2. In this chapter,
look for the answers to these questions:
What is an externality?
Why do externalities make market outcomes
inefficient?
What public policies aim to solve the problem of
externalities?
How can people sometimes solve the problem of
externalities on their own? Why do such private
solutions not always work?
2
3. Introduction
One of the principles from Chapter 1:
Markets are usually a good way
to organize economy activity.
In absence of market failures, the competitive
market outcome is efficient, maximizes total surplus.
One type of market failure:
externality, the uncompensated impact of one
person’s actions on the well-being of a bystander.
Externalities can be negative or positive,
depending on whether impact on bystander is
adverse or beneficial.
EXTERNALITIES 3
4. Introduction
Self-interested buyers and sellers neglect the
external costs or benefits of their actions,
so the market outcome is not efficient.
Another principle from Chapter 1:
Governments can sometimes
improve market outcomes.
In presence of externalities, public policy can
improve efficiency.
EXTERNALITIES 4
5. Examples of Negative Externalities
Air pollution from a factory
The neighbor’s barking dog
Late-night stereo blasting from
the dorm room next to yours
Noise pollution from
construction projects
Health risk to others from
second-hand smoke
Talking on cell phone while driving makes the
roads less safe for others
EXTERNALITIES 5
6. Recap of Welfare Economics
P The market for gasoline
$5 The market eq’m
maximizes consumer
+ producer surplus.
4
Supply curve shows
3 private cost, the costs
$2.50 directly incurred by sellers.
2
Demand curve shows
private value, the value
1
to buyers (the prices they
are willing to pay).
0
0 10 20 25 30 Q
(gallons)
EXTERNALITIES 6
7. Analysis of a Negative Externality
P The market for gasoline
$5 Social cost
= private + external cost
4 external
Supply (private cost)
cost
3 External cost
= value of the
2 negative impact
on bystanders
1 = $1 per gallon
(value of harm
0 from smog,
0 10 20 30 Q
greenhouse gases)
(gallons)
EXTERNALITIES 7
8. Analysis of a Negative Externality
P The market for gasoline
The socially
The socially
$5
Social optimal quantity
optimal quantity
cost is 20 gallons.
is 20 gallons.
4
S
3 At any Q < 20,
At any Q < 20,
value of additional gas
value of additional gas
2 exceeds social cost.
exceeds social cost.
At any Q > 20,
At any Q > 20,
D social cost of the
social cost of the
1 last gallon is
last gallon is
greater than its value
greater than its value
0 to society.
to society.
0 10 20 25 30 Q
(gallons)
EXTERNALITIES 8
9. Analysis of a Negative Externality
P The market for gasoline
$5
Social Market eq’m
cost (Q = 25)
4
S is greater than
social optimum
3
(Q = 20).
2 One solution:
D tax sellers
1 $1/gallon,
would shift
0 S curve up $1.
0 10 20 25 30 Q
(gallons)
EXTERNALITIES 9
10. “Internalizing the Externality”
Internalizing the externality: altering incentives
so that people take account of the external effects
of their actions
In our example, the $1/gallon tax on sellers makes
sellers’ costs = social costs.
When market participants must pay social costs,
market eq’m = social optimum.
(Imposing the tax on buyers would achieve the
same outcome; market Q would equal optimal Q.)
EXTERNALITIES 10
11. Examples of Positive Externalities
Being vaccinated against
contagious diseases protects
not only you, but people who
visit the salad bar or produce
section after you.
R&D creates knowledge
others can use.
People going to college raise
Thank you for
the population’s education not contaminating
level, which reduces crime the fruit supply!
and improves government.
EXTERNALITIES 11
12. Positive Externalities
In the presence of a positive externality,
the social value of a good includes
private value – the direct value to buyers
external benefit – the value of the
positive impact on bystanders
The socially optimal Q maximizes welfare:
At any lower Q, the social value of
additional units exceeds their cost.
At any higher Q, the cost of the last unit
exceeds its social value.
