Federal Citations to the Social Cost of Greenhouse Gases
Congressional research reportMar 21, 2017
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Federal Citations to the Social Cost of
Greenhouse Gases
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Specialist in Energy and Environmental Policy
March 21, 2017
Congressional Research Service
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R44657
Federal Citations to the Social Cost of Greenhouse Gases
Introduction
Executive Order 12866 requires that federal agencies assess the cost and the benefits of intended
regulations as part of their regulatory impact analyses (RIAs). The 1993 executive order stated
that “recognizing that some costs and benefits are difficult to quantify, [each agency shall]
propose or adopt a regulation only upon a reasoned determination that the benefits of the intended
regulation justify its costs.”1 In 2008, a federal appeals court remanded a rule in part because,
despite acknowledging the uncertainty, the agency did not monetize climate-related benefits of
anticipated emission reductions in its RIA.2 In response, in 2008, federal agencies began using
various values of the social cost of carbon (SCC or SC-CO2) as a means to estimate the climaterelated benefits of abating emissions of carbon dioxide (CO2). Since then, they have begun using
similar estimates for the benefits of reducing emissions of other greenhouse gases (GHG),
including methane (CH4) and nitrous oxide (N2O).
The SC-CO2 is an “estimate of the monetized damages associated with an incremental increase in
carbon emissions in a given year,” according to a federal Interagency Working Group (IWG).3
This group4 developed a range of SC-CO2 values “to make it possible for agencies to incorporate
the social benefits from reducing carbon dioxide emissions into cost-benefit analyses of
regulatory actions that have small, or ‘marginal,’ impacts on cumulative global emissions.”5 In the
United States, the SC-CO2 has been expressed as U.S. dollars per metric ton of carbon dioxide
($/t CO2) for a given year’s emissions. Agencies primarily used their own, differing SC-CO2
values until the IWG recommended in 2009 a set of values to improve consistency across
regulations. Estimations of the social cost of methane (SC-CH4) and the social cost of nitrous
oxide (SC-N2O) have used methods similar to those for the SC-CO2. Federal agencies began using
the SC-CO2 in regulatory actions in 2008, the SC-CH4 in 2015, and SC-N2O in 2016. Since
August 2016, federal agencies collectively call these analyses and applications the social cost of
greenhouse gases (SC-GHG).
This report compiles a table of Federal Register notices of 160 federal regulatory actions that
specifically cite the SC-CO2, SC-CH4, SC-N2O, or SC-GHG. The actions listed in Table 1 were
identified by searches online of the Federal Register6 for the terms “social cost of carbon,”
“social cost of methane,” “social cost of nitrous oxide,” and “social cost.” The table below
reflects searches completed by March 20, 2017. Table 1 first lists the actions that used the SCCO2 estimate and then the actions citing other SC-GHG estimates. The table includes proposed,
final, and additional actions, sometimes for the same rule (so a simple count of entries in the table
would double-count the number of regulations with benefits calculated using the SC-GHG
1
“Executive Order 12866 of September 30, 1993: Regulatory Planning and Review,” 58 Federal Register 51735,
October 4, 1993.
2
Center for Biological Diversity v. National Highway Traffic Safety Administration, 538 F.3d 1172 (9th Cir. 2008).
3
Interagency Working Group on Social Cost of Carbon, Technical Support Document: Technical Update of the Social
Cost of Carbon for Regulatory Impact Analysis Under Executive Order 12866, Office of Management and Budget,
May 2013, revision of July 2015, http://www.whitehouse.gov/sites/default/files/omb/assets/inforeg/technical-updatesocial-cost-of-carbon-for-regulator-impact-analysis.pdf. This document was revised and released again on July 2, 2015.
4
The original IWG was comprised of officials from the Executive Office of the President (Council of Economic
Advisers, Council on Environmental Quality, National Economic Council, Office of Energy and Climate Change,
Office of Management and Budget, Office of Science, and Technology Policy), along with the Departments of
Agriculture, Commerce, Energy, Transportation, and Treasury and the Environmental Protection Agency. After 2010,
the Department of Agriculture gained participation as well.
5
Ibid.
6
Federalregister.gov.
Congressional Research Service
1
Federal Citations to the Social Cost of Greenhouse Gases
estimates). All non-regulatory notices are omitted, including notices of funding availability for
grant programs. One column identifies which version of the SC-CO2, SC-CH4, or SC-N2O was
cited in each regulatory action. In this report, CRS does not analyze the social cost values or
methods used in the cited agency actions. In addition, this report does not review or analyze the
listed actions.
Table 1. U.S. Federal Regulatory Actions Referring to the Social Cost of Carbon, the
Social Cost of Methane, or the Social Cost of Nitrous Oxide
Date
Regulatory
or Related
Agency
Action
Action
Version of
Estimate
Useda b
SOCIAL COST OF CARBON ACTIONS
04/07/08
DOE
proposed
Energy Conservation Program (ECP)c for Commercial and
Industrial Equipment: Packaged Terminal Air Conditioner and
Packaged Terminal Heat Pump Energy Conservation Standards. 73
FR 18858.
IPCC 2007
05/02/08
DOT
proposed
Corporate Average Fuel Economy Standards, Passenger Cars and
Light Trucks; Model Years 2011-2015. 73 FR 24352.
own
07/30/08
EPA
advance
notice
Advance Notice of Proposed Rulemaking for Regulating
Greenhouse Gas Emissions Under the Clean Air Act. 73 FR 44354.
none
08/25/08
DOE
proposed
Commercial Ice-Cream Freezers; Self-Contained Commercial
IPCC 2007
Refrigerators, Commercial Freezers, and Commercial RefrigeratorFreezers Without Doors; and Remote Condensing Commercial
Refrigerators, Commercial Freezers, and Commercial RefrigeratorFreezers. 73 FR 50072.
10/07/08
DOE
final
ECPb for Commercial and Industrial Equipment: Packaged Terminal IPCC 2007
Air Conditioner and Packaged Terminal Heat Pump Energy
Conservation Standards. 73 FR 58772.
