A Study of Policy Change on K-ETS and its Objective Conformity

한국 배출권거래제 정책 변동의 목적 부합성 연구

The Korea Emissions Trading Scheme ( K-ETS), which manages roughly 70% of the greenhouse gas emissions in South Korea, was initiated in 2015, after implementation of its 1st basic plan and the 1st allocation plan (2014) for the 1st phase (2015-2017). During the three and a half years since the launch of K-ETS, there have been critical policy change such as adjustment of the institutions involved, development and revision of the 2030 national GHG reduction roadmap, and change in the allocation plans. Moreover, lack of liquidity and fluctuation of carbon prices in the K-ETS market during this period has forced the Korean government to adjust the flexibility mechanism and auction permits of the market stability reserve. To evaluate the policy change in the K-ETS regarding conformance to its objectives, this study defines three objectives (Environmental Effectiveness, Cost Effectiveness and Economic Efficiency) and ten indicators. Evaluation of Environmental Effectiveness of K-ETS suggests that the national GHG reduction roadmap, coverage of GHG emitters and credibility of MRV positively affect GHG mitigation. However, there was a negative policy change implemented in 2017 that weakened the emission cap during the 1st phase. In terms of the Cost Effectiveness, the K-ETS policies related to market management and flexibility mechanism (e.g. banking, borrowing and offsets) were improved to deal with the liquidity shortage and permit price increase, which were caused by policy uncertainty and conservative behavior of firms during 2016-2018. Regarding Economic Efficiency, K-ETS expands benchmark?based allocation and began auction-based allocation; nevertheless, free allocation is being applied to sectors with high carbon leakage risk during the 2nd phase (2018-2020). As a result, it is worth evaluating the K-ETS policies that have been developed with respect to the three main objectives of ETS, considering the trial?and?error approach that has been followed since 2015. This study suggests that K-ETS policy should be modified to strengthen the emission cap, stabilize the market, expand auction-based allocation and build K-ETS specified funds during the 3rd phase (2021-2025).