Protecting human health and the environment

It is important to understand what coal seam gas extraction means for human health and the environment. Coal seam gas extraction is closely regulated by state, territory and Commonwealth governments, which legally require protective measures to be in place to safeguard health and the environment. While the exact requirements vary by jurisdiction, this regulatory framework applies to all aspects of the industry, including the handling and use of chemicals throughout the extraction process.

To increase the knowledge base about chemicals used in the industry and in recognition of the scientific and community interest in the risks of this chemical use, the Australian Government commissioned the National assessment of chemicals associated with coal seam gas extraction in Australia in June 2012.

The Assessment examined 113 chemicals used by companies in Australia between 2010 and 2012 in drilling and hydraulic fracturing for coal seam gas, to develop a stronger understanding of the risks these chemicals could pose to the health of workers, the public and the environment. Industry reports that 59 of the 113 chemicals that were being used in coal seam gas extraction in 2010-12 were still being used in 2015-17.

The focus of the Assessment was solely on the above-ground (surface) handling of chemicals – it did not consider potential risks from chemicals entering deeper groundwater through drilling or fracturing operations. The Australian government has since commissioned additional research into deeper groundwater that found the risks to be very low. This is consistent with international studies that had shown that the greatest risk to human health or the environment from chemicals used in coal seam gas extraction is from spills or releases of chemicals during surface activities such as transport, handling, storage and mixing of chemicals. It is important to note that not all wells require fracturing and not all chemicals are used at all sites. Most of the chemicals are also commonly used in other industries. Some are used in homes.

The Assessment looked at scenarios in the coal seam gas extraction process where workers, the public and the environment could come into contact with the chemicals. The scenarios considered all parts of the extraction process including the activities listed above. Spills, leaks and accidents were the main release events identified in the scenarios. Worker scenarios also examined direct handling of the chemicals.

The Assessment took a conservative approach, consistent with best practice, to ensure any pre-mitigation risks are not overlooked. It examined worst case scenarios and did not take into account all the safety and handling precautions that are taken to protect people and the environment from industrial chemical use. In reality, these precautions are required by law and significantly reduce any likelihood of potential harm occurring.

Industrial chemical use and coal seam gas operations are closely regulated by state, territory and Commonwealth governments, which legally require protective measures to be in place to safeguard human health and the environment.

Legislation, regulations, standards and codes of practice cover the coal seam gas industry including workplace and public health and safety, environmental and water protection, managing and reusing waste water, and the transport, handling, storage and disposal of chemicals. Coal seam gas projects must be assessed and approved under state, Territory and Commonwealth environmental laws and may be subject to site-specific conditions including how the companies manage chemical risk. A case study of one of the chemicals from the Assessment – ammonium persulfate – is used to illustrate how regulations and industry practices keep people and the environment safe.

The Assessment has provided regulators and companies with an additional level of information directly relevant to the coal seam gas industry. This is new knowledge and information that will enable more targeted risk management actions and practices for the safe management of chemicals in coal seam gas operations.

Summary of protections in place

What protects human health and the environment?

Approving, starting and managing coal seam gas projects
Conditions of approval When applying for approval for a coal seam gas project, companies must typically: disclose the chemicals they plan to use assess the potential risks of these chemicals demonstrate how they will protect people and the environment from harm. State regulators or the Commonwealth may set specific conditions of approval to protect health or the environment, including how the companies must manage, monitor and report on chemical risks.	Preventing harm Before a coal seam gas project can begin, companies must typically: assess the risks of the chemicals they will use, using international best practice methods for assessment have comprehensive management plans in place to reduce the chemical risks to an acceptable level specified by the state or Commonwealth regulators have their risk assessment and management plans peer reviewed and assessed by governments to ensure they will adequately protect human health and the environment. The companies’ plans and chemical use is subject to ongoing monitoring and regular review to ensure chemicals are being used in a way that minimises the risk of spills or leaks and any harm to people or the environment, occurring. Regular reviews also ensure that new chemicals or practices are included and plans remain current and relevant.	Responding to spills and leaks If a spill or leak does occur, companies have an enforceable requirement to: have emergency response protocols in place that are triggered by an incident take immediate action to contain and clean up a spill report the spill to relevant authorities such as regulatory bodies, councils, public health officials, emergency services or safe work authorities, so that the spill can be effectively contained, all potentially affected parties are notified, and any necessary further action can be taken to address the spill and reduce the likelihood of such an incident happening in the future.

