There’s a perennial debate in climate circles about global warming potentials (GWPs). A GWP is an exchange rate between greenhouse gases. It attempts to quantify the “badness” of emitting a ton of a given gas (such as methane, CH4) relative to emitting a ton of carbon dioxide (CO2).
How are GWPs used? Policymakers typically set targets for mitigating emissions of “CO2 equivalent” (CO2e). CO2e is a weighted sum of CO2 and other greenhouse gases, weighted by GWP. If policymakers assign a gas a higher GWP, then that gas contributes more to estimates of CO2e emissions. If policymakers penalize CO2e emissions through fines, then assigning a gas a higher GWP means setting a higher fine.
Defining “badness” in GWP formulas is a value judgment. In my opinion, “badness” should reflect the harms that climate change causes to humans. In practice, climate scientists typically define “badness” as “cumulative heat trapped in the atmosphere over some time span.” Why? Because it’s tractable to model and measure, and because it’s at least indirectly related to the harms that climate change causes. By this definition, the GWP of CH4 is somewhere between 19 and 108, depending on who you ask [1].
Is “badness = cumulative heat trapped in the atmosphere over some time span” the right definition? That’s debatable. If it is the right definition, what’s the right time span? That’s debatable.
The answers to these questions are value judgments, not disinterested scientific assessments. From the Intergovernmental Panel on Climate Change’s 2021 report (Box 7.3 on page 1017 of the full report):
“This Report does not recommend an emissions metric because the appropriateness of the choice depends on the purposes for which gases or forcing agents are being compared…. The choice of metric will depend on which aspects of climate change are most important to a particular application or stakeholder and over which time horizons.”
In my opinion, these questions are best answered by policymakers through well-informed, inclusive, democratic processes.
The great GWP debate is back in the news because New York’s governor is trying, through a budget process that circumvents the legislature, to decrease the GWP number that the New York legislature chose for CH4 in its 2019 climate law. In other words, the governor is trying to decrease fines for CH4 emissions from natural gas, oil, agriculture, and landfills.
Climate scientist Zeke Hausfather recently blogged about CH4, CO2, and whether and how policymakers should convert between the two. He concluded:
“The simplest approach – and one increasingly espoused by the climate science community – is to avoid conversions altogether by setting separate targets for CO2 and short-lived climate pollutants like methane. Rather than having a goal of reducing the (not-physically-meaningful) “CO2e” emissions 40% by 2030, set separate goals for both CO2 and methane. That way we know what we are getting, and we don’t create the problem of having to trade off between the two.”
Zeke is not the first to propose this idea. From the same section of the 2021 IPCC report I quoted above:
“Although there is significant history of using single-basket approaches, supported by emissions metrics such as GWP-100, in climate policies such as the Kyoto Protocol, multi-basket approaches also have many precedents in environmental management, including the Montreal Protocol (Daniel et al., 2012).”
The idea of setting different targets for different gases is seductive in part because it purportedly avoids the need to convert between gases. The problem, as I see it, is that targets are meaningless without penalties, and specifying penalties for different gases amounts to specifying GWPs.
What’s the fine for missing a CO2 emission reduction target by 1 ton?
What’s the fine for missing a CH4 emission reduction target by 1 ton?
The ratio of the $/ton fine for CH4 to the $/ton fine for CO2 defines an exchange rate between CH4 and CO2. It is, effectively, the implied GWP of CH4. By choosing the fines for CO2 and CH4, policymakers effectively choose a GWP for CH4. We’re back in the land of messy value judgments.
For example, if I get fined 100 $/ton for missing my CO2 target and 1,500 $/ton for missing my CH4 target, then the policymakers who set the fines implicitly chose a CH4 GWP of 15.
Setting different targets for different gases may have advantages over a single-basket CO2e approach, but I don’t think avoiding conversions between CO2 and other greenhouse gases is one of them.
- From Table 7.15 of the 2021 IPCC report on the physical science basis for climate change, the 95% confidence interval for the 100-year GWP of CH4 is 18.8 to 40.8. For the 20-year GWP, it’s 56.7 to 108.3. The central estimates are 29.8 and 82.5, respectively.




















