Onshore conventional oil and gas - call for evidence: analysis of responses

1 Introduction

1.1 In June 2022, the Scottish Government issued a call for evidence on the exploration for, and development of, onshore conventional oil and gas in Scotland. Responses to the call for evidence were intended to inform the development of a preferred policy position on the future of onshore conventional oil and gas in Scotland, which will be included in the Scottish Government's forthcoming Energy Strategy and Just Transition Plan (ESJTP).

1.2 The call for evidence was published on 21 June 2022 with a deadline of 02 August 2022 for submissions. This report presents findings from an analysis of responses to that call for evidence. A separate call for evidence on the future of coal extraction in Scotland was issued at the same time. Findings from an analysis of the responses to that call for evidence are presented in a separate report.

Policy context

1.3 The Scottish Government has set a target – in legislation – to achieve net zero emissions of all greenhouse gases by 2045.^[1] This represents a 75% reduction in emissions from a 1990/95 baseline. In addition, Scotland is one of the few countries that has set legally binding economy-wide interim emissions targets for every year from now until 2045. The Scottish Government's Programme for Government 2021/22 states that 'unlimited extraction of fossil fuels is incompatible with our climate obligations and meeting the aims of the Paris Agreement'.

1.4 At the same time, the Scottish Government has made a commitment to achieving a net zero and climate resilient future in a way that is fair for everyone – recognising that the process of reducing carbon emissions could have unequal economic impacts on households, communities and regions.

1.5 Scotland's first Energy Strategy was published in 2017. The Scottish Government is now in the process of updating this strategy and developing its first 'just transition' plan. The strategy will include a comprehensive range of policy positions for related areas including onshore conventional oil and gas exploration and development. The preferred policy position on onshore conventional oil and gas will be included in the required impact assessments of the wider ESJTP, with the finalised policy position being confirmed on conclusion of this process.

1.6 The updating of the Strategy, and the call for evidence on onshore conventional oil and gas, come at a time when there is a heightened awareness of climate change and the impacts of global geo-politics on the energy security of nations. More recently, the invasion of Ukraine by Russia has highlighted Europe's dependence on Russian oil. On the one hand, the Ukraine conflict puts in jeopardy climate change commitments across Europe; on the other, it has also had the effect of galvanising efforts to reduce reliance on fossil fuels. In this context, the Scottish Government sought views and evidence about the exploration for, and the development of, onshore conventional oil and gas in Scotland.

Conventional and gas exploration and extraction in Scotland

1.7 Conventional oil and gas refers to petroleum, or crude oil, and raw natural gas extracted from the ground by conventional means and methods (i.e. by drilling a well and allowing oil or gas to flow out under its own pressure).

1.8 Oil and gas exploration and extraction in the UK takes place under government licensing arrangements. Since February 2018, responsibility for onshore licences in Scotland has been devolved to the Scottish Government, although issues relating to payment for licences continue to be reserved.

1.9 Thus, Scottish Ministers are the licensing authority for the two onshore licences currently held in Scotland. However, there is currently no onshore oil and gas production in Scotland.

The call for evidence on onshore conventional oil and gas

1.10 The call for evidence paper published by the Scottish Government with regard to onshore conventional oil and gas included sections on (i) climate change, (ii) just transition (to energy systems not based on fossil fuels), and (iii) energy security. The paper also discussed current licensing arrangements in Scotland for the development of onshore conventional oil and gas. In addition, the paper briefly covered current arrangements relating to onshore unconventional oil and gas extraction and CO2 storage and noted that views on both these issues were not being sought as part of the call for evidence.

1.11 The call for evidence did not advocate a preferred Scottish Government position or policy, but, rather, invited views and evidence that would allow the Scottish Government to deliver a robust and fully-evidenced policy position in line with Scotland's energy needs, statutory requirements and climate change ambitions.

1.12 The call for evidence included a single open question for respondents to address:

• Considering the information presented in this call for evidence paper, and your own knowledge and experience, what are your views on the exploration for, and development of, onshore conventional oil and gas in Scotland?

1.13 The call for evidence paper could be accessed via the Scottish Government's online consultation hub. Respondents could complete an online consultation questionnaire or submit an offline response by email or post.

About the analysis

1.14 This report presents an analysis of the responses submitted to the call for evidence. The aim of the analysis is to identify the main themes and the full range of views, and to explore areas of agreement and disagreement in views between different groups of respondents.

1.15 It is important to bear in mind that the views of those who have responded to the call for evidence are not representative of the views of the wider population. For this reason, the approach to the analysis is qualitative in nature. Its main purpose is not to identify how many people held particular views, but rather to understand the range of views expressed.

1.16 Finally, it is important to note that some of the responses to this call for evidence (especially those from organisations) contained technical information and references to other published and unpublished material. Information of this type is not analysed in any detail but is catalogued in an annex to the report.

The report

1.17 The remainder of this interim report is structured as follows:

• Chapter 2 presents information on the respondents to the call for evidence on onshore conventional oil and gas and the responses submitted.
• Chapter 3 presents an analysis of the responses received.
• Annex 1 provides a full list of organisational respondents.
• Annex 2 provides a list of references (reports, articles, etc.) referred to by respondents in their responses.