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It really is hard; I can even think of laws passed this century that turned out to have loopholes. (And FWIW policy writing is a separate discipline)
Even the most basic laws can have surprising nuances in order to make them specific enough to enforce, as well. I recall a case of a person who tried shoplifting a coat that was chained to the mannequin, and got caught when it went taught. They got off because while they had left the store without paying, being permanently chained to something meant they weren't technically in possession of the coat.
So per person carbon rationing, maybe? During WWII they did something similar with food; you had to pay both cash and ration tokens to buy groceries or visit a restaurant.
Rationing is fairly out of style because it's inflexible, though. There's going to be certain people that have a very legitimate reason to pollute more, and a soft incentive in the form of price allows them to do that if absolutely necessary.