Experts talk the future Reflections on the Bonn Seminar of Governmental Experts, 16–17 May 2005: a view from Europe

Abstract

This article provides a first-cut estimate of the potential impacts of the clean development mechanism (CDM) on electricity generation and carbon emissions in the power sector of non-Annex 1 countries. We construct four illustrative CDM regimes that represent a range of approaches under consideration within the climate community. We examine the impact of these CDM regimes on investments in new generation, under illustrative carbon trading prices of US$ 10 and 100/t C. In the cases that are most conducive to CDM activity, roughly 94% of new generation investments remains identical to the without-CDM situation, with only 6% shifting from higher to lower carbon intensity technologies.We estimate that the CDM would bolster renewable energy generation by as little as 15% at US$ 10/t C, or as much as 300% at US$ 100/t C.

A striking finding comes from our examination of the potential magnitude of the “free-rider” problem, i.e. crediting of activities that will occur even in the absence of the CDM. The CDM is intended to be globally carbon-neutral—a project reduces emissions in the host country but generates credits that increase emissions in the investor country. However, to the extent that unwarranted credits are awarded to non-additional projects, the CDM would increase global carbon emissions above the without-CDM emissions level. Under two of the CDM regimes considered, cumulative free-riders credits total 250–600 MtC through the end of the first budget period in 2012. This represents 10–23% of the likely OECD emissions reduction requirement during the first budget period. Since such a magnitude of free-rider credits from non-additional CDM projects could threaten the environmental integrity of the Kyoto protocol, it is imperative that policy makers devise CDM rules that encourage legitimate projects, while effectively screening out non-additional activities.     

Cleaner generation,free-riders,and environmental integrity: clean development mechanism and the power sector

This article provides a first-cut estimate of the potential impacts of the clean development mechanism (CDM) on electricity generation and carbon emissions in the power sector of non-Annex 1 countries. We construct four illustrative CDM regimes that represent a range of approaches under consideration within the climate community. We examine the impact of these CDM regimes on investments in new generation, under illustrative carbon trading prices of US$ 10 and 100/t C. In the cases that are most conducive to CDM activity, roughly 94% of new generation investments remains identical to the without-CDM situation, with only 6% shifting from higher to lower carbon intensity technologies. We estimate that the CDM would bolster renewable energy generation by as little as 15% at US$ 10/t C, or as much as 300% at US$ 100/t C.A striking finding comes from our examination of the potential magnitude of the “free-rider” problem, i.e. crediting of activities that will occur even in the absence of the CDM. The CDM is intended to be globally carbon-neutral — a project reduces emissions in the host country but generates credits that increase emissions in the investor country. However, to the extent that unwarranted credits are awarded to non-additional projects, the CDM would increase global carbon emissions above the without-CDM emissions level. Under two of the CDM regimes considered, cumulative free-riders credits total 250–600 Mt C through the end of the first budget period in 2012. This represents 10–23% of the likely OECD emissions reduction requirement during the first budget period. Since such a magnitude of free-rider credits from non-additional CDM projects could threaten the environmental integrity of the Kyoto protocol, it is imperative that policy makers devise CDM rules that encourage legitimate projects, while effectively screening out non-additional activities.     

Carbon Accounting and Cost Estimation in Forestry Projects Using CO2Fix V.3

Carbon and financial accounting of projects in the Land Use, Land-Use Change and Forestry sector is a topic of hot debate. Large uncertainty remains concerning the carbon dynamics, the way they should be accounted and the cost efficiency of the projects. Part of the uncertainty can be alleviated by standardisation and transparency of reporting methods. For this reason we further developed CO₂FIX, a forest ecosystem carbon model, with modules for carbon and financial accounting. The model is applied to four cases: 1) Joint implementation afforestation project in Romania, 2) Forest management project in Central Europe, 3) Reduced impact logging possibly under the Clean Development Mechanism (CDM) in the future, and 4) Afforestation with native species under the Clean Development Mechanism. The results show the wide applicability of CO₂FIX, from degrading grasslands as baseline cases to multiple cohort forest ecosystems. Also the results show that Forest Management in the European case can generate considerable amounts of carbon emission reductions. Further, the results show that although reduced impact logging is not yet an allowed option under the Clean Development Mechanism, it shows promising results in that it is 1) very cost effective, 2) seems to be able to generate intermediate amounts of credits and 3) seems to us as a project type that is not prone to leakage issues. These results are yet another indication to seriously consider reduced impact logging as an eligible measure under the CDM.     

