传播碳定价指南（英文版）.pdf

GUIDE TO COMMUNICATING CARBON PRICINGGUIDE TO COMMUNICATING CARBON PRICING DECEMBER 2018  CLIMATE Louise Comeau iris communications© 2018 International Bank for Reconstruction and Development / The World Bank 1818 H Street NW, Washington DC 20433 Telephone 202-473-1000; Internet www.worldbank.org This work is a product of the staff of The World Bank with external contributions. The findings, interpretations, and conclusions expressed in this work do not necessarily reflect the views of The World Bank, its Board of cutive Directors, or the governments they represent. The World Bank does not guarantee the accuracy of the data included in this work. The boundaries, colors, denominations, and other ination shown on any map in this work do not imply any judgment on the part of The World Bank concerning the legal status of any territory or the endorsement or acceptance of such boundaries. Rights and Permissions The material in this work is subject to copyright. 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The risk of claims resulting from such infringement rests solely with you. If you wish to re-use a component of the work, it is your responsibility to determine whether permission is needed for that re-use and to obtain permission from the copyright owner. Examples of components can include, but are not limited to, tables, figures, or images. All queries on rights and licenses should be addressed to the Publishing and Knowledge Division, The World Bank, 1818 H Street NW, Washington, DC 20433, USA; fax 202-522-2625; e-mail pubrightsworldbank.org. Cover photo Adapted from the original photo by David Hsu CC BY-NC-ND 2.0 Icons for the 8 steps Illustrations by Oliver CowanThe Guide to Communicating Carbon Pricing was prepared for the Partnership for Market Readiness PMR and Carbon Pricing Leadership Coalition CPLC by a team of consultants led by Climate Outreach with support from Climate Focus, Dr. Louise Comeau and Fenton Communications. Daniel Besley and Isabel Saldarriaga World Bank provided substantive and managed the project. The lead authors of the Guide to Communicating Carbon Pricing are George Marshall Climate Outreach and Darragh Conway Climate Focus. Robin Webster Climate Outreach led the preparation of the cutive briefs and the cutive summary was co-drafted by Lieke ‘t Gilde Climate Focus. Dr. Louise Comeau delivered a comprehensive analysis of carbon pricing communications in Canada. Ben Wyskida Fenton Communications and Julia Peek Fenton Communications provided professional insights for developing a communications campaign. In addition, the following persons provided valuable editing and other kinds of support in the preparation of the Guide to Communicating Carbon Pricing Jamie Clarke Climate Outreach, Adriaan Korthuis Climate Focus, Tara Clarke Climate Outreach and Léane de Laigue Climate Outreach. We sincerely thank those experts who shared their practical insights and knowledge relating to carbon pricing communications through interviews and review of the Guide. These include in alphabetical order Susanne Akerfeldt, Senior Legal Advisor, Swedish Ministry of Finance; Jennifer Andreassen, Communications Specialist, Environmental Defense Fund; John Connor, Chief cutive Officer of the Climate Institute of Australia; Eric Denhoff, Deputy Minister, Alberta Climate Change Office; Femke de Jong, Policy Director, Carbon Market Watch; Estiven Gonzalez, Analyst of Energy Policy and International Relations, PMR Costa Rica; Sharlin Hemraj, Director Environmental and Fuel Taxes at National Treasury, South Africa; David Hone, Environment lead, Shell; Thomas Kerr, Principal Climate Policy Officer, International Finance Corporation; Katie Sullivan, Managing Director, The International Emissions Trading Association IETA; Juan Pedro Searle, Head of Climate Change Unit, Sustainable Development Division, Ministry of Energy, Chile; Tom Skladzien, National Economic and Industry Advisor to the Australian Manufacturers Workers’ Union; Jerry Taylor, President, Niskanen Center; Paulette Van Ommen, Global Climate Lead, Royal DSM; Nicolás Westenenk, Project Manager, PMR Chile; Elizabeth Willmott, Environmental Sustainability Program Manager, Microsoft; Ceren Solak Yilmaz, Sustainability Supervisor Project Finance Department, Garanti; Stanley Young, Communications Director, California Air Resources Board; Zhao Xiaolu, Project Manager China Climate Initiative. We also wish to acknowledge and peer review provided by a range of other experts Erik van Andel Dutch Emissions Authority, Jennifer Andreassen Burke Environmental Defense Fund, and Claude Côté Ministry of Sustainable Development, Environment and the Fight Against Climate Change, Quebec. Finally, we thank colleagues at the World Bank Group who also reviewed the report and provided useful and feedback Dominik Englert, Celine Ramstein, Elisabeth Mealey, Sarah Moyer, Alan Lee, Ayesha Malik IFC and Thomas Erb. The Guide and cutive briefs was designed by Elise de Laigue Explore Communications. AcknowledgmentsContents cutive summary 9 Introduction . 13 Who is this Guide for 13 Why is the term “carbon pricing” used in this Guide .13 Where does the evidence come from 13 Why is effective communication important and how does it relate to policy .14 What does this Guide not cover 14 How to use this Guide 15 8 steps to developing a carbon pricing communications campaign .15 10 principles for carbon pricing communications 16 Step 1 Preparing for communications design 18 Incorporate communications advice from the outset of the policy design .20 Ask what objectives do communications seek to achieve .20 Define specific objectives 20 Integrate and prioritize objectives .23 Identify the national circumstances relevant to communicating carbon pricing .24 Step 2 Identifying audiences 28 The three main categories of audiences .29 Segmenting audiences by attitudes and values.30 Strategic focus on different audiences 31 Strategies for communicating with opponents 32 Step 3 Research 36 What research can achieve .37 Communications research s .37 Applying research to the design and testing of pricing communications 38 Step 4 Designing the messages 42 How people receive ination and attitudes .43 Communicating about climate change in carbon pricing narratives 44 Designing trial narratives for testing .45 Language that has worked for communicating carbon pricing .46 Labeling a carbon tax.50 Language and