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A carbon pricing scheme in Australia was introduced by the Gillard Labor minority government in 2011 as the ''
Clean Energy Act 2011 The Clean Energy Act 2011 was an Act of the Australian Parliament, the main Act in a package of legislation that established an Australian emissions trading scheme (ETS), to be preceded by a three-year period of fixed carbon pricing in Austral ...
'' which came into effect on 1 July 2012. Emissions from companies subject to the scheme dropped 7% upon its introduction. As a result of being in place for such a short time, and because the then Opposition leader
Tony Abbott Anthony John Abbott (; born 4 November 1957) is an Australian former politician who served as the 28th prime minister of Australia from 2013 to 2015. He held office as the leader of the Liberal Party of Australia and was the member of parli ...
indicated he intended to repeal "the
carbon tax A carbon tax is a tax levied on the carbon emissions from producing goods and services. Carbon taxes are intended to make visible the hidden Social cost of carbon, social costs of carbon emissions. They are designed to reduce greenhouse gas emis ...
", regulated organizations responded rather weakly, with very few investments in emissions reductions being made. The scheme was repealed on 17 July 2014, backdated to 1 July 2014. In its place the
Abbott government The Abbott government was the federal executive government of Australia led by the 28th Prime Minister Tony Abbott. The government was made up of members of the Liberal–National Coalition. The Leader of The Nationals, Warren Truss, served ...
set up the Emission Reduction Fund in December 2014. Emissions thereafter resumed their growth evident before the tax. The
carbon price Carbon pricing (or pricing) is a method for governments to mitigate climate change, in which a monetary cost is applied to greenhouse gas emissions. This is done to encourage polluters to reduce fossil fuel combustion, the main driver of climat ...
was part of a broad energy reform package called the Clean Energy Futures Plan, which aimed to reduce
greenhouse gas emissions Greenhouse gas (GHG) emissions from human activities intensify the greenhouse effect. This contributes to climate change. Carbon dioxide (), from burning fossil fuels such as coal, petroleum, oil, and natural gas, is the main cause of climate chan ...
in Australia by 5% below 2000 levels by 2020 and 80% below 2000 levels by 2050. Although Australia does not levy a direct carbon price, the plan set out to achieve these targets by encouraging Australia's largest emitters to increase energy efficiency and invest in
sustainable energy Energy system, Energy is sustainability, sustainable if it "meets the needs of the present without compromising the ability of future generations to meet their own needs." Definitions of sustainable energy usually look at its effects on the e ...
. The scheme was administered by the
Clean Energy Regulator The Clean Energy Regulator (CER) is an Australian independent statutory authority responsible for implementing legislation to reduce carbon emissions and increase the use of clean energy. It was established on 2 April 2012 through the ''Clean E ...
. Compensation to industry and households was funded by the revenue derived from the charge. The scheme required entities which emit over 25,000 tonnes of
carbon dioxide equivalent Global warming potential (GWP) is a measure of how much heat a greenhouse gas traps in the atmosphere over a specific time period, relative to carbon dioxide (). It is expressed as a multiple of warming caused by the same mass of carbon dioxide ( ...
greenhouse gases Greenhouse gases (GHGs) are the gases in the atmosphere that raise the surface temperature of planets such as the Earth. Unlike other gases, greenhouse gases absorb the radiations that a planet emits, resulting in the greenhouse effect. T ...
per year, and which were not in the transport or agriculture sectors, to obtain emissions permits, called carbon units. Carbon units were either purchased from the government or issued free as part of industry assistance measures. As part of the scheme, personal
income tax An income tax is a tax imposed on individuals or entities (taxpayers) in respect of the income or profits earned by them (commonly called taxable income). Income tax generally is computed as the product of a tax rate times the taxable income. Tax ...
was reduced for those earning less than per year and the tax-free threshold was increased from to . Initially the price of a permit for one tonne of carbon was fixed at for the 2012–13 financial year, with unlimited permits being available from the government. The fixed price rose to for 2013–14. The government had announced that the scheme was part of a transition to an
emissions trading scheme Carbon emission trading (also called carbon market, emission trading scheme (ETS) or cap and trade) is a type of emissions trading scheme designed for carbon dioxide (CO2) and other greenhouse gases (GHGs). A form of carbon pricing, its purpose ...
in 2014–15, where the available permits will be limited in line with a pollution cap. The scheme primarily applied to electricity generators and industrial sectors. It did not apply to road transport and agriculture. The
Department of Climate Change and Energy Efficiency The Department of Climate Change, Energy, the Environment and Water (DCCEEW) is a department of the Australian Government. The department was established on 1 July 2022, superseding the water and environment functions from the Department of A ...
stated that in June 2013 only 260 entities were subject to the scheme, of which approximately 185 were liable to pay for carbon units. Domestic aviation did not face the carbon price scheme, but was subject to an additional fuel excise levy of approximately 6 cents per liter. In February 2012, the ''
Sydney Morning Herald ''The Sydney Morning Herald'' (''SMH'') is a daily tabloid newspaper published in Sydney, Australia, and owned by Nine Entertainment. Founded in 1831 as the ''Sydney Herald'', the ''Herald'' is the oldest continuously published newspaper in ...
'' reported that Clean Energy Future carbon price scheme had not deterred new investment in the coal industry, as spending on exploration had increased by 62% in 2010–2011, more than any other mineral commodity. The government agency Geoscience Australia reported that investment in coal prospecting reached $520 million in 2010–2011. Falls in carbon emissions were observed following implementation of this policy. It was noted that emissions from sectors subject to the pricing mechanism were 1.0% lower and nine months after the introduction of the pricing scheme, Australia's carbon dioxide emissions from electricity generation had fallen to a 10-year low, with coal generation down 11% from 2008 to 2009. However, attribution of these trends to carbon pricing have been disputed, with Frontier Economics claiming trends are largely explained by factors unrelated to the carbon tax. Electricity demand had been falling and in 2012 was at the lowest level seen since 2006 in the
National Electricity Market The National Electricity Market (NEM) is an arrangement in Australia's electricity sector for the connection of the electricity transmission grids of the eastern and southern Australia states and territories to create a cross-state wholesale ele ...
.


