Public Acceptance of CCUS: an Important Component of Project Success

Winning public support could spare companies serious headaches.

Enabling policies and regulations coupled with incentive schemes are critical to advancing CCUS projects, but the lack of public support at the local level could become a significant obstacle even in a country with the most attractive CCUS terms and conditions. Low levels of public acceptance could plague any segment of the value chain from CO2 capture to transport to storage, yet the bulk of concerns is likely to be centered around pipelines followed by sequestration sites. If ignored, the issues associated with public acceptance are likely to translate into political opposition, unfavorable regulatory amendments or lawsuits that would impede the development of CCUS projects. There are several factors that could have an impact on the public acceptance and affect the prospects for successful project execution. 

Location

Currently, offshore carbon sequestration represents the least controversial project type in terms of public acceptance, with capture facilities preferably located in coastal industrial hubs to limit the need for cross-country CO2 pipelines. While public attitudes data is still scarce, some polls indicate much lower support for onshore sites compared to remote storage facilities on the continental shelf, such as in Denmark. The country has recently allowed onshore CO2 storage and it remains to be seen whether actual projects will face any public opposition. In Germany, the ban on onshore CO2 sequestration will remain in place, but offshore projects would be allowed, in line with the strategy proposed by the government in early 2024. In the meantime, ongoing debates about onshore carbon dioxide storage and challenges faced by project developers in the United State underscore elevated public opposition risks associated with such facilities. 

Safety

The perceived threat of carbon dioxide leakage from storage sites and pipelines as well as the concerns about a potential pipeline rupture with a massive release of carbon dioxide could have significant effects on the public acceptance of CCUS projects. The 2020 incident in Satartia, Mississippi is still widely cited by the opponents of CCUS in the discussions about the safety of carbon dioxide transportation, despite the strong safety record of other CO2 pipelines in the United States and elsewhere. Updated standards and strict compliance are likely to improve public perceptions of CCUS projects, although it may not be enough to win the support of local residents. 

Public trust and transparency

Low levels of trust in government institutions and in their ability to provide proper oversight of CCUS projects could signal trouble even when a comprehensive regulatory framework is in place. In February, activist groups challenged the transfer of Class VI primacy from the federal EPA to Louisiana, alleging that the state’s program is less robust than the federal one. Moreover, in the run-up to the EPA decision in December 2023, the opponents questioned the state’s regulator capacity to oversee CO2 injection wells. Separately, local residents and activists in Louisiana are concerned about the availability of information at the early stages of project review and would like to see more transparent communication from companies and regulatory bodies. Such issues could further undermine public confidence, and are likely to require regular and open communication between all stakeholders through the entire project approval process. 

Association with the oil and gas industry

Upstream companies are best equipped to develop CCUS projects, yet they have become the primary target of popular criticism for pursuing carbon capture and storage with the alleged goal of perpetuating oil and gas production. In cases where there is persistent local opposition to hydrocarbon-related activity due to the lack of trust, such as in Louisiana, any new projects would generate suspicions and prompt public backlash. Similarly, supportive fiscal measures for CCUS projects could be also perceived as an attempt to greenwash continued oil and gas production (Canada’s plan to phaseout fossil fuel subsidies and a CCUS exemption). Raising public awareness about the technology’s role in decarbonizing hard-to-abate industries (cement, steel, petrochemical, and fertilizer production) and in advancing the waste-to-energy sector is likely to expand the public understanding of CCUS beyond the oil and gas industry. 

Imports of CO2

Framing imported carbon dioxide as someone else’s waste could impact public attitudes towards transforming a country’s subsurface into a regional carbon storage hub. This applies to both onshore and offshore storage and is associated with the issue of taking responsibility for CO2 emissions of other countries. According to the recent studies, sequestering carbon dioxide from domestic industries is viewed more positively as it demonstrates the country’s commitment to addressing its own emissions.  

Impact of construction works

The restoration of land following the construction of carbon dioxide pipelines and storage facilities is a key issue for the local communities affected by such projects (in addition to safety). This is particularly important for the farmers, who are concerned about soil condition and potential impacts on harvesting. In addition, if CO2 transport and storage infrastructure is to be located in environmentally sensitive areas, it is likely to trigger concerns among local communities and conservation groups. Specifically, persistent opposition to a CO2 storage facility under Lake Maurepas in Louisiana is partially driven by the concerns about the effects of construction operations on the lake’s ecosystem and potential disruption of livelihood. 

Life-cycle emissions

The emissions from the entire CCUS value chain are likely to be the focus of more informed citizens with high level of environmental awareness, who frequently participate in public consultations and could become a party to a lawsuit against proposed projects. In such countries as Australia, Indonesia or Poland with a high proportion of coal-fired generation, additional demand for electricity from CO2 capture equipment would lead to increased emissions from power plants. In the case of multi-modal carbon dioxide transportation, the emissions from trains, trucks or barges would also impact the net effect of a CCUS project.  

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These factors are closely related and would require a comprehensive strategy to mitigate the risks stemming from low levels of public acceptance. In many cases, the lack of public trust in government institutions and businesses is the underlying cause of suspicions towards CCUS projects. Addressing this issue could be a starting point to building mutually beneficial relations with local communities.