narratives that may not work for communicating carbon pricing 51Step 5 Explaining how carbon pricing works 55 Simple terminology 56 Simple explanations .57 Step 6 Choosing communicators .59 The importance of trust 60 The role of communicators .60 Recruiting trusted communicators 61 Use of celebrities 62 Step 7 Integrating communications with policy .63 Integrating communications, policymaking, and stakeholder engagement .65 The building blocks of communicable policy .69 Integrating carbon pricing with other policies .70 Showing results 71 Step 8 Designing a communications campaign 73 What is a campaign .74 Defining the campaign.74 Creating a campaign matrix 76 What is the overarching campaign concept 77 Engaging target audiences 77 Choosing media and tactics 78 Briefing an agency 81 What can go wrong .81 Appendices 83 Appendix A The social science of message design .84 Appendix B Explaining research ologies 87 Appendix C Explaining carbon pricing . .89 Appendix D Carbon pricing narratives for testing 92 Appendix E Managing counter-arguments 96 References .99LIST OF BOXES LIST OF TABLES LIST OF FIGURES Table 1.1 Gaining and maintaining support .21 Table 1.2 Ensuring the visibility of the price signal .22 Table 1.3 Ensuring an ined debate .22 Table 1.4 Obtaining feedback from stakeholder groups23 Table 1.5 Political system and level of polarization 25 Table 1.6 Dependence on domestic fossil fuels 26 Table 1.7 Awareness of and concern regarding climate change .27 Table 2.1 Communication approaches for distinct audience categories .30 Table 2.2 Questions for identifying opposition and strategic communications responses .32 Table 3.1 Exploratory questions for narrative design 39 Table 4.1 Narratives that have been found to be effective in a range of different countries 46 Table 5.1 Technical terms used in carbon pricing, and potential simplified s 57 Table 8.1 An example matrix for developing a campaign strategy 77 Table 8.2 An example matrix for developing a campaign strategy with combined tactics for a target audience within a given budget .80 A closer look 1.2 How political polarization is reflected in audience attitudes 25 Case study 2.1 Opposition to Australia’s carbon pricing mechanism 34 A closer look 3.1 The role of modeling in communications .38 Case study 4.1 Optimal public narratives – Canadian research 47 Case study 4.2 Costa Rica – focusing on vehicle pollution 48 Case study 4.3 Communicating visible expenditure in California 50 Case study 4.4 Communications lessons from the 2015 Swiss referendum 53 Case study 7.1 Stakeholder engagement in South Africa 68 A closer look 7.1 Citizens’ assemblies .69 Figure 4.1 Visible revenue use .50 Figure 4.2 Technical economic terms .52 Figure 7.1 Integrating communications with policy 66 Figure 7.2 Getting revenue use right 70 Figure 7.3 Keeping it simple .70Guide to communicating carbon pricing 9 cutive summary Effective communications are integral to designing and implementing a carbon price. They provide the means for building acceptance internally across gov- ernment and externally with key stakeholders and the wider public. This shared understanding and accep- tance is essential for building a robust policy that can be sustained through electoral and economic cycles. This Guide provides practical, step-by-step guidance on how to develop communications strategies for carbon pricing, and how to integrate communications into the policymaking process. The evidence is drawn from a large body of al research, including over 30 interviews and an international survey of leading practitioners from governments, civil society, and business. How to communicate carbon pricing successfully key findings Good communications require good policy To effectively communicate a carbon pricing policy, the policy itself needs to be effective and robust. There are no ”magic words” that can save a policy if it is poorly designedand if there is strong opposition, weak communications can make the situation worse. Once a good policy has been created, communications should promote clear examples of its outcomes, and the policy should include mechanisms for uating its effectiveness. At the same time, government claims for what carbon pricing will achieveespecially in terms of the economic benefitsshould be realistic and avoid creating unrealistic expectations. Visible use of carbon price revenues is often key People are more likely to accept a carbon price when the revenues from it are spent on projects that are consistent with environmental goals, are of high public concern, or are returned to the public as re- bates or tax breaks. In some jurisdictions, the visible application of the revenue should be the dominant narrative, ahead of the complex arguments around market mechanisms. Emphasizing non-climate benefits may be preferable to focusing on climate change Framing carbon pricing as a policy response to climate change may work well in jurisdictions where levels Guide to communicating carbon pricing 10 of public concern about climate change are high. In jurisdictions where awareness of climate change is low, or the issue is politically polarized, communica- tions should emphasize the other benefits of carbon pricing for example, reducing air pollution, making energy supplies more secure, or creating jobs in clean energy. Climate change should always be part of the discussion, but where and how it is mentioned should reflect the concerns and priorities of each different audience. Good communications are built around values Carbon pricing communications should explain how the policy benefits different audiences in ways that are relevant to their real motivations, values, and concerns. These values are very different from the cost–benefit calculations that the basis of eco- nomic assessments. Audience research can be used to analyze those wider values and concerns in order to in policy ation and communications from the outset. Trust is critical Experience shows that the response to carbon pricing is often a reflection of wider issues of trust in govern- ment and business, and their perceived accountabili- ty. If trust in the government is low, the public may be less likely to trust government explanations of carbon pricing policy. Research should explore issues around trust and an engagement strategy should include a range of trusted peer communicators and networks. Communications in practice tips for successfully communicati