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Congress is considering proposals for market-based programs to limit greenhouse gas emissions. Many proposals involve creating a cap-and-trade program, in which an overall emissions cap is set and entities covered by the program must hold tradable permits -- or "allowances" -- to cover their emissions. The value of these allowances could total $300 billion annually by 2020. The Federal government could either sell the allowances, give them away for free, or some combination of the two. Some existing cap-and-trade programs have experience selling allowances. This report describes the implications of different methods for selling allowances, given available information and the experiences of selected programs.