EXTERNALITIES 12
13. ACTIVE LEARNING 1
Analysis of a positive externality
P The market for flu shots
External benefit
$50 = $10/shot
40 Draw the social
value curve.
S
30 Find the socially
optimal Q.
20 What policy would
internalize this
10 externality?
D
0 Q
0 10 20 30 13
14. ACTIVE LEARNING 1
Answers
Socially optimal Q
P The market for flu shots
= 25 shots.
$50
external To internalize the
40 benefit externality, use
subsidy = $10/shot.
S
30
Social value
20 = private value
+ $10 external benefit
10
D
0 Q
0 10 20 25 30 14
15. Effects of Externalities: Summary
If negative externality
If negative externality
market quantity larger than socially desirable
market quantity larger than socially desirable
If positive externality
If positive externality
market quantity smaller than socially desirable
market quantity smaller than socially desirable
To remedy the problem,
To remedy the problem,
“internalize the externality”
“internalize the externality”
tax goods with negative externalities
tax goods with negative externalities
subsidize goods with positive externalities
subsidize goods with positive externalities
EXTERNALITIES 15
16. Public Policies Toward Externalities
Two approaches:
Command-and-control policies regulate
behavior directly. Examples:
limits on quantity of pollution emitted
requirements that firms adopt a particular
technology to reduce emissions
Market-based policies provide incentives so that
private decision-makers will choose to solve the
problem on their own. Examples:
corrective taxes and subsidies
tradable pollution permits
EXTERNALITIES 16
17. Corrective Taxes & Subsidies
Corrective tax: a tax designed to induce private
decision-makers to take account of the social
costs that arise from a negative externality
Also called Pigouvian taxes after Arthur Pigou
(1877-1959).
The ideal corrective tax = external cost
For activities with positive externalities,
ideal corrective subsidy = external benefit
EXTERNALITIES 17
18. Corrective Taxes & Subsidies
Other taxes and subsidies distort incentives and
move economy away from the social optimum.
Corrective taxes & subsidies
align private incentives with society’s interests
make private decision-makers take into account
the external costs and benefits of their actions
move economy toward a more efficient
allocation of resources.
EXTERNALITIES 18
19. Corrective Taxes vs. Regulations
Different firms have different costs of pollution
abatement.
Efficient outcome: Firms with the lowest
abatement costs reduce pollution the most.
A pollution tax is efficient:
Firms with low abatement costs will reduce
pollution to reduce their tax burden.
Firms with high abatement costs have greater
willingness to pay tax.
In contrast, a regulation requiring all firms to
reduce pollution by a specific amount not efficient.
EXTERNALITIES 19
20. Corrective Taxes vs. Regulations
Corrective taxes are better for the environment:
The corrective tax gives firms incentive to
continue reducing pollution as long as the cost of
doing so is less than the tax.
If a cleaner technology becomes available,
the tax gives firms an incentive to adopt it.
In contrast, firms have no incentive for further
reduction beyond the level specified in a
regulation.
EXTERNALITIES 20
21. Example of a Corrective Tax: The Gas Tax
The gas tax targets three negative externalities:
Congestion
The more you drive, the more you contribute to
congestion.
Accidents
Larger vehicles cause more damage in an
accident.
Pollution
Burning fossil fuels produces greenhouse gases.
EXTERNALITIES 21
22. ACTIVE LEARNING 2
A. Regulating lower SO2 emissions
Acme and US Electric run coal-burning power plants.
Each emits 40 tons of sulfur dioxide per month,
total emissions = 80 tons/month.
Goal: Reduce SO2 emissions 25%, to 60 tons/month
Cost of reducing emissions:
$100/ton for Acme, $200/ton for USE
Policy option 1: Regulation
Every firm must cut its emissions 25% (10 tons).
Your task: Compute the cost to each firm and
total cost of achieving goal using this policy.
22
23. ACTIVE LEARNING 2
A. Answers
Each firm must reduce emissions by 10 tons.
Cost of reducing emissions:
$100/ton for Acme, $200/ton for USE.