History

In 2003, the
Howard Government The Howard government refers to the Government of Australia, federal executive government of Australia led by Prime Minister John Howard between 11 March 1996 and 3 December 2007. It was made up of members of the Liberal Party of Australia, Li ...
was close to creating an emissions trading scheme, but business lobbying caused the government to stop considering it in September of that year. In October 2006 the
Stern Review The Stern Review on the Economics of Climate Change is a 700-page report released for the Government of the United Kingdom on 30 October 2006 by economist Nicholas Stern, chair of the Grantham Research Institute on Climate Change and the Envir ...
on the effect of climate change on the world's economy was released for the British government. This report recommended a range of measures including
ecotax An environmental tax, ecotax (short for ecological taxation), or green tax is a tax levied on activities which are considered to be harmful to the environment and is intended to promote environmentally friendly alternatives via economic incentive ...
es to address the
market failure In neoclassical economics, market failure is a situation in which the allocation of goods and services by a free market is not Pareto efficient, often leading to a net loss of economic value.Paul Krugman and Robin Wells Krugman, Robin Wells (2006 ...
represented by climate change with the least amount of economic and social disruption. In response to this report and subsequent pressure from the
Kim Beazley Kim Christian Beazley (born 14 December 1948) is an Australian former politician and diplomat. Since 2022 he has served as chairman of the Australian War Memorial. Previously, he was leader of the Australian Labor Party (ALP) and Leader of the ...
led Labor opposition, in December 2006 the
Howard government The Howard government refers to the Government of Australia, federal executive government of Australia led by Prime Minister John Howard between 11 March 1996 and 3 December 2007. It was made up of members of the Liberal Party of Australia, Li ...
established the Prime Ministerial Task Group on Emissions Trading, chaired by Peter Shergold, to advise on the implementation of an
emissions trading scheme Carbon emission trading (also called carbon market, emission trading scheme (ETS) or cap and trade) is a type of emissions trading scheme designed for carbon dioxide (CO2) and other greenhouse gases (GHGs). A form of carbon pricing, its purpose ...
(ETS) in Australia. In opposition, Kevin Rudd called for a cut to greenhouse gas emissions by 60% before 2050. Both the incumbent
Howard government The Howard government refers to the Government of Australia, federal executive government of Australia led by Prime Minister John Howard between 11 March 1996 and 3 December 2007. It was made up of members of the Liberal Party of Australia, Li ...
and the
Rudd ''Scardinius'' is a genus of freshwater ray-finned fishes belonging to the family Leuciscidae, which includes the daces, Eurasian minnows and related species. The fishes in this genus are commonly called rudds. Locally, the name "rudd" without ...
Labor Labour or labor may refer to: * Childbirth, the delivery of a baby * Labour (human activity), or work ** Manual labour, physical work ** Wage labour, a socioeconomic relationship between a worker and an employer ** Organized labour and the labour ...
opposition promised to implement an
emissions trading scheme Carbon emission trading (also called carbon market, emission trading scheme (ETS) or cap and trade) is a type of emissions trading scheme designed for carbon dioxide (CO2) and other greenhouse gases (GHGs). A form of carbon pricing, its purpose ...
(ETS) before the 2007 federal election. Following the release of the final Shergold report, the Howard government committed to introduce an ETS in June 2007. Going into the 2007 federal election, the Labor opposition party presented itself as a "pro-climate" alternative to the Government, with
Kevin Rudd Kevin Michael Rudd (born 21 September 1957) is an Australian diplomat and former politician who served as the 26th prime minister of Australia from 2007 to 2010 and June to September 2013. He held office as the Leaders of the Australian Labo ...
, who had by then deposed Beazley as leader, famously describing climate change as "the great moral challenge of our generation". Labor differentiated itself from the government by promising an ETS with an earlier start date of 2010 rather than the 2012 timeframe advocated by Howard. It also promised ratification of the
Kyoto Protocol The was an international treaty which extended the 1992 United Nations Framework Convention on Climate Change (UNFCCC) that commits state parties to reduce greenhouse gas emissions, based on the scientific consensus that global warming is oc ...
, investment in clean coal and renewable energy, and slightly more aggressive targets for renewable energy. Labor won the election on 24 November 2007, and on 3 December 2007 the
Rudd government Rudd Government may refer to the following Australian governments: * Rudd government (2007–10) * Rudd government (2013) {{Dab ...
signed the ratification of the
Kyoto Protocol The was an international treaty which extended the 1992 United Nations Framework Convention on Climate Change (UNFCCC) that commits state parties to reduce greenhouse gas emissions, based on the scientific consensus that global warming is oc ...
at the
2007 United Nations Climate Change Conference __NOTOC__ The 2007 United Nations Climate Change Conference took place at the Bali International Conference Centre, Nusa Dua, Bali, Indonesia, between December 3 and December 15, 2007 (though originally planned to end on 14 December). Representa ...
. By ratifying the Kyoto Protocol, Australia committed to keeping emissions to no more than 108% of its 1990 emissions level by 2012. Australia's ratification came into effect on 11 March 2008. The
Rudd government Rudd Government may refer to the following Australian governments: * Rudd government (2007–10) * Rudd government (2013) {{Dab ...
began negotiating the passage of an ETS through the Parliament. The Opposition led by
Brendan Nelson Brendan John Nelson (born 19 August 1958) is an Australian business leader, physician and former politician. He served as the federal Leader of the Opposition from 2007 to 2008, going on to serve as Australia's senior diplomat to the European ...