10/17/08
DOE
proposed
ECP: Energy Conservation Standards (ESC) for Commercial IceCream Freezers; Self-Contained Commercial Refrigerators,
Commercial Freezers, and Commercial Refrigerator- Freezers
Without Doors; and Remote Condensing Commercial
Refrigerators, Commercial Freezers, and Commercial RefrigeratorFreezers. 73 FR 44354.
none
7/30/08
EPA &
DOT
advance
notice
Advance Notice of Proposed Rulemaking, Regulating Greenhouse
Gas Emissions Under the Clean Air Act. FRL-8694-2.
own
01/09/09
DOE
final
ECS for Commercial Ice-Cream Freezers; Self-Contained
IPCC 2007
Commercial Refrigerators, Commercial Freezers, and Commercial (corrects
Refrigerator- Freezers Without Doors; and Remote Condensing
year of
Commercial Refrigerators, Commercial Freezers, and Commercial
dollars)
Refrigerator-Freezers. 74 FR 1092.
Congressional Research Service
2
Federal Citations to the Social Cost of Greenhouse Gases
Date
Regulatory
or Related
Agency
Action
Action
Version of
Estimate
Useda b
03/30/09
DOT
final
Corporate Average Fuel Economy Standards Passenger Cars and
Light Trucks Model Year 2011. 74 FR 14196.
2009
04/08/09
DOE
final
(amended)
Amends final rule ECSb for Certain Consumer Products
(Dishwashers, Dehumidifiers, Microwave Ovens, and Electric and
Gas Kitchen Ranges and Ovens) and for Certain Commercial and
Industrial Equipment (Commercial Clothes Washers), and
additional actions. 74 FR 16040. The Federal Register notice stated
that DOE and other federal agencies were reviewing
methodologies on the monetary value of reductions of CO2 and
other greenhouse gas emissions and would consider comments
that are part of the public record on issues in this and other
rulemakings. 74 FR 16040. (FR p. 16079).
own
04/13/09
DOE
proposed
ECS for General Service Fluorescent Lamps and Incandescent
Reflector Lamps. 74 FR 16920.
own
05/26/09
DOE
proposed
ECS for General Service Fluorescent Lamps and Incandescent
Reflector Lamps. 74 FR 24904.
own
05/26/09
EPA
proposed
Regulation of Fuels and Fuel Additives: Changes to Renewable Fuel
Standard Program. 74 FR 24904.
own
05/29/09
DOE
proposed
ECS for Refrigerated Bottled or Canned Beverage Vending
Machines. 74 FR 26020.
own
07/14/09
DOE
final
ECS and Test Procedures for General Service Fluorescent Lamps
and Incandescent Reflector Lamps. 74 FR 34080.
own
07/22/09
DOE
final
ECS Energy Conservation Standards and Test Procedures for
Commercial Heating, Air-Conditioning, and Water-Heating
Equipment. 74 FR 36312.
own
08/31/09
DOE
final
Refrigerated Bottled or Canned Beverage Vending Machines. 74 FR
44914.
own
09/25/09
DOT
proposed
Proposed Rule and Notice of Availability of a Draft Environmental
Impact Statement (DEIS) for New Corporate Average Fuel
Economy Standards; Notice of Public Hearing. 74 FR 48894.
own
09/28/09
EPA &
DOT
proposed
Light-Duty Vehicle Greenhouse Gas Emission Standards and
Corporate Average Fuel Economy Standards. 74 FR 49454. This
action marks the first FR notice of the federal interagency working
group’s 2010 values for SC-CO2. The rule uses joint EPA/DOT
values for SC-CO2.
own
Congressional Research Service
3
Federal Citations to the Social Cost of Greenhouse Gases
Date
Regulatory
or Related
Agency
Action
Action
Version of
Estimate
Useda b
11/09/09
DOE
proposed
ECS for Certain Consumer Products (Dishwashers, Dehumidifiers,
Microwave Ovens, and Electric and Gas Kitchen Ranges and
Ovens) and for Certain Commercial and Industrial Equipment
(Commercial Clothes Washers). 74 FR 57738.
own
11/24/09
DOE
proposed
ECS for Small Electric Motors. 74 FR 61410.
2009
12/11/09
DOE
proposed
ECS for Residential Water Heaters, Direct Heating Equipment, and
Pool Heaters. 74 FR 65852.
own
01/08/10
DOE
final
ECS for Certain Consumer Products (Dishwashers, Dehumidifiers,
Microwave Ovens, and Electric and Gas Kitchen Ranges and
Ovens) and for Certain Commercial and Industrial Equipment
(Commercial Clothes Washers). 75 FR 1121.
own
03/09/10
DOE
final
ECS for Small Electric Motors. 75 FR 10874.
2009
03/26/10
EPA
final
Regulation of Fuels and Fuel Additives: Changes to Renewable Fuel
Standard Program. 75 FR 14669.
2009
04/16/10
DOE
final
ECS for Residential Water Heaters. 75 FR 20112.
2010
05/07/10
EPA &
DOT
final
Light Duty Vehicle GHG Emissions and Corporate Average Fuel
Economy Standards. 75 FR 25324. The notice states, “As part of
the interagency group, EPA and NHTSA have critically evaluated
the new SCC estimates and endorse them for use in these
regulatory analyses, for the reasons presented below.”
2010
05/01/10
DOT
final
Automatic Dependent Surveillance—Broadcast (ADS–B) Out
Performance Requirements to Support Air Traffic Control Service.
75 FR 30160.
2010
06/21/10
EPA
other
Hazardous and Solid Waste Management System; Identification and
Listing of Special Wastes; Disposal of Coal Combustion Residuals
from Electric Utilities. 75 FR 35127.
2009
08/02/10
EPA
proposed
Federal Implementation Plans to Reduce Interstate Transport of
Fine Particulate Matter and Ozone. 75 FR 45210.
2010
09/27/10
DOE
proposed
ECS for Residential Refrigerators, Refrigerator-Freezers, and
Freezers. 75 FR 59469.