Forest certification eligibility as a screen for CDM sinks projects

Parties negotiating the Kyoto Protocol recently agreed that Clean Development Mechanism (CDM) investments can include carbon sequestration projects in developing countries. However, guidelines for achieving the socio-economic and environmental objectives of the CDM, and other concerns with sinks projects, have yet to be elaborated. Independently of the Kyoto process, international efforts have advanced to define and certify sustainably managed forests through processes, such as that of the Forest Stewardship Council (FSC). In this paper, the FSC-US principles and criteria for sustainable forest management are evaluated in light of current concerns for guiding afforestation and reforestation projects in the CDM. It is found that the FSC criteria would help to meet some of the objectives of the Kyoto Protocol, including provisions to reduce the risk of premature carbon loss, and features that could somewhat lessen leakage of emissions outside the project area. Existing FSC monitoring and verification procedures provide some, but insufficient, overlap with expected requirements for measuring carbon stock changes. FSC principles and criteria articulate stringent guidelines for meeting environmental and social goals that reflect years of negotiations between environmental, timber, human rights and labor interests.     

Forestry Projects under the Clean Development Mechanism?

Afforestation is considered an important option for mitigation of greenhousegas emissions. Recently, plantation projects have been suggested for inclusionunder the Clean Development Mechanism. While considered a cheap option,significant uncertainties make it difficult to determine the (net) carbonbenefits and profitability of forestry projects. The current uncertaintiesabout the regulatory framework of the CDM and the environmental and economicperformance of plantation forestry could create uncertainties with respect tothe additionality of such projects and thus their acceptance under themechanism.Six plantation forestry projects that were proposed in Brazil have been usedas cases to study sources of uncertainty for carbon benefits and economics forsuch projects. These cases vary widely in terms of productivity and productsdelivered. A quantitative model for calculating greenhouse gas balances andfinancial benefits and costs, taking a broad range of variables into account,was developed. Data from the developers of the proposed projects was used asmain source material. Subsequently, scenario's were evaluated, containingdifferent and realistic options for baseline vegetation, carbon creditingsystems and CDM modalities, fluctuations in product prices, discount rates andcarbon prices.The real cost of combined carbon sequestration and substitution for the caseprojects was below $3 per ton of carbon avoided, when based exclusivelyon data supplied by project developers. However, potential variations incarbon impact and costs based on scenario options were very large. Differentbaseline vegetation or adopting a different discount rate cause carbon creditsto vary by as much as an order of magnitude. Different carbon crediting systemsor fluctuations in (commodity) product prices cause variations up to200% in carbon credits and NPV. This makes the additionality of suchprojects difficult to determine. Five of the six case projects seem uneligiblefor development under the CDM. A critical attitude towards the use ofplantation projects under the CDM seems justified.     

Forest certification eligibility as a screen for CDM sinks projects

Abstract

Parties negotiating the Kyoto Protocol recently agreed that Clean Development Mechanism (CDM) investments can include carbon sequestration projects in developing countries. However, guidelines for achieving the socio-economic and environmental objectives of the CDM, and other concerns with sinks projects, have yet to be elaborated. Independently of the Kyoto process, international efforts have advanced to define and certify sustainably managed forests through processes, such as that of the Forest Stewardship Council (FSC). In this paper, the FSC-US principles and criteria for sustainable forest management are evaluated in light of current concerns for guiding afforestation and reforestation projects in the CDM. It is found that the FSC criteria would help to meet some of the objectives of the Kyoto Protocol, including provisions to reduce the risk of premature carbon loss, and features that could somewhat lessen leakage of emissions outside the project area. Existing FSC monitoring and verification procedures provide some, but insufficient, overlap with expected requirements for measuring carbon stock changes. FSC principles and criteria articulate stringent guidelines for meeting environmental and social goals that reflect years of negotiations between environmental, timber, human rights and labor interests.     

