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Promoting Clean Energy in the American Power Sector FIGURE 1 U.S POLICY BRIEF 2011-04 Public-PrivatePromoting Clean Partnerships Energy to in Revampthe American U.S. Infrastructure Power Sector POLICY BRIEFMAY 2011-02 2011 | MAY 2011 WWW.HAMILTONPROJECT.ORG ADVISORY COUNCIL GEORGE A. AKERLOF GLENN H. HUTCHINS The Hamilton Project seeks to advance Amer- Koshland Professor of Economics Co-Founder and Co-Chief Executive ica’s promise of opportunity, prosperity, and growth. University of California at Berkeley Silver Lake The Project’s economic strategy reflects a judgment ROGER C. ALTMAN JIM JOHNSON Founder & Chairman Vice Chairman that long-term prosperity is best achieved by foster- Evercore Partners Perseus LLC ing economic growth and broad participation in that HOWARD P. BERKOWITZ LAWRENCE KATZ Managing Director Elisabeth Allison Professor of Economics growth, by enhancing individual economic security, BlackRock Harvard University and by embracing a role for effective government in ALAN S. BLINDER MARK MCKINNON making needed public investments. We believe that Gordon S. Rentschler Memorial Professor Vice Chairman of Economics & Public Affairs Public Strategies, Inc. today’s increasingly competitive global economy re- Princeton University ERIC MINDICH quires public policy ideas commensurate with the TIMOTHY C. COLLINS Chief Executive Officer challenges of the 21st Century. Our strategy calls Senior Managing Director Eton Park Capital Management & Chief Executive Officer for combining increased public investments in key Ripplewood Holding, LLC SUZANNE NORA JOHNSON Former Vice Chairman growth-enhancing areas, a secure social safety net, ROBERT CUMBY Goldman Sachs Group, Inc. Professor of Economics and fiscal discipline. In that framework, the Project Georgetown University PETER ORSZAG Vice Chairman of Global Banking puts forward innovative proposals from leading eco- JOHN DEUTCH Citigroup, Inc. nomic thinkers — based on credible evidence and ex- Institute Professor Massachusetts Institute of Technology RICHARD PERRY perience, not ideology or doctrine to introduce new Chief Executive Officer KAREN DYNAN Perry Capital and effective policy options into the national debate. Vice President & Co-Director of Economic Studies PENNY PRITZKER Senior Fellow, The Brookings Institution Chairman of the Board The Project is named after Alexander Hamil- TransUnion CHRISTOPHER EDLEY, JR. ton, the nation’s first treasury secretary, who laid Dean and Professor, Boalt School of Law ROBERT REISCHAUER University of California, Berkeley President the foundation for the modern American economy. The Urban Institute MEEGHAN PRUNTY EDELSTEIN Consistent with the guiding principles of the Project, Senior Advisor ALICE RIVLIN The Hamilton Project Senior Fellow & Director Hamilton stood for sound fiscal policy, believed that Greater Washington Research broad-based opportunity for advancement would BLAIR W. EFFRON at Brookings Founding Partner Professor of Public Policy drive American economic growth, and recognized Centerview Partners LLC Georgetown University that “prudent aids and encouragements on the part JUDY FEDER ROBERT E. RUBIN Professor of Public Policy Co-Chair, Council on Foreign Relations of government” are necessary to enhance and guide Georgetown University Former U.S. Treasury Secretary market forces. Senior Fellow, Center for American Progress DAVID RUBENSTEIN Co-Founder & Managing Director ROLAND FRYER The Carlyle Group Robert M. Beren Professor of Economics Harvard University and CEO, EdLabs LESLIE B. SAMUELS Partner MARK GALLOGLY Cleary Gottlieb Steen & Hamilton LLP Managing Principal Centerbridge Partners RALPH L. SCHLOSSTEIN President & Chief Executive Officer TED GAYER Evercore Partners Senior Fellow & Co-Director The Hamilton Project Update of Economic Studies ERIC SCHMIDT The Brookings Institution Chairman & CEO A periodic newsletter from The Hamilton Project Google Inc. RICHARD GEPHARDT is available for e-mail delivery. President & Chief Executive Officer ERIC SCHWARTZ 76 West Holdings Subscribe at www.hamiltonproject.org. Gephardt Government Affairs MICHAEL D. GRANOFF THOMAS F. STEYER Chief Executive Officer Senior Managing Member Pomona Capital Farallon Capital Management, L.L.C. ROBERT GREENSTEIN LAWRENCE H. SUMMERS Executive Director Charles W. Eliot University Professor Center on Budget and Policy Priorities Harvard University CHUCK HAGEL LAURA D’ANDREA TYSON The views expressed in this policy brief are not necessarily those S.K. and Angela Chan Professor of of The Hamilton Project Advisory Council or the trustees, officers Distinguished Professor Georgetown University Global Management, Haas School of or staff members of the Brookings Institution. Former U.S. Senator Business University of California, Berkeley MICHAEL GREENSTONE Copyright © 2011 