2010
10/14/10
EPA
proposed
Standards of Performance for New Stationary Sources and
Emission Guidelines for Existing Sources: Sewage Sludge
Incineration Units. 75 FR 63260.
2010
Congressional Research Service
4
Federal Citations to the Social Cost of Greenhouse Gases
Date
Regulatory
or Related
Agency
Action
Action
Version of
Estimate
Useda b
11/30/10
EPA &
DOT
proposed
Greenhouse Gas Emissions Standards and Fuel Efficiency Standards
for Medium- and Heavy-Duty Engines and Vehicles. 75 FR 74151.
2010
12/08/10
EPA
proposed
2017 and Later Model Year Light-Duty Vehicle GHG Emissions and
CAFE Standards: Supplemental Notice of Intent.
none
03/14/11
EPA
proposed
National Emission Standards for Mercury from Mercury Cell ChlorAlkali Plants. 76 FR 13852.
2010
03/21/11
EPA
final
National Emission Standards for Industrial, Commercial, and
Institutional Boilers and Process Heaters. 76 FR 15608.
2010
03/21/11
EPA
final
National Emission Standards for Industrial, Commercial, and
Institutional Boilers and Process Heaters. 76 FR 15554.
2010
03/21/11
EPA
final
Standards of Performance for New Stationary Sources and
Emission Guidelines for Existing Sources: Commercial and
Industrial Solid Waste Incineration Units. 76 FR 15703.
2010
04/21/11
DOE
final and
proposed
ECS for Residential Clothes Dryers and Room AC. 76 FR 22454.
2010
06/27/11
DOE
final and
proposed
ECS for Residential Furnaces and Residential Central AC and Heat
Pumps. 76 FR 37408.
2010
08/08/11
EPA
final
Interstate Transport of Fine PM and Ozone. 76 FR 48208.
2010
08/23/11
EPA
proposed
Oil and Natural Gas Sector: New Source Performance Standards
and National Emission Standards for Hazardous Air Pollutants
Reviews. 76 FR 52737.
2010
09/15/11
EPA &
DOT
final
GHG Emission Standards and Fuel Efficiency Standards for Mediumand Heavy-Duty Vehicles. 76 FR 57105.
2010
09/15/11
DOE
final
ECS for Residential Refrigerators. 76 FR 57516.
2010
11/14/11
DOE
final
ECS for Fluorescent Lamp Ballasts. 76 FR 70548.
2010
12/01/11
EPA &
DOT
proposed
2017 and Later Model Year Light Duty Vehicle GHG Emissions and
Corporate Average Fuel Economy Standards. 76 FR 74854.
2010
12/23/11
EPA
proposed
New Source Performance Standards: Commercial and Industrial
Solid Waste Incineration Units. 76 FR 80452.
2010
01/17/12
DOE
proposed
ECS for Commercial Heating, AC, and Water Heating Equipment.
77 FR 2356.
2010
Congressional Research Service
5
Federal Citations to the Social Cost of Greenhouse Gases
Date
Regulatory
or Related
Agency
Action
Action
Version of
Estimate
Useda b
02/10/12
DOE
proposed
ECS for Distribution Transformers. 77 FR 7282.
2010
02/14/12
DOE
proposed
ECS for Standby Mode and Off Mode for Microwave Ovens. 77 FR
8526.
2010
02/16/12
EPA
final
National Emission Standards for Hazardous Air Pollutants from
Coal- and Oil-Fired Electric Utility Steam Generating Units and
Standards of Performance for Fossil-Fuel-Fired Electric Utility,
Industrial-Commercial-, Institutional, and Small IndustrialCommercial-Institutional Steam Generating Units. 77 FR 9303.
2010
03/27/12
DOE
proposed
ECS for Battery Chargers and External Power Supplies. 77 FR
18477.
2010
04/13/12
EPA
proposed
Standards of Performance for Greenhouse Gas Emissions for New
Stationary Sources; Electric Utility Generating Units. 77 FR 22391.
2010
05/16/12
DOE
final
ECS for Certain Industrial Equipment: Energy Conservation
Standards and Test Procedures for Commercial Heating, AirConditioning, and Water-Heating Equipment. 77 FR 28927.
2010
05/30/12
DOE
final
ECS for Certain Industrial Equipment: Energy Conservation
Standards and Test Procedures for Commercial Heating, AirConditioning, and Water-Heating Equipment. 77 FR 28927.
2010
05/30/12
DOE
final
ECS for Residential Dishwashers. 77 FR 31917.
2010
05/31/12
DOE
proposed
ECS for Residential Clothes Washers. 77 FR 32381.
2010
05/31/12
DOE
final
Direct final rule ECS Residential Clothes Washers. 77 FR 32307.
2010
08/16/12
EPA
final
Oil and Natural Gas Sector: New Source Performance Standards
and National Emission Standards for Hazardous Air Pollutants
Reviews. 77 FR 49489.
2010
09/12/12
EPA
lifted stay on EPA lifts stay on 2008 final rule Standards of Performance for
final rule
Petroleum Refineries; Standards of Performance for Petroleum
Refineries for Which Construction, Reconstruction, or
Modification Commenced after May 14, 2007. 77 FR 56421.
2010
10/01/12
DOT
final
(confirms)
Confirms final rule Energy Conservation Program: Energy
Conservation Standards for Dishwashers. 77 FR 59712.
2010
10/15/12
EPA &
DOT
final
2017 and Later Model Year Light-Duty Vehicle Greenhouse Gas
Emissions and Corporate Average Fuel Economy Standards. 77 FR
62623.
2010
Congressional Research Service
6
Federal Citations to the Social Cost of Greenhouse Gases
Date
Regulatory
or Related
Agency
Action
Action
Version of
Estimate
Useda b
01/31/13
EPA
final
National Emission Standards for Hazardous Air Pollutants for
Major Sources: Industrial, Commercial, and Institutional Boilers and
Process Heaters. 78 FR 7137.
2010
04/18/13
DOE
final
ECS for Distribution Transformers. 78 FR 23335.
