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ShaleGasandFracking
ABriefingPaperfromtheMissionandPublicAffairsCouncilandthe
EnvironmentWorkingGroupoftheChurchofEngland
December2016
TheMission&PublicAffairsCounciloftheChurchofEnglandisthebodyresponsiblefor
overseeingresearchandcommentonsocialandpoliticalissuesonbehalfoftheChurch.The
Councilcomprisesarepresentativegroupofbishops,clergyandlaypeoplewithinterestand
expertiseintherelevantareas,andreportstotheGeneralSynodthroughtheArchbishops’
Council.
TheEnvironmentWorkingGroupwassetupin2014inresponsetoamotionpassedat
GeneralSynod,tobeavoiceinthepublicsquarearguingforenvironmentalresponsibility;to
challengetheChurchofEnglandatalllevelstostrivetosafeguardtheintegrityofcreation
andsustainandrenewthelifeoftheearth,andtodeveloppoliciesandactionsforthe
Church.
INTRODUCTION
ShalegasextractionisarelativelynoveltechnologyintheUK,withonlyahandfulofwellsdrilledat
November2016.Itiscontroversialbothinaffectedcommunitiesandbeyond,withpublicsupportat
only17%1.Thecontroversialnatureoffrackingconcernsboththetechniqueitself,itsrisksand
safeguards,anditsplaceinanationalstrategicenergypolicy.Itisimportantthatquestionsaround
thepracticalsafetyofthefrackingtechniquearenotconflatedwithstrategicenergypolicy
questions.
Asmoreapplicationsfortestdrillingandfrackingaregranted,someaffectedcommunitiesare
lookingtotheChurchofEnglandforleadershipandperspectiveonthemanyissuesconcerned.
Thispaperseekstogiveafactualscanofthemainissuesaroundcommunities,planning,andthe
environment,inthecontextofUKenergypolicyandtheUK’scommitmenttocarbonreduction
targetsundertheCOP21agreement.Thebriefingwill:
•
IdentifypossibleimpactsofshalegasexplorationandfrackingfortheChurchofEngland,
includingdioceses,parishesandtheChurchCommissioners.
•
Suggestarolefordiocesesandparishesinworkingforgreaterunderstandingandtrust
•
InformMPA’spublicaffairsworkonevidence-basedethics,assistingaplannedresponseto
shalegasdevelopments
•
ContributetotheEthicalInvestmentAdvisoryGroup’sworkonExtractiveIndustries
1
DBEIS,2016,“EnergyandClimateChangePublicAttitudeTrackerWave19”
https://www.gov.uk/government/uploads/system/uploads/attachment_data/file/563236/Summary_of_key_fi
ndings_BEIS_Public_Attitudes_Tracker_-_wave_19.pdf
1
ThispaperhasbeenpreparedinNovember2016fortheChurchofEnglandEnvironmentalWorking
GroupandtheMissionandPublicAffairsCouncil,withassistancefromtheChurchCommissioners
andEthicalInvestmentAdvisoryGroup.
Thisbriefingusesarangeofrecentinformationalreadyinthepublicrealm.Perhapsthemost
importantsourceistheCommitteeonClimateChange’sJuly2016reportonfracking,whichcalleda
widerangeofhighlyqualifiedindependentexpertstogiveevidenceongreenhousegasemissions
fromfrackingandtheimpactoncarbonbudgets2.Weregardthisreportasagoodexampleofa
balancedandwell-informedanalysisoftherisks,mitigationsandstrategicissuesinvolvedinfracking.
Wedonotintendheretoduplicatetheworkofthisreportunnecessarily.
FrackinginUK–2016
Atotalof4wellshavegoneintotheshalelayerinthelastfiveyearsandonlyone–PreeseHall,
Lancashire,in2011–hasbeenfracked.Amoratoriumputinplaceaftersmallearthquakesnearthat
sitewasliftedin2012.TheGovernmenthasexpresseditssupportforfrackingintheUKandinSept
2016theSecretaryofStateapprovedplanningappealsfortwoexploratorysitesinLancashire.
Appendix1summarisescurrentdevelopmentsoffrackingsites.
TheScotlandAct2016devolvedshalegaslicensingtotheScottishParliament,whichinJanuary2015
votedforamoratoriumonhydraulicfracturing,pendingaperiodofpublicconsultationthatwillbe
informedbyafurtherreviewthathasbeencommissionedintopotentialimpacts.
InWales,theUKGovernmenthasplanstodevolvefrackinglicencestotheWelshGovernment,and
hasdecidednottomakefrackingdecisionsinthecountryinthemeantime.TheWelshGovernment
isopposedtofrackingandinFebruary2015,aheadofthelicensingpowersbeinggranted,told
councilstheymustrefersuchplanningapplicationstoWelshGovernmentministers.
ShalegasresourcesandpotentialintheUK
MostobserversagreethatshalegaswillnotbeasimportantintheUKasitisintheUS.Asof2016,
drillingforshalegasintheUKremainsatanexploratoryphase3,theUKhaslesslandtodrillon,and
landownersdonotowntherightstohydrocarbonsbeneaththeirland.
