Frequent Questions about Allowance Markets

What is allowance trading?
What is a General Account?
How do I create a General Account?
Who may participate in allowance trading?
How are allowances allocated?
How else can allowances be obtained?
Does EPA track and publish allowance price data?
How are allowance transfers submitted?
How does EPA keep track of allowances?
How are allowances used for compliance?
What are the CSAPR assurance provisions, and how many allowances must be surrendered when the provisions are triggered?

1) What is allowance trading?

Allowance trading allows sources in cap and trade programs to adopt the most cost-effective strategy to reduce emissions. Affected sources are required to install systems that continuously monitor emissions of SO₂, NO_x, and other related pollutants in order to track progress and ensure compliance. Sources that reduce their emissions below the number of allowances they hold may trade allowances with other sources in their system, sell them to other sources on the open market or through EPA auctions, or bank them to cover emissions in future years.

2) What is a General Account?

A General Account may be opened by any person, company, or organization for the purpose of holding and transferring allowances. General Accounts are not tied to specific plants and are not considered compliance accounts. In addition to the compliance accounts established for them by the EPA, members of the regulated community may also open general accounts to hold or transfer allowances.

3) How do I create a General Account?

Industry users with active CBS accounts can create a General Account in CBS by following the steps outlined in the CBS Help file starting at the bottom of page 20. All other users must submit both a General Account form and an Electronic Signature Agreement. Forms and submission instructions can be found on our Business Center Forms page.

4) Who may participate in allowance trading?

Any individual, corporation, or governing body may participate in the allowance market. Examples of participants include brokers, municipalities, environmental groups, and private citizens. Any party wishing to purchase allowances may open a General Account. Members of the regulated community may also open general accounts, in addition to the compliance accounts established for them by EPA to hold or transfer allowances.

5) How are allowances allocated?

Allowances can be allocated in several ways under the cap on emissions. EPA allocates allowances for the Acid Rain Program based on a rate of SO₂ emissions (in lbs/million British thermal units) and a baseline fuel consumption. These regulations are listed in 40 CFR 73.10, Tables 1 and 2(55 pp, 5.5 MB, About PDF). For other programs, such as CSAPR Update, allowances can be allocated according to formulas recommended by EPA, or by an alternative method in states that have an approved State Implementation Plan (SIP).

6) How else can allowances be obtained?

Allowances can be bought directly from a company or individual who holds them. They can also be bought through a broker, which is a company that facilitates allowance transactions. Additionally, SO₂ allowances under the Acid Rain Program can be bought at EPA's Annual SO₂ Allowance Auction. To bid in the EPA auctions please see the How to Bid Factsheet in the Auction section of Clean Air Markets Forms page.

7) Does EPA track and publish allowance price data?

Buyers and sellers of allowances are generally not required to report transaction prices to the Clean Air Markets Division. However, subscription data services regularly survey and report market prices for allowances in EPA’s allowance trading programs.

8) How are allowance transfers submitted?

Authorized account representatives or their agents can transfer allowances through the CAMD Business System (CBS) or by submitting an Allowance Transfer Form.

9) How does EPA keep track of allowances?

EPA maintains an Allowance Management System (AMS) to record allowance transfers. AMS accounts are the official records for allowance holdings and transfers used for compliance purposes. To facilitate tracking and recording, EPA assigns every account an identification number and every allowance a serial number. Each affected source, corporation, group, or individual holding allowances has an account in the AMS.

All the information in AMS is available in EPA’s Clean Air Markets Program Data (CAMPD) and Clean Air Markets API Portal (CAM API).

10) How are allowances used for compliance?

Under the Acid Rain Program, one allowance is equivalent to 1 ton of SO₂ during a given year or any subsequent year. Under the trading programs established under the Cross State Air Pollution Rule Programs  there are annual NO_x and SO₂ allowances, as well as seasonal NO_x allowances. By the allowance transfer deadline following the end of each year or ozone season, a source must hold an amount of allowances at least equal to its emissions that occurred during that year or ozone season. For example, a source subject to the Acid Rain Program that emits 5,000 tons of SO₂ must hold at least 5,000 Acid Rain Program SO₂ allowances that are usable in that year. Under the Acid Rain Program, the allowance transfer deadline is 60 days after the end of that year (March 1 in most years and February 29 in leap years), while under the CSAPR and Good Neighbor programs, the allowance transfer deadline is June 1 after the end of that year. To protect public health, and regardless of how many allowances a source holds, it is never entitled to exceed the limits set under Title I of the Act.

11) What are the CSAPR assurance provisions, and how many allowances must be surrendered when the provisions are triggered?

The CSAPR Update trading programs contain assurance provisions that help ensure that necessary emissions reductions will occur within each CSAPR-covered state. Each covered state’s assurance level equals that state’s budget plus the variability limit (set at 21% above the individual state budget for ozone season NO_x and 18% above the individual state budget for both SO₂ and annual NO_x).

The assurance provisions are triggered for a given state, program, and year if a state’s total emissions from all units covered by a specific program in that year are greater than the sum of the state’s budget plus variability limit for that program and year. The CSAPR regulations include procedures for apportioning responsibility for overall excess emissions among the state’s affected sources. Two allowances must be surrendered for each ton of emissions exceeding the assurance level.

For more information on related definitions, administrative procedures, and compliance requirements, visit our CSAPR Assurance Provision page.