The Brookings Institution Director The Environmental Protection Agency (EPA) has the authority Promoting Clean Energy to regulate greenhouse gas emissions under the Clean Air in the American Power Sector Act. Under this authority, it also could design a system to reduce CO2 emissions in the power sector. The system that would likely emerge, however, may lack some important features such as broad coverage, cost-lowering flexibility, and The difficulty of securing bipartisan agreement price certainty. Congressional review and successive legal on a comprehensive national energy and climate change challenges to the EPA’s authority also make considering other regulatory options desirable. policy points to the need for an incremental approach rather than continued inaction. In his Hamilton Project discussion paper, Joseph Aldy of the Harvard Kennedy A New Approach School proposes a promising step forward: a detailed framework for a National Clean Energy Standard Aldy provides a detailed framework for a National Clean (NCES) that would apply to the nation’s power sector. Energy Standard (NCES) that would serve as a “bridge” to a more comprehensive approach to climate change. The standard The standard would reduce carbon dioxide (CO2) would reduce CO2 emissions in the power sector in a cost- emissions in the power sector by as much as 60 percent effective way, streamline the currently fragmented regulatory over twenty years relative to 2005 levels, streamline framework, produce meaningful fiscal benefits, and support the fractured regulatory framework currently in place, energy innovation. and serve as an ambitious step towards economy-wide The NCES would be based on emission intensity: the amount emission reductions. of CO2 emitted from a given amount of electricity generated (measured in tons of CO2 per megawatt hour). This is a simple but powerful way to define “clean energy” that focuses on The Challenge environmental impact. In 2015, the standard would be set to 0.4 tons of CO2 per megawatt The power sector in the United States emits more CO than is 2 hour. Every year, the standard would tighten by 0.01 tons of CO2 emitted from all sources combined in any country except for per megawatt hour, resulting in a performance target of 0.2 tons China. In the United States, the power sector is responsible of CO2 per megawatt hour in 2035—roughly equivalent to an for 30 percent of emissions, more than any other sector of 80 percent clean energy portfolio. Since CO2 emissions and the economy. While increased reliance on natural gas and megawatt hours of generated electricity are already tracked at renewable energy sources is expected to lower the power U.S. power plants, data to monitor compliance under the new sector’s future emission intensity—the amount of CO2 standard would be relatively easy to collect. emissions produced per unit of electricity generated—this reduction probably will be quite small. In the absence of a The proposed standard would be implemented over a twenty- concerted effort to reduce emissions, the emission intensity of year period, beginning in 2015. It would consist of performance the power sector will likely remain steady at about half a ton targets that represent “reach” goals (see Table 1 for a proposed schedule of targets), starting from the power sector’s current of CO2 emissions per megawatt hour of electricity generated. emissions intensity of 0.56 tons of CO2 per megawatt hour. To date, the federal government has not put forth any policies aimed at reducing the greenhouse gas emission intensity of TABLE 1 the power sector, but in absence of federal action, states have National Clean Energy Standard Goals moved ahead. Twenty-nine states and the District of Columbia already have renewable and clean energy mandates in place. An additional five states have renewable goals. But a patchwork Year Clean Energy Standard approach to regulation fails to realize the efficiencies that (tCO2/MWh) would be gained from a national system. 2015 0.40 2020 0.35 2025 0.30 2030 0.25 2035 0.20 The Hamilton Project • Brookings 3 The NCES that Aldy proposes has four key features that A Clean Energy Fund. Revenue raised through the sale make his proposal effective yet flexible: technology-neutral of federal clean energy credits would be directed to a Clean performance metric based on emission intensity, flexibility Energy Fund that supports energy R&D and first-of-a-kind through tradable credits, price certainty, and a Clean Energy technology demonstration projects. In 2015, $2 billion of Fund that would channel revenue raised under the standard revenue would be dedicated for this purpose. The amount towards energy R&D and technology demonstration. of revenue directed to the Clean Energy Fund would rise by 10 percent every year, reaching $5 billion
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