Approving, starting and managing coal seam gas projects

Conditions of approval

When applying for approval for a coal seam gas project, companies must typically:

disclose the chemicals they plan to use
assess the potential risks of these chemicals
demonstrate how they will protect people and the environment from harm.

State regulators or the Commonwealth may set specific conditions of approval to protect health or the environment, including how the companies must manage, monitor and report on chemical risks.

Preventing harm

Before a coal seam gas project can begin, companies must typically:

assess the risks of the chemicals they will use, using international best practice methods for assessment
have comprehensive management plans in place to reduce the chemical risks to an acceptable level specified by the state or Commonwealth regulators
have their risk assessment and management plans peer reviewed and assessed by governments to ensure they will adequately protect human health and the environment.

The companies’ plans and chemical use is subject to ongoing monitoring and regular review to ensure chemicals are being used in a way that minimises the risk of spills or leaks and any harm to people or the environment, occurring. Regular reviews also ensure that new chemicals or practices are included and plans remain current and relevant.

Responding to spills and leaks

If a spill or leak does occur, companies have an enforceable requirement to:

have emergency response protocols in place that are triggered by an incident
take immediate action to contain and clean up a spill
report the spill to relevant authorities such as regulatory bodies, councils, public health officials, emergency services or safe work authorities, so that the spill can be effectively contained, all potentially affected parties are notified, and any necessary further action can be taken to address the spill and reduce the likelihood of such an incident happening in the future.

Storing chemicals	Managing, storing and reusing waste water
Controls on storage of chemicals are set by work health and safety, environment and water legislation at the state and Commonwealth level, as well as industry standards and codes of practice. Protections include: Packaging and labelling requirements, including instructions for the safe storage and handling of the chemical Specifications for storage facility design and operation Limitations on volumes of chemicals that can be stored or special criteria for storage of larger volumes Controls on how chemicals are secured, contained and segregated Protocols for responding to spills or leaks Duty to protect workers, the public and environment from harm, including safeguarding against spills and leaks	How coal seam gas waste water is managed, stored and reused is governed by state law, codes and policy covering water use, public health, environmental protection and coal seam gas industry regulation. Protections include: Site-specific conditions for management, treatment and disposal of waste water Controls on how waste water is stored including method of storage and design of ponds, dams or tanks Leak detection systems, storage monitoring and leak response protocols Treatment requirements and water quality criteria for reused water Restrictions on when, where and how waste water can be reused

Storing chemicals

Managing, storing and reusing waste water

Controls on storage of chemicals are set by work health and safety, environment and water legislation at the state and Commonwealth level, as well as industry standards and codes of practice.

Protections include:

Packaging and labelling requirements, including instructions for the safe storage and handling of the chemical
Specifications for storage facility design and operation
Limitations on volumes of chemicals that can be stored or special criteria for storage of larger volumes
Controls on how chemicals are secured, contained and segregated
Protocols for responding to spills or leaks
Duty to protect workers, the public and environment from harm, including safeguarding against spills and leaks

How coal seam gas waste water is managed, stored and reused is governed by state law, codes and policy covering water use, public health, environmental protection and coal seam gas industry regulation.

Protections include:

Site-specific conditions for management, treatment and disposal of waste water
Controls on how waste water is stored including method of storage and design of ponds, dams or tanks
Leak detection systems, storage monitoring and leak response protocols
Treatment requirements and water quality criteria for reused water
Restrictions on when, where and how waste water can be reused

Transporting chemicals	Handling and using chemicals
Transport of chemicals is controlled by the Australian Dangerous Goods Code, state and Commonwealth work health and safety legislation, and environment and water legislation. Protections include: Packaging and labelling requirements Controls on how chemicals are loaded, stowed, segregated and contained Limits on the volumes of chemicals that can be transported Vehicle specifications Special licensing for drivers and vehicles Required safety equipment Emergency response protocols Duty to protect workers, the public and environment from harm, including safeguarding against crashes and spills	How industrial chemicals are handled and used is governed by national and state work health and safety legislation, industry standards and codes of practice, state legislation regulating coal seam gas, and company policy. Protections include: Labelling and Safety Data Sheets that describe potential harm the chemical could cause and instructions for the safe handling, use and disposal of the chemical Duty to protect workers, the public and the environment from harm Restrictions on use of certain chemicals Site-specific work health and safety policies Required personal protective equipment such as masks, gloves or glasses Engineering, process design or equipment solutions to control risks such as removing chemicals from use, ventilation systems, limiting handling, etc Protocol for responding promptly and effectively to incidents and spills

Transporting chemicals

Handling and using chemicals

Transport of chemicals is controlled by the Australian Dangerous Goods Code, state and Commonwealth work health and safety legislation, and environment and water legislation.