Compute cost of achieving goal with this policy:
Cost to Acme: (10 tons) x ($100/ton) = $1000
Cost to USE: (10 tons) x ($200/ton) = $2000
Total cost of achieving goal = $3000
23
24. ACTIVE LEARNING 2
B. Tradable pollution permits
Initially, Acme and USE each emit 40 tons SO2/month.
Goal: reduce SO2 emissions to 60 tons/month total.
Policy option 2: Tradable pollution permits
Issue 60 permits, each allows one ton SO2 emissions.
Give 30 permits to each firm.
Establish market for trading permits.
Each firm may use all its permits to emit 30 tons,
may emit < 30 tons and sell leftover permits,
or may purchase extra permits to emit > 30 tons.
Your task: Compute cost of achieving goal if Acme
uses 20 permits and sells 10 to USE for $150 each. 24
25. ACTIVE LEARNING 2
B. Answers
Goal: reduce emissions from 80 to 60 tons
Cost of reducing emissions:
$100/ton for Acme, $200/ton for USE.
Compute cost of achieving goal:
Acme
sells 10 permits to USE for $150 each, gets $1500
uses 20 permits, emits 20 tons SO2
spends $2000 to reduce emissions by 20 tons
net cost to Acme: $2000 - $1500 = $500
continued…
25
26. ACTIVE LEARNING 2
B. Answers, continued
Goal: reduce emissions from 80 to 60 tons
Cost of reducing emissions:
$100/ton for Acme, $200/ton for USE.
USE
buys 10 permits from Acme, spends $1500
uses these 10 plus original 30 permits, emits 40 tons
spends nothing on abatement
net cost to USE = $1500
Total cost of achieving goal = $500 + $1500 = $2000
Using tradable permits, goal is achieved at lower total
cost and lower cost to each firm than using regulation. 26
27. Tradable Pollution Permits
A tradable pollution permits system reduces
pollution at lower cost than regulation.
Firms with low cost of reducing pollution
sell whatever permits they can.
Firms with high cost of reducing pollution
buy permits.
Result: Pollution reduction is concentrated
among those firms with lowest costs.
EXTERNALITIES 27
28. Tradable Pollution Permits
in the Real World
SO2 permits traded in the U.S. since 1995.
Nitrogen oxide permits traded in the northeastern
U.S. since 1999.
Carbon emissions permits traded in Europe since
January 1, 2005.
As of June 2008, Barack Obama and John McCain
each propose “cap and trade” systems to reduce
greenhouse gas emissions.
EXTERNALITIES 28
29. Corrective Taxes vs.
Tradable Pollution Permits
Like most demand curves, firms’ demand for the
ability to pollute is a downward-sloping function of
the “price” of polluting.
A corrective tax raises this price and thus
reduces the quantity of pollution firms demand.
A tradable permits system restricts the supply
of pollution rights, has the same effect as the
tax.
When policymakers do not know the position of
this demand curve, the permits system achieves
pollution reduction targets more precisely.
EXTERNALITIES 29
30. Objections to the
Economic Analysis of Pollution
Some politicians, many environmentalists argue
that no one should be able to “buy” the right to
pollute, cannot put a price on the environment.
However, people face tradeoffs. The value of
clean air & water must be compared to their cost.
The market-based approach reduces the cost of
environmental protection, so it should increase the
public’s demand for a clean environment.
EXTERNALITIES 30
31. Private Solutions to Externalities
Types of private solutions:
Moral codes and social sanctions,
e.g., the “Golden Rule”
Charities, e.g., the Sierra Club
Contracts between market participants and the
affected bystanders
EXTERNALITIES 31
32. Private Solutions to Externalities
The Coase theorem:
If private parties can costlessly bargain over the
allocation of resources, they can solve the
externalities problem on their own.
EXTERNALITIES 32
33. The Coase Theorem: An Example
Dick owns a dog named Spot.
Negative externality:
Spot’s barking disturbs Jane,
Dick’s neighbor.
