Defragmenting European Union climate policy

There is broad agreement that the European Union’s post-2030 climate policy architecture – the framework of rules to reduce greenhouse gas emissions – needs to be simpler and more flexible, with market actors less constrained in how they mitigate emissions. However, simplification should not compromise the EU’s climate goals and changing the architecture is politically contentious. Ringfencing of established climate compliance mechanisms and any delay in containing the emissions of lagging sectors could result in even more fragmentation in an already-fragmented climate-policy architecture. The cost of maintaining this fragmentation will rise, making the system even more inefficient. Higher costs and limited control over emissions in some sectors will undermine the EU’s ability to credibly signal commitment to its climate target, undermining the confidence of investors and international partners. To avoid these risks, simplicity and flexibility must mean the application of a carbon price across all parts of the EU climate architecture, with prices converging gradually. This can be achieved by linking the different systems through exchange rates that guide convergence towards a common carbon price, with the EU emissions trading system as the central hub. Climate policy is most efficient when emissions reductions take place where they deliver the greatest climate benefit at lowest cost. Today’s fragmented climate architecture prevents the efficient allocation of abatement resources, such as clean energy. Firms increasingly have incentives – arbitrage opportunities – to shift mitigation activities between differently priced compliance systems, raising overall costs. As more sectors and international links are added to the EU’s climate architecture, these distortions will grow, requiring ever more intrusive and politicised regulation. Managed convergence of different climate policies should become a core design principle of the EU’s climate policy architecture. By predictably phasing out fragmentation, overly pervasive regulation and complexity can be avoided.