called for the vote on the government's ETS be delayed until after the United Nations climate change summit in Copenhagen in December 2009. Prime Minister Rudd said in response that it would be "an act of absolute political cowardice, an absolute failure of leadership not to act on climate change until other nations had done so" and the government pursued the early introduction of the Scheme. On 16 July 2008, the Rudd government released a
green paper In the United Kingdom, the Commonwealth countries, Hong Kong, the United States and the European Union, a green paper is a tentative government report and consultation document of policy proposals for debate and discussion. A green paper represen ...
for its
Carbon Pollution Reduction Scheme The Carbon Pollution Reduction Scheme (or CPRS) was a cap-and-trade emissions trading scheme for anthropogenic greenhouse gases proposed by the Rudd government, as part of its climate change policy, which had been due to commence in Australia i ...
(CPRS) (also known as Australia's ETS), outlining the intended design of the scheme. The CPRS was criticised by those who were both for and against action to mitigate climate change. Environmental lobby groups protested that the emissions reductions targets were too low, and that the level of assistance to polluters was too high. Industry and business lobby groups however argued for more permits and assistance to offset the economic impacts of the scheme on many enterprises, particularly during the
2008 financial crisis The 2008 financial crisis, also known as the global financial crisis (GFC), was a major worldwide financial crisis centered in the United States. The causes of the 2008 crisis included excessive speculation on housing values by both homeowners ...
.
Malcolm Turnbull Malcolm Bligh Turnbull (born 24 October 1954) is an Australian former politician and businessman who served as the 29th prime minister of Australia from 2015 to 2018. He held office as Liberal Party of Australia, leader of the Liberal Party an ...
became the new Liberal Opposition Leader on 18 September 2008. On 30 September 2008, the
Garnaut Climate Change Review Professor Ross Garnaut led two climate change reviews, the first commencing in 2007 and the second in 2010. The first Garnaut Climate Change Review was a study by Professor Ross Garnaut, commissioned by then Opposition Leader, Kevin Rudd and ...
, commissioned in April 2007 by Rudd when he was leader of the Opposition, released its final report. Garnaut recommended a price between $20 and $30 per tonne of
carbon dioxide Carbon dioxide is a chemical compound with the chemical formula . It is made up of molecules that each have one carbon atom covalent bond, covalently double bonded to two oxygen atoms. It is found in a gas state at room temperature and at norma ...
(CO2) equivalent with a rise of 4% each year. A more detailed
white paper A white paper is a report or guide that informs readers concisely about a complex issue and presents the issuing body's philosophy on the matter. It is meant to help readers understand an issue, solve a problem, or make a decision. Since the 199 ...
on the CPRS was released on 15 December 2008. Unable to secure the support of the
crossbench A crossbencher is a minor party or independent politician, independent member of some legislatures, such as the Parliament of Australia. In the British House of Lords the term refers to members of the parliamentary group of non-political peers. ...
for their preferred model, the government entered negotiations with Turnbull, and in the lead up to the Copenhagen Conference, presented an amended CPRS scheme, with the support of Turnbull. The Turnbull-led Opposition supported the CPRS scheme in principle, although at times over 2009 they indicated disagreement with various details including the timing of implementation of the scheme, timing of the vote on the relevant legislation and on the level of assistance to be provided to polluting industries. The Opposition was able to negotiate greater compensation for polluters affected by the scheme in November 2009. Shortly before the Senate was due to vote on the carbon bills, on 1 December 2009
Tony Abbott Anthony John Abbott (; born 4 November 1957) is an Australian former politician who served as the 28th prime minister of Australia from 2013 to 2015. He held office as the leader of the Liberal Party of Australia and was the member of parli ...
replaced Turnbull as leader of the Liberal Party. Abbott immediately called a secret ballot on support for the ETS among coalition MPs, which was overwhelmingly rejected. The Coalition then withdrew their support for the carbon pricing policy and joined the Greens and Independents in voting against the relevant legislation in the
Parliament of Australia The Parliament of Australia (officially the Parliament of the Commonwealth and also known as the Federal Parliament) is the federal legislature of Australia. It consists of three elements: the Monarchy of Australia, monarch of Australia (repr ...
on 2 December 2009. As the Rudd government required the support of either the Coalition or the Greens to secure passage of the bill, it was defeated in the Senate. Abbott described Labor's ETS plan as a 'Great big tax on everything'. Abbott announced a new Coalition policy on carbon emission reduction in February 2010, which committed the Coalition to a 5% reduction in emissions by 2020. Abbott proposed the creation of an 'emissions reduction fund' to provide 'direct' incentives to industry and farmers to reduce carbon emissions. In April 2010, Rudd deferred attempts to advance the scheme to at least 2013, opting not to present the legislation to the Senate a second time, creating a trigger for a
double dissolution A double dissolution is a procedure permitted under the Australian Constitution to resolve deadlocks in the bicameral Parliament of Australia between the House of Representatives (lower house) and the Senate (upper house). A double dissolutio ...
election. In June 2010,
Julia Gillard Julia Eileen Gillard (born 29 September 1961) is an Australian former politician who served as the 27th prime minister of Australia from 2010 to 2013. She held office as the leader of the Labor Party (ALP), having previously served as the ...
replaced Rudd as leader of the Labor Party and became prime minister. Factional leader and key Gillard supporter
Bill Shorten William Richard Shorten (born 12 May 1967) is an Australian former politician and trade unionist. He was the leader of the Australian Labor Party (ALP) and Leader of the Opposition (Australia), Leader of the Opposition from 2013 to 2019. He also ...
