WASHINGTON -- The debate in Washington over climate change shifted into higher gear Tuesday as powerful California Democrat Henry Waxman introduced a bill to cut U.S. greenhouse-gas emissions, but without specifying how the costs would be levied on different sectors of the economy.

The more-than-600-page document published by Mr. Waxman, chairman of the House Energy and Commerce Committee, and Rep. Edward Markey (D., Mass.) represents the opening bid by the party's liberal leaders in the House in what promises to be a long...