One of the first significant choices facing Andy Burnham's government concerns the future of North Sea oil and gas. Initial reports suggested a broad change of direction, which now seems to have been softened to a promised “pragmatic” approach.
Decisions remain outstanding on particular developments and
on the treatment of fields connected to existing infrastructure: approval for
the nearly completed Jackdaw gas field, whose developer says it could begin
producing this autumn, is a different decision from approval for the
predominantly oil-producing Rosebank field; and both differ again from issuing
licences for fresh exploration that may produce nothing for years.
In this blog I will leave employment, tax revenue, and the
distribution of the gains to one side, and consider the case for and against
drilling purely through the lens of climate. There are five climate and
transition arguments worth taking seriously: one is plainly bad; two provide a
genuine case for limited additional production; and two strengthen the case
against it.
The stupid case: improving the carbon accounts
The bad argument begins with a correct observation.
Producing and transporting a unit of gas from different sources creates
different quantities of greenhouse gases. The North Sea Transition Authority
estimates that, in 2024, producing and delivering UK gas emitted 28 kgCO₂e per
barrel of oil equivalent. The corresponding figure was 85 kg for imported
liquefied natural gas (LNG). Liquefaction, shipping and regasification are
energy intensive, and methane can leak along the supply chain.
Therefore, using domestically produced gas is “cleaner” and
will reduce emissions?
Domestic gas production relative to imports may reduce UK
emissions, but the atmosphere is indifferent to the national column of a global
emissions spreadsheet in which an emission appears. The relevant question is
how a production decision changes total world emissions.
Additional UK supply lowers the market price of gas or oil.
Consumers then use more, while some higher-cost production elsewhere is
displaced. The split depends on demand and supply elasticities. And while it is
perhaps too strong to claim that every additional North Sea barrel becomes an
additional barrel of world consumption, it is equally wrong to assume that it
displaces an imported barrel one for one. Unless producers elsewhere withdraw
their output fully, world fossil-fuel consumption rises.
This is the central insight of the economics of supply-side
climate policy. Harstad’s Buy Coal!
showed why a climate coalition is likely to need to constrain fossil-fuel
supply as well as demand. Fæhn and co-authors found, in a quantitative
application to Norway, that supply-side restrictions could form most of a
cost-effective unilateral climate policy. More recent empirical work reaches a
similar qualitative conclusion while allowing for leakage. Prest and co-authors
estimate that permanently curtailing an oil barrel reduces global lifecycle
emissions by roughly 40–50% of that barrel’s gross emissions; other producers
replace part of the lost supply, but far from all of it. Ahlvik’s estimates
likewise show substantial leakage from an OECD-only oil-production tax,
alongside a remaining reduction in global emissions.
These estimates dispose of the idea that supply is
environmentally irrelevant because demand is fixed. From a climate-only
perspective, this creates a strong presumption against expanding production.
The first serious case: the transition itself uses resources
Net zero is an enormous investment programme. It requires
renewable generation, networks, storage, new industrial equipment, building
renovation, heat pumps and changes to the transport fleet. Producing all that
equipment requires labour, materials, capital and energy. During the build-out,
resources devoted to investment are unavailable for current consumption.
This trade-off is familiar in growth economics, although it
sometimes disappears from political accounts of the transition. In a recent
macroeconomic model of net zero, Neil Mehrotra shows how the replacement of
fossil capital with clean capital can reduce consumption along the transition
path even where the eventual cost of clean energy is small. Premature
retirement of usable fossil capital adds another temporary loss. The
International Energy Agency’s net-zero scenarios similarly require a rapid increase
in energy investment. Comerford and Spiganti show how a negative energy or
economic shock can intensify this problem: consumption smoothing reduces
aggregate investment and shifts the composition of the remaining investment
towards shorter-duration, lower-upfront-cost fossil projects, delaying the
clean-energy transition.
Energy itself can therefore be a binding transitional input.
If Britain tries simultaneously to construct a new energy system and to
contract its available dispatchable supply too quickly, the result may be lower
consumption, higher prices or slower construction. Additional gas could ease
that constraint and make a rapid transition more tolerable.
This is a genuine argument for production, although it is
much narrower than a general case for reopening the North Sea. Three conditions
must hold. The energy must arrive while the constraint is binding; it must
improve the availability or resilience of energy used in Britain; and the clean
investment programme must proceed faster as a result. A generic exploration
licence satisfies none of these conditions automatically. The UK is a small participant
in integrated European and world markets, so extra North Sea output will have
little effect on the market price.
Jackdaw is the strongest possible example for this argument
because the project is unusually advanced. Its developer says it could begin
production on 1 October and supply around 6% of UK gas at peak. Those are
company claims and the appropriate counterfactual still needs independent
assessment. Even so, a field capable of producing within months deserves a
different analysis from a new licence with a multi-year lead time. Rosebank,
which is principally an oil project, cannot borrow an argument about a gas shortage
this winter.