said that the sudden announcement of change of policy on the ETS was a factor that had contributed to a collapse in support for Rudd's leadership. Shortly afterwards Gillard called a federal election for 21 August 2010. During the election campaign Gillard stated that she supported a price on carbon emissions and that she would prosecute the case for action for as long as she needed to win community support. However, she also indicated that she would not introduce carbon pricing until there was a sufficient consensus on the issue, that any carbon price legislated would not come into effect until after the 2013 election, and she specifically ruled out the introduction of a "carbon tax". The result of the election left Australia with its first
hung parliament A hung parliament is a term used in legislatures primarily under the Westminster system (typically employing Majoritarian representation, majoritarian electoral systems) to describe a situation in which no single political party or pre-existing ...
in 70 years. To form a majority in the
House of Representatives House of Representatives is the name of legislative bodies in many countries and sub-national entities. In many countries, the House of Representatives is the lower house of a bicameral legislature, with the corresponding upper house often ...
both of the major parties needed to acquire the support of
cross-bencher A crossbencher is a minor party or independent politician, independent member of some legislatures, such as the Parliament of Australia. In the British House of Lords the term refers to members of the parliamentary group of non-political peers. ...
s, including the Greens. After two weeks of negotiations Gillard had enough support to gain a majority including the support of the Greens and their single MP in the House,
Adam Bandt Adam Paul Bandt (born 11 March 1972) is an Australian former politician and industrial lawyer who was the leader of the Australian Greens from 2020 to 2025. He previously served as the member of parliament (MP) for the Victoria (state), Victori ...
. Gillard, therefore, remained prime minister and Abbott remained in Opposition. One of the conditions for Greens support was that the formation of a cross-party parliamentary committee to determine policy on climate change. Gillard honoured that agreement and on 27 September 2010 the Multi-Party Climate Change Committee (MPCCC) was formed, its terms of reference including that it was to report to Cabinet on ways to introduce a carbon price. The MPCCC agreed on the introduction of a fixed carbon price commencing 1 July 2012, transitioning to a flexible-price cap-and-trade ETS on 1 July 2015. Initially the price of permits is fixed and the quantity unlimited i.e. there is no cap; the scheme thus functions similarly, and is popularly referred to as a tax. In February 2011, the government proposed the Clean Energy Bill, which the opposition claimed to be a broken election promise. The Liberal Party vowed to overturn the bill if it was elected. The Gillard government had asked the
Productivity Commission The Productivity Commission (PC) is the Australian Government's principal review and advisory body on microeconomic policy, regulation and a range of other social and environmental issues. The PC was created as an independent authority by th ...
to report on the steps taken by eight major economies to address climate change. In June 2011, the report found that more than 1,000 climate policies were already enacted across the globe. It also supported a market-based carbon price as being the most cost-effective way to reduce emissions. The report's findings were one of the major reasons that support for the carbon tax was provided by independent
Tony Windsor Antony Harold Curties Windsor, (born 2 September 1950) is a former Australian politician. Windsor was an Independent (politician), independent member for the New South Wales Legislative Assembly seat of electoral district of Tamworth, Tamworth ...
. Windsor made it clear that he would not support the clean energy legislation if it included a carbon tax on transport fuels. He did not want to penalise people who lived in rural areas, where there was no public transport as an alternative to private vehicles. The Clean Energy Plan was released on 10 July 2011. The
Clean Energy Bill 2011 The Clean Energy Act 2011 was an Act of the Australian Parliament, the main Act in a package of legislation that established an Australian emissions trading scheme (ETS), to be preceded by a three-year period of fixed carbon pricing in Australi ...
passed the
Australian House of Representatives The House of Representatives is the lower house of the bicameralism, bicameral Parliament of Australia, the upper house being the Australian Senate, Senate. Its composition and powers are set out in Chapter I of the Constitution of Australia. ...
in October 2011 and the
Australian Senate The Senate is the upper house of the Bicameralism, bicameral Parliament of Australia, the lower house being the Australian House of Representatives, House of Representatives. The powers, role and composition of the Senate are set out in Chap ...
in November 2011 and was thus brought into law. On 1 July 2012 the Australian Federal government introduced a carbon price scheme. To offset the impact of the tax on some sectors of society, the government reduced income tax (by increasing the tax-free threshold) and increased pensions and welfare payments slightly to cover expected price increases, as well as introducing compensation for some affected industries. On 17 July 2014, a report by the
Australian National University The Australian National University (ANU) is a public university, public research university and member of the Group of Eight (Australian universities), Group of Eight, located in Canberra, the capital of Australia. Its main campus in Acton, A ...
estimated that the Australian scheme had cut carbon emissions by as much as 17 million tonnes, the biggest annual reduction in greenhouse gas emissions in 24 years of records in 2013 as the carbon tax helped drive a large drop in pollution from the electricity sector. On 17 July 2014, the
Abbott government The Abbott government was the federal executive government of Australia led by the 28th Prime Minister Tony Abbott. The government was made up of members of the Liberal–National Coalition. The Leader of The Nationals, Warren Truss, served ...
passed repeal legislation through the Senate to abolish the carbon pricing scheme. In its place the government set up the Emission Reduction Fund, paid by taxpayers from consolidated revenue, which according to RepuTex, a markets consultancy, estimated the government's main climate policy may only meet a third of the emissions reduction challenge if Australia is to cut by 5% of 2000 levels by 2020.