ShalebedsarenotfoundallovertheUK.Thegeologicalformationswiththemostshalegas
potentialareacrossaswatheoftheNorthofEngland,fromLiverpoolandBlackburntoNorth
Yorkshire;WalesnearSwansea;theWealdBasininSussex,andtheMidlandValleyofScotland4.
ShalegasinthenorthernEnglandshaleformationisestimatedat37trillioncubicmetersofgas5.
However,theamountthatispotentiallyrecoverablecouldbeonly8-20%ofthat,andthesefigures
aresubjecttosignificantuncertainties,soitisdifficulttoestimatehowmuchshalegascouldbe
extractedsuccessfullyandsafely.Moreaccurateestimatesofthecommercialpotentialcanonlybe
obtainedbytestdrilling.
Variousclaimshavebeenmadeastotheimpactontheeconomyofashalegasindustry–the
numberofwellsthatcouldbedrilled,thenumberofjobsthatmightbesupportedinregionswith
2
CommitteeonClimateChange,2016,“OnshorePetroleum:thecompatibilityofUKonshorepetroleumwith
meetingtheUK’scarbonbudgets”https://www.theccc.org.uk/publication/onshore-petroleum-thecompatibility-of-uk-onshore-petroleum-with-meeting-carbon-budgets/
3
HouseofCommonsLibrary,2016,BriefingPapernumber6073“ShaleGasandFracking”
4
DECC/BritishGeologicalSurvey,2012,“UnconventionalHydrocarbonResourcesofBritain’sOnshoreBasins–
ShaleGas”
5
Andrews,IJ,BritishGeologicalSurveyforDECC,2013,“TheCarboniferousBowlandShalegasstudy:geology
andresourceestimation”
2
highunemployment,andtheeffectonenergyprices6.However,therearemanyuncertainties
aroundallthesepredictions.
Oncurrentlevelsofactivity,andwiththeuncertaintiesintroducedbyleavingtheEuropeanUnion,
volatileoilpricesandrapidchangesinenergygenerationtechnologies,theplaceoffrackingwithina
comprehensiveenergypolicyisfarfromconclusiveandanylargescaleextractionofshalegasinthe
UK–ifithappensatall–islikelytobesomeyearsaway.
Regulationandlegislation
TheUKhasoneofthemoststringentonshoredrillingsafetyregimesintheworld.TheDepartment
forEnergyandClimateChange(nowDBEIS)haspublishedregulatoryroadmapsforonshoreoiland
gasexplorationineachnationoftheUK,whichsetouttheprocesstobefollowedwithineach
legislativeandregulatoryframework7.
AllrightstopetroleumresourcesarevestedintheCrown,andGovernmentissuesPetroleum
ExplorationandDevelopmentLicences(PEDLs)whichallowcompaniestoexploreanddevelop
unconventionalgas.Otheraspectsofregulationinclude:
• Planningpermission
• Environmentalpermits,includingforminingwaste
• Healthandsafetyregulation
• ConsentfromDepartmentforBusiness,EnergyandIndustrialStrategytodrillandfrack.
Theregulatoryauthoritiesnamedinthegovernment’sguidanceincludetheEnvironmentAgency,
HealthandSafetyExecutive,therelevantMineralsPlanningAuthority,andDBEISasowneronbehalf
oftheCrown.Theseagencieshaveastatutorydutytoensurethatanyexplorationanddevelopment,
includingfrackingoperations,isdoneinawaythatprotectspeopleandtheenvironment.Thereare
alsoimportantrolesfortheOilandGasAuthorityandPublicHealthEngland.TheNationalPlanning
PolicyFrameworkguidancedirectivetotheplanningauthoritiesmakesanassumptionthatthe
regimeswilloperateeffectively.
THEOLOGICALANDETHICALISSUES
1. Shalegaswithinatransitionallow-carbonenergypolicy
TheLambethDeclaration2015,signedbytheArchbishopsofCanterburyandYorkandotherfaith
leadersintheUK,recognisedtheurgentneedforactiononclimatechangeandtheneedto
transitiontoalow-carboneconomy8.
InMay2015,theNationalInvestingBodiesoftheChurchofEngland9,advisedbytheEthical
InvestmentAdvisoryGroup(EIAG),adoptedanewclimatechangepolicy.Thepolicysetsouta
comprehensive,distinctlyChristianapproachtoclimatechangeandresponsibleinvestment,
demonstratingcommitmenttoatransitiontoalowcarboneconomythroughdivestmentfrom
companiesspecializedintheextractionofthehighestcarbonfossilfuels(thermalcoalandoil
6
InstituteofDirectors,2013,“InfrastructureforBusiness:Gettingshalegasworking”
OilandGasAuthority,“Regulatoryroadmap:onshoreoilandgasexplorationintheUKregulationandbest
practice”
8
LambethDeclaration2015,https://www.churchofengland.org/media-centre/news/2015/06/archbishop-ofcanterbury-join-faith-leaders-in-call-for-urgent-action-to-tackle-climate-change.aspx
9
TheNationalInvestingBodiesoftheChurchofEnglandaretheChurchCommissioners,Churchof
EnglandPensionsBoardandCBFChurchofEnglandFunds
7
3
sands),seekingoutlow-carboninvestmentsandengagementwithcompaniesandpublicpolicy10.
