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Viewing cable 07GUANGZHOU377, Let's Make a Deal: Slow Start for Cross Border Emissions
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| Reference ID | Created | Released | Classification | Origin |
|---|---|---|---|---|
| 07GUANGZHOU377 | 2007-03-23 09:04 | 2011-08-23 00:00 | UNCLASSIFIED//FOR OFFICIAL USE ONLY | Consulate Guangzhou |
VZCZCXRO3403
RR RUEHCN RUEHGH RUEHHM RUEHLN RUEHMA RUEHPB RUEHPOD RUEHVC
DE RUEHGZ #0377/01 0820904
ZNR UUUUU ZZH
R 230904Z MAR 07
FM AMCONSUL GUANGZHOU
TO RUEHC/SECSTATE WASHDC 5920
INFO RUEHOO/CHINA POSTS COLLECTIVE
RUCPDOC/USDOC WASHDC
RHEBAAA/USDOE WASHDC
RUEAEPA/HQ EPA WASHDC
RUEHZN/ENVIRONMENT SCIENCE AND TECHNOLOGY COLLECTIVE
RUEAIIA/CIA WASHDC
RUEKJCS/DIA WASHDC
RHHMUNA/HQ USPACOM HONOLULU HI
UNCLAS SECTION 01 OF 03 GUANGZHOU 000377
SIPDIS
SENSITIVE
SIPDIS
DOE FOR INTERNATIONAL/PUMPHREY
DOE ALSO FOR EERE/DIXON
USDOC FOR NOAA/OFFICE OF GLOBAL PROGRAMS/BUIZER
USDOC ALSO FOR 4420/ITA/MAC/MCQUEEN, DAS LEVINE
EPA FOR OFFICE OF AIR AND RADIATION/MCLEAN
EPA ALSO FOR INTERNATIONAL/YANG AND THOMPSON
STATE FOR EAP/CM, OES/OGC, OES/ENV AND OES/PCI/STEWART
STATE ALSO PASS USTR FOR STRATFORD, CELICO and CHINA OFFICE
USPACOM FOR FPA
E.O. 12958: N/A
TAGS: SENV ENRG PGOV CH
SUBJECT: Let's Make a Deal: Slow Start for Cross Border Emissions
Trading Pilot
REF: A. 06 Hong Kong 3633 B. 06 Guangzhou 30165
(U) THIS DOCUMENT IS SENSITIVE BUT UNCLASSIFIED. PLEASE PROTECT
ACCORDINGLY. NOT FOR RELEASE OUTSIDE U.S. GOVERNMENT CHANNELS. NOT
FOR PUBLICATION ON THE INTERNET.
¶1. (SBU) Summary: The long-planned Guangdong-Hong Kong cross-border
emissions trading pilot program was implemented on January 31, 2007.
Despite years of cooperative planning between both regions'
environmental protection bureaus, no deals have yet been struck.
Furthermore, the plan has been met with criticism from Hong Kong
lawmakers and potential participants due to the lack of transparency
and uneven enforcement on the Guangdong side of the border and a
limited participant pool. The Guangdong Environmental Protection
Bureau had little to say in response to voiced concerns. The
emissions trading framework as currently implemented does not appear
to offer much help in meeting agreed upon emission reductions in the
Pearl River Delta by the target of 2010. There have been no deals
involving emission credits so far and prime Guangdong candidates
have not even begun to engage potential Hong Kong purchasers. End
Summary.
Emissions Trading Framework Genesis
-----------------------------------
¶2. (U) In April 2002, Hong Kong and Guangdong province signed a
joint declaration on air quality for the Pearl River Delta (PRD).
The agreement put forth targets for emission reductions of 40% for
sulfur dioxide, 20% for nitrogen oxide, and 55% for particulates and
volatile organic compounds from 1997 levels by the year 2010.
Notably, carbon dioxide was left out of the reduction agreement.
After setting up a joint team to look at emission monitoring
techniques and emission reduction technology, the team introduced
the idea of a cross-border emissions trading framework in late 2002
as a method to further help power plants meet the agreed upon
targets.
¶3. (SBU) According to the Guangdong Environmental Protection Bureau
(EPB) policy discussions within the Guangdong government delayed the
emissions trading plan from progressing for almost four years. In
the meantime, the Guangdong EPB investigated and closely monitored
the first sulfur dioxide trading scheme in China, a regional system
where the first trades were between two power plants in Jiangsu
province in July 2003. In early 2006, the Hong Kong-Guangdong plan
began to move forward but implementation slipped until January
¶2007.
Trading Framework Details
-------------------------
¶4. (U) The implemented emission trading framework is strictly
voluntary and is open only to coal-fired power plants in Hong Kong
or the Pearl River Delta in Guangdong province. All deals must
include one plant in Hong Kong and one in Guangdong so mainland-only
emission trades are currently not allowed. Amounts, durations, and
prices are totally at the discretion of the parties involved in the
deal with no limitations set by the framework.
¶5. (U) Once a deal is struck; the details must be reported to both
the Guangdong EPB and the Hong Kong Environmental Protection
Department (EPD). The corresponding EPB or EPD must evaluate that
the power plant selling emission credits actually has enough
emissions under the cap to complete the deal. After this approval,
the power plant must have real-time emissions monitors installed if
they are not already in place. As Guangdong's power plants are
generally newer and all plants over 125 MW are required to have
desulphurization scrubbers by 2010, the expected flow of emissions
credits is from Guangdong to Hong Kong.