Scope and covered emissions

The carbon price came into effect on 1 July 2012 and applied to direct emissions from a facility (scope-1 emissions), but not to indirect emissions (scope-2 emissions). The scheme only applied to facilities which emit more than 25,000 tonnes CO2-e per year, and did not apply to
agriculture Agriculture encompasses crop and livestock production, aquaculture, and forestry for food and non-food products. Agriculture was a key factor in the rise of sedentary human civilization, whereby farming of domesticated species created ...
or to transport fuels. The carbon price was set at
AUD The Australian dollar ( sign: $; code: AUD; also abbreviated A$ or sometimes AU$ to distinguish it from other dollar-denominated currencies; and also referred to as the dollar or Aussie dollar) is the official currency and legal tender of Au ...
$23 per tonne of emitted CO2-e on selected fossil fuels consumed by major industrial emitters and government bodies such as councils. Agricultural emissions were exempt due to difficulty in tracking emissions and the related complexity of administering such a scheme. Households and business use of light vehicles did not incur a carbon price. However, changes to the fuel tax regime were proposed to effectively impose a carbon tax on business liquid and gaseous fuel emissions. There were plans for heavy on-road vehicles to pay from 1 July 2014. In effect, the scope of the scheme meant that only a small number of large electricity generators and larger industrial plants were subject to the carbon price scheme. The tax was payable by surrendering carbon units, which had been either purchased (at $20 per tonne in 2012–13) or acquired free under an industry assistance program. The pricing mechanism was expected to cover 60% of Australia's carbon emissions. 75% of each company's annual obligation were to be paid by 15 June each year with the remaining 25% by the following 1 February. A list of companies which had paid the carbon tax, and the amount which each had paid, was published by the
Clean Energy Regulator The Clean Energy Regulator (CER) is an Australian independent statutory authority responsible for implementing legislation to reduce carbon emissions and increase the use of clean energy. It was established on 2 April 2012 through the ''Clean E ...
(CER). This was called the Liable Entities Public Information Database or LEPID. The LEPID for 2012–13 was updated on 12 July 2013 and the companies which were the fifteen largest payers of carbon tax in 2012–13 are shown in the summary below (related companies are grouped together where identifiable). The
Climate Change Authority The Climate Change Authority (CCA) is an Australian Government statutory agency responsible for providing independent advice to government on climate change policy. It was established by and operates under the ''Climate Change Authority Act 201 ...
, a statutory agency, was created to advise the government on the setting of carbon pollution caps, to conduct periodic reviews of the carbon pricing process, and to report on progress towards meeting national targets. These pollution caps were to form the basis for the cap-and-trade structure to commence in 2015.


Industry assistance programs

The Government ran several major 'Industry Assistance' programs to reduce the impact of carbon tax for the 185 affected companies. These have the effect of significantly reducing the actual carbon tax raised.


Jobs and Competitiveness Program

The 'Jobs and Competitiveness Program' was for the non-electricity sector and was targeted at the 'emissions-intensive trade-exposed' activities – that is, companies which emitted a lot of and were exposed to imports or who trade internationally. There was a list of 48 trade-exposed activities, including business such as steel making, alumina refining, cement making and similar activities. Depending on whether a company was 'highly' or 'moderately' emissions intensive, it received 94.5% or 66% of 'average industry carbon costs' supplied as free carbon units. Overall in 2012–13 under the 'Jobs and Competitiveness Program', there were 104 million free carbon units issued to 123 applicants, valued at approximately $2.4 billion. The fifteen largest recipients of free carbon units in 2012–13, with related companies grouped together where identifiable, were: To put this into context, the LEPID list indicated that the total amount of carbon units to be surrendered would be 283 million units for 2012–13. 37% of these were awarded for free under the Jobs and Competitiveness Program.


Coal Fired Generation Assistance

Under the 'Coal Fired Generation Assistance' for coal-based electricity generating companies the Government gave out 42 million of free carbon units each year, valued at almost $5 billion. These were only issued to the generators with the highest amount of emission intensity, above 1.0 tonne of per MWh of energy. These were primarily the
brown coal Lignite (derived from Latin ''lignum'' meaning 'wood'), often referred to as brown coal, is a soft, brown, Combustion, combustible sedimentary rock formed from naturally compressed peat. It has a carbon content around 25–35% and is considered ...
-fired generators in Victoria's Latrobe Valley The free units were shared according to their size and the amount of produced compared to a more efficient black coal-fired power station. The list of companies which received the free units was published by the Clean Energy Regulator. Nine power stations qualified – the big four brown coal plants in Victoria, and five other much smaller plants. The four big brown coal plants in Victoria received the majority share of free carbon units, around 37 million of the 42 million free carbon units in September each year. With an average emissions intensity of 1.3, that effectively meant there was no carbon tax on the first 20 TWh (or approximately 50%) they collectively produced each year.


Steel Transformation Plan package

The Steel Transformation Plan was a package for Australia's two steelmakers. In 2012, payments of were made, to
BlueScope BlueScope Steel Limited is an Australian flat product steel producer that was spun-off from BHP Billiton in 2002. History BlueScope was formed when BHP Billiton spun-off its steel assets on 15 July 2002 as BHP Steel. It was renamed BlueS ...
and to
OneSteel Arrium was an Australian mining and materials company, employing nearly 10,000 workers before going into voluntary administration in 2016 with debts of more than $2 billion. In 2017 it was acquired by British-owned Liberty House Group. Hi ...
.


Effect of the carbon price


Reduction in emissions of greenhouse gases

Because the Australian carbon tax did not apply to all fossil fuels usage, it only had an effect on some of the emitters of greenhouse gases. Among those emitters to which it applied, emissions were significantly lower after introduction of the tax. According to the Investor Group on Climate Change, emissions from companies subject to the tax went down 7% with the introduction of the tax, and the tax was "the major contributor" to this reduction.