2010
06/07/13
EPA
proposed
Effluent Limitation Guidelines and Standards for the Steam Electric
Power Generating Point Source Category. 78 FR 34431.
2010
06/17/13
DOE
final
ECS for Standby Mode and Off Mode for Microwave Ovens. 78 FR
36315.
2013a
08/16/13
DOE
request for
comments
Energy Conservation Program for Consumer Products: Landmark
Legal Foundation; Petition for Reconsideration.
none
08/20/13
DOE
proposed
ECS for Metal Halide Lamp Fixtures. 78 FR 51463.
2013a
09/11/13
DOE
proposed
ECS for Walk-In Coolers and Freezers. 78 FR 55889.
2013a
09/11/13
DOE
proposed
ECS for Commercial Refrigeration Equipment. 78 FR 55781.
2013a
10/25/13
DOE
proposed
ECS for Residential Furnace Fans. 78 FR 64067.
2013a
12/06/13
DOE
proposed
ECS for Commercial and Industrial Electric Motors. 78 FR 73589.
2013b
01/08/14
EPA
reproposed
Standards of Performance for Greenhouse Gas Emissions from
New Stationary Sources: Electric Utility Generating Units. 79 FR
1429
2013b
02/10/14
DOE
final
ECS for Metal Halide Lamp Fixtures. 79 FR 7745.
2013b
02/10/14
DOE
final
ECS for External Power Supplies. 79 FR 7845.
2013b
03/04/14
DOE
proposed
ECS for Commercial Clothes Washers. 79 FR 12301.
2013b
03/17/14
DOE
proposed
ECS for Automatic Commercial Ice Makers. 79 FR 14845.
2013b
03/28/14
DOE
final
ECS for Commercial Refrigeration Equipment. 79 FR 17725.
2013b
04/15/14
HUD,
USDA
notice of
Preliminary Affordability Determinations: Energy Efficiency
preliminary Standards. 79 FR 21259.
determination
2013b
Congressional Research Service
7
Federal Citations to the Social Cost of Greenhouse Gases
Date
Regulatory
or Related
Agency
Action
Action
Version of
Estimate
Useda b
04/29/14
DOE
proposed
ECS for General Service Fluorescent Lamps and Incandescent
Reflector Lamps. 79 FR 24067.
2013b
05/29/14
DOE
final
ECS for Commercial and Industrial Electric Motors. 79 FR 30933.
2013b
06/03/14
DOE
final
ECS for Walk-In Coolers and Freezers. 79 FR 32049.
2013b
06/18/14
EPA
proposed
Carbon Pollution Emission Guidelines for Existing Stationary
Sources: Electric Utility Generating Units. 79 FR 34829.
2013b
06/18/14
EPA
proposed
Carbon Pollution Standards for Modified and Reconstructed
Stationary Sources: Electric Utility Generating Units. 79 FR 34959.
2013b
07/03/14
DOE
final
ECS for Residential Furnace Fans; Final Rule. 79 FR 38129.
2013b
08/15/14
EPA
final
National Pollutant Discharge Elimination System: Cooling Water
Intake Structures at Existing Facilities and Phase I Facilities;
Requirements. 79 FR 48299.
2013b
09/11/14
DOE
revised
analysis
ECS for Automatic Commercial Ice Makers: Availability of Revised
Rulemaking Analysis; Notice of Data Availability (NODA). 79 FR
54215.
2013b.
09/16/14
DOE
proposed
ECS for Packaged Terminal Air Conditioners and Packaged
Terminal Heat Pumps; Notice of Proposed Rulemaking (NOPR). 79
FR 55537.
2013b
09/30/14
DOE
proposed
ECS for Small, Large, and Very Large Air-Cooled Commercial
Package Air Conditioning and Heating Equipment. 79 FR 58947.
2013b
10/14/14
DOE
proposed
Fossil-Fuel-Generated Energy Consumption Reduction for New
Federal Buildings and Major Renovations of Federal Buildings. 79 FR
61693.
2013b
11/04/14
EPA
proposed
Carbon Pollution Emission Guidelines for Existing Stationary
Sources: EGUs in Indian Country and U.S. Territories; MultiJurisdictional Partnerships. 79 FR 65481.
2013b
12/15/14
DOE
final
ECS for Commercial Clothes Washers. 79 FR 74491.
2013b
12/19/14
DOE
proposed
ECS for Residential Dishwashers. 79 FR 76141.
2013b
12/30/14
DOE
proposed
ECP for Certain Industrial Equipment: ECS for Single Package
Vertical Air Conditioners and Single Package Vertical Heat Pumps.
79 FR 78613.
2013b
Congressional Research Service
8
Federal Citations to the Social Cost of Greenhouse Gases
Date
Regulatory
or Related
Agency
Action
Action
Version of
Estimate
Useda b
01/08/15
DOE
proposed
ECP for Certain Industrial Equipment: ECS and Test Procedures for
Commercial Heating, Air-Conditioning, and Water-Heating
Equipment. 80 FR 1171.
2013b
01/26/15
DOE
final
ECS for General Service Fluorescent Lamps and Incandescent
Reflector Lamps. 80 FR 4041.
2013b
01/28/15
DOE
final
ECS for Automatic Commercial Ice Makers. 80 FR 4645.
2013b
02/04/15
DOE
proposed
ECP for Certain Industrial Equipment: ECS for Commercial Warm
Air Furnaces. 80 FR 6181.
2013b
02/09/15
DOE
proposed
ECP for Consumer Products: ECS for Hearth Products. 80 FR
7081.
2013b
03/12/15
DOE
proposed
ECP for Consumer Products: ECS for Residential Furnaces. 80 FR
13119.
2013b
03/16/15
EPA
proposed
Standards of Performance: New Residential Wood Heaters, New
Residential Hydronic Heaters and Forced-Air Furnaces. 80 FR
13671.
2013b
03/31/15
DOE
proposed
ECS for Residential Boilers. 80 FR 17221.
2013b
04/02/15
DOE
proposed
ECS for Pumps. 80 FR 17825.