The socially efficient outcome
maximizes Dick’s + Jane’s well-being.
If Dick values having Spot more See Spot bark.
than Jane values peace & quiet,
the dog should stay.
Coase theorem: The private market will reach the
efficient outcome on its own…
EXTERNALITIES 33
34. The Coase Theorem: An Example
CASE 1:
Dick has the right to keep Spot.
Benefit to Dick of having Spot = $500
Cost to Jane of Spot’s barking = $800
Socially efficient outcome:
Spot goes bye-bye.
Private outcome:
Jane pays Dick $600 to get rid of Spot,
both Jane and Dick are better off.
Private outcome = efficient outcome.
EXTERNALITIES 34
35. The Coase Theorem: An Example
CASE 2:
Dick has the right to keep Spot.
Benefit to Dick of having Spot = $1000
Cost to Jane of Spot’s barking = $800
Socially efficient outcome:
See Spot stay.
Private outcome:
Jane not willing to pay more than $800,
Dick not willing to accept less than $1000,
so Spot stays.
Private outcome = efficient outcome.
EXTERNALITIES 35
36. The Coase Theorem: An Example
CASE 3:
Jane has the legal right to peace & quiet.
Benefit to Dick of having Spot = $800
Cost to Jane of Spot’s barking = $500
Socially efficient outcome: Dick keeps Spot.
Private outcome: Dick pays Jane $600 to put up
with Spot’s barking.
Private outcome = efficient outcome.
The private market achieves the efficient outcome
The private market achieves the efficient outcome
regardless of the initial distribution of rights.
regardless of the initial distribution of rights.
EXTERNALITIES 36
37. ACTIVE LEARNING 3
Applying Coase
Collectively, the 1000 residents of Green Valley
value swimming in Blue Lake at $100,000.
A nearby factory pollutes the lake water, and
would have to pay $50,000 for non-polluting
equipment.
A. Describe a Coase-like private solution.
B. Can you think of any reasons why this
solution might not work in the real world?
37
38. Why Private Solutions Do Not Always Work
1. Transaction costs:
The costs parties incur in the process of
agreeing to and following through on a bargain.
These costs may make it impossible to reach a
mutually beneficial agreement.
2. Stubbornness:
Even if a beneficial agreement is possible,
each party may hold out for a better deal.
3. Coordination problems:
If # of parties is very large, coordinating them
may be costly, difficult, or impossible.
EXTERNALITIES 38
39. CHAPTER SUMMARY
An externality occurs when a market transaction
affects a third party. If the transaction yields
negative externalities (e.g., pollution), the market
quantity exceeds the socially optimal quantity.
If the externality is positive (e.g., technology
spillovers), the market quantity falls short of the
social optimum.
39
40. CHAPTER SUMMARY
Sometimes, people can solve externalities on
their own. The Coase theorem states that the
private market can reach the socially optimal
allocation of resources as long as people can
bargain without cost. In practice, bargaining is
often costly or difficult, and the Coase theorem
does not apply.
40
41. CHAPTER SUMMARY
The government can attempt to remedy the
problem. It can internalize the externality using
corrective taxes. It can issue permits to polluters
and establish a market where permits can be
traded. Such policies often protect the
environment at a lower cost to society than direct
regulation.
41
Editor's Notes
This chapter is slightly below average in length, and, for most students, in difficulty. For variety, this PowerPoint presentation uses different examples from the textbook in its analysis of externalities.
For many students, the concepts are easier to learn in the context of a specific example with numerical values. Note that maximizing consumer + producer surplus is NOT the same as maximizing TOTAL surplus when the trades impose external costs (or benefits) on bystanders.
“ At any Q < 20, value of additional gas exceeds social cost.” For example, at Q = 10, the value to buyers of an additional gallon equals $4, while the social cost is only $2. Therefore, total surplus (society’s well-being) would increase with a larger quantity of gas. “ At any Q > 20, social cost of the last gallon is greater than its value.” For example, at Q = 25 - the market equilibrium - the last gallon cost $3.50 (including the external cost) but the value of it to buyers was only $2.50. Hence, total surplus would be higher if Q were lower. Only at Q = 20 is society’s welfare maximized.