Continuing growth in greenhouse emissions

Australia's total greenhouse gas emissions increased by 0.3% in the first six months of the Carbon Tax to December 2012 to 276.5 Mt equiv, while Australia's
gross domestic product Gross domestic product (GDP) is a monetary measure of the total market value of all the final goods and services produced and rendered in a specific time period by a country or countries. GDP is often used to measure the economic performanc ...
grew at a rate of 2.5% per year. Greenhouse emissions from stationary energy (excluding electricity) and transport grew by 4% in the first six months of the carbon tax to December 2012. However, there is a five-year trend for emissions from the electricity generation sector in Australia to decline. Electricity emissions peaked at 38% of the national total in September quarter 2008, coinciding with the start of the
2008 financial crisis The 2008 financial crisis, also known as the global financial crisis (GFC), was a major worldwide financial crisis centered in the United States. The causes of the 2008 crisis included excessive speculation on housing values by both homeowners ...
. In December 2012, electricity emissions were just 33% of national emissions. The decline is due partly to an almost 6% reduction in electricity demand in the National Electricity market since 2008. This fall in electricity demand followed:· * Retail electricity prices rising by approximately 80% over the past five years; · * Reduced economic activity and closure of the Kurri Kurri aluminium smelter in mid-2012; and· * A burst in residential solar PV generation following generous State Government incentives, now all curtailed. Other factors contributing to the five-year fall in greenhouse emissions from the electricity sector are:· * An increase in wind generation supported by the Renewable Energy Target subsidies; and· * Fuel switching from coal to gas. The Australian Government said in July 2013 that the carbon tax was a factor in reducing the emissions intensity in the National Electricity Market from 0.92 t of per MWh to 0.87 in the 11 months following its introduction. Since the carbon tax was introduced, wholesale electricity prices in the National Electricity market increased significantly. The Energy Users Association of Australia in its June 2013 paper said that electricity generators have been able to pass through more than 100% of the cost of the carbon tax''. "If the outcomes observed in the spot market persist then it can be unequivocally concluded that both fossil fuel generators and renewable generators will have gained as a result of emission pricing, at users' expense. Surely this is not what was intended."''


Alternative explanations of emissions reductions

Frontier Economics said the reduction in emissions from the electricity sector in the first year of the carbon tax was '''largely explained by factors unrelated to the carbon tax'.'' The Energy Users Association of Australia (EUAA) said in June 2013 "''we suggest that it cannot be said that pricing emissions has reduced emissions in stationary energy to any meaningful extent''"


Significant announcements which have, or may have, relevance to the carbon tax

AGL – In relation to its purchase of the Loy Yang brown coal fired power station in 2012, one of the single largest emitters of in Australia states “''On the supply side of the business, the most significant strategic development was the decision to buy the Loy Yang A power station. ... The Board also recognised that coal fired generation would be required for decades to come if the demand from Australian households and businesses for electricity was to continue to be satisfied" '' Adelaide Brighton (Australia’s second largest cement producer) “ – ''AdelaideBrighton expects it will significantly mitigate the impact of the carbon tax over the next five years by:· '' * ''Enhancing its import flexibility;· '' * ''Reducing reliance on domestic manufacture; · '' * ''Increasing the use of alternative fuels and cementitious substitutes"'' BlueScope (Australia's largest steelmaker) – "''When funds from the Steel Transformation Plan are taken into account, the Company does not expect to face a net carbon liability over the period''”.


Investments as a result of carbon tax

David Kassulke, the manager of AJ Bush & Sons, expressed grave concerns over the carbon tax during the lead up to its implementation. However, he later stated the carbon tax has had a positive impact on the business. The company expects to cut carbon emissions from 85,000 to 30,000 tonnes per year with the construction of a new
biogas Biogas is a gaseous renewable energy source produced from raw materials such as agricultural waste, manure, municipal waste, plant material, sewage, green waste, Wastewater treatment, wastewater, and food waste. Biogas is produced by anaerobic ...
plant in 2013. "The end result of the introduction of the new biogas technology will not only be a saving of millions of dollars in energy and carbon costs, but also an opportunity for the company to be positioned at the cutting edge of renewable energy technology in the rendering industry, Mr Kassulke said." "It means companies are now looking at ways to use less energy which equates to less cost and a subsequent reduction in the tax that is being levied."That has been the intention of the tax and clearly from that perspective it is working and working well".