2013b
05/06/15
USDA,
HUD
final
Final Affordability Determination Energy Efficiency Standards. 80 FR
25901.
2013b
05/21/15
DOT
proposed
Pipeline and Hazardous Materials Safety Administration: Draft
Regulatory Impact Analysis for Plastic Pipe Rule. Posted in docket.
2013b
06/03/15
DOE
proposed
ECS for Residential Dehumidifiers. 80 FR 31645.
2013b
06/10/15
DOE
proposed
ECS for Residential Conventional Ovens. 80 FR 33029.
2013b
07/09/15
DOE
proposed
ECS for Commercial Prerinse Spray Valves. 80 FR 39485.
2013b
07/13/15
EPA
proposed
Greenhouse Gas Emissions and Fuel Efficiency Standards for
Medium- and Heavy-Duty Engines and Vehicles-Phase 2. 80 FR
40137.
2013b
07/17/15
DOE
final
ECP for Certain Industrial Equipment: Energy Conservation
Standards and Test Procedures for Commercial Heating, AirConditioning, and Water-Heating Equipment. 80 FR 42613.
2013b
Congressional Research Service
9
Federal Citations to the Social Cost of Greenhouse Gases
Date
Regulatory
or Related
Agency
Action
Action
Version of
Estimate
Useda b
07/21/15
DOE
final
ECS for Packaged Terminal Air Conditioners and Packaged
Terminal Heat Pumps. 80 FR 43161.
2013b
07/27/15
DOI
proposed
Office of Surface Mining Reclamation and Enforcement. Stream
Protection Rule. 80 FR 44435.
2013b
08/13/15
DOE
proposed
ECS for Ceiling Fan Light Kits. 80 FR 48623.
2013b
08/09/15
DOE
proposed
ECS for Refrigerated Bottled or Canned Beverage Vending
Machines. 80 FR 50461.
2015
08/27/15
EPA
proposed
Emission Guidelines and Compliance Times for Municipal Solid
Waste Landfills. 80 FR 52099.
2015
09/01/15
DOE
proposed
ECS for Battery Chargers. 80 FR 52849.
2015
09/23/15
DOE
final
ECS for Single Package Vertical Air Conditioners and Single
Package Vertical Heat Pumps. 80 FR 57437.
2015
10/23/15
EPA
proposed
Federal Plan Requirements for Greenhouse Gas Emissions From
Electric Utility Generating Units Constructed on or Before January
8, 2014; Model Trading Rules; Amendments to Framework
Regulations. 80 FR 64965.
2015
10/23/15
EPA
final
Carbon Pollution Emission Guidelines for Existing Stationary
Sources: Electric Utility Generating Units. 80 FR 64661.
2015
11/03/15
EPA
final
Effluent Limitations Guidelines and Standards for the Steam Electric
Power Generating Point Source Category. 80 FR 67837.
2013b
11/20/15
FS
proposed
Roadless Area Conservation; National Forest System Lands in
Colorado. 80 FR 72665.
2015
12/03/15
EPA
proposed
Cross-State Air Pollution Rule Update for the 2008 Ozone
NAAQS. 80 FR 75705.
2015
01/06/16
DOE
final
ECS for Ceiling Fan Light Kits. 81 FR 579.
2015
01/08/16
DOE
final
ECS for Refrigerated Bottled or Canned Beverage Vending
Machines. 81 FR 1027.
2015
01/13/16
DOE
proposed
ECS for Ceiling Fans. 81 FR 1687.
2015
01/15/16
DOE
final
ECS for Residential Boilers. 81 FR 2319.
2015
Congressional Research Service
10
Federal Citations to the Social Cost of Greenhouse Gases
Date
Regulatory
or Related
Agency
Action
Action
Version of
Estimate
Useda b
01/15/16
DOE
direct final
ECP for Certain Industrial Equipment: ECS for Small, Large, and
Very Large Air-Cooled Commercial Package Air Conditioning and
Heating Equipment and Commercial Warm Air Furnaces. 81 FR
2419.
2015
01/26/16
DOE
final
ECS for Pumps. 81 FR 4367.
2015
01/27/16
DOE
final
ECS for Commercial Prerinse Spray Valves. 81 FR 4747.
2015
02/09/16
FAA
proposed
Stage 5 Airplane Noise Standards. Cost-benefit analysis referenced
in 81 FR 1923.
2015
03/07/16
FAA
proposed
Minimum Training Requirements for Entry-Level Commercial
Motor Vehicle Operators.
2015
03/17/16
DOE
proposed
ECS for General Service Lamps. 81 FR 14527.
2015
03/24/16
DOE
proposed
ECS for Commercial Packaged Boilers. 81 FR 15835.
2015
05/19/16
DOE
proposed
ECS for Compressors. 81 FR 31679.
2015
05/31/16
DOE
proposed
ECS for Commercial Water Heating Equipment. 81 FR 34439.
2015
06/13/16
DOE
proposed
ECS for Portable Air Conditioners. 81 FR 38397.
2015
06/13/16
DOE
final
ECS for Battery Chargers. 81 FR 38265.
2015
06/13/16
DOE
final
ECS for Dehumidifiers. 81 FR 38337.
2015
06/17/16
DOE
proposed
ECS for Manufactured Housing. 81 FR 39755.
2015
07/13/16
EPA,
final
NHTSA
Greenhouse Gas Emissions and Fuel Efficiency Standards for
Medium- and Heavy-Duty Engines and Vehicles-Phase 2. 80 FR
40137.
08/05/16
DOE
proposed
ECS for Uninterruptible Power Supplies. 81 FR 52195.
2015
08/29/16
EPA
final
Standards of Performance for Municipal Solid Waste Landfills. 81
FR 59331.
2015
08/29/16
EPA
final
Emission Guidelines and Compliance Times for Municipal Solid
Waste Landfills. 81 FR 59275.