Time to market in the CDM: variation over project characteristics and time

Not only is the carbon market inundated with Certified Emissions Reductions (CERs) issued by successful projects, it is also littered with failed projects, that is, projects that either fail to be registered under the Clean Development Mechanism (CDM) or projects that have been successfully registered but fail to issue CERs. By relying on a novel application of survival analysis in the context of the CDM, this article shows that half of all projects that start the Global Stakeholder Process fail to issue CERs, while the other half have a median time to market of four years. Furthermore, it is shown that some of the best projects, in terms of being additional, are those that are least likely to make it to market, whereas some of the worst projects, in terms of not being additional, are the ones that are most likely to make it to market. This presents a fundamental challenge for the CDM and future offset schemes that rely on the same design as the CDM. In contrast with previous studies, it is shown that, when project characteristics are controlled for, not all durations measured along the CDM project cycle have increased over time.

Policy relevance

This article develops a novel method for analysing durations measured along the CDM project cycle that avoids the biases of previous studies, and corrects for some misconceptions of what the delays faced by CDM projects are and how these delays have changed over time. Developing an understanding of the delays is important in order not to draw the wrong lessons from the CDM experience. As the leading example of an offset scheme, both in terms of geographical scope and sectoral coverage, and some would say institutional complexity, the CDM serves as a benchmark and reference for all future offset schemes, among others, for the New Market Mechanisms (NMMs) and the Chinese domestic offset programme. While the NMMs are still very much in development, China has announced that it will rely on the methodologies and procedures developed under the CDM for generating offsets for their regional carbon trading schemes.     

Post-2012 CDM multi-criteria analysis of industries in six Asian countries: Iranian case study

The prospects of the Clean Development Mechanism (CDM) and for carbon income, up to and beyond 2012, in the industrial sectors of Iran and five other Asian countries are investigated. The attractiveness and suitability of each host country, the status of their industrial sectors (based on four post-2012 scenarios), and the post-2012 potential of the CDM (or similar carbon projects) in these sectors are all examined. A multi-criteria analysis of Iran, Saudi Arabia, the UAE, Qatar, China, and India, based on seven sets of criteria (institutional, regulatory, economic, political, social, CDM experience, and energy production/consumption), is conducted, and the post-2012 potential carbon incomes of each country – based on CO₂e emissions of industrial processes – are calculated. Finally, the Iranian industrial sector and the impact of deregulation of energy prices are examined. The post-2012 potential savings in the Iranian industrial sector are calculated based on energy savings, carbon income, and environmental savings. The results indicate that there is strong demand for investment and new technology in this sector to combat several-fold energy price increases. Moreover, high-priced carbon credits could play a meaningful role in post-2012 energy policies in this sector.

Policy relevance

This research is the first study to quantify the carbon market potentials in the industrial sectors of the selected Organization of the Petroleum Exporting Countries (OPEC) members. The Kyoto Protocol is considered by most OPEC countries to be a mixed bag of threats and opportunities and they have shown ambivalence towards it, mainly due to the threat a reduction of fossil fuel consumption poses to their economies. On the other hand, energy efficiency is a desirable goal for their industrial sectors. Iran, as an OPEC member country with vast energy resources, has mostly ignored the CDM during the first commitment period of the Kyoto Protocol and has performed poorly on CDM implementation. However, the current deregulation of energy prices in Iran, with profound cuts in energy subsidies, would definitely alter the perspective of its industrial decision makers on the post-2012 carbon potentials.     

