This week, my ECONS102 class covered externalities. As part of the topic, we spent a bit of time considering the economics of pollution control, where the government has three main options: (1) regulation (command-and-control); (2) Pigovian taxes; or (3) tradeable pollution permits. I've posted before about the latter two options (see here and here).
Tradeable pollution permits often attract attention from my students, as it seems surprising that granting polluters 'the right to pollute' might be an effective way of reducing pollution. However, economic theory suggests that this can be both an effective and a cost-effective way of reducing pollution. And the research reported in this 2025 article by Michael Greenstone (University of Chicago) and co-authors, published in the Quarterly Journal of Economics (ungated earlier version here), provides some compelling evidence that tradeable pollution permits are effective.
Greenstone et al. collaborated with the Gujarat Pollution Control Board (GPCB) in India to design and experimentally evaluate a particulate-matter emissions market, the first market of its type anywhere. They describe the experiment as follows:
GPCB launched the market for industrial plants in and around Surat, Gujarat, a rapidly growing city of 7 million people, in 2019. Under the command-and-control status quo, plants are mandated to install abatement equipment and are sporadically inspected in person by government regulators and auditors to check that they meet limits on the concentration of pollution emissions... For the present experiment, GPCB mandated a sample of 318 large, coal-burning plants to install continuous emissions monitoring systems (CEMS) to measure the total mass of particulate matter (PM) emitted, compared with the measurement under the status quo of pollution concentrations during spot visits... The emissions market experiment then randomly assigned 162 out of 318 plants to the market and 156 control plants stayed under the command- and-control regime.
The tradeable pollution permits market worked much as we describe in class:
GPCB set a cap on the total mass of particulates that could be collectively emitted by all treatment plants over a compliance period. They allocated permits to treatment plants, with permits summing to 80% of the cap distributed for free, in proportion to plant emissions potential, and 20% sold off in weekly auctions. Thereafter, treatment plants could trade permits with each other. At the conclusion of each compliance period, any treatment plant that did not hold enough permits to cover their emissions was subject to fines based on the size of the shortfall.
As I note in my ECONS102 class, the advantage of allowing pollution permits to be traded is that plants with relatively low abatement costs (low costs of reducing pollution) have an incentive to sell their surplus permits and abate pollution instead, while plants with relatively high abatement costs have an incentive to buy permits rather than undertake costly abatement. Transferability is one of the important features of efficient property rights, and having permits that are tradeable helps to ensure that.
Greenstone et al. look at compliance (did they have enough permits to cover their emissions), and then compare treatment and control plants in order to estimate the effect of the permit scheme on particulate emissions and variable abatement costs. They find that:
Treatment plants complied—held enough permits to cover their emissions—in 99% of plant-periods. By contrast, the compliance rate with concentration standards at baseline was 66%...
Second, the treatment reduced particulate emissions by 20%–30%, relative to control-plant emissions in the command- and-control regime...
Our third main finding is that the market reduced variable abatement costs by 11% at a constant level of emissions.
Taken altogether, those results provide strong field experimental evidence that the permits scheme worked as intended, that treatment plants were compliant, and that emissions decreased while also decreasing abatement costs. Greenstone et al. then conduct a cost-benefit analysis of an expansion of the market. Based on a range of assumptions on the mortality effects of particulate pollution, they estimate that the benefits of the market are at least 25 times larger than the costs. Needless to say, that suggests that tradeable pollution permits have been strongly worthwhile in this setting, and that they would be worth exploring in other settings as well. And in a postscript in the conclusion to the paper, Greenstone et al. note that the GPCB has launched another particulate market in the largest city in the state, Ahmedabad. So clearly, the GPCB was sufficiently convinced that they decided to extend the approach elsewhere.
[HT: Marginal Revolution, back in 2024]