ThepolicyisgroundedinBiblicalandtheologicalreflections.Akeythemeisthat:
“Humankindhasadivinelymandatedresponsibilityforthephysicalworld,foritscreatures
andforoneanother,especiallytheweakestandleast.Thismandatealsorequiresustodo
allwecantominimisedamagetocreationandGod’screatures,andtopromoteallthatis
goodandthatbringsthekingdomofheavenintoevergreaterrealizationonearth.”
Thepolicynotesthatshalegasmayhelpreducegreenhousegasemissionsaspartofthetransition
toalow-carboneconomy,butthatthisdoesnotnegatetheimportanceofotherissuessuchas
environmentalimpactsandtheeffectonlocalcommunities6.
SomeChristianNGOstakeacampaigningstance,opposingfrackingbecauseoftheimpactoffossil
fuelsinexacerbatingglobalclimatechange11,andnotingresearchbytheInternationalEnergy
Agencythat,intheabsenceofastrongclimatepolicy,continuedglobalexpansionofgassupplyfrom
unconventionalresources,alongsideexploitationofotherfossilfuels,couldleadtoglobal
temperaturerisesof3.5°C,wellabovethe2°Crisethatisnecessarytokeepbelowtoavoid
dangerousclimatechange12.
However,thisiswhereitbecomesimportanttodistinguishtheargumentsaboutfrackingasa
techniquefromargumentsabouthowtotransitiontoalow(er)carboneconomy.Ifdevelopingthe
techniquesoffrackingprovidesanalibiforrelaxingeffortstoreducecarbonconsumption,itis
obviouslyunhelpful.Butthegovernment’scommitmenttoCOP21meansthatoverallcarbon
consumptionintheUKmustbeconstrainedwhateveritssource.And,asshalegasisacleaner
optionthansomealternatives,thecasecanbemadethat,astransitiontoalowcarboneconomyisa
gradualprocess,shalegashasanimportantplaceinsuchapolicy.Itisindeedtruethatifthe
exploitationofglobalshalegasresourceswereadditionaltoexistingexpectedcarbonconsumption,
therewouldbepotentiallycatastrophicglobaltemperatureimplications.Butthesubstitutioninthe
UKofdomesticallyproducedshalegasforothercarbonsources(bothcoalandimportednaturalgas)
wouldbeadifferentmatter.
TheEIAGisintheprocessofdevelopinganewpolicyforthethreeNationalInvestingBodiesonthe
extractivesindustries,includingoil,gasandmining.Thisworkgoesdeeperintothetheological
considerationsaroundextractiveindustriesandwilldistinguishethicalandtheologicalissuesthat
areintrinsictothewaysthatextractionisundertakenfromwiderissueswhichfrequentlyoccurin
theextractivesectorbutwhicharenotuniquetoit.Separately,theNationalInvestingBodiesaspart
oftheimplementationoftheirclimatechangepolicyaresoontolaunchtheTransitionalPathways
Initiative(TPI)whichwillguideethicalengagementonclimatechangewithcompaniesinwhichthe
Churchinvests.
2. FrackingandUKenergystrategy
TheGovernmenthasstatedclearlythatitbelievesshalegashasthepotentialtoprovidetheUKwith
greaterenergysecurity,growthandjobs.13Itthereforesupportsfrackinginvariouswaysincluding
10
EthicalInvestmentAdvisoryGroup(EIAG)oftheChurchofEngland,2015,“ClimateChange:thepolicyofthe
NationalInvestingBodiesoftheChurchofEnglandandtheAdvisoryPaperoftheEthicalInvestmentAdvisory
GroupoftheChurchofEngland”
11
ChristianAid,2016,“DoesChristianAidSupportFracking?”http://www.christianaid.org.uk/ActNow/climatejustice/resources.aspx?Page=4
12
InternationalEnergyAgency,2012,“IEAWorldEnergyOutlookspecialreportonunconventionalgas”
13
DBEIS,accessedNovember2016,“Guidanceonfracking:developingshaleoilandgasintheUK”
https://www.gov.uk/government/publications/about-shale-gas-and-hydraulic-fracturing-fracking/developingshale-oil-and-gas-in-the-uk
4
cuttingtaxrates,speedingupplanningapplications,andseekingtocounterbalancetheimpacton
localcommunitiesthroughproposingaShaleWealthFund14.