Mitigation options for the Bangladesh forestry sector: implications of the CDM

The Clean Development Mechanism (CDM) under the Kyoto Protocol has expedited various global warming mitigation opportunities that allow Bangladesh to receive investments from those Annex I countries wishing to offset their emissions of greenhouse gases. Bangladesh has a special interest in strategies for combating global warming because its large areas that need to be planted represent a potentially large carbon sink, and at the same time its high rate of deforestation represents a huge carbon source. To properly assign carbon credits within the forestry sector of Bangladesh, a number of important issues and uncertainties need to be examined and resolved. Afforestation and reforestation (A/R) offers opportunities for carbon credits, which is subject to the end-use of the forest products. A/R may be the best option, as well as conserving the existing carbon sink offered by Bangladesh for mitigating global warming. This article discusses the legal issues raised in combating global warming; the potential of the Bangladesh forestry sector to combat global warming; implications of the forestry options for different land uses; and issues to be settled regarding carbon credits. Future policy and governance issues are considered which will enable the Bangladesh forestry sector to mitigate global warming and to obtain carbon credits.     

A spatial approach to baseline and leakage in CDM forest carbon sinks projects

Abstract

Forestry projects under the Clean Development Mechanism (CDM) face specific challenges with regard to determination of a baseline for carbon sequestration. We propose a semi-standardized approach called PARAPIA for calculation of a baseline that is built on the concept of a reference area around the project area whose land-use characteristics determine the baseline scenario. The land-use shares in the reference area are checked at each verification. Baseline carbon stocks are then derived ex post using the average carbon content of each land-use type. The reference area is between five and ten times larger than the project area. To determine indirect effects (the so-called ‘leakage’), a political influence area such as province or state is assessed with regards to migration flows due to the project and related emissions.     

Accounting methods for carbon credits: impacts on the minimum area of forestry projects under the Clean Development Mechanism

Abstract

The Ninth Conference of the Parties (COP-9) decided to adopt an accounting system based on expiring carbon credits to address the problem of non-permanent carbon storage in forests established under the Clean Development Mechanism (CDM). This article reviews and discusses carbon accounting methods that were under consideration before COP-9 and presents a model which calculates the minimum area that forest plantation projects should reach to be able to compensate CDM transaction costs with the revenues from carbon credits. The model compares different accounting methods under various sets of parameters on project management, transaction costs, and carbon prices. Model results show that under current carbon price and average transaction costs, projects with an area of less than 500 ha are excluded from the CDM, whatever accounting method is used. Temporary crediting appears to be the most favorable approach to account for non-permanent carbon removal in forests and also for the feasibility of smaller projects. However, lower prices for credits with finite lifetimes may prevent the establishment of CDM forestry projects. Also, plantation projects with low risk of unexpected carbon loss and sufficient capacity for insuring or buffering the risk of carbon re-emission would benefit from equivalence-adjusted average carbon storage accounting rather than from temporary crediting.     

Estimating the CDM market under the Marrakech Accords

The agreement on implementation of the Kyoto Protocol achieved at COP7 in Marrakech has important implications for investment in greenhouse gas emission reduction projects in developing countries through the Clean Development Mechanism (CDM). The required actual emission reductions for participating Annex B countries overall will be relatively small, as the United States do not intend to ratify the protocol and significant amounts of carbon sequestered in domestic sinks can be credited. In addition, the potential supply of surplus emission permits (hot air) from Russia and other economies in transition may be as high as total demand in the first commitment period. Thus, even under restraint of hot air sellers, CDM demand will be limited, and a low demand, low price carbon market scenario appears likely.The magnitude of the CDM will be influenced by a host of factors both on the demand and the supply-side. We analyse these using a quantitative model of the global carbon market, based on marginal abatement cost curves. Implementation and transaction costs, as well as baseline and additionality rules affect the CDM’s share in the carbon market. Demand for the CDM is sensitive to changes in business-as-usual emissions growth in participating Annex B countries, and also to crediting for additional sinks. Permit supply from Russia and other economies in transition is possibly the most crucial factor in the carbon market.     

Community forest management in Mexico: carbon mitigation and biodiversity conservation through rural development

Forest management is an important carbon mitigation strategy for developing countries. As demonstrated by the case of Mexico, community forest management is especially effective because it offers tangible local benefits while conserving forests and sequestering carbon. Community forestry receives minimal government support now, but the clean development mechanism (CDM) of the Kyoto Protocol could leverage additional resources to promote the approach in Mexico and elsewhere. We argue that adequately designed and implemented, community forestry management projects can avoid deforestation and restore forest cover and forest density. They comprise promising options for providing both carbon mitigation and sustainable rural development. These kinds of projects should be included in the CDM.     

