Offshore Petroleum Licensing Bill

Debate between Baroness Hayman and Lord Randall of Uxbridge

Committee stage
Tuesday 23rd April 2024 Grand Committee

[Baroness Hayman (CB)]

My Lords, it is a pleasure to open this Committee stage, and I promise to resist the temptation to relitigate any of the issues of principle that we discussed previously. I declare my interests as chair of Peers for the Planet and director of the associated company.

In moving Amendment 1, I will also speak to Amendment 2, but I look forward very much to hearing the argument on Amendments 9 and 10, in the names of the noble Baroness, Lady Willis, and the noble Lord, Lord Randall of Uxbridge. I am grateful for the support of the noble Baroness, Lady Blake of Leeds, the noble Lord, Lord Randall of Uxbridge, and the noble Earl, Lord Russell, on Amendment 1. I would also like to thank those organisations that have supplied briefing, including Uplift, Oceana and the Green Alliance.

In the vein of trying to do what we can to improve a fundamentally flawed Bill, my Amendment 1 seeks to make progress on the important issue of greenhouse gas emissions from venting and flaring and builds on an amendment introduced in debates in the other place by Sir Alok Sharma. The amendment is a simple and pragmatic proposal, which seeks to give statutory force to existing voluntary guidance on this issue and to factor in the recommendations of the Environmental Audit Committee of the other place, made in January 2023, which recommended a ban on venting and flaring by 2025.

The amendment does two things. First, it says that there should be no invitations for new licences until the Secretary of State has introduced a ban on venting and flaring from new installations. Secondly, it would give the Secretary of State a maximum of two years to introduce a ban on venting and flaring from all installations if any further licensing rounds are to take place. The EAC’s report recommended a ban not later than the end of 2025. My amendment recognises that time has moved on since 2023 and amends the timeline appropriately. Adopting this change would help the Government to demonstrate that they are serious about maintaining their global leadership on climate action by turning their stated ambition into delivery.

The practice of venting and flaring is a serious issue. It takes place when extra gas is produced, usually as a by-product of oil extraction that producers need to get rid of, rather than sending back to shore. They do this by venting the natural gas, releasing it directly into the atmosphere as methane, or by flaring—burning the gas—which, as well as releasing methane, releases volumes of other greenhouses gases and pollutants such as black soot and nitrous oxide. Both practices are damaging and polluting, as well as being, in the words of the IEA, an “extraordinary waste of money”.

Methane is a highly potent greenhouse gas. It is the second biggest cause of global heating after CO₂ and has a far higher warming effect in the short term. However, its short lifespan in the atmosphere compared with other greenhouse gases means that taking action to cut methane now is one of the fastest and most cost-effective ways to limit global warming in this crucial decade.

It is also a very wasteful practice. Green Alliance research has found that just 18 of the highest polluting oil and gas platforms in the North Sea are losing enough gas through venting and flaring to power 140,000 homes, equivalent to a city the size of Aberdeen. The North Sea transition deal commits the industry to a voluntary cut in emissions of 50% by 2030 on a pathway to net zero by 2050. The Climate Change Committee described those targets as weak and significantly lower than its sixth carbon budget advice—but, even so, the industry is not on track to meet them. Added to that, the North Sea Transition Authority emissions monitoring report of 2023 shows that UK oil is more polluting than average, compared to that of other major producers, including gas imported via pipelines from Norway and other nations operating in the North Sea.

The Government agreed in 2020 to phase out routine venting and flaring by 2030. There is guidance in place from the regulator, the NSTA, which expects the industry to adhere to zero routine venting and flaring by 2030, and where all new developments should be planned on the basis of zero routine flaring and venting.

In response to Sir Alok’s similar amendment in Committee in the Commons, the Minister argued against putting its ambition into legislation. However, this is not groundbreaking: Norway has had a ban in place since 1971 and even the US Bureau of Land Management is now taking action. Voluntary guidance is just not doing what is needed; it is not always followed by industry or the regulator. Just last year, the NSTA granted approval for the , permitting the operators to flare unwanted gas until 2037, in spite of the guidance that new developments should have zero venting and flaring by 2030. Progress to reduce methane emissions in the UK has, according to the Government’s 2022 methane memorandum, been very slow, particularly in the energy sector, where percentage drops year on year have stayed flat.

