Queensland is poised to become a major export hub for liquefied natural gas (LNG). Given the West Australian experience, where LNG is already exported to Asia, this will cause domestic gas prices to rise. According to the DomGas Alliance, a group of Western Australian energy users, “gas prices have risen sharply from $2.50 per gigajoule in Western Australia to $8/GJ”.
The overseas price of LNG is currently well above the price of natural gas in eastern Australia. Gas producers will only sell locally if the domestic price rises to the export parity level – the overseas price that exporters receive less the cost of exporting. So prices in eastern Australia are rising towards export parity.
Fearing this price rise, major energy users, such as DomGas, have called for domestic gas reservation. Their report stated: “Australia should implement a national reservation policy that would require major LNG projects to set aside 15% of gas production for local industry and households”.
The report by non-government members of the Prime Minister’s Manufacturing Taskforce echoed this sentiment: “The non-government members of the Taskforce recommend that the government take action to ensure Australian industry has access to natural gas for the domestic market at fair and competitive prices.”
Similarly, in the AFR (paywalled), Brian Green, chairman of the Energy Users of Australia, argued for “[a] national inquiry chaired by a hard-headed economist” into gas exports.
Well, as a hard-headed (but hopefully soft-hearted) economist, what do I make of the calls for a gas reservation scheme?
First, it is important to note that a gas reservation scheme is not needed to obtain domestic gas supplies. Australia is a major exporter in many areas, but we have no difficulty obtaining domestic supplies so long as we pay the export parity price. Coal, dairy products, wine, beef, and grain are simple examples. So a gas reservation price will only make a difference for domestic manufacturers if it keeps the domestic price of gas below the export parity price.
To do this, the amount of gas “reserved” for the domestic market must be more than the amount of gas that domestic users would otherwise buy at the export parity price. In other words, the scheme must create “excess supply” in the domestic market to drive the local price down below the export parity price.
Second, to analyse the effects of a gas reservation scheme, I will use an old economist’s trick. I will break down the complex policy into two simpler policies. The two simpler policies “add up” to the complex policy. This enables us to isolate the good and bad effects of the scheme.
A gas reservation scheme is really a combination of an implicit “tax” on gas producers and a “subsidy” to domestic gas users.
Because of the scheme, gas producers who only sell into the domestic market — and exporters who would otherwise sell overseas — get a lower price. From the producers’ perspective, this is like a tax on the sale of domestic gas.
For example, if they would have sold the gas at an export parity price of $10 per GJ, but because of the scheme, only sell it at $8 per GJ, then from the producers’ perspective they get “taxed” $2 per GJ on all the gas they sell domestically.
Of course, it is not really a tax because the money doesn’t go to the government. Rather, the money goes to domestic gas users. But they only get the money if they buy and use natural gas. So from the gas users’ perspective, it is like the government subsidising the price of gas. They would have paid $10 per GJ but because of the reservation scheme, they only pay $8 per GJ for gas.
So from the gas producers’ perspective, the scheme is like a “tax” on domestic sales. They cannot avoid the ‘tax’ because they have to sell the reserved quantity domestically. And from the gas users’ perspective, it is like a ‘subsidy’ for using gas.
A tax on gas producers may or may not be a good idea. Like the mining resource rent tax, it could be argued that the government should ‘get more’ of the revenue from LNG exports.
However, a gas subsidy for manufacturers is wrongheaded. It will encourage Australian manufacturers to choose gas rather than alternative fuels. It will reduce their incentive to adopt energy reducing technology. It will mean that they use gas to produce even when the (unsubsidised) cost of production exceeds the value of the output.
I can think of many things the government could do with the money that it would raise from a tax on gas producers. Improving our schools, hospitals, roads and other infrastructure would be close to the top of my list. Subsidising domestic manufacturers to use more gas would not be on the list.
If the government really believes that gas producers should face higher taxes, then that is up to the government. But a gas reservation scheme effectively raises taxes and wastes the money on a gas subsidy. It is blatant, inefficient and inequitable protectionism for part of our manufacturing sector. It is bad policy and the government should reject it.
John Newlands
tree changer
Market bases theories as to correct pricing don't cover the case of finite resources with no easy replacements .I suggest looking back from year 2030 or so we will think it was the LNG buyers who got the subsidy. Advocates of 'world pricing' seem to assume that we can always find replacement gas reserves with an affordable extraction cost. What if we can't? Then we will wish we still had the gas for ourselves. Put it this way: cash flow in the 2020s could mean expensive energy and shortages in…
Read moreMichael Lardelli
logged in via Facebook
Well said John! Cheap energy will help Australian manufacturers compete with low-wage nations. That should provide more employment. Australia should have a national oil and gas company like most other nations and ration out these valuable finite resources with profits directed as far as possible back to the Australian population. After all, the more scarce they become, the more valuable these resources will be and the higher prices one will earn for selling them. Fossil fuels are not as easy to substitute as most economists assume since energy from those fuels powers most activity in the economy - including the manufacture of renewable energy technology.