Technology transfer under the CDM: Materializing the myth in the Japanese context?

The paper investigates the role that the clean development mechanism (CDM) could play in enhancing the effectiveness of north–south technology transfer. This is done by first exploring the issue of technology transfer in the context of existing north–south experiences to bring out the basis for the poor and unsatisfactory performance. This is followed by bringing out the intrinsic relevance of appropriate technology transfer for combating the global climate change issue.The paper then analyses the potential for such an appropriate and sustainable transfer, as well as effective diffusion and deployment of technologies under the CDM. Various aspects of the evolving design of the CDM are investigated to analyze the potential for overcoming the historical barriers across the north–south divide.Any potential for technology transfer under the CDM would need to be supported by an effective framework in the developed countries as well as a conducive environment in developing countries. In searching for such a cooperative and complementary model, the paper analyses the current Dutch strategy to bringforth certain salient features that could be applicable for other countries.Finally, a Japanese model for technology transfer is developed which can build upon domestic strengths as adopt applicable features of the Dutch strategy in order to capitalize any latent potential under the CDM. This is done by first investigating the effectiveness of the existing Japanese technology transfer framework and then extending recommendations for adapting it to reflect the shifting resource flow paradigms under the climate change regime.     

The contribution of forest carbon credit projects to addressing the climate change challenge

This article addresses the question of how forestry projects, given the recently improved standards for the accounting of carbon sequestration, can benefit from existing and emerging carbon markets in the world. For a long time, forestry projects have been set up for the purpose of generating carbon credits. They were surrounded by uncertainties about the permanence of carbon sequestration in trees, potential replacement of deforestation due to projects (leakage), and how and what to measure as sequestered carbon. Through experience with Joint Implementation (JI) and Clean Development Mechanism (CDM) forestry projects, albeit limited, and with forestry projects in voluntary carbon markets, considerable improvements have been made with accounting of carbon sequestration in forests, resulting in a more solid basis for carbon credit trading. The scope of selling these credits exists both in compliance markets, although currently with strong limitations, and in voluntary markets for offsetting emissions with carbon credits. Improved carbon accounting methods for forestry investments can also enhance the scope for forestry in the Nationally Determined Contributions (NDCs) that countries must prepare under the Paris Agreement.

POLICY RELEVANCE

This article identifies how forestry projects can contribute to climate change mitigation. Forestry projects have addressed a number of challenges, like reforestation, afforestation on degraded lands, and long-term sustainable forest management. An interesting new option for forestry carbon projects could be the NDCs under the Paris Agreement in December 2015. Initially, under CDM and JI, the number of forestry projects was far below that for renewable energy projects. With the adoption of the Paris Agreement, both developed and developing countries have agreed on NDCs for country-specific measures on climate change mitigation, and increased the need for investing in new measures. Over the years, considerable experience has been built up with forestry projects that fix CO₂ over a long-term period. Accounting rules are nowadays at a sufficient level for the large potential of forestry projects to deliver a reliable, additional contribution towards reducing or halting emissions from deforestation and forest degradation activities worldwide.     

Performance of renewable energy technologies under the CDM

While many different greenhouse gas (GHG) mitigation technologies can be implemented under the Clean Development Mechanism (CDM), renewable energy technologies (RETs), in particular, are often viewed as one of the key solutions for achieving the CDM's goals: host-country sustainable development and cost-efficient emissions reductions. However, the viability of emission reduction projects like RETs is technology- and country-specific. To improve the CDM with respect to the diffusion of RETs, it is crucial to understand the factors that ultimately drive or hinder investments in these technologies. This study develops a methodology based on project-level, regional and global variables that can systematically assess the financial and environmental performance of CDM projects in different country contexts. We quantitatively show how six RETs (PV, wind, hydro, biomass, sewage, landfill) are impacted differently by the CDM and how this impact depends on regional conditions. While sewage and landfill are strongly affected independently of their location; wind, hydro and biomass projects experience small to medium impacts through the carbon price, and strongly depend on regional conditions. PV depends more on regional conditions than on the carbon price but is always unprofitable. Furthermore, we determine the carbon prices necessary to push these six RETs to profitability under various regional conditions. Based on these results, we derive policy recommendations to advance the interplay between international and domestic climate policy to further incentivize GHG emission reductions from RETs.     