Political and industry response

The introduction of a carbon price in Australia was controversial. The day before the 2010 federal election, Prime Minister, Julia Gillard sent out a message regarding carbon pricing, stating "I don't rule out the possibility of legislating a Carbon Pollution Reduction Scheme, a market-based mechanism." However the article also articulated her position on that term of government. "While any carbon price would not be triggered until after the 2013 election... She would legislate the carbon price next term if sufficient consensus existed", and the federal opposition accused the government of breaking an election promise to not introduce a carbon tax. Julia Gillard responded to these accusations by saying that circumstances changed following the 2010 election. Then opposition leader Tony Abbott criticised the carbon pricing policy on economic grounds referring to it as "toxic" and likening it to an octopus embracing the whole of the economy. He pledged to repeal the tax after the 18 clean energy bills passed through the House of Representatives and stated that the next election would be a referendum on the "carbon tax". The opposition (and since the 2013 election the Abbott government) proposed an alternative "direct-action" carbon emissions reduction scheme. Modelling produced by the Department of the Treasury indicated that this scheme would cost twice as much as the Clean Energy Futures Plan. Abbott was unable to find an Australian economist who supported his policy, although he did cite international economists who are supportive. Tony Abbott's "Direct Action Plan" has been criticised because there is no disincentive to continue polluting at the same rate, meaning that emissions will increase rather than decrease by 2020. In addition, "under Direct Action it is the public, not polluters who pay." The
Australian Renewable Energy Agency The Australian Renewable Energy Agency (ARENA) is an independent agency of the Australian federal government, established in 2012 to manage Australia's renewable energy programs, with the objective of increasing supply and competitiveness of Au ...
(ARENA) was established as part of the Clean Energy Fund, and commenced operations on 1 July 2012. It consolidated existing
renewable energy Renewable energy (also called green energy) is energy made from renewable resource, renewable natural resources that are replenished on a human lifetime, human timescale. The most widely used renewable energy types are solar energy, wind pow ...
technology innovation programs. It had funds to provide financial assistance to research, develop, demonstrate, deploy and commercialise
renewable energy in Australia Renewable energy in Australia is based mainly on biomass, solar photovoltaics, solar, wind power, wind, and hydroelectricity, hydro generation technologies. Over a third of all electricity generated in Australia is now from renewable sources, ...
and related technologies. The government-established but independent
Clean Energy Finance Corporation The Clean Energy Finance Corporation (CEFC) is an Australian Government-owned green bank that invests in clean energy, to help achieve Australia's national goal of net zero emissions by 2050. The CEFC invests billions of dollars on behalf of th ...
(CEFC) commenced investment operations from 1 July 2013, with a focus on investments in renewable energy, low-emissions and energy efficiency technology and the manufacturing companies that produce materials used in such technologies. The majority of big emitters in Australia supported a price on carbon as at July 2012. However business groups and some big emitters, especially in the mining sector, were opposed to the pricing scheme. Research by Preston Teeter and Jorgen Sandberg at the University of Queensland revealed that liable organisations responded with very few investments in emissions reduction activities, largely due to the great deal o
policy uncertainty
surrounding the scheme. One criticism of the carbon pricing scheme has been that Australia should not proceed with its introduction ahead of other countries. However, according to the
Department of Climate Change and Energy Efficiency The Department of Climate Change, Energy, the Environment and Water (DCCEEW) is a department of the Australian Government. The department was established on 1 July 2022, superseding the water and environment functions from the Department of A ...
, Australia will be one of around 50 jurisdictions implementing similar schemes worldwide. The starting price of $23 per tonne has also been a point of contention. Emissions figures from the 2010–11 financial year suggest the electricity generation sector may be due to pay around . Loans have been made available so that electricity generators can purchase carbon permits.
Macquarie Generation Macquarie Generation is an electricity generation company in New South Wales, Australia, owned by AGL Energy, and has a portfolio of generating sites using predominantly thermal coal power. The company now trades as AGL Macquarie and generates ...
, a
Government of New South Wales The Government of New South Wales, also known as the NSW Government, is the executive state government of New South Wales, Australia. The government comprises 11 portfolios, led by a ministerial department and supported by several agencies. Th ...
owned electricity generator, wrote down the value of its assets by about as a result of the carbon tax. Power generators in the
Latrobe Valley The Latrobe Valley is an inland geographical district and urban area of the Gippsland region in the state of Victoria, Australia. The traditional owners are the Brayakaulung of the Gunai nation. The district lies east of Melbourne and nestle ...
also face substantial write-downs. Modelling undertaken by the
Virgin Australia Virgin Australia, formerly known as Virgin Blue, is an Australian airline based in Brisbane, Queensland. It is one of two active airlines (the other being Virgin Atlantic) to use the Virgin Group, Virgin brand, as well as the larger by fleet ...
airline calculated that the average increase per flight would be . They responded by implementing a surcharge of between to a one-way flight starting in July 2012.
Qantas Qantas ( ), formally Qantas Airways Limited, is the flag carrier of Australia, and the largest airline by fleet size, international flights, and international destinations in Australia and List of largest airlines in Oceania, Oceania. A foundi ...
is raising its ticket prices by between . In a survey conducted by the Economic Society of Australia, 60% of economists thought the carbon pricing proposal was sound economic policy, while 25% disagreed. A number of public protests both in support of and against the carbon price (or tax) were held in the run up to its introduction. These include the No Carbon Tax Climate Sceptics rallies and Say Yes demonstrations.


Effects and impacts

The carbon pricing scheme was intended to improve
energy efficiency Energy efficiency may refer to: * Energy efficiency (physics), the ratio between the useful output and input of an energy conversion process ** Electrical efficiency, useful power output per electrical power consumed ** Mechanical efficiency, a rat ...
, convert electricity generation from coal to alternatives and shift economic activity towards a
low carbon economy A low-carbon economy (LCE) is an economy which absorbs as much greenhouse gas as it emits. Greenhouse gas (GHG) emissions due to human activity are the dominant cause of observed climate change since the mid-20th century. There are many proven ...
. Its impact on business was forecast to be 0.1 – 0.2% lower than the business as usual scenario. The scheme aimed to prevent 160 million tonnes of carbon dioxide from entering the atmosphere by 2020, as well as generating $24 billion over three years. In May 2012, the
Australian Competition & Consumer Commission The Australian Competition and Consumer Commission (ACCC) is the chief competition regulator of the Government of Australia, located within the Department of the Treasury. It was established in 1995 with the amalgamation of the Australian Tra ...
(ACCC) reported it was investigating about 100 cases where customers had possibly been misled into paying excessive price rises falsely claimed to be as a result of the carbon tax. By the middle of June, the commission was investigating about 200 cases. The consumer watchdog also set up a phone hotline and online form for complaints regarding excess pricing claimed to be due to the carbon tax. The ACCC had forecast that home construction costs would be at the lower end of the 0.7% to 1.8% range predicted by building companies. The Housing Industry Association estimated an average new house would experience a price increase of between 0.8% and 1.7% due to the carbon price. Housing construction was expected to be significantly impacted by the carbon tax because new homes require cement, bricks, aluminium, and glass, which are all typically energy-intensive materials. A forecast by the Centre for International Economics predicted the housing construction industry could decline by 12.6% as a result of the carbon price. The coal industry was expected to be impacted due to the emissions produced as coal is mined, however a similar expense is not expected to be incurred by Australia's coal exporting competitors. The
Institute of Public Affairs The Institute of Public Affairs (IPA) is a conservative non-profit free market public policy think tank, Political links and networking The IPA Victoria was founded during World War II by businessmen in response to the feared growing power of ...
claimed that the Australian coal industry would lose jobs to overseas competitors and mines will be closed. Despite the announcement of the scheme, spending on mineral exploration in the March quarter was the highest ever at $1.086 billion. The impact on the LNG industry in Australia was expected to be minor to moderate. No major projects were expected to be cancelled as a result of the introduction of the carbon pricing scheme. Dairy farmers will be impacted because of higher power costs for milk processing. Household bills were expected to rise by an average of around $5 per week. Energy retailer
Synergy Synergy is an interaction or cooperation giving rise to a whole that is greater than the simple sum of its parts (i.e., a non-linear addition of force, energy, or effect). The term ''synergy'' comes from the Attic Greek word συνεργία ' f ...
said the carbon price would result in a 7.1% rise to power bills.


