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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