Estimating the CDM market under the Marrakech Accords

Abstract

The agreement on implementation of the Kyoto Protocol achieved at COP7 in Marrakech has important implications for investment in greenhouse gas emission reduction projects in developing countries through the Clean Development Mechanism (CDM). The required actual emission reductions for participating Annex B countries overall will be relatively small, as the United States do not intend to ratify the protocol and significant amounts of carbon sequestered in domestic sinks can be credited. In addition, the potential supply of surplus emission permits (hot air) from Russia and other economies in transition may be as high as total demand in the first commitment period. Thus, even under restraint of hot air sellers, CDM demand will be limited, and a low demand, low price carbon market scenario appears likely.

The magnitude of the CDM will be influenced by a host of factors both on the demand and the supply-side. We analyse these using a quantitative model of the global carbon market, based on marginal abatement cost curves. Implementation and transaction costs, as well as baseline and additionality rules affect the CDM's share in the carbon market. Demand for the CDM is sensitive to changes in business-as-usual emissions growth in participating Annex B countries, and also to crediting for additional sinks. Permit supply from Russia and other economies in transition is possibly the most crucial factor in the carbon market.     

Who uses the Clean Development Mechanism? An empirical analysis of projects in Chinese provinces

China is by far the largest host of projects implemented under the Kyoto Protocol's Clean Development Mechanism (CDM). However, earlier studies shed little light on the determinants of the distribution of CDM projects across Chinese provinces. Given China's large size and political-economic diversity, this dearth of research is troubling. We provide an empirical analysis of 2097 CDM projects in 30 Chinese provinces, 2004–2009. We find that high electricity consumption, low per capita income, and a lack of foreign direct investment are all associated with CDM project implementation. The findings are particularly strong for electricity and foreign direct investment. These findings are consistent with the economic theory of CDM project implementation. Project developers focus on minimizing the cost of carbon abatement. Moreover, they suggest that the CDM can, despite its limitations, contribute to reducing economic inequality and uneven development in China.     

The future of the CDM: same same,but differentiated?

Policy-makers and scientists have raised concerns about the functioning of the Clean Development Mechanism (CDM), in particular regarding its low contribution to sustainable development, unbalanced regional and sectoral distribution of projects, and its limited contribution to global emission reductions. Differentiation between countries or project types has been proposed as a possible way forward to address these problems. An overview is provided of the different ways in which CDM differentiation could be implemented. The implications for the actors involved in the CDM are analysed, along with a quantitative assessment of the impacts on the carbon market, using bottom-up marginal abatement cost curves. The discounting of CDM credits, quota systems, or differentiated eligibility of countries could help to address several of the concerns raised. Preferential treatment may also make a limited contribution to achieving the aims of CDM differentiation by increasing opportunities for under-represented host countries. The impact on the carbon market appears to be limited for most options.     

Can CDM monitoring requirements be reduced while maintaining environmental integrity?

Monitoring, reporting, and verification (MRV) requirements in the Clean Development Mechanism (CDM) are perceived to be of high quality, but also complex and stringent. Only one-third of the registered projects successfully managed initial verification and already received carbon credits. The time required to achieve first issuance remains high despite considerable improvements in other CDM project cycle steps. This leads to the question of whether MRV provisions in the CDM represent barriers that could be lowered while ensuring the CDM's integrity. The CDM requirements are compared with the MRV provisions of the EU Emission Trading System (EU ETS). The comparison shows that CDM–MRV provisions are often stricter and less flexible compared to similar provisions in the EU ETS. Due to structural differences between the EU ETS and the CDM, some different MRV approaches are justified and reflect the CDM's disparate objectives and complexity. It is found that some CDM provisions result in barriers which seem avoidable and do not contribute to the CDM's environmental integrity. Recommendations are made for CDM-specific improvements and general structural changes to improve cost-efficiency and reduce uncertainty with relevance to policy developments around future market mechanisms.