Acoherentlow-carbonenergystrategy:Akeyquestionishowshalegascontributestoalong-term
UKenergystrategy,consistentwiththetransitiontoalowcarboneconomyandtheUK’s
commitmentstotheParisCOP21agreement.Tomeetthesetargets,theGovernmentsetsCarbon
BudgetswhichrestrictthetotalamountofgreenhousegasestheUKcanemitovera5yearperiod.If
emissionsriseinonesectoroftheeconomy,theUKmustachievecorrespondingfallsinanother
sector.15EmissionsReductionPlanssetoutvariousscenarios,towardstheoveralltargetof80
reductioningreenhousegasesby80%by2050.ThenextEmissionsReductionPlanisexpectedin
early2017.
Heatingisaparticularchallengeforthelow-carbonstrategy,asmostUKhomesareheatedbygas.
Transitiontoalternativelow-carbonformsofheatingwouldrequirelargeinfrastructurechangesto
productionanddistribution,aswellaschangesinindividualhomes(similartothetransitionsduring
the1950’sto70’sfromcoal,to‘town’gas,tonaturalgas).Optionsforcuttingcarbonemissionsfrom
heatingwouldincludeincreasingtheamountofbio-gasorhydrogeninthemixofgasthatcomes
intoourhomes;electrificationofheating:andincreaseduseofbiomassandheatpumps.Allofthese
alternativetechnologiesarecurrentlyoperatingatverysmallscaleintheUK.TheCommitteeon
ClimateChangehascalledontheGovernmenttoproduceacrediblenewstrategyandamuch
strongerpolicyframeworkforbuildingsdecarbonisationoverthenextthreedecades16.Wesupport
thiscallandbelievethatitisacrucialaspectofarobusttransitionalenergypolicy.
Greenhousegasemissions:In2013,thegovernment’sChiefScientificAdviserrecommendedto
DECC(nowDBEIS)thatmoreworkwasneededtomonitoremissions,particularlymethane,apotent
greenhousegas,andtoexplorethelife-cyclecarbonfootprintassociatedwithextractionanduse17.
Again,wesupportthecallformoreworkofthiskind.
CommitteeonClimateChangereport:TheCommitteeonClimateChange(CCC)releasedareport
intothefutureofshalegasintheUKin201618whichfoundthattheexploitationofshalegasona
significantscaleisnotcompatiblewithUKcarbonbudgets,unlessthreetestsrelatingtoemissions,
gasconsumptionandcarbonreductionsaresatisfied:
•
Emissionsmustbestrictlylimitedduringshalegasdevelopment,productionandwell
decommissioning.Thisrequirestightregulation,closemonitoringofemissions,andrapidaction
toaddressmethaneleaks
•
OverallgasconsumptionmustremaininlinewithUKcarbonbudgets.TheproductionofUK
shalegasmustdisplaceimports,ratherthanincreasegasconsumption.
•
EmissionsfromshalegasproductionmustbeaccommodatedwithinUKcarbonbudgets,
Emissionsfromshaleexploitationwillneedtobeoffsetbyemissionsreductionsinotherareasof
theeconomytoensureUKcarbonbudgetsaremet.
14
HMTreasury,2016,ShaleWealthFundConsultationhttps://www.gov.uk/government/consultations/shalewealth-fund
15
DBEIS,2016,“CarbonBudgets”https://www.gov.uk/guidance/carbon-budgets#policies-and-proposals-tomeet-carbon-budgets
16
CommitteeonClimateChange,2016,“NextStepsonHeatPolicy”https://www.theccc.org.uk/wpcontent/uploads/2016/10/Next-steps-for-UK-heat-policy-Committee-on-Climate-Change-October-2016.pdf
17
DECC,2013,Potentialgreenhousegasemissionsassociatedwithshalegasproductionanduse:astudyby
Prof.DavidMackayandDrTimothyStone
18
CommitteeonClimateChange,2016,“OnshorePetroleum:thecompatibilityofUKonshorepetroleumwith
meetingtheUK’scarbonbudgets”https://www.theccc.org.uk/publication/onshore-petroleum-thecompatibility-of-uk-onshore-petroleum-with-meeting-carbon-budgets/
5
TheGovernment’sresponsetotheCCCreportwasconfidentthatthesetestscouldbemet19.It
believesthatgas–includingshalegas–canbeabridgetolow-carbonenergy,whiletheUKphases
outoldcoalgenerationanddevelopsenergyefficiency,renewablesandnuclear.However,the
impactonemissionsdependsonhowshalegasisproducedandused.Ifshalegasreplacesahigher
carbonsourceofenergy,therewillbeanetreductioninemissions.Forexample,theremaybea
reductioninemissionsduetosubstitutionofshalegasforimportedLiquefiedNaturalGas(LNG).A
newEmissionsReductionPlan,expectedinearly2017,willsetouthowshalegasiscompatiblewith
theemissionsreductiontargets,andshoulddeterminehowmuchofthereservesmaybeexploited.
TheGovernmenthasacknowledgedthattherearecurrentlyinsufficientmeasuresinplacetomeet
theexistingcarbonbudgets20.