Protections include:

Packaging and labelling requirements
Controls on how chemicals are loaded, stowed, segregated and contained
Limits on the volumes of chemicals that can be transported
Vehicle specifications
Special licensing for drivers and vehicles
Required safety equipment
Emergency response protocols
Duty to protect workers, the public and environment from harm, including safeguarding against crashes and spills

How industrial chemicals are handled and used is governed by national and state work health and safety legislation, industry standards and codes of practice, state legislation regulating coal seam gas, and company policy.

Protections include:

Labelling and Safety Data Sheets that describe potential harm the chemical could cause and instructions for the safe handling, use and disposal of the chemical
Duty to protect workers, the public and the environment from harm
Restrictions on use of certain chemicals
Site-specific work health and safety policies
Required personal protective equipment such as masks, gloves or glasses
Engineering, process design or equipment solutions to control risks such as removing chemicals from use, ventilation systems, limiting handling, etc
Protocol for responding promptly and effectively to incidents and spills

Other common uses of chemicals used in hydraulic fracturing

What does fracking fluid contain?
Chemicals used in hydraulic fracturing	Other common uses
PROPPANTS (eg sand, silica and quartz) Keeps the fracture open to allow gas and water to flow more freely	High purity silica sands for glassmaking and metallurgical uses
MICROBIAL CONTROLS (eg tetrakis (hydroxymethyl phosphonium sulphate)) Helps stop the growth of organisms which could contaminate the coal seam gas and the fracturing fluid	Household bleach, stain remover and disinfectant
BUFFERS, STABILISERS, SOLVENTS ETC (eg 2-Butoxyethanol) Helps bond the chemicals and maintain the stability of the fracturing fluid	Solvent, vinegar, medicinal uses
CLAY MANAGEMENT (eg Sodium Chloride) Minimises clay swelling in the vicinity of the well and in the underground formation	Salt-chemical-based dehumidifiers in domestic and other environments to absorb dampness/moisture from the air
GELLING AGENTS AND BINDERS (eg bentonite, polymers, guar gum) Thicken the fracturing fluid to allow more sand to be carried into the fractures	Pet litter, groundwater barrier, drilling mud
BREAKERS, SURFACTANTS, FRICTION REDUCERS (eg Ammonium Persulfate) Assists in breaking down the chemical bonds and surface tension in the gel, allowing the chemicals to be pumped back out as a fluid	Bleach, etching zinc, soil conditioner, surface cleaners, personal care products, medicines
pH CONTROLLERS (eg acetic acid) Adjusts the pH of the hydraulic fracturing fluid to maximise the effectiveness of other additives	Manufacture of pulp, paper, textiles, soaps and detergents
MINERAL DISSOLUTION AGENTS (eg hydrochloric acid, acetic acid) Helps dissolve minerals and initiate cracks in the rock	Household cleaning, descaling, food production
FOAMING AGENTS (eg 2-Butoxyethanol) Helps carry the proppant and minimise water use	Laundry detergents and household cleaning products
CORROSION INHIBITORS (eg Ethylene Glycol) Prevents pipe corrosion	Plywood, paint, confectionary, cleaning products and camping stoves

$What does fracking fluid contain? fact sheet$

Download What does fracking fluid contain? fact sheet (PDF - 750.91 KB)

While these chemicals are used in other industries, they are not used in the same quantity or concentration. Risks are managed according to the potential hazard and exposure in each industry.

The Assessment developed improved, targeted methods for assessing the risks of chemicals used in coal seam gas operations, and included release of a consultation draft Chemical Risk Assessment Guidance Manual.

Queensland and NSW floods 2022

Protecting human health and the environment

Summary of protections in place

What protects human health and the environment?

Other common uses of chemicals used in hydraulic fracturing

Read more

State regulation:

Commonwealth regulation:

More information