Stern report: Impressive piece, unlikely to work, not that it matters
Report on global warming by Sir Nicholas Stern, ex-Chief Economist of the World Bank and (of EBRD before that), unveiled on October 29, was greeted by Tony Blair and Gordon Brown, who commissioned the report, as the most significant piece of policy research ever produced by the UK government. From now on, the fight against global warming is to be the “moral imperative” of the UK government, which will embark on a major campaign to enlist active participation of other national governments, including not only the OECD countries but also the emerging giants of India and China.
Stern report is indeed impressive. It brings together complex data from various disciplines to make a strong case that global warming is a man-made phenomenon, caused by excessive carbon gas emissions. It provides a coherent and quantified economic framework which shows the estimated costs of action and inaction. At the same time, it is careful to put the case in the language of probabilities and risk assessment. It is also politically astute, as it argues that a rapid action against global warming is virtually costless.
And yet, for all its heft and persuasiveness, I believe that the odds for the report ever being implemented are long, very long. This belief is based on three considerations:
- Past history of similar initiatives
- The nature of the global warming problem
- The intricacy of proposed solutions
Let’s take those considerations in turn.
It is somewhat ironic that on the very same day Stern report was unveiled, UN
agency in charge of monitoring compliance with Kyoto protocol issued its own report. The conclusion of the UN report is that industrialised countries, which all pledged a reduction in emissions, actually increased them. And those who are most sceptical are not the most culpable. Between 2000 and 2004, the US, which has not signed the protocol, had a slower increase in emissions (1.3%) than the members of the EU (2.4%), who did. The executive secretary of the agency, Yvo de Boer, recognised that the “rising trend is worrisome,” before expressing optimism that by 2012, Kyoto targets will be attained. However, according to Mr. de Boer, "This means that industrialized countries will need to intensify their efforts to implement strong [reduction] policies." This is unlikely to be costless.
The non-compliance with Kyoto goals is not an exception in international co-operation efforts. It is more of a rule. “Group of Eight (G-8) summits have a long track record in delivering lofty promises that are swiftly broken, especially to the world’s poorest countries.” This sentence was written not a conservative critic of international aid but by the authors of the UNDP Human Development Report 2005. In the next sentence, they wonder whether the same fate awaits pledges made at Gleneagle July 2005 summit, hosted by Tony Blair and Gordon Brown. Well, according to preliminary assessments of results, it looks like while some progress has been made on funding and deploying health programs, on the issues requiring extended co-operation such as trade or universal primary education, there was either no progress or an actual setback (the collapse of Doha talks).
As for any initiative involving international fiscal co-ordination, the history of EU efforts to introduce such coordination shows how difficult and time consuming it is.
There is no reason to believe that an international co-operation, which would go far beyond Kyoto protocol, would be easier to set up and implement that aid or trade efforts. It is actually likely to be more difficult, given the nature of the problem and the intricacy of the proposed solution.
Global warming is a hard problem. For all assertions of “broad scientific consensus,” the case is far from being entirely convincing and proven beyond doubt. Let’s admit for the sake of argument that the increase in temperature is real, as is the increased concentration of carbon gases. Clearly, the increased concentration is man-made. Yet, those facts do not necessarily form a strong casual link, which inexorably leads to the “consensus” conclusion that global warming is primarily provoked by man-made carbon emissions. There are solid reasons to be agnostic if not outright sceptical about the conclusion:
- We have heard this story before. We can recall three recent cases of global scares, where we were told by people with impeccable credentials that unless urgent action is taken major catastrophe would occur. Lot of money and trees was spent on ozone hole, Y2K computer shutdown and, more recently, avian flu pandemic, before dire forecasts proved wrong.
- Among complex phenomena, whose causality remain mysterious and behaviour largely unpredictable, climate occupies a top rank. Despite huge expense of brainpower, supplemented by the most powerful computers available, we can only make short-term forecasts. Climate patterns are chaotic and subject to huge variations, under the influence of great many factors. Furthermore, those variations are non-linear: greatest fluctuations are not necessarily caused by the most important or visible factors. The long history of climate contains periods of warming and periods of cooling and we are still at loss for explanations. Ice age started and finished without, as far we know, any human interference. Implication of this view of climate change is that we simply do not know how the it will evolve over the next fifty years and your (or my) guess is as good as the output of the most sophisticated climate and weather model. Nor de we know which are the decisive factors influencing the climate pattern.
This scepticism leads to a different interpretation of the principle of precaution, which motivates the call for urgent and wide-ranging global warming action. Why spent vast amount of money for policy measures, which are very risky (particularly in terms of their potential impact on economic growth) for an outcome, which is fundamentally uncertain? In other terms, the lack of vast global warming efforts reflects not a political short-termism and scientific ignorance but a rational economic choice by concerned governments.
If this is the case, then the proposed solutions, which involve the most ambitious efforts of coordination on both national and international levels to date, are unlikely to succeed not because of the political myopia but because, given the calculus of potential risks and losses, many important countries, both in the OECD zone and in the developing world, will have no real incentive to co-operate. What is missing in the Stern report is a game-theory model, which would explore the interplay between conflicting motivations to highlight the probabilities of active co-operation vs. lip-service window dressing. In this respect, global trade talks, where in the end, participants refused to accept short-losses for their side in order to secure global long-term gain, provide an instructive and not very encouraging example.
And, yet even if I am sceptical about the effectiveness of the recommendations of Stern report, I do believe that the gas emission problem is manageable and will be managed. The key to its manageability is the carbon emissions markets, which is already quite active and began to set a price on this commodity. This will led to its more efficient use in the business sector. This may or may not mitigate the global warming but it will lead to market-driven adjustments in economic behaviour of households and firms, and a greater economic resilience. A highly pertinent example here is that of energy. Since the first oil shock in the early 1970s, governments embarked on ambitious efforts to reduce our dependence on fossil fuels. While explicit co-operations proved difficult and the results have been disappointing both in Europe and in the US, which are more dependent today on oil imports than they were 30 years ago, the global economy has developed a remarkable resilience to the energy shocks. Oil price fluctuations we experienced over the last twelve months would have provoked deep economic dislocation, including stagflation, in the past. Yet, this time around, the global economy largely shrugged off price increases and continued to grow.
In a similar way, the global economy should be able to absorb the current effects of global warming, further increase its energy efficiency and reduce gas emissions. As for the future global warming trend, call me an incurable optimist but I do trust the ‘invisible hand’ of nature to prevent the climate variations from going over the cliff.
Labels: Politics