There is also an implementation problem. Unconditional
additional supply may support extra ordinary consumption rather than
construction of the clean system. A government relying on the
transition-resource argument should be able to identify the bottleneck being
relieved and the extra clean investment thereby enabled. Linking any temporary
production rents to grids, storage, efficiency and renewable capacity would
make the claim more credible.
The second serious case: net zero has a political constraint
Climate policy must survive elections, price shocks and cold
winters. Its costs can be immediate and highly visible, while much of its
benefit is global and arrives over decades. That asymmetry creates an obvious
political vulnerability.
The evidence from carbon taxation is sobering. Douenne and
Fabre find that, after the French Yellow Vests protests, voters greatly
overestimated their losses from a carbon-tax-and-dividend proposal, perceived
it as regressive and doubted its environmental effectiveness. Providing correct
information improved support only partially. More broadly, the literature on
climate-policy sequencing argues that early clean investment can lower later
abatement costs and create constituencies with an economic interest in stronger
policy.
Imagine, then, a serious gas shortage this winter after the
government has rejected Jackdaw. Opponents of net zero would have an easy
story: climate policy left Britain short of energy. The story might be
economically false—the shortage could have arisen from international
disruption, storage failure or weather—but political attribution rarely waits
for a clean counterfactual.
The reverse mechanism is also possible: if Jackdaw is
approved and a shortage occurs anyway, the limits of drilling become visible;
continued exposure to gas could then be blamed, creating impetus for faster
electrification, efficiency and renewable deployment. Europe’s response to the
2022 gas shock illustrates the possibility: governments secured emergency
fossil supplies while also cutting gas demand and accelerating parts of the
clean-energy programme.
Unfortunately, a crisis arrives without an agreed
interpretation. The fossil-fuel industry can use the same shortage to demand
another field after the first. Climate advocates can use it to demand release
from gas dependence. Political outcomes depend on framing, and the economic
interests that policy has already created. Approving drilling may insure the
government against one line of attack, while strengthening a constituency that
will resist the eventual phase-out.
The political-economy case is therefore real but
indeterminate. It supports a transparent energy-security plan, explicit
contingency analysis and protection for vulnerable households. It does not, by
itself, select a drilling decision.
A weaker case against drilling: crowding out finance
Another concern is that money invested in North Sea projects
becomes unavailable for the net-zero build-out. At the level of an individual
project, this sounds unconvincing. The investors financing an offshore gas
field are unlikely to be choosing between that field and a Scottish heat-pump
programme. Britain is also open to international capital, so national saving is
not a fixed pot that must be divided mechanically between brown and green
investment.
The aggregate cost-of-capital version of the argument is
possible, but it needs evidence. Renewable energy is capital intensive and
unusually sensitive to financing costs. Work by Calcaterra and co-authors shows
that high and unequal costs of capital can materially impede renewable
deployment. Yet it does not follow that one additional UK fossil project
appreciably raises the financing cost of clean projects. Indeed, Mehrotra’s
transition model finds that expected lower consumption growth can lower the
equilibrium real interest rate even as clean investment rises.
More specific bottlenecks offer a stronger version of the
argument. Banks and developers can have limited risk-bearing capacity. Public
guarantees, tax allowances and fiscal headroom are scarce. Offshore engineers,
installation vessels, ports, planning expertise and management attention cannot
move instantly between sectors. Fossil investment can bid up the price of these
inputs and delay clean projects even if the global supply of financial capital
is elastic.
So this argument should be quantified rather than asserted.
For each proposed field, the government should ask which financing capacity,
public support and specialist resources it will use, and what those resources
would otherwise have done. Purely private finance with genuinely additional
labour and equipment creates little direct crowding out. Subsidised finance or
competition for an already constrained offshore supply chain creates much more.
The stronger case against drilling: capital creates its own future
Capital is durable, and investments are often complementary.
A gas field raises the value of pipelines and processing hubs. Reliable gas
supply raises the prospective value of gas-fired generation and other gas-using
equipment. Once those assets exist, their owners have an incentive to resist
policies that would strand them. Today’s investment therefore changes
tomorrow’s technology, prices, and politics.
This is the economic core of carbon lock-in. Acemoglu and
co-authors show how innovation can become path dependent: a larger market for
dirty technologies attracts further research towards them, while clean
innovation needs policy support to escape the inherited advantage. Rozenberg,
Vogt-Schilb and Hallegatte show how irreversible investment in polluting
capital creates stranded assets during a later transition and alters the costs
and politics of climate instruments.
