Sunday, December 11, 2022
Topic: Policy
Content Type: analysis
Keywords:
climate, IRA, EPA, Social Cost of Carbon, CO2
Billions of Taxpayer Funds Up in Smoke
Main Takeaways
- IRA spends $369 billion to reduce CO2 emissions.
- The EPA estimates 1 ton of CO2 does $190 worth of damage to world.
- IRA spends $369B to reduce world damage by $125B resulting in $244 billion or 2/3 of the cost being wasted.
The Biden EPA recently released a draft rule which will more than double what is referred to as the social cost of carbon. Essentially, this is an estimate of how much damage carbon dioxide does to the world. More specifically, it's the cumulative damage, in dollar terms that a ton of CO2, if emitted today will wreak. Its purpose is to inform environmental regulations. For example, if the EPA is considering requiring coal plants to install CO2 reducing methods, they are required to conduct a cost/benefit analysis and can only pass regulations that pass it. So, if a regulation is going to cost energy producers $5 billion, and it reduces CO2 by only 1 ton, then the regulation fails the cost/benefit test and can't be implemented. Conversely, if it only costs $1, but reduces CO2 by 100 million tons, then it passes and can be implemented.
There are a number of questionable assumptions made to generate the new estimate, but the process is extremely complicated and impenetrable so for now, I leave it to others to scrutinize it. But it is instructive to assume it's correct and apply it to recent environmental regulations to determine if the Democrats' energy policy as implemented through legislation would pass Biden's historically liberal cost/benefit analysis.
I have found energy policy to be extremely opaque. For instance, the best (only?) analysis of the IRA's effect on emissions that I can find is from the Rhodium Group, but most of the reporting is in percentage terms, and aggregates. The analysis I provide is surely not exact, and I push others who are more experienced to do better, but it does get the work started and hopefully provides some useful takeaways.
Just as a starting point, the IRA energy provisions' total cost is $369 billion from 2023 to 2031. The Rhodium analysis predicts that the IRA will reduce US emissions by between 439 and 660 million metric tons by 2030.1 This leads to an estimated cost of between $559 and $840/ton of CO2--i.e. Americans will pay between $559 and $840 to reduce CO2 emissions by one ton. Biden's EPA, on the other hand, says that it is worthwhile to spend up to, but not to exceed $190 per ton. Consequently, the IRA seems to be a huge waste of money, by Biden's EPA's own standards.
Several caveats should be noted here, and I again point them out in the interest that someone will take this and run with it to provide a better analysis. First, the IRA may have longer-run impacts than are estimated by Rhodium through 2035. If the IRA, for example, converts all energy production to solar, CO2 emissions will be reduced beyond 2035. Additionally, the $369 billion may not all be used to reduce carbon emissions. This will be addressed below, to some extent. Contrarily, in many ways, the IRA only accelerates processes that will happen no matter what, so these CO2 reductions are finite. In other words, if the economy were destined to transition to 100% solar power by 2075 without the IRA, but with the IRA, that year moves up to 2060, then the IRA would have no effect after 2075. Also, the time window applies to the money as well. Some of the programs might require additional funds after 2031 to maintain lower emissions which aren't accounted for.
To get around some of these complications, we could try to perform the same exercise on specific items in the bill. The Congressional Research Service provided the best breakdown of provisions I could find. According to it, the energy production provisions total $149B, transportation $49B, and industry $44B.2. By sector and scenario, not one of the areas will be cost effective.
| Low Emissions | Middle Emissions | High Emissions |
|---|---|---|
| $527 | $300 | $413 |
| $1,067 | $694 | $795 |
| $1,571 | $2,435 | $6,957 |
The single estimate that comes closest to being cost effective are the energy provisions.
There is admittedly, much more work that can and should be done to determine whether the IRA is actually cost effective at reducing carbon reductions, but these estimates that are available publicly suggest not, and that's even using the proposed EPA regulations which are higher than any regulator in the world, even the Obama administration, thinks are appropriate.
Notes
1 Note that the highest reduction comes from the central emission scenario. It is unusual that the highest reduction isn't in the highest emission scenario and that the central emission scenario doesn't produce an estimate between low and high, but Rhodium does not provide their model or an explanation, only the results.
2 I excluded loans from the total and a list of my divisions and inclusions is available upon request.