Ifitisconcludedthatshalegasiscompatiblewithreducingcarbonconsumptioninthisway,andthat
thepointsoutlinedabovearemet,thenthecaseforfracking,astheprocessbywhichshalegasis
extracted,becomesstronger.Butthenconsiderationmustbegiventoregulatingtheprocessof
frackingandestablishingbestpracticessuchthattheimpactonlocalcommunitiesetc.(asdistinct
fromtheenvironmentalimpactofburningshalegas)isminimised.
Affordabilityofenergy,Employmentimplications:Proponentsoffrackingmaintainthatitcould
employmanypeopleespeciallyinregionswithhighunemployment.Cuadrillahasestimatedthata
singletestwellwouldsupportsome250FTEjobsintheUKfor12months21.Itisalsoclaimedthat
frackingcouldleadtolowerfuelbillsforconsumers,althoughtherearemanyuncertaintiesand
variablesthatcouldaffectfuturefuelbills.Assimilarclaimsfortheeconomy,employmentandfuel
billsarealsomadeforrenewableenergy,itishardtoestablishwhethertherewouldbeany
additionalbenefitsfromfrackingperse.
Energysecurity:Beingabletoaccessmanysourcesofenergysupplyenhancesourenergysecurity.
ProponentsofshalegasmaintainthatproducingmorenaturalgasintheUKwouldoffergreater
energysecurityincasesuppliesfromabroadaredisrupted.
BalanceofPaymentsandtaxgains:IfUK-producedshalegasissubstitutedforimportedcarbonbasedenergysources,itwouldbetothebenefitofthebalanceofpayments.Itwouldalsogenerate
anadditionaltax-takefortheExchequer.
Governmentsubsidiesforfracking:Theenergysubsidysystemisextremelycomplex,encompassing
taxbreaksanddirectsubsidiestoconsumers,theCapacitymarket,andunder-pricingofsocialand
environmentalexternalities(i.e.carbonemissions).Ifmorerelaxedplanningregulationsforshale
wellsweretobeintroduced,itcouldalsobeconsideredaformofsubsidy.
3. Impactsoftheprocessesoffracking
Communityandenvironmentalissues
Planningissues
Theplanningprocessistheformalmeansbywhichtherangeofstakeholderviews,includingthose
oflocalchurchesandcommunities,areheard.Proposalsforshalegasexplorationorextractionare
subjecttoplanningpermission.Ownersandtenantsoflandontheabovegroundareawhereworks
19
DECC,2016,“OnshorePetroleum:thecompatibilityofUKonshorepetroleumwithmeetingtheUK’scarbon
budgets.GovernmentresponsetotheCommitteeonClimateChangeReport.”
20
CommitteeonClimateChange,2016,MeetingCarbonBudgets–2016ProgressReporttoParliament
21
RegenerisConsultingforCuadrilla,2011,“EconomicImpactofShaleGasExplorationandProductionin
LancashireandtheUK”
6
areproposed,mustbeconsulted.Ownersoflandwheresolelyundergroundoperationsmaytake
placemaybeconsultedaspartofawiderobligationtoconsulttheaffectedcommunityalthough
theirconsentisnotrequiredbeforeextractionfrombelowtheirlandtakesplace22.
Frackingistreatedintheplanningsystemasanyotherkindofdevelopment.Somecommunity
concernsfocusaroundnoise,dust,trafficmovements,dealingwithwasteproducts,impacton
naturalenvironment,egnaturereserves–issuestheplanningsystemisexperiencedinaddressing.
Protectionsandindemnitiesforcommunitiescanbenegotiatedtomitigatetheseeffects.Infuture,
thecumulativeimpactsofcommercialscaleproductionwithmanywellsinvariousphasesof
developmentinrelativelysmallareas(forexample,waterdemand,pipelines,storagetanks)are
potentiallygreaterandwillneedcarefulscrutiny.
Otherconcernsfocusonmorecomplexenvironmentalissueslikewateruse,theriskofgroundwater
contamination,healthfearsandcarbonemissionsassociatedwiththeprocessoffrackingitself
contributingtoclimatechange,whichcanpartlybedealtwiththroughregulation,although
significantuncertaintiesremainaboutthelong-termimpacts.Thecontributionoffrackingtothe
widernationalenergystrategyisnotaconsiderationinplanningterms.
In2015theGovernmentannouncedthattheSecretaryofStateforCommunitiesandLocal
Government,ratherthanaplanninginspector,willtakethefinaldecisiononappealsrelatingto
shalegas.InOctober2016theCommunitiesSecretarytookadecisiononappealtoallowCuadrillato
extractshalegasattwosites,whichhadpreviouslybeenrefusedbyLancashireCountyCouncil.This
decisioncouldcarryweightwhenfutureproposalsforfrackingareconsideredintheplanning
system,particularlygiventhehighcostofplanningappeals.
IntheAutumnStatement2015theChancellorannouncedthecreationofaShaleWealthFundto
deliver“upto£1billion”ofinvestmentinlocalcommunitieshostingshalegasdevelopments.In
August2016theTreasurylaunchedaconsultationonprioritiesforthisfund,whichcouldinclude
directpaymentstoindividualhouseholds,theoutcomeofwhichiscurrentlyawaited.Theindustry
hassetoutitsownCharterforcommunityengagementandfinancialbenefitstothecommunity23.