Harstad and Holtsmark’s new Journal of Political Economy paper, The Gas Trap, applies the point directly to natural gas. Extra gas
can displace coal in the short run because existing renewable capacity cannot
respond immediately. Once future gas supply is anticipated, however, investors
build less renewable capacity. Over the longer run gas then displaces
renewables, and emissions can rise. A policy that appears helpful in the
immediate energy market changes the capital stock that will govern the next
one.
For a single UK field, the effect on the European gas price
may be small. The local infrastructure and political effects can still be
important. Adura explicitly argues that Jackdaw would keep the Shearwater gas
hub operating into the 2030s. That is an economic benefit to the project, and
it is also the lock-in mechanism: extending the hub makes nearby tiebacks more
valuable and gives workers, firms and asset owners a stake in further
production.
Some complementarities could run in the other direction.
Offshore skills, ports and pipelines may support wind, carbon storage or
hydrogen. Existing infrastructure could be repurposed. These possibilities
reduce lock-in only where conversion is technically realistic and backed by
enforceable plans. The mere possibility of later repurposing cannot be counted
as a delivered climate benefit.
So what should Burnham do?
The five arguments do not carry equal weight.
The higher imported emissions case fails by ignoring the
effect of supply on the world market. The transitional-resource and
political-economy cases are serious, particularly for gas that can arrive
quickly during a genuine security constraint. Financial crowding out is
plausible through specific bottlenecks, although the broad claim about a fixed
pool of capital is weak. Path dependence is the strongest additional reason for
caution because it affects future investment and future political choices.
The conclusion must be against a general return to North Sea
exploration or an open-ended programme of new drilling. But the possible case
for Jackdaw is much closer and should be judged separately: its near-completion
gives it a credible short-run security value that Rosebank and new exploration
do not share. Approval would nevertheless carry a global emissions cost and
extend the life of gas infrastructure.
If Burnham approves a narrowly transitional gas project, the
word “transitional” needs policy follow-through: a binding production horizon
or cumulative cap; no expectation of repeated follow-on approvals; a climate
royalty reflecting the carbon released when the gas is eventually burned; no
public subsidy; and a specified clean-investment programme large enough to
relax the constraint used to justify the gas. Prest and Stock show how such a
royalty can incorporate downstream climate damages into a supply-side fiscal
instrument. Without those commitments, the bridge has no defined destination
and every temporary exception becomes the argument for the next one.
References and further reading
- Acemoglu, D., Aghion, P., Bursztyn, L. and Hémous, D. (2012), “The Environment and Directed Technical Change”, American Economic Review, 102(1), 131–166.
- Ahlvik, L. (2026), “Quantifying Supply-Side Climate Policies”, Review of Economic Studies.
- Calcaterra, M. et al. (2024), “Reducing the cost of capital to finance the energy transition in developing countries”, Nature Energy, 9, 1241–1251.
- Comerford, D. and Spiganti, A. (2025), “Energy Shocks and the Climate Transition”, Strathclyde Discussion Papers in Economics, No. 25–4.
- Douenne, T. and Fabre, A. (2022), “Yellow Vests, Pessimistic Beliefs, and Carbon Tax Aversion”, American Economic Journal: Economic Policy, 14(1), 81–110.
- Fæhn, T., Hagem, C., Lindholt, L., Mæland, S. and Rosendahl, K. E. (2017), “Climate Policies in a Fossil Fuel Producing Country: Demand versus Supply Side Policies”, The Energy Journal, 38(1), 77–102.
- Harstad, B. (2012), “Buy Coal! A Case for Supply-Side Environmental Policy”, Journal of Political Economy, 120(1), 77–115.
- Harstad, B. and Holtsmark, K. (2026), “The Gas Trap: Outcompeting Coal versus Renewables”, Journal of Political Economy, 134(7), 2166–2214.
- Meckling, J., Sterner, T. and Wagner, G. (2017), “Policy sequencing towards decarbonization”, Nature Energy, 2, 918–922.
- Mehrotra, N. R. (2025), “The Macroeconomics of Net Zero”, working paper.
- Prest, B. C., Fell, H., Gordon, D. and Conway, T. J. (2024), “Estimating the emissions reductions from supply-side fossil fuel interventions”, Energy Economics, 136, 107720.
- Prest, B. C. and Stock, J. H. (2023), “Climate royalty surcharges”, Journal of Environmental Economics and Management, 120, 102844.
- Rozenberg, J., Vogt-Schilb, A. and Hallegatte, S. (2020), “Instrument choice and stranded assets in the transition to clean capital”, Journal of Environmental Economics and Management, 100, 102183.
Data and context: BBC reporting on Burnham’s proposed North Sea plans; Office for National Statistics guide to UK emissions
measures; North Sea Transition Authority gas-emissions factsheet;
Carbon Brief’s lifecycle comparison of North Sea gas and
LNG; the International Energy Agency’s net-zero pathway;
and Adura’s
description of the Jackdaw project.