2015
Congressional Research Service
GWP and
2015
11
Federal Citations to the Social Cost of Greenhouse Gases
Date
Regulatory
or Related
Agency
Action
Action
Version of
Estimate
Useda b
09/02/16
DOE
proposed
ECS for Residential Conventional Cooking Products. 81 FR 60783.
2015
09/13/16
DOE
proposed
ECS for Walk-In Cooler and Freezer Refrigeration Systems. 81 FR
62979.
2015
09/23/16
DOE
proposed
ECS for Residential Furnaces. 81 FR 65719.
2015
10/26/16
EPA
final
Cross-State Air Pollution Rule Update for the 2008 Ozone
NAAQS. 81 FR 74504.
2015
10/28/16
DOE
final
ECS for Miscellaneous Refrigeration Products. 81 FR 75194.
2015
11/18/16
BLM
final
Waste Prevention, Production Subject to Royalties, and Resource
Conservation.
2014
12/08/16
FMCSA final
Minimum Training Requirements for Entry-Level Commercial
Motor Vehicle Operators. 81 FR 88732.
2015
12/13/16
DOE
final
ECS for Residential Dishwashers. 81 FR 90072.
2015
12/19/16
FS
final
Roadless Area Conservation; National Forest System Lands in
Colorado. 81 FR 91811.
2015
12/20/16
SMREO final
Stream Protection Rule. 81 FR 93066.
2015
01/06/17
DOE
direct final
ECS for Residential Central Air Conditioners and Heat Pumps. 82
FR 1786.
2015
01/18/17
DOE
direct final
ECS for Dedicated-Purpose Pool Pumps. 82 FR 5650.
2015
01/18/17
DOE
final
ESC for Ceiling Fans. 82 FR 6826.
2015
SOCIAL COST OF METHANE ACTIONS
08/27/15
EPA
proposed
Emission Guidelines and Compliance Times for Municipal Solid
Waste Landfills. 80 FR 52099.
2015
09/18/15
EPA
proposed
Oil and Natural Gas Sector: Emission Standards for New and
Modified Sources. 80 FR 56593.
2015
02/08/16
BLM
proposed
Waste Prevention, Production Subject to Royalties, and Resource
Conservation. 81 FR 6615.
2015
Congressional Research Service
12
Federal Citations to the Social Cost of Greenhouse Gases
Date
Regulatory
or Related
Agency
Action
final
Action
Oil and Natural Gas Sector: Emission Standards for New,
Reconstructed, and Modified Sources. 81 FR 35823.
Version of
Estimate
Useda b
06/03/16
EPA
2015
06/13/16
EPA and final
NHTSA
Greenhouse Gas Emissions and Fuel Efficiency Standards for
Medium- and Heavy-Duty Engines and Vehicles-Phase 2. 80 FR
40137. (Also listed for SC-CO2 and SC-N2O.)
GWP and
2015
08/29/16
EPA
final
Standards of Performance for Municipal Solid Waste Landfills. 81
FR 59331.
2015
08/29/16
EPA
final
Emission Guidelines and Compliance Times for Municipal Solid
Waste Landfills. 81 FR 59275.
2015
09/13/16
DOE
proposed
ECS for Walk-In Cooler and Freezer Refrigeration Systems. 81 FR
62979. (Also listed for SC-CO2 and SC-N2O.)
2015
11/18/16
BLM
final
Waste Prevention, Production Subject to Royalties, and Resource
Conservation.
2014
12/19/16
FS
final
Roadless Area Conservation; National Forest System Lands in
Colorado. 81 FR 91811.
2015
01/18/17
DOE
direct final
ECS for Dedicated-Purpose Pool Pumps. 82 FR 5650.
2016
SOCIAL COST OF NITROUS OXIDE
10/15/12
EPA,
final
NHTSA
2017 and Later Model Year Light-Duty Vehicle Greenhouse Gas
Emissions and Corporate Average Fuel Economy Standards. 77 FR
62623.
Sensitivity
analysis
onlyd
07/13/16
EPA,
final
NHTSA
Greenhouse Gas Emissions and Fuel Efficiency Standards for
Medium- and Heavy-Duty Engines and Vehicles-Phase 2. 80 FR
40137. (Also listed for SC-CO2 and SC-CH4.)
GWP and
2015
08/29/16
EPA
final
Emission Guidelines and Compliance Times for Municipal Solid
Waste Landfills. 81 FR 59275.
2015
09/13/16
DOE
proposed
ECS for Walk-In Cooler and Freezer Refrigeration Systems. 81 FR
62979. (Also listed for SC-CO2 and SC-CH4.)
2015
10/28/16
DOE
final
ECS for Miscellaneous Refrigeration Products. 81 FR 75194. (Also
listed for SC-CO2 and SC-CH4.)
2015
01/18/17
DOE
direct final
ECS for Dedicated-Purpose Pool Pumps. 82 FR 5650.
2016
Congressional Research Service
13
Federal Citations to the Social Cost of Greenhouse Gases
Source: CRS, from searches in FederalRegister.gov. This table includes regulation-related actions only, not
other federal actions, such as grant programs. It also does not include notices of comments received except
when accompanied by the agency responses to comments.
Notes:
“GWP” means Global Warming Potential, an index that weights GHG according to an estimate of their effect on
average temperature change relative to the same mass of carbon dioxide.
Abbreviations for offices, departments, and agencies are as follows:
BLM: Department of the Interior Bureau of Land Management
CEQ: Executive Office of the President Council on Environmental Quality
DOE: Department of Energy
DOI: Department of the Interior
DOT: Department of Transportation
EPA: Environmental Protection Agency
FAA: Department of Transportation Federal Aviation Administration
FS: Department of Agriculture Forest Service
FMCSA: Department of Transportation, Federal Motor Carrier Safety Administration
HUD: Department of Housing and Urban Development
NHTSA: Department of Transportation National Highway Traffic Safety Administration
OMB: Executive Office of the President Office of Management and Budget
SMREO: Department of the Interior, Surface Mining Reclamation and Enforcement Office
USDA: Department of Agriculture
a. “SCC” and “SC-CO2” both mean Social Costs of Carbon. “SC-CH4” means Social Costs of Methane. “SCN2O” means Social Costs of Nitrous Oxide.
b. Tables of the SC-CO2 values from the 2010 to 2016 references for this column are in an Appendix to this
report. This column provides the date and origin of the values of SC-CO2 or SC-CH4 referred to in the
associated federal action. Versions formerly available on whitehouse.gov are no longer available there.