Communitybenefitfundsarearelativelycommonfeatureoflargedevelopments,includingsolarPV
farmsandonshorewindfarms.
Health,safetyandenvironmentalissues
TheBritishGeologicalSurveyhasidentifiedthefollowingpotentialenvironmentalconsiderations
associatedwithshalegas:24
•
carbondioxide(CO2)andmethane(CH4)emissions,particularlythepotentialforincreased
fugitiveCH4emissionsduringdrillingcomparedwithdrillingforconventionalgas
•
thevolumesofwaterandthechemicalsusedinfrackingandtheirsubsequentdisposal
•
thepossibleriskofcontaminatinggroundwater
•
competingland-userequirementsindenselypopulatedareas
•
thephysicaleffectsoffrackingintheformofincreasedseismicactivity
Groundwatercontamination:Contaminationofgroundwatercouldpotentiallybecausedbyleakage
throughtheverticalborehole,ifwellintegrityisnotensured.The2012RS/RAEstudyconcludedthat
becausefrackingtakesplacehundredsofmetresbelowaquifers,itisunlikelythattheunderground
22
TownandCountryPlanning(DevelopmentManagementProcedureandSection62AApplications)(England)
(Amendmentno.2)Order2013(SI2013/3194)
23
UnitedKingdomOnshoreOilandGas(UKOOG),2016,CommunityEngagementCharter,
http://www.ukoog.org.uk/community/charter
24
BritishGeologicalSurvey,2016,
https://www.bgs.ac.uk/research/energy/shaleGas/environmentalImpacts.html
7
hydraulicfracturingprocessitselfwillcontaminatetheaquifers25.However,anysurfacespillsof
hydraulicfracturingfluidsorwastewatermayaffectgroundwater.In2011,thethenUKGovernment
EnergyMinistersaidthattherewasnoevidencethat“thefrackingprocessitselfposesadirectrisk
toundergroundwaterresources”,andthattheUKwouldlearnfromUSincidentsofwaterpollution.
TheRS/RAEreportcalledforthesamestringentcontrolsforfrackingasapplyforoffshorewells.In
this,asinotherareasofpotentialrisk,thereisanobligationtoputinplacerobustsystemsfor
managingandminimisingrisk.
Wateruse:excessivewaterusewashighlightedbytheTyndallCentre26asaparticularproblemfor
theUKbecauseofthepressurethatwaterresourcesareunderinsomepartsofthecountry.The
disposalofwastewaterisalsoaconcern.However,theUKGovernmentsaidinJanuary2016,in
responsetoawrittenquestion,thatbeforepermissionwasgrantedforcarryingoutfracking
activities,“athoroughassessmentwillbemadeconsideringtheexistingwaterusers’needsandthe
environmentalimpact”.
Seismicevents:CuadrillasuspendedfrackingoperationsinLancashirefollowingsmallearthtremors
nearBlackpoolin2011.ThetremorswereonascalewhichisnotunusualintheUK.TheBGSstated
in2012thattheriskstogroundwaterandofearthquakeshadbeenexaggerated27.Thebanwas
liftedinDecember2012,subjecttonewregulatoryrequirements.
Publichealth:Publichealthcouldbeaffectedbygroundwatercontamination,emissionsofmethane,
airquality,truckmovements,flaring,treatmentofwaste,compressors,noisepollution,generators,
drilling,etc.PublicHealthEnglandconcludedin2014thatcurrentlyavailableevidenceindicatedthat
potentialrisktopublichealthfromextractionofshalegaswaslow,providedoperationsare
“properlyrunandregulated”28.
TheRoyalSocietyandRoyalAcademyofEngineeringconcludedin201229thatthehealth,safetyand
environmentalriskscouldbemanagedeffectivelyintheUK,byimplementingandenforcingbest
operationalpractice.Wherepotentialriskshavebeenidentified,theywouldbetypicallytheresultof
operationalfailureandapoorregulatoryenvironment.Therefore,goodon-sitemanagementand
appropriateregulationofallaspectsincludingexploratorydrilling,gascapture,useandstorageof
hydraulicfracturingfluid,andpost-operationsdecommissioningareessentialtominimisetheriskto
theenvironmentandpublichealth.
WhileexperienceoffrackingintheUKtodateislimited,mostrelevantbodiesconcludethathealth,
safetyandenvironmentalissuescanbeaddressedbyregulationandgoodoperationalpractice.The
CommitteeforClimateChangeconsiderstheUKregulatoryregimetohavethepotentialtobe
world-leadingbutthatseamlessmanagementbetweenthevariousregulators,andpotentiallythe
establishmentofadedicatedregulatorybodymaybeneeded30.
