Clarify "Issued"

I've added a "clarify" tag to the word "issued" in the first paragraph  this is easily the most confusing and non-obvious aspects of carbon trading.  How does a government decide how many credits ought to be issued (for free, I assume) to each entity before trading begins?  Indeed, most questions about emissions trading boil down to this very question.  For example, if an auction is used, and the auction is efficient, economics would predict that no trades would take place post-auction (the occurrence of such trades would imply that the auction had been improper)  making the whole concept of "cap and trade" actually mean "cap via auction".  I don't mean any of this as criticism.  But, as Wikipedia is an encyclopedia, I think it's failing to fulfill it's job here by dodging the most policy-critical aspect of the issue.  I think simply writing "issue" does the reader an injustice.