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In this Friday Sept. 22, 2006 file photo, an oil refinery is seen at sunset in Rodeo, Calif. Oil refineries, electric utilities and other emitters of greenhouse gases must pay to emit carbon dioxide under the state's cap-and-trade program. But the companies in California that participate in the program have saved up to 321 million pollution allowances. A panel of experts says that could jeopardize the states' ability to meet its emissions reduction goals, according to a new report, finalized on Wednesday Feb. 9, 2022. (AP Photo/Rich Pedroncelli, file)

In this Friday Sept. 22, 2006 file photo, an oil refinery is seen at sunset in Rodeo, Calif. Oil refineries, electric utilities and other emitters of greenhouse gases must pay to emit carbon dioxide under the state's cap-and-trade program. But the companies in California that participate in the program have saved up to 321 million pollution allowances. A panel of experts says that could jeopardize the states' ability to meet its emissions reduction goals, according to a new report, finalized on Wednesday Feb. 9, 2022. (AP Photo/Rich Pedroncelli, file)

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