The parenthetical remark at the bottom of the slide follows from a lesson in Chapter 6: tax incidence and the allocation of resources is the same whether a tax is imposed on buyers or sellers.
The textbook explains that a better educated population makes more informed voting decisions and elects higher quality lawmakers and leaders.
Since you have just walked students through the analysis of a negative externality, let’s see if they can do the analysis of a positive externality. This slide provides the introductory information they will need to do the analysis. The following slide provides the exercise.
Greg Mankiw’s blog (http://gregmankiw.blogspot.com) has semi-regular posts on Pigou taxes, some of which are worth using in class (either as assigned or recommended reading or fodder for class discussion). On the main page, look under “A Few Timeless Posts” for “the Pigou Club Manifesto.” In the textbook, a new “In the News” box includes Mankiw’s 2007 New York Times piece arguing for carbon taxes to fight global warming. The piece contrasts corrective taxes with regulations and with cap-and-trade systems.
Some of your students may not know that pollution “abatement” simply means taking measures to cut pollution. Regarding the last bullet point: If all firms must reduce emissions by a fixed amount (or fixed percentage), then abatement is NOT concentrated among firms with the lowest abatement costs, and so the total cost of abatement will be higher.
Again, see Mankiw’s blog for more well-argued opinion pieces by him and others in favor of gas or carbon taxes. http://gregmankiw.blogspot.com.
This first exercise is simple.
Nitrogen oxides increase ground-level ozone, which has adverse health effects. For more information, see http://www.epa.gov/airmarkets/ For information about Europe’s new carbon emissions trading program, see the Financial Times article featured in this chapter’s new “In the News” box. You can also find lots of good articles on this program at the website of the Financial Times, www.ft.com. Under Obama’s cap-and-trade proposal, permits will be auctioned to polluters. As Mankiw notes in his New York Times piece reprinted in the textbook, such a system is equivalent to a tax. In contrast, under McCain’s proposed cap-and-trade system, “permits will eventually be auctioned…” (my emphasis).
The textbook gives a nice example of a contract in which a beekeeper and apple orchard manager each agree to boost production, as each producer’s activity confers an external benefit on the other.
Both Jane and Dick are better off. (What about Spot? Doesn’t anyone care about Spot???)
Have students work together – in small groups, or as a class (with you as moderator). If working in groups, allow 5 minutes, then solicit responses from the class. If you wish, insert a blank slide after this one and use it to type students’ responses as they share them. Most students should find part A very straight-forward. A good Coasian solution would be for each of the 1000 residents to chip in $75, so the town can offer $75,000 to the factory to stop polluting. The second part involves brainstorming: students try to come up with a list of reasons why it might be difficult to implement Coase-like solutions in the real world. Brainstorming engages students and is shown to increase learning outcomes and student satisfaction. And it provides a break from what otherwise would be a long stretch of lecture. I have not provided a slide with answers. Instead, the following slide lists the reasons why private solutions don’t always work, and the “notes” section (what you’re reading right now) gives some examples of each in the context of this scenario.
An example for each bullet point in the context of the brainstorming activity on the previous slide: 1. Transactions costs: Suppose lawyers charge $60,000 to represent the two parties and draw up a contract that is enforceable in a court. Then it will be impossible for both parties to come to a mutually beneficial agreement, and the factory will continue polluting the lake. 2. Stubbornness: Suppose the town offers $55,000 to the factory. The factory would be better off taking this offer than nothing at all, but the factory may counter with a $95,000 price. Both parties hold out in hopes that the other will cede, but neither does. The factory keeps polluting, and the residents of Green Valley continue to be denied the joy of swimming in the lake. 3. Coordination problems: Getting all 1000 residents to agree to a specific offer will be difficult. Moreover, each resident has an incentive to free-ride off his neighbors.