英國(guó)醞釀在2026年推出碳邊境稅

文章來(lái)源:金融時(shí)報(bào) iGDP2023-11-24 09:11

英國(guó)財(cái)政大臣杰里米-亨特（Jeremy Hunt）正計(jì)劃從2026年起對(duì)來(lái)自氣候監(jiān)管較弱國(guó)家進(jìn)口的碳密集型商品征稅，這與歐盟正在采取的措施相仿。

該計(jì)劃可能將在近期的政府季度聲明中宣布。英國(guó)政府曾在今年早些時(shí)候就是否引入“碳邊境調(diào)節(jié)機(jī)制”（CBAM）公開(kāi)征求過(guò)意見(jiàn)。

歐盟于今年9月啟動(dòng)了CBAM計(jì)劃，以解決“碳泄漏”問(wèn)題。預(yù)計(jì)亨特將宣布，英國(guó)將在歐盟機(jī)制生效的 2026 年啟動(dòng)英國(guó)版的 CBAM 計(jì)劃，以避免英國(guó)成為面臨歐盟征稅的碳密集型產(chǎn)品的“傾銷地”。

政府確認(rèn)繼續(xù)實(shí)施該計(jì)劃將受到英國(guó)工業(yè)界的歡迎，但官員們提醒說(shuō)，政府機(jī)構(gòu)間的談判仍在繼續(xù)，任何宣布都可能推遲到春季預(yù)算周期。

貿(mào)易機(jī)構(gòu)英國(guó)鋼鐵公司（UK Steel）的總干事加雷斯-斯特斯說(shuō)：“隨著英國(guó)鋼鐵工業(yè)向綠色鋼鐵生產(chǎn)轉(zhuǎn)型，非常重要的是，它不再繼續(xù)被高排放的進(jìn)口鋼材所取代。”

“歐洲正在實(shí)施自己的CBAM，如果我們不盡快制定和實(shí)施自己的措施，英國(guó)就有可能與我們最大的貿(mào)易伙伴之間形成破壞性的貿(mào)易壁壘。”

英國(guó)政府還面臨一個(gè)挑戰(zhàn)，即如何使本國(guó)碳市場(chǎng)與歐盟碳市場(chǎng)保持一致，以避免英國(guó)制造商在 CBAM 下要對(duì)本國(guó)出口產(chǎn)品征稅，因?yàn)橛?guó)市場(chǎng)的碳價(jià)格遠(yuǎn)低于歐盟市場(chǎng)。

財(cái)政部在 2021 年 10 月的凈零審查中提出了 CBAM 的前景，但警告說(shuō)實(shí)施起來(lái)會(huì)很復(fù)雜。英國(guó)首相蘇納克（Rishi Sunak）今年早些時(shí)候表示，這一想法“合情合理”，并暗示英國(guó)可以就其計(jì)劃與布魯塞爾合作。

歐洲議會(huì)首席談判代表彼得-利塞（Peter Liese）去年表示，歐盟的 CBAM已成為“歐洲有史以來(lái)，也有人說(shuō)是全球最具規(guī)模的氣候法。” 該機(jī)制最初要求進(jìn)口商收集信息而不征稅。

從歐盟外向歐洲銷售鐵、水泥、化肥和電力供應(yīng)等產(chǎn)品的公司，如果沒(méi)有可比的碳成本，將面臨與歐盟排放交易體系下與碳價(jià)格掛鉤的新征稅。

但無(wú)論英國(guó)是否建立 CBAM，如果英國(guó)不在法律上將其碳定價(jià)與歐盟的碳定價(jià)掛鉤，那么如果英國(guó)的碳價(jià)格仍然較低，英國(guó)的出口仍可能面臨征稅。

即使是可再生能源電力的出口也可能面臨征稅，因?yàn)閺囊粋€(gè)電網(wǎng)出口到另一個(gè)電網(wǎng)時(shí)，無(wú)法識(shí)別電力供應(yīng)是來(lái)自綠色能源還是化石燃料。

英國(guó)能源行業(yè)組織副主任亞當(dāng)-伯曼（Adam Berman）說(shuō)：“將我們的碳定價(jià)制度與歐盟的碳定價(jià)制度掛鉤，可使英國(guó)公司免于承擔(dān)這些成本。”

英國(guó)脫歐后的碳市場(chǎng)與歐盟排放交易計(jì)劃相似，但今年英國(guó)碳價(jià)大幅下跌，因?yàn)樘K納克政府提供的碳配額遠(yuǎn)超此前的預(yù)期。英國(guó)的碳價(jià)格約為每噸 41 英鎊，而歐盟的碳價(jià)格為每噸 66 英鎊（76 歐元）。

據(jù)英國(guó)能源部計(jì)算，英國(guó)財(cái)政部每年因碳價(jià)疲軟而損失近30億英鎊的收入。能源部警告說(shuō)，如果碳價(jià)繼續(xù)打折，每年約5億英鎊的邊境稅實(shí)際上將由歐盟而非英國(guó)獲得。

能源與氣候信息小組（Energy and Climate Intelligence Unit）能源主管杰斯-拉爾斯頓（Jess Ralston）表示，CBAM或有助于恢復(fù)部分綠色投資者的信心。

“歐盟躍躍欲試地推出 CBAM，美國(guó)《通脹削減法案》則如幽靈般時(shí)刻吸引著大西洋彼岸的低碳投資，英國(guó)確實(shí)必須行動(dòng)起來(lái)了。”