25
RoyalSocietyandRoyalAcademyofEngineering,2012,“ShaleGasExtractionintheUK:areviewof
hydraulicfracturing”
26
TyndallCentreforClimateChangeResearch,2011,“Shalegas:aprovisionalassessmentofclimatechange
andenvironmentalimpacts”
27
BritishGeologicalSurvey,2012,“FrackingRiskisExaggerated”NewScientist
28
PublicHealthEngland,2014,“ReviewofthePotentialPublicHealthImpactsofExposurestoChemicaland
RadioactivePollutantsasaResultoftheShaleGasExtractionProcess”
https://www.gov.uk/government/publications/shale-gas-extraction-review-of-the-potential-public-healthimpacts-of-exposures-to-chemical-and-radioactive-pollutants
29
RoyalSocietyandRoyalAcademyofEngineering,2012,“ShaleGasExtractionintheUK:areviewof
hydraulicfracturing”
30
CommitteeonClimateChange,2016,“OnshorePetroleum:thecompatibilityofUKonshorepetroleumwith
meetingtheUK’scarbonbudgets”https://www.theccc.org.uk/publication/onshore-petroleum-thecompatibility-of-uk-onshore-petroleum-with-meeting-carbon-budgets/
8
Frackingandconflict
Frackinghasattractedaconsiderableamountofcontroversyandhastendedtopittheinterestsof
theindustry,theconcernsoflocalpeopleinaffectedareasandthegovernment’sroleinpursuing
thenationalinterestoveragainstoneanother.Thewaysinwhichtheseconflictinginterestshave
beenhandledhassometimesmadeitextremelydifficultforreasonablenegotiationorevenmutual
understandingtoemerge.
Itisclearthatthewaythatindustry,thoseconcernedwiththescience,andsomeotheragenciestalk
aboutquestionsofcost,benefitandriskdoesnotalwaysappreciatethatthevaluesunderlyingtheir
assessmentsmaynotbesharedbylocalcommunitieswhosevaluesmaybebasedonlesstangible
andlesseasilyquantifiedconsiderations.Itisimportantforalltounderstandthatfinancial,and
otherstraightforwardmeasuresof“value”rarelycapturetherangeofthingsthatpeoplevaluein
reality.Similarly,thediscourseofsomecampaigninggroupshassometimesfailedtotakefull
accountoftheinterdependenceofpeopleinandbeyondtheaffectedareasandhassometimes
beenheardtocarryechoesofthe“notinmybackyard”syndromewhichmayhavebeenanexcuse
forotherinterestgroupstoignoreormarginaliselocalvoices.Itisimportantthattheinterestsof
onelocalityareweighedcarefullyagainstawiderconceptionoftheCommonGood–whichisnotto
saythatsuchacalculationisstraightforwardoreasy.Goodmoraldecisionscannotbemadeifthose
beingaskedtobearacostonbehalfofothersaredeniedapropervoice.Campaigninggroupshavea
vitalroleandwillalwaysfeeltheyarechallengingpowerfulforcesdifficulttoholdtoaccount.
ThereisalsoevidenceofcarefulreflectionontheCommonGoodonbothsidesoftheissue–
althoughthepassionwithwhichviewsareheldhasfrequentlyobscuredthisaspectofthedebate.In
ourview,theCommitteeonClimateChangereportscoreswellinthisregard.
TheChurchofEnglandisaChristianpresenceineverycommunityandlocalchurchesandclergywill
bebestplacedtoevaluateanddeliversupporttocommunitiesaffectedby(orlikelytobeaffected
by)fracking.Thechurches,whicharecommittedtothepursuitoftheCommonGood,havea
particularresponsibilityfordefusinginflamedsituationsandseekingreconciliation–notinthesense
ofcrudecompromisesbutbyenabling,wherepossible,differentinterestgroupstohearwhateach
otherisreallysayingwhenthedifferencesofstyleandvocabularyareallowedfor.Thereareno
guaranteesthatallcanbesatisfiedbyanysinglecourseofaction,butthechurchseekstobuildits
ethicaljudgementsonathoroughengagementwithevidence–includingevidenceasseenfrom
differentvantagepoints.Thispaperseeks,howeverinadequately,todojustthat.
CONCLUSIONS
1.TheargumentsandconclusionsoftheCommitteeforClimateChangeReportprovideagood
baselinefordeterminingthefactsontheimpactsofUKshalegasexploitationontheUK’sclimate
changecommitments.
2.ThetheologicalchapteroftheEthicalInvestmentAdvisoryGroup’sClimateChangepolicy
providesthetheologicalundergirdingofthisbriefingpaper.Thisisaugmentedbyfurthertheological
workcommissionedbytheEIAGtoinformitsworkonextractiveindustrieswhichis,asyet,
unpublished.Wehavenotsoughttorepeatorreproducethistheologicalmaterialinthecurrent
paper.
9
3.
Thecaseforandagainstfrackingdependsfirstonconclusionsabouttheroleofshalegasina
transitionalenergypolicy.Shalegasisapotentiallyusefulelementinachievingatransitiontoa
muchlowercarboneconomy.Thegovernment’spubliccommitmenttoreducingtheUK’scarbon
emissionsunderCOP21providesacontextwhichshouldensurethatshalegasisnottreatedasan
alibiforduckingcarbonreductioncommitments.TheEmissionsReductionPlanexpectedinearly
2017willhavetodemonstratehowcarbonemissionsfromshalegaswillbalancethosefromother
sectorsoftheeconomy,towardstheUK’scarbontargets.