Michael Brown
Professional, academic, company director
"A tax on gas producers may or may not be a good idea." Surely they pay comapny tax already, at a percentage rate. So the more profit they make, the more tax they pay, just like any other business or individual. If they make big profits, they pay big tax. Provided they are monitored carefully for tax avoidance, why should they pay a different tax rate from anyone else, particularly as they are in a highly risky business, commercially, polictically and operationally?
Stephen King
Professor, Department of Economics at Monash University
Michael,
I am happy for you to argue against increased tax on gas producers/exporters. But my point is simple. The reservation scheme is a gas tax PLUS a scheme where the revenue from the tax is used to subsidise energy-intensive manufacturers. I am arguing against the second part of the policy.
Happy for a debate on a gas (or more generally, a resources) tax, but let's not waste the money propping up energy intensive, inefficient industries in Australia.
Greg Edeson
virtual labourer, postgrad
I'm not really sure how to take this. An article on how LNG production should be managed without any mention of local or global consequences of extracting and burning it.
The whole fracking disaster is bad policy - environmentally (groundwater, land contamination plus global warming), socially (resource conflict, inequality) and economically (entrenches dependence on a finite and unsustainable resource rather than pushing innovation).
It is bad policy and the government(s) should reject it. It is beyond hypocrisy to put a (miniscule) tax on carbon pollution and then oversee such a massive and unregulated increase in fossil fuel extraction and exports.
Brett Forbes
Technology Developer
Hmm, the explanation about how a fixed domestic price policy can be interpreted as both a tax and a subsidy was excellent for us non-economists. However, the conclusions seem unsupportable in the real world.
It is implausible to suggest that somehow manufacturers can choose alternate energy systems by themselves. What sounds good as a theory, if you exist in a bubble, is simply impractical and a complete furphy. What alternate energy systems do you suggest an aluminium smelter, a brickworks manufacturer…
Read moreStephen King
Professor, Department of Economics at Monash University
Brett
Let me take your starting point - that there is no substitution from gas for certain classes of manufacturer over the next twenty years.
OK - so why would we want the government to then subsidise high-energy using manufacturing? That is what the gas reservation system does. Are you really saying that the BEST use of government funds is to make the Australian economy more reliant on energy intensive manufacturing? That is the consequence of the reservation scheme.
Put simply - once it is clear that the reservation scheme is a tax on gas production plus a subsidy to energy-intensive manufacturing, supporters of the subsidy need to answer the following question - why is the best use of government funds to support the most energy intensive manufacturers?
Brett Forbes
Technology Developer
Stephen,
You ask an excellent question about energy intensive industries, although to be fair I proposed an energy intensive mfr (aluminium smelter), an emissions intensive mfr (cement, where CO2 is part of the reaction) and two non-energy intensive mfrs (motor cars and food mfrs).
With regard to energy intensive industries, like aluminium smelters, we have two choices, make it here with attendent costs, or make it elsewhere with attendent costs, which is better? The answer depends on the global…
Read moreJohn Robert Davidson
Retired engineer
Let get it straight. Australia allowed gas companies to process and transport the gas owned by all Australians to Australian consumers at a price that provided a reasonable return to the gas companies. Stephen King is now saying that it is OK for these gas companies to:
Divert gas to overseas consumers.
Increase the price of the gas supplied to Australian consumers to the "obscene profit" level.
Make it more difficult for Australian manufacturers to compete by increasing the price of gas and the value of the $Aus.
Whinge like mad when governments want a more appropriate share of the profits.
And do all this while providing very few jobs for Australians.
Stephen King
Professor, Department of Economics at Monash University
John
As I noted in the article, the reservation scheme is two policies spliced together. If you are worried about the profits of gas exporters, fine. Argue for a gas tax. But the reservation scheme is not just a gas tax. It is a tax where the money is then channelled to subsidise energy-intensive manufacturing. Why would you believe that was good policy?
How about an alternative - a gas export tax where the money is used to by the government for schools, hospitals, roads, etc. Would you really prefer to see money channelled away from schools, hospitals, roads etc and handed to energy intensive manufacturing? If you support the reservation scheme, then you support this inequitable subsidy.