“None” means that, although the SC-CO2 or SC-CH4 may have been mentioned, no quantitative value
appeared to be used in that action; some cited actions invite comment on the use of such values.
“IPCC” means SC-CO2 values from the 2007 assessment of the Intergovernmental Panel on Climate
Change (IPCC); “own” means values developed by an agency (sometimes in collaboration with another) and
reported in that regulatory action;
“2009” means interim interagency values as published in Table III.H.6–3, p. 29617 of the joint EPA and
DOT-NHTSA ‘‘Proposed Rulemaking to Establish Light-Duty Vehicle Greenhouse Gas Emission Standards
and Corporate Average Fuel Economy Standards,’’ 74 Federal Register 186, September 28, 2009; “2010”
means agreed interagency values released in Interagency Working Group on Social Cost of Carbon,
“Technical Support Document: Social Cost of Carbon for Regulatory Impact Analysis Under Executive
Order 12866,” February 2010;
“2013a” means updated values released in Interagency Working Group on Social Cost of Carbon,
“Technical Support Document: Technical Update of the Social Cost of Carbon for Regulatory Impact
Analysis Under Executive Order 12866,” May 2013;
“2013b” means revised (corrected) values released in Interagency Working Group on Social Cost of
Carbon, “Technical Support Document: Technical Update of the Social Cost of Carbon for Regulatory
Impact Analysis Under Executive Order 12866,” May 2013, revised November 2013.
“2015” means the July 2, 2015 revision to the Technical Update document.
The 2015 source for the SC-CH4 is A. L. Marten et al., “Incremental CH4 and N2O Mitigation Benefits
Consistent with the U.S. Government’s SC-CO2 Estimates,” Climate Policy (2014, online publication; 2015,
print publication); and Marten et al., “Corrigendum,” Climate Policy, vol. 15, no. 5 (2015);
“2016” is the Interagency Working Group on Social Cost of Greenhouse Gases, “Addendum to Technical
Support Document on Social Cost of Carbon for Regulatory Impact Analysis under Executive Order 12866:
Application of the Methodology to Estimate the Social Cost of Methane and the Social Cost of Nitrous
Oxide.” August 2016.
c. “ECP” means Energy Conservation Program. “ECS” means Energy Conservation Standard(s).
Congressional Research Service
14
Federal Citations to the Social Cost of Greenhouse Gases
d.
The Federal Register notice described two methods to compute the social costs of non-CO2 gases, a “GWP
approach” and the “Marten approach.” The proposed rule noted that EPA was undertaking peer review of
the application of the Marten et al. (2014) non-CO2 social cost estimates in regulatory analysis. Pending a
favorable peer review, EPA planned to include estimated monetized benefits of CH4 and N2O emission
reductions in the main benefit-cost analysis of the RIA for the final rule, using the directly modeled
estimates of SC-CH4 and SC-N2O from Marten et al. The Federal Register notice sought comments on the
use of the Marten approach for non-CO2 GHG. It also noted that work was in progress to develop
methods to calculate the social cost of tropospheric ozone on climate change, though none was applied for
this proposal.
Congressional Research Service
15
Federal Citations to the Social Cost of Greenhouse Gases
Appendix. Versions of the Social Cost of GHG Used
in Federal Regulatory Actions, 2010 to 2015
Table A-1. Social Costs of Carbon Used Prior to Interagency Working Group
per metric ton of carbon dioxide
Source
Estimate(s)
Used
Year of
Dollars
Comments
IPCC 2007
0-14a
Treated as if
2007
Derived from mean of a literature review (Tol
2005), inflating year of dollars from 2000 to 2007
then discounting streams of estimated benefits to
2007 present values at 3% and 7%
NHTSA
7, growing at
2.4% per
year of
emissions
2011
Based also on Tol 2005, using it as an upper bound
with 0 as a lower bound and using the midpoint of
that range. Performed sensitivity analysis for 0 and
14.
EPA and NHTSA
0-11 for
global
benefits; 0.31.9 for
domestic
benefits
2006
Proposed rules states, “Given the current
uncertainty regarding the social cost of carbon,
Table VI-2 does not include a monetized value for
the reduction in GHG emissions. We present
here a number of different values and indicate
what impact they would have on the net social
benefits for our updated analysis. Presentation of
these values does not represent, and should not
be interpreted to represent, any determination by
EPA as to what the social cost of carbon should be
for purposes of calculating benefits pursuant to
the Clean Air Act.”
IPCC 2007
0-20
2007
In 2009, DOE corrected the year of dollars from
that used in IPCC 2007 cited above. It used
updated estimate in Tol 2007. See
https://www.federalregister.gov/documents/2009/
01/09/E8-31449/energy-conservation-program-forcommercial-and-industrial-equipment-energyconservation-standards.
Source: DOE, “Energy Conservation Program (ECP)c for Commercial and Industrial Equipment: Packaged
Terminal Air Conditioner and Packaged Terminal Heat Pump Energy Conservation Standards,” 73 Federal Register
18858, April 7, 2008; NHTSA, “Corporate Average Fuel Economy Standards, Passenger Cars and Light Trucks;
Model Years 2011-2015,” 73 Federal Register 24352, May 2, 2008, https://www.federalregister.gov/documents/
2008/05/02/08-1186/average-fuel-economy-standards-passenger-cars-and-light-trucks-model-years-2011-2015; R.
S. J. Tol, “The Social Cost of Carbon: Trends, Outliers, and Catastrophes,” Research Unit Sustainability and Global
Change, Working Paper FNU-144, Hamburg University, 2007.
