My ECONS102 class covered externalities and common resources this past week. In the final slide of content in my lectures, I talked about the challenges of getting global agreement on climate change, because the atmosphere's limited capacity to absorb emissions without causing harmful climate change provides a special case of the tragedy of the commons.
Why is climate change a common resource problem? Common resources are rival and non-excludable. The atmosphere's capacity to absorb emissions is both rival (one country's emissions reduce the capacity available for other countries) and non-excludable (if the capacity is reduced for one country, it is reduced for all countries). The social incentive is for all countries to reduce emissions to the point where the marginal social cost of emissions is equal to the marginal social benefit. The private incentive for each country is to reduce emissions only to where marginal private cost of emissions is equal to marginal private benefit for that country. Each country’s emissions impose a cost on other countries, meaning that each country doesn’t face the full cost of their emissions (so the marginal social cost of emissions is greater than the marginal private cost for each country), so they will emit too much. And since all countries have the same incentive, there are too many emissions relative to the socially optimal quantity.
Within a country, we might be able to solve a common resource problem like this by relying on the government to assign some form of property rights. However, there is no supra-national government to perform this role, so that means we need to arrive at a 'private solution' (albeit one where the private actors in the negotiation are countries).
The 2009 Nobel Prize winner Elinor Ostrom noted that users of a common resource may be able to solve the problem by working together (a common governance approach). A number of things would likely be necessary for such common governance to work. Ostrom noted a number of principles for common governance, one of which was that the boundary of the common resource and the group of users must be well-defined. In the case of climate change, the boundary is the environment, and the group of users is all countries. So, that principle would be no problem, provided all countries agreed to be involved (and that may be a challenge).
For common governance to be successful, the user community must also be relatively homogeneous, so that they can trust each other and develop common goals (and norms or customs) for protecting and allocating the resource. Here is where the challenge lies. The user community (countries) are not homogeneous at all. Countries at different levels of development have different goals and aspirations, and see the role of emissions in contributing to those goals and aspirations differently. And it seems unlikely that countries will really trust each other to do the right thing in relation to any climate agreement.
Ostrom also noted that protecting the resource would be best achieved through persuasion rather than coercion, since this would maintain trust within the user community. Persuading other sovereign countries to do something that makes them individually worse off is obviously a challenge. And so climate change remains one of humanity's greatest challenges. This isn't to say that it isn't an important challenge to solve, only that there are good reasons why, nearly 50 years on from the First World Climate Conference in Geneva in 1979, we are still looking for an effective agreement to protect the climate.
Don't just take my word for it though. This 2012 article by Niggol Seo (University of Sydney), published in the journal Economic Affairs (sorry, I don't see an ungated version online), outlines the case, supported by some estimates of the globally optimal policy (as it would have been at the time). Seo uses the model results to outline the incentives that each of thirteen world regions face in global negotiations over climate change. Seo compares a business-as-usual (BAU) scenario with a scenario based on the globally optimal policy (GOP). Focusing on the GOP scenario, the net costs of addressing climate change in that scenario for seven of the largest world regions are shown by Figure 2 from the paper:
Notice the large costs that China (green) and the US (blue) would face over the entire period up to the end of the century. It should be little wonder, then, that those two countries in particular would have less incentive to agree to emissions restrictions to address climate change. In contrast, the EU, India, Africa, Latin America, and Russia face more modest costs initially, and by 2075 (or 2065 in the case of Africa), the GOP scenario actually shows net benefits for those regions. Again, it should be little wonder that they have greater incentive to support of climate change agreements. Seo concludes that:
...some countries have a strong incentive to push for global regulation due to the expected reduction in climate related damages. The optimal regulation saves these countries hundreds of billions dollars annually by the century’s end. However, it would cause additional costs to China, Russia, Canada and the USA.
To that, I would observe that it particularly impacts China and the US. Climate change is a challenging problem. For an efficient global agreement that would adequately address this challenge, we need all countries to participate. However, the incentives do not necessarily help us to achieve cooperation. Countries that face relatively low net costs from addressing climate change may need to offer transfers, concessions, technology, or some other form of compensation to countries that face high net costs, in order to change their incentives and get them on board. We may not think that outcome is fair. However, achieving an efficient and effective agreement may require some compromise on fairness, if that is what is needed to ensure that the incentives encourage all countries to participate.
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