winners Announced
SAN DIEGO – Fifteen organizations and two individuals are being honored today with Climate Leadership Awards for their accomplishments in driving climate action and reducing greenhouse gas emissions.
The awards are given by the Environmental Protection Agency’s Center for Corporate Climate Leadership, in collaboration with the Center for Climate and Energy Solutions (C2ES), the Association of Climate Change Officers and The Climate Registry. Awardees will be honored this evening at the Climate Leadership Conference in San Diego.
Awardees came from a wide array of sectors, including finance, manufacturing, retail, technology, higher education and local government. Recipients have demonstrated leadership in managing and reducing emissions in internal operations and the supply chain, as well as integrating climate resilience into their operating strategies.
Information highlighting the award winners is here:
Following is EPA's press release:
EPA Honors Corporate Leadership in Reducing Greenhouse Gas Emissions
Release Date: 02/25/2014
Contact Information: Carissa Cyran, email@example.com, 202-564-4363, 202-564-4355
WASHINGTON – Today, the U.S. Environmental Protection Agency (EPA) Center for Corporate Climate Leadership announced the third annual Climate Leadership Award winners in partnership with the Association of Climate Change Officers (ACCO), the Center for Climate and Energy Solutions (C2ES) and The Climate Registry (TCR). Nineteen awards were given to 15 organizations and two individuals in the public and private sectors for their leadership in addressing climate change by reducing carbon pollution.
The 2014 Climate Leadership Award recipients are:
Organizational Leadership Award: City of Chula Vista, Sprint, and University of California, Irvine
Individual Leadership Award: Sam Brooks, Associate Director, D.C. Department of General Services, and Robert Taylor, Energy Manager, Washington Suburban Sanitary Commission
Supply Chain Leadership Award: Sprint
Excellence in Greenhouse Gas Management (Goal Achievement Award): The Boeing Company; Caesars Entertainment; Cisco Systems, Inc.; Ecolab; The Hartford; IBM; Johnson Controls; Kohl's Department Stores; Mack Trucks; and Novelis
Excellence in Greenhouse Gas Management (Goal Setting Certificate): Fruit of the Loom, Inc.; Hasbro, Inc.; and Kohl's Department Stores
“Our Climate Leadership Award winners have made great strides in reducing greenhouse gas emissions, and are providing leadership nationwide in many sectors of our economy,” said Janet McCabe, acting assistant administrator for EPA’s Office of Air and Radiation. "Their innovative approaches and commitment to reducing carbon pollution demonstrate that efforts to address climate change are repaid by saving money and energy, while supporting more livable and resilient communities, and a healthier, better protected environment now and for future generations."
The national awards program recognizes and incentivizes exemplary corporate, organizational, and individual leadership in response to climate change. Award recipients represent a wide array of industries, including finance, manufacturing, retail, technology, higher education and local government.
“The Association of Climate Change Officers is pleased to recognize another exceptional class of organizations and individuals who are demonstrating leadership in driving climate action into their organizational cultures,” said Daniel Kreeger, ACCO’s co-founder and executive director. “These award recipients are demonstrating critical devotion and leadership to managing and reducing greenhouse gas emissions and adapting to the risks and challenges posed by climate change. These recipients are role models for corporate, organizational, and individual leaders who can and should be responding proactively to climate change risks and opportunities.”
“Communities and businesses are already experiencing the impacts of climate change, and we need to act now to protect both our environment and our economy,” said C2ES President Eileen Claussen. “We join EPA in applauding the winners of the Climate Leadership Awards. These companies, organizations, and individuals demonstrate that we can save energy, reduce emissions, and take decisive steps toward a low-carbon future. We hope their accomplishments will serve as an example for others to follow.”
“The Climate Registry applauds this year’s Climate Leadership Award winners for demonstrating a meaningful, results-oriented response to climate change,” said David Rosenheim, executive director of TCR. “Exhibiting transparency, consistent metrics, and innovative mitigation measures, our deserving award recipients are building a stronger platform for policy, innovation, and business solutions to reducing carbon pollution.”
The President’s Climate Action Plan calls on the federal government to work with all stakeholders to take action to cut the harmful carbon pollution that fuels climate change. These organizations and individuals are working to do just that.
The awards are held in conjunction with the 2014 Climate Leadership Conference at the Hyatt Mission Bay Hotel in San Diego, Calif.
More information about the 2014 Climate Leadership Award winners is available at www.epa.gov/climateleadership/awards/2014winners.html
The EPA's Center for Corporate Climate Leadership was launched in 2012 to establish norms of climate leadership by encouraging organizations with emerging climate objectives to identify and achieve cost-effective GHG emission reductions, while helping more advanced organizations drive innovations in reducing their greenhouse gas impacts in their supply chains and beyond. The Center serves as a comprehensive resource to help organizations of all sizes measure and manage GHG emissions, providing technical tools, ground-tested guidance, educational resources, and opportunities for information sharing and peer exchange among organizations interested in reducing the environmental impacts associated with climate change.
More information about EPA’s Center for Corporate Climate Leadership: www.epa.gov/climateleadership
With the latest round of international climate change talks underway in Doha this week, it’s a good time to check in on the United States’ pledge, made three years in Copenhagen, to reduce greenhouse gas emissions 17 percent below 2005 levels by 2020. Are we on track to meet that?
The short answer: Not yet. But projections depend on assumptions, so let’s look at a few recent projections.