David Eastley
Executive
Stephen, you might be hard headed, but not in a good way. There is no international price for domestic gas. It's a function of the local market in every case. In markets where supply is ample, such as Australia, prices are typically in the zone that Australian gas prices have been. Up to now.
LNG prices are a function of massive investment in liquefaction plant, ships and terminals. LNG is bought by consumer nations that don't have domestic supply.
Australian domestic supply is short because the LNG projects under construction can't meet their commitments without draining existing supply. There has been no substantial change in well head costs.
The questions you need to ask: why is the exporter allowed to impose a price shock on an existing domestic consumer? And: if we have so much gas (have a look at the recent IEA report) why are our supples so constrained?
The consequences of this are quite severe for energy policy in Australia, not to mention the economic impacts.
John Newlands
tree changer
I suggest that fear of gas price escalation has already had some major consequences. The ill fated 'contracts for closure' for 2000 MW of brown coal plant appeared to assume the money would go towards combined cycle plant. The big recipients would have been Hazelwood and Yallourn. Since brown coal costs 60c per GJ no realistic carbon tax or guvmint handouts can overcome this if gas prices keep rising.
Secondly the Olympic Dam expansion, SA's biggest project, involved constructing a gas pipe…
Read moreJohn Robert Davidson
Retired engineer
I think we have left it a bit late for the gas transition John. If anything, the high and uncertain price of natural gas is just an incentive to get on with what we need to do.
Read moreIn terms of peaking power the price of fuel has only a minor effect because the peaking power generators run for such as short time. (The price of peaking power is all about repaying capital.)
This link (http://www.ausgrain.com.au/Back%20Issues/182jagrn08/182gp30nitrogen.pdf) commented that "The urea price has doubled…
John Newlands
tree changer
Could they get close to $1000/t for urea using electrolytic hydrogen (not natgas) as a starting point? Based on atomic weights hydrogen is 4/60 of the total for CO(NH2)2. There will be 9 billion hungry mouths to feed in 2050 using a lot of recycled sewage on soil I expect. It seems crazy to be either exporting so much LNG or burning gas for baseload power when we'll need so much later on.
John Robert Davidson
Retired engineer
I don't have a feel for how much elector hydrogen would cost. The cost of power would obviously have a large impact.
One of the interesting things renewable power is that, by the time you have enough capacity installed to provide supply certainty there will be a lot of time when there is unused capacity. This unused capacity could supply power at zero cost to anyone that can use it.
It may be that urea produced from hydrogen produced on this clean power would be very competitive. .Keep in mind that the doubling of urea costs would have been driven by changes in natural gas costs and that cheap hydro power has been used in the past for commercial production of nitrous fertilizers.
wilma western
logged in via email @bigpond.com
The article reads like pure abstraction - little connection to on the ground reality as J R Davidson explained. (Let alone any discussion about the desirability of reducing reliance on fossil fuels or replacing cheap and dirty or even dear and dirty fossil fuels with somewhat cleaner ones) Shock horror- subsidising local gas consumption!!! (John Howard did that for LPG transport fuel didn't he?) Why is there such a huge surge in shale gas production in the US? Production subsidies have resulted…
Read moreBrett Forbes
Technology Developer
In reply to wilma, yes the transmission losses inherent with electricity are due to the configuration of the network and distances between the user and the generator, and the issues in our Australian network are too complex to summarise here.
However, the 1 in 300 number, where 1 watt for the user requires 300 watts to be produced at the generator, is the regularly accepted figure used in scientific literature for the global average losses. It is likely that our losses are considerably greater…
Read moremargaret moir
old lady
I think the resources belong to the people can you tell me why we shouldn't benefit by enjoying the resouces at a reasonable price? While still ensuring the company that is profiting by developing exporting that resouce still has a successful business? Is this not a win win situation?
Robert Merkel
Lecturer in Software Engineering at Monash University
Because if your argument is that "the people aren't benefiting enough from the resources they collectively own", gas reservation schemes are a dumb way of distributing those resources.
As Prof. King points out, the scheme works exactly the same as a tax on gas producers and a subsidy to domestic gas users. Why should people and companies who use a lot of gas be the beneficiaries of our collective ownership of gas resources? Why not distribute them in, say, the form of lower income taxes and…
Read moreVlado Vivoda
Research Fellow, Griffith Asia Institute at Griffith University
I like the analysis by Prof. King. However, we happen to be the only major gas producer worldwide without some some of a gas reservation policy. The Americans are currently debating the benefits of LNG exports and the effect they may have on the US economy. Why are we so committed to exports at all costs without making natural gas (a proven transition fuel to a more sustainable energy future) more competitive in the power generation sector vis-a-vis dirty coal? As a consequence of the "exports first…
Read more