The CCC, the EAC and the net-zero review have all highlighted that the UK is not going fast enough on methane reduction. There are no technical barriers to ending routine venting and flaring, as the IEA has said. As for cost, industry spending on reducing emissions from venting and flaring is subject to a tax break of £1.09 for every pound spent. As the Government’s 2022 methane memorandum put it,

“Action on methane is … recognised as the ‘last low hanging fruit’ in tackling climate change because measures are readily available and in some cases very cost effective”.


If the Government are serious about their commitments to reduce methane, there really is no excuse for not using this Bill to make faster progress to reduce the emissions from oil and gas production. At Second Reading, the Minister said that he would listen carefully to views on this, so I look forward to his response to the debate that we are about to have.

I move on to Amendment 2, which is also in my name. I am grateful to the noble Lord, Lord Knight, and the right reverend Prelate the Bishop of Norwich for adding their names. At Second Reading, many noble Lords highlighted the need to address the long-term employment prospects of those currently working within the oil and gas sector. My Amendment 2 seeks clarification from the Government on their plans for workers currently employed in our declining North Sea basin to transition to the sustainable jobs of the future. Rather than losing the 30,000 or so direct roles in oil and gas and the valuable skills of those workers, who may be forced to move elsewhere, we need to nurture their transformed skills into the new net-zero roles.

My amendment proposes that there should be no new applications for licences until the Secretary of State has published a green skills retraining plan setting out what support the Government will provide for those in the oil and gas sector who wish to transition to work in green economy jobs. Specifically, it proposes the introduction of a skills passport for workers, which will provide financial and practical support to access training so that those workers can, easily and without additional cost to them, reskill and retrain for the future and be part of the green economy.

The Government recognised in Committee in the Commons that the skills and expertise of the oil and gas industry will be needed to support the net zero transition; however, action to achieve this appears to have stalled. The CCC has pressed for more to be done on net zero skills. It noticed in its 2023 progress report that its earlier cross-cutting policy recommendation for an action plan for net zero skills was “overdue”. It focused on the need for a strategy for those

“workers and communities affected by industries that are expected to experience job losses as a result of the Net Zero transition, including by providing reskilling packages and tailored support to transition to alternative low-carbon sectors”

A recent POST briefing note on green jobs noted that the UK Government’s green jobs delivery group planned to publish a net zero and nature workforce action plan in the first half of 2024. Can the Minister provide an update on when this is likely to be published and any insight into what it is likely to offer? The North Sea transition deal involved commissioning an integrated people and skills plan, which was followed by an Offshore Energies UK 2023 Workforce Insight report that promised to deliver a skills passport so that people can move seamlessly between sectors. Can the Minister provide an update on the skills passport and when this is likely to be produced? Can he confirm that it will provide financial support for workers looking to move into green jobs?

The second part of my amendment probes another recommendation of the Workforce Insight report: the creation of a green skills retraining task force to co-ordinate the retraining provisions that are required across the UK. Will the Government be progressing this recommendation? If not, how will the required skills transition be delivered? I hope the Minister will be able to provide some insight into the Government’s thinking on this important issue and give much needed assurance to workers in the oil and gas sector that their skills are valued and needed, both now and in the future. I beg to move.

[Lord Randall of Uxbridge (Con)]

My Lords, I shall speak to Amendment 9 in my name and say a little about Amendment 10. I have also put my name to Amendment 1, about which we have just heard from the noble Baroness, Lady Hayman—I thank her for moving that amendment so well—and Amendment 10 in the name of the noble Baroness, Lady Willis.

Amendment 9 is in my name and I am very grateful for the support of the noble Lord, Lord Teverson, and the noble Baronesses, Lady Willis and Lady Young. It would require the Secretary of State to publish a marine spatial prioritisation policy, and a spatial prioritisation test to be passed before future licensing could take place. It would mean that before any more oil and gas licensing is permitted, it would have to fit into what the North Sea of the future looks like, with space set aside for other priorities—the priorities of the future, I suggest: marine health and renewable infrastructure. Specifically, the plan would need to ensure that the targets under both the Climate Change Act and the Environment Act are prioritised and achieved.

For the purposes of this amendment, the test could not be passed unless a marine spatial prioritisation policy was in place. This is something the Government have committed to, but there is a risk that, without this amendment, we could be inviting future licensing rounds which will not take account of, or even be in accordance with, a strategy the Government are currently producing. I believe it is wholly pragmatic in its approach. The NSTA did not run licensing rounds while it waited for the now redundant climate compatibility checkpoint to be published, so there is a precedent here for this approach.