上個(gè)月對(duì)英國(guó)制造業(yè) 400 名高級(jí)經(jīng)理進(jìn)行的一項(xiàng)調(diào)查顯示，四分之三的人支持英國(guó)引入 CBAM，只有 8% 的人反對(duì)。該調(diào)查覆蓋了建筑、機(jī)械、汽車和食品等行業(yè)。

這項(xiàng)由智庫(kù)E3G 委托進(jìn)行的調(diào)查發(fā)現(xiàn)，每 10 家英國(guó)制造商中就有 7 家表示，英國(guó)未來(lái)的任何碳邊境措施都應(yīng)與歐洲的計(jì)劃相一致。

但CBAM也遭到了一些貿(mào)易競(jìng)爭(zhēng)對(duì)手的批評(píng)，尤其是美國(guó)、中國(guó)和南非，他們認(rèn)為該政策將不公平地懲罰這些國(guó)家的制造商。

財(cái)政部表示將在適當(dāng)?shù)臅r(shí)候宣布下一步措施。“我們不會(huì)對(duì)財(cái)政事件前的猜測(cè)發(fā)表評(píng)論。”

英文原文：

Jeremy Hunt, the UK chancellor, is planning to introduce levies on imported carbon-intensive goods from countries with weaker climate regulations from 2026, mirroring measures being introduced by the EU.

The plan, which could be announced in this month’s Autumn Statement, follows a consultation earlier this year on whether to introduce a “carbon border adjustment mechanism”, or CBAM, to protect industries from unfair competition from regions with lower carbon costs.

The EU soft-launched its CBAM programme in September to tackle “carbon leakage”, when companies move production to countries with weaker or non-existent carbon costs while retaining free access to markets where heavy industry pays for emissions.

Hunt is expected to announce that the UK will launch its own CBAM programme in 2026, when the EU mechanism takes effect, to avoid the risk of the UK becoming a dumping ground for carbon-intensive products facing levies by the EU.

Confirmation that the government was going ahead with the plan would be welcomed by UK industries, although officials cautioned that cross-Whitehall negotiations were continuing and any announcement could slip to the spring Budget.

“As the UK steel industry is transiting to green steel production, it is essential that it is not continually outcompeted by high-emission, imported steel,” said Gareth Stace, director-general of trade body UK Steel.

“Europe is implementing its own CBAM, and the UK risks a damaging trade barrier with our biggest trade partner if we don’t develop and implement our own measures quickly.”

The government also faces a challenge in aligning its own carbon market with the EU’s to avoid British manufacturers facing levies on their own exports under CBAM, as carbon prices in the UK market are far lower than those on the EU market.

The Treasury raised the prospect of a CBAM in its net zero review in October 2021 but warned it would be complicated to implement. Rishi Sunak, the prime minister, said earlier this year that the idea was “reasonable and sensible” and hinted that Britain could co-operate with Brussels over its plans.

The EU’s CBAM, which initially requires importers to collect information without charging the levy, has been “the biggest climate law ever in Europe, and some say in the world”, Peter Liese, lead negotiator for the European parliament, said last year.

Companies selling products such as iron, cement, fertiliser and power supplies into Europe from outside the bloc, and who do not face comparable carbon costs, will face new levies linked to the carbon price under the EU Emissions Trading System.

But regardless of whether the UK creates a CBAM, if it does not legally link its carbon pricing to the EU’s, British exports could still face levies if UK carbon prices remain lower.

Even exports of renewable electricity could face levies because it is not possible to identify whether power supplies come from green sources or fossil fuels when exporting from one grid to another.

“Linking our carbon pricing regime with the EU’s would exempt UK companies from these costs,” said Adam Berman, deputy director of industry body Energy UK.

The UK’s post-Brexit carbon market is a close copy of the EU ETS, but this year British carbon prices fell sharply as Sunak’s government made more carbon allowances available than previously expected. The UK carbon price is about £41 a tonne compared with £66 (€76) a tonne in the EU.

Energy UK calculates the Treasury is losing out on almost £3bn of revenue annually from weak carbon prices and has warned that about £500mn a year in border taxes will in effect be captured by the EU rather than the UK if prices continue to trade at a discount.

Jess Ralston, head of energy at the Energy and Climate Intelligence Unit, said a CBAM could help reinstate some green investor confidence that was “shaken” by Sunak’s net zero U-turns in September.

“With the EU leaping ahead with its CBAM, and the ever-present spectre of the US Inflation Reduction Act luring low-carbon investment across the Atlantic, the UK really does have to act.”

A survey last month of 400 senior managers in the UK manufacturing industry covering sectors from construction and machinery to automotives and food found that three-quarters backed the introduction of a UK CBAM, with only 8 per cent opposing it.

The survey, commissioned by think-tank E3G, found that seven in 10 British manufacturers said any future UK carbon border measure should be compatible with the European scheme.

But CBAM has been criticised by some trading rivals — in particular the US, China and South Africa — who believe the policy will unfairly penalise their manufacturers.

The Treasury said it would announce its next steps in due course. “We do not comment on speculation ahead of fiscal events.”

本文 2023 年 11 月 12 日發(fā)布于金融時(shí)報(bào)。文章僅代表作者觀點(diǎn)，不代表本公眾號(hào)立場(chǎng)。

翻譯審校/姚喆韓迪編輯/韓迪

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