Criticism Abounds in Hong Kong
------------------------------
¶6. (U) Criticism from Hong Kong lawmakers, media, and other
GUANGZHOU 00000377 002 OF 003
potential stakeholders is that the framework's lack of transparency
and uniform measurement systems could make the system prone to
manipulation (reftel A). Revelations last summer that Hong Kong and
Guangdong used different measuring scales to calculate emissions
reinforced concerns about the lack of accountability on the
Guangdong side. Additionally, the limited pool of participants on
both sides excludes many of the worst sources of polluting emissions
such as factories and therefore the framework won't do much to helpQhe problem. The overall concern is that Hong Kong is likely to pay
Guangdong for emission reductions that might not even actually
exist.
Guangdong EPB Response Short on Answers
---------------------------------------
¶7. (SBU) During a meeting on March 2 with the Guangdong EPB, General
Affairs Office Director Guo Han Yi, countered these criticisms
stating that the framework was still just a pilot program and both
sides recognized that it still has loopholes in it. Guo said that
there are currently 16 shared monitoring sites, 3 in Hong Kong and
13 in Guangdong province, which can be seen by both the Guangdong
EPB and Hong Kong EPD. Furthermore, any power plant participating
in emissions trading would also have to be able to be monitored by
both organizations. After over one month there have been no deals.
Mr. Guo believed Guangdong Yudean Group, Guangdong's largest owner
of power plants, and China Light and Power in Hong Kong were in
discussions but since there was no requirement to report until a
deal was made, he could not be sure.
¶8. (SBU) When asked about the limited pool of participants, Mr. Guo
responded that over 50% of all sulfur dioxide emissions in both
areas came from power plants. He further commented there were no
plans to add in other fixed-point polluters such as factories.
Asked, why carbon dioxide was not included in the trading framework
or monitoring, Guo said that there was no national standard for
carbon dioxide. Finally, Mr. Guo equivocated that the Guangdong EPB
has confidence it can meet the reduction goals of the 2010 agreement
with Hong Kong but until the mid-term evaluation report comes out
later this year, he is unclear how far Guangdong has to go.
Guangdong EPB would like to increase inspections and improve
enforcement but he admitted that environmental challenges were
growing at least as fast as the EPB's financial and human resources,
making it difficult to stay ahead.
Yudean Has Questions As Well
----------------------------
¶9. (SBU) On March 21 Conoff met with Mr. Zou Shang, Vice Chief
Economist at Guangdong Yudean Group. Yudean produces 29% of the
power for the Pearl River Delta. Mr. Zou stated Yudean owns 14
thermal power plants, 12 of which are coal-fired. All but one of
the power plants with 300 MW or greater generating units have had
desulphurization equipment installed. He further stated that it has
been difficult to meet the yearly reductions of emissions in each
plant, requiring significanQnvestment in equipment and closer
monitoring of coal quality. The government has helped with tax
incentives and low-interest loans to defray costs of pollution
controls.
¶10. (SBU) Mr. Zou said Yudean currently had several power plants
with available emission credits and had been given a copy of the
framework but the company still had many questions about how trades
would work and the company has requested further details.
Furthermore, he confessed Yudean had not had any discussions with
either China Light and Power or Hong Kong Electric and was not even
sure if either company had a need to buy emission credits.
Challenges Remain
-----------------
¶11. (SBU) As some in Hong Kong have justifiably voiced, several
issues still remain for the framework to be successful.
Transparency is an issue. While there are shared monitoring
GUANGZHOU 00000377 003 OF 003
stations in Guangdong, access to shared emissions monitors is not
available in real time to the Hong Kong EPD, although it is to the
Guangdong EPB, but is rather updated to a web site once each day.
Moreover, numerous reports suggest the Guangdong EPB has in the past
adjusted emissions caps and monitoring systems in efforts to make
targets more reachable for power plants. As a case in point, the
Hong Kong EPD freely revealed all emissions caps for each power
plant in Hong Kong but the Guangdong EPB refused to reveal the same
information about any power plants in Guangdong, stating it was a
complex process that depended on too many variables to generalize
and individual plant information was confidential. Yudean stated
the company had no idea how the cap was calculated and it received a
cap number each year for each plant but declined to provide specific
cap numbers.
¶12. (SBU) Limitations in the participant pool and the lack of
provisions to do intra-provincial trades will severely hamper the
usefulness of the current framework. Hong Kong has only two
coal-fired power plants while Guangdong has dozens. Many of the
older, worst polluting power plants in Guangdong are currently over
their caps and will continue to be serious polluters. This will
leave the deals to only the newer plants who have already installed
desulphurization technology. Once these deals are completed, the
need for Hong Kong plants to buy additional credits should be
minimal. Correspondingly the incentive for emissions trading
opportunities to entice other Guangdong plants to install
desulphurization technology ahead of regulated timetables will be
minimized.
Comment
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¶13. (SBU) While some commendation is merited for an attempt to bring
a market-oriented approach to help the Pearl River Delta region
clean up its air, in its current form the implemented emissions
trading framework is unlikely to put even the smallest dent in
reducing emissions in the region. Without expansion of the program,
the same market-based incentives that are being trumpeted as a
positive step in reducing emissions for Hong Kong power plants will
be quickly forgotten and reliance in Guangdong will remain on the
current system of regulation by an already overburdened and
non-transparent bureaucracy.
ROCK