Notes:
a. DOE reports, “The literature review (Tol 2005) from which this mean was derived did not report the year
in which these dollars are denominated. However, since the underlying studies spanned several years on
either side of 2000, the estimate is often treated as year 2000 dollars. Updating that estimate to 2007
dollars yields a SCC of $14 per ton of carbon dioxide.”
Congressional Research Service
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Federal Citations to the Social Cost of Greenhouse Gases
Table A-2. 2010 Interagency Working Group on the Social Cost of Carbon
(2007 dollars per metric ton of CO2)
Discount
5%
Rate
Average
3%
2.5%
Average Average
3%
95th Percentile
2010
4.7
21.4
35.1
64.9
2015
5.7
23.8
38.4
72.8
2020
6.8
26.3
41.7
80.7
2025
8.2
29.6
45.9
90.4
2030
9.7
32.8
50.0
100.0
2035
11.2
36.0
54.2
109.7
2040
12.7
39.2
58.4
119.3
2045
14.2
42.1
61.7
127.8
2050
15.7
44.9
65.0
136.2
Source: Interagency Working Group on Social Cost of Carbon, “Technical Support Document: Technical
Update of the Social Cost of Carbon for Regulatory Impact Analysis Under Executive Order 12866,” February
2010.
Table A-3. May 2013 Technical Update of the Social Cost of Carbon
Revised social cost of CO2, 2010-2050 (in 2007 dollars per metric ton of CO2)
Discount
Rate:
5%
3%
Average Average
2.5%
Average
3%
95th Percentile
2010
11
33
52
90
2015
12
38
58
109
2020
12
43
65
129
2025
14
48
70
144
2030
16
52
76
159
2035
19
57
81
176
2040
21
62
87
192
2045
24
66
92
206
2050
27
71
99
221
Source: Interagency Working Group on Social Cost of Carbon, “Technical Support Document: Technical
Update of the Social Cost of Carbon for Regulatory Impact Analysis Under Executive Order 12866,” May 2013.
Congressional Research Service
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Federal Citations to the Social Cost of Greenhouse Gases
Table A-4. July 2015 Revision of the May 2013 Technical Update of the
Social Cost of Carbon
in 2007 dollars per metric ton of CO2
Discount
Rate
5.0%
Average
3.0%
Average
2.5%
3.0%
Average 95th Percentile
2010
10
31
50
86
2015
11
36
56
105
2020
12
42
62
123
2025
14
46
68
138
2030
16
50
73
152
2035
18
55
78
168
2040
21
60
84
183
2045
23
64
89
197
2050
26
69
95
212
Source: Interagency Working Group on Social Cost of Carbon, “Technical Support Document: Technical
Update of the Social Cost of Carbon for Regulatory Impact Analysis Under Executive Order 12866,” May 2013,
revised November 2013.
Table A-5. August 2016 Revision of the Social Cost of Carbon
in 2007 dollars per metric ton CO2
Discount
Rate:
5%
Average
3%
Average
2.5%
Average
3%
95th percentile
2015
11
36
56
105
2020
12
42
62
123
2025
14
46
68
138
2030
16
50
73
152
2035
18
55
78
168
2040
21
60
84
183
2045
23
64
89
197
2050
26
69
95
212
Source: Interagency Working Group on Social Cost of Greenhouse Gases, “Technical Update of the Social
Cost of Carbon for Regulatory Impact Analysis Under Executive Order 12866,” May 2013, Revised August
2016.
Congressional Research Service
18
Federal Citations to the Social Cost of Greenhouse Gases
Table A-6. 2015 Social Cost of Methane (SC-CH4)
in 2007 dollars per metric ton of CH4
Discount
Rate
5.0%
Average
3.0%
Average
2.5%
3.0%
Average 95th Percentile
2012
$430
$1,000
$1,400
$2,800
2015
490
1,100
1,500
3,000
2020
580
1,300
1,700
3,500
2025
700
1,500
1,900
4,000
2030
820
1,700
2,200
4,500
2035
970
1,900
2,500
5,300
2040
1,100
2,200
2,800
5,900
2045
1,300
2,500
3,000
6,600
2050
1,400
2,700
3,300
7,200
Source: A. L. Marten et al., “Incremental CH4 and N2O Mitigation Benefits Consistent with the U.S.
Government’s SC-CO2 Estimates,” Climate Policy (2014, online publication; 2015, print publication); and Marten
et al., “Corrigendum,” Climate Policy, vol. 15, no. 5 (2015).
Notes: The values are emissions-year specific. Estimates using several discount rates are included because the
literature shows that estimates of the SC-CO2 (and SC-CH4) are sensitive to assumptions about the discount
rate and because no consensus exists on the appropriate rate to use in an intergenerational context (where
costs and benefits are incurred by different generations). The fourth value is the 95th percentile of the SC-CH4
estimates across three models using a 3% discount rate. It is included to represent higher-than-expected impacts
from temperature change further out in the tails of the SC-CH4 distribution. Marten et al., adjusted the estimates
in this table to reflect the 2015 minor technical corrections to the SC-CO2 estimates.
Table A-7. August 2016 Social Cost of Methane (SC-CH4)
in 2007 dollars per metric ton CH4
Discount
Rate:
5%
Average
3%
Average
2.5%
Average
3%
95th percentile
2015
450
1,000
1,400
2,800
2020
540
1,200
1,600
3,200
2025
650
1,400
1,800
3,700
2030
760
1,600
2,000
4,200
2035
900
1,800
2,300
4,900
2040
1,000
2,000
2,600
5,500
2045
1,200
2,300
2,800
6,100
2050
1,300
2,500
3,100
6,700
Source: Interagency Working Group on Social Cost of Greenhouse Gases, “Addendum to the Technical
Support Document for the Social Cost of Carbon: Application of the Methodology to Estimate the Social Cost of
Methane and the Social Cost of Nitrous Oxide,” August 2016.
Congressional Research Service
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Federal Citations to the Social Cost of Greenhouse Gases
Author Contact Information
(name redacted)
Specialist in Energy and Environmental Policy
[redacted]@crs.loc.gov, 7-....
Congressional Research Service
20
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