Compensation

Because carbon pricing would indirectly flow through to consumers, the Australian government implemented household assistance measures. The measures included changes to
income tax An income tax is a tax imposed on individuals or entities (taxpayers) in respect of the income or profits earned by them (commonly called taxable income). Income tax generally is computed as the product of a tax rate times the taxable income. Tax ...
: the tax-free threshold increased from on 1 July 2012, and was scheduled to rise to from 1 July 2015. The changes meant those earning less than received a tax cut with those earning up to receiving the greatest tax reduction. The changes were described as the biggest overhaul of taxation since the Goods and Services Tax was introduced in 2000. Other steps included direct payments into bank accounts beginning in May 2012. The payments, called the Clean Energy Advance, were targeted at low- and middle-income households. Some industries received direct compensation. As part of the Energy Security Fund, was promised to highly emissions-intensive coal-fired generators. Most of that funding was intended for coal-fired power generators in Victoria. Research by the
Grattan Institute Grattan Institute is an Australian public policy think tank, established in 2008. The Melbourne-based institute is non-aligned, defining itself as contributing "to public policy in Australia as a liberal democracy in a globalised economy." It is ...
suggested that no black coal mining or
liquefied natural gas Liquefied natural gas (LNG) is natural gas (predominantly methane, CH4, with some mixture of ethane, C2H6) that has been cooled to liquid form for ease and safety of non-pressurized storage or transport. It takes up about 1/600th the volume o ...
projects would be scrapped as a result of carbon pricing, regardless of industry compensation; it further claimed that, if coupled with compensation, the carbon pricing regime would in fact leave the steel industry better off. Under the Carbon Farming Initiative, farmers and graziers would have been able to plant trees to earn carbon credits, which could have been on-sold to companies liable to pay a carbon price. The Clean Technology Investment Program was touted as helping the manufacturing sector to support investments in "energy-efficient capital equipment and low emission technologies, processes and products". Companies in the food sector would also have been able to apply for grants to improve their energy efficiency.


Emissions reduction

Six months after the introduction of carbon pricing the Department of Climate Change and Renewable Energy reported a 9% decrease in emissions from electricity generators. Nine months after the introduction of the pricing scheme, Australia's emissions of carbon dioxide due to electricity generation fell to a 10-year low, with coal generation down 6% from 2008 to 2009.


Repeal

Heading into the
2013 Australian federal election The 2013 Australian federal election to elect the members of the 44th Parliament of Australia took place on Saturday, 7 September 2013. The centre-right Coalition (Australia), Liberal/National Coalition Opposition (Australia), opposition led by ...
, the Liberal Party platform included the removal of the 'Carbon Tax', claiming that the election was in effect a referendum on carbon pricing in Australia. The incoming Liberal government placed removing the carbon pricing scheme at the head of its legislative program. The carbon tax repeal legislation received Royal Assent on 17 July 2014 and the bills which were part of the package became law, with effect from 1 July 2014.


See also

*
Climate change in Australia Climate change has been a critical issue in Australia since the beginning of the 21st century. Australia is becoming hotter and more prone to extreme heat, bushfires, droughts, floods, and longer fire seasons because of climate change. Climate ...
*
Energy development Energy development is the field of activities focused on obtaining sources of energy from natural resources. These activities include the production of renewable, nuclear, and fossil fuel derived sources of energy, and for the recovery and re ...
*
Economics of climate change mitigation An economic analysis of climate change uses economic tools and models to calculate the magnitude and distribution of damages caused by climate change. It can also give guidance for the best policies for mitigation and adaptation to climate chan ...
*
List of climate change initiatives This is a list of climate change initiatives of international, national, regional, and local political initiatives to take action on climate change (global warming). A Climate Action Plan (CAP) is a set of strategies intended to guide efforts for ...
*
New South Wales Greenhouse Gas Abatement Scheme The New South Wales Greenhouse Gas Abatement Scheme (also known as GGAS) was a mandatory greenhouse gas emissions trading scheme that aimed to lower greenhouse gas emissions in New South Wales, Australia, to 7.27 tonnes of carbon dioxide per c ...


References


External links


Clean Energy Future
archived on 7 August 2013 by the
Internet Archive The Internet Archive is an American 501(c)(3) organization, non-profit organization founded in 1996 by Brewster Kahle that runs a digital library website, archive.org. It provides free access to collections of digitized media including web ...
. {{World topic, Carbon pricing in, noredlinks=yes Energy in Australia Climate change in Australia Emissions trading Gillard government Rudd government Climate change policy 2012 introductions