3.
Shalegasdevelopmentsmustnotdistractordelayeffortstoexpandlow-carbonrenewable
energy,especiallycommunity-ownedenergyintheUK,towardsachievingthelong-term2050
carbonreductiontargets.
4.
IfsuchapossiblelimitedroleforexploitingshalegasintheUKisaccepted,thenextquestion
iswhethertheimpactoffracking,astheprocesswherebyshaleisexploited,oncommunities,the
landscapeandtheenvironment,canbeminimisedsatisfactorily.
5.
Thekeytowhetherornotfrackingisamorallyacceptablepracticethusturnsonthree
points:theplaceofshalegaswithinatransitionalenergypolicycommittedtoalowcarbon
economy;theadequacyandrobustnessoftheregulatoryregimeunderwhichitisconducted,and
therobustnessoflocalplanninganddecision-makingprocesses.Havingconcludedthatshalegas
maybeausefulcomponentintransitioningtoalowcarboneconomy,wearepersuadedthata
robustplanningandregulatoryregimecouldbeconstructed.However,theseareaspectsthatwill
needconstantvigilance.Ongoingresearchandmonitoringofimpactsonhealthandenvironment
willbeneeded.
6.
Werecogniseandsympathisewiththeconcernsofindividualsandcommunitieswhoare
directlyaffectedbyfrackingactivitiesintheirneighbourhoods.Itisessentialthattheirlegitimate
concernsareheardandappropriateprotectionsandcompensationareinplace.Manycommunities
areaskedtoacceptdisadvantageforthesakeofthegoodofsocietyatlargebutitisnotrightthat
thisshouldbeaone-waytransaction–extractiveindustriescannotputbackwhattheyhave
extractedsotheymustseekwaystoputbackresourcesintocommunitiesinotherways.
ThisbriefingpaperwascommissionedbytheMissionandPublicAffairsCouncil,andthe
EnvironmentWorkingGroup,tohelpunderstanda“live”,andcontentious,issueaboutwhichthere
aremanystrongfeelingsondifferentsides,bothinthechurchandinthewidercommunity.
Followingdiscussionofthepaperindraft,bothgroupshavefoundithelpfulandrepresentativeof
bothgroups’currentthinking.Itisthereforeofferedtoothersinthechurch,andbeyond,asa
resourceforongoing,evidence-based,discussion.
PhilipFletcherTheRtRevdNicholasHoltam,BishopofSalisbury
Chair,MissionandPublicAffairsCouncilChair,EnvironmentWorkingGroup
10
11
APPENDIX1–FRACKINGSITESINUKATOCTOBER2016
Amapoftheareascurrentlylicencedforshalegasexplorationandextractioncanbefound
here:
https://www.ogauthority.co.uk/data-centre/interactive-maps-and-tools/
FrackingSite
County/
Diocese
Lancashire
Company PositionatOct2016
Sussex/
Chichester
Cuadrilla
PrestonNew Lancashire
Road
Cuadrilla
Roseacre
Wood
Lancashire
Cuadrilla
Kirby
Misperton
Ryedale,North
Yorkshire
Third
Energy
Misson
Nottinghamshire IGas
Forestof
Dean
Gloucestershire
PreeseHall
Balcombe
30sites
South
Western
Energy
Surrey/
UKOil
Guildford
andGas
Blyth,
Dart
Nottinghamshire Energy
Ineos
HorseHill
TinkerLane
Frackingin2011causedsmallearthquakesnearthe
site,leadingtoamoratoriumonfrackingwhichwas
liftedin2012
Protestsovertestdrillingin2013ledtoworkbeing
haltedtemporarily.Newplanningapplication2014
gavetemporarypermissionforexploration.No
activitycurrently.
Applicationrecommendedforapprovalbyplanning
officers,rejectedbyCouncillors.Overturnedon
appealbySecretaryofState,approvalgrantedSept
2016.TestdrillingwillstartearliestApril2017.
Planninginspectorsandappealplanninginspector
recommendedagainstapproval.InSept2016,
SecretaryofStategavecompanymoretimeto
improveapproachtoroadsafetyconcerns.
ApprovedinMay2016byNorthYorkshireCounty
Council.FriendsoftheEarthandFrackFreeRyedale
nowappliedforjudicialreview;HighCourthearing
inNov2016.
Planningapprovedfordrillingandexploration;
furtherplanningapplicationneededforfracking
Localprotestsresultedinthecompanypullingoutof
2licencingblocks,althoughitsinterestsinanother
twoblocksremain.
Explorationin2014showedshalegasformations.
Newplanningapplicationsubmitted
Planningapplicationsubmitted
Planstosubmit5planningapplicationsbyend2017,
andafurther25in2018
12