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Resolution 2140 (2016)
The exploration and exploitation of non-conventional hydrocarbons in Europe
1. Non-conventional hydrocarbons,
such as shale gas and oil, have shaken the global energy market.
The exploration and exploitation of these resources mainly refer
to hydraulic fracturing (“fracking”), a technique for tapping underground
natural gas by injecting high-pressure water and chemicals to break
rocks, with a view to liberating the gas and oil they contain. This
controversial procedure raises a number of concerns related to public
health and environmental protection.
2. The weak economic viability of hydraulic fracturing in Europe,
coupled with public acceptance issues, should discourage exploitation
of unconventional fossil fuels. However, since hydraulic fracturing
is authorised in some European countries, a thorough assessment
of its feasibility and implications remains a task of urgent practical
importance.
3. The fight against climate change and water scarcity is vital
for the survival of humankind. By signing the Paris Agreement on
combating climate change, States committed to keeping the increase
in the global average temperature below 2°C above pre-industrial
levels, with the aim of limiting the increase to 1.5°C. States should therefore
not adopt energy policies which could impede the achievement of
this goal. The Parliamentary Assembly strongly supports the efforts
of States to comply with their international obligations in this
field. Non-conventional hydrocarbon production is more harmful in
terms of climate change than coal, so will require a greater reduction
in fossil fuel production elsewhere. Council of Europe member States
should focus on developing sustainable alternatives.
4. Oil producers have increased production in response to shale
gas exploitation by the United States, which has reduced oil prices
and returns on investments in renewables. However, as 75% of identified
fossil fuels cannot be used without a climate change catastrophe,
member States should prioritise long-term investment in renewables
irrespective of short-term oil prices.
5. Recalling its Resolution
1977 (2014) on energy diversification as a fundamental
contribution to sustainable development, the Assembly recommends
that member States diversify their energy supplies and prioritise
the use of cleaner and safer energy resources by focusing on renewables,
including solar, wind, hydraulic, geothermal, biomass and marine
power. Fiscal initiatives and planning law in member States should favour
renewables and member States should also prioritise policies promoting
energy efficiency and reducing energy consumption. Member States
have the opportunity to take global leadership in renewable technology and
co-operation to help the developing world to grow with its fair
share of energy in a sustainable way. Member States should encourage
the transfer of renewable energy technologies to developing countries
to avoid associated climate change. This can include extending networks
of solar forests across southern Europe and northern Africa and
pioneering carbon capture.
6. The Assembly is deeply concerned about threats to the environment
and public health related to the exploration and exploitation of
shale gas and oil, in particular in relation to water contamination,
air quality and local environmental harm. In light of the above
considerations, the Assembly urges all member States to clarify and
strengthen their legislation in this field, including bans on fracking
in favour of cleaner energy alternatives.
7. Pending a possible ban on fracking, the Assembly recommends
limiting and controlling the exploration and exploitation of non-conventional
hydrocarbons by adopting strict environmental regulations which:
7.1. impose a compulsory environmental
impact assessment for any fracking project, including the impact
on air and water quality and climate change;
7.2. ensure that the industrial companies involved comply with
all air and water quality regulations and oblige companies to disclose
the nature and amount of chemicals used during the process of fracking;
7.3. restrict overall upstream fugitive emissions to below
1%, with those at the fracking site no higher than 0.1% of natural
gas production; ensure that “green completions” are mandatory, namely
that all wells are capped and the methane is captured with no venting
or burning (flaring); put in place comprehensive monitoring of shale
gas and oil operations through environmental agencies, taking into consideration
the need for more accurate top-down measurements of methane releases;
7.4. ensure the effective criminal prosecution of companies
failing to comply with all the above- mentioned regulations, including
the payment of compensation for environmental damage;
7.5. encourage the oil and gas industry to follow the best
up-to-date drilling practices and to adopt safer and more environmentally
friendly techniques; ensure funding of independent high-quality research
on the risks of exploration and exploitation of non-conventional
hydrocarbons to inform regulation;
7.6. ensure transparency, by providing full information on
fracking projects to citizens, and ensuring their involvement in
decision-making processes when it comes to energy projects in their
communities; protect areas with great environmental and cultural
value from drilling operations which may have a visual or other
impact on the landscape.
8. The Assembly recommends that member States:
8.1. promote research and investment
in energy efficiency and the development of greener and safer energy
sources such as renewable energies, offering energy security and
limiting environmental and health hazards;
8.2. accelerate efforts to draw up a trans-European plan, with
a view to ironing out the fluctuations in energy supply linked to
the regional use of solitary renewable energy sources such as solar
or wind power.
9. The Assembly recommends that free trade deals involving member
States, including the Transatlantic Trade and Investment Partnership
(TTIP) and the Comprehensive Economic Trade Agreement (CETA), help countries
to fulfil their obligations under the United Nations Conference
on Climate Change 2015 (COP21) and to freely and fairly safeguard
their environments.