June 4, 2014

Federal Multiagency 

Collaboration on 

Unconventional Oil 

and Gas Research

A Strategy for Research and 

Development

 

July 18, 2014
Table of Contents

Introduction .......................................................................................................................................................................... 2

Research Topics................................................................................................................................................................... 7

Key Research ........................................................................................................................................................................ 8

Topic 1: Understanding the Scale and Nature of U.S. Unconventional Oil and Gas Resources............................8

Topic 2: Water Quality.......................................................................................................................................................................9

Topic 3: Water Availability...........................................................................................................................................................11

Topic 4: Air Quality and Greenhouse Gas (GHG) Emissions ...........................................................................................11

Topic 5: Effects on Human Health .............................................................................................................................................12

Topic 6: Ecological Effects............................................................................................................................................................. 13

Topic 7: Induced Seismicity.......................................................................................................................................................... 14

Flagship Projects ...............................................................................................................................................................15

Next Steps.............................................................................................................................................................................17

References............................................................................................................................................................................18

DEPARTMENT OF ENERGY

DEPARTMENT OF THE INTERIOR

PAGE 1 ENVIRONMENTAL PROTECTION AGENCY
INTRODUCTION

This document provides a Federal Multiagency Strategy for coordinating on-going and future, high priority 

research associated with safely and prudently developing onshore shale gas, tight gas, shale oil, and tight oil 

resources (Multiagency, 2012). It identifies key questions the Agencies – the Department of Energy (DOE); 

Department of the Interior (DOI); and Environmental Protection Agency (EPA) – will use to guide on-going 

research. It also describes a process through which collaborative research will be undertaken to improve how 

the private sector develops these resources while protecting human health and the environment. Ultimately, 

the goal of research conducted under this Strategy is to provide information to assist decision-making in support 

of safely and responsibly developing domestic onshore unconventional oil and gas (UOG) resources for 

stakeholders at many levels – federal, state, tribal, and local government; within industry; and the public-atlarge. 

Unconventional Oil and Natural Gas Resources

America’s abundant UOG resources, which include natural gas 

and oil contained in tight geological formations, are vital 

components of our Nation’s energy portfolio. UOG development 

can enhance America’s energy, economic, and environmental

security, and can create significant income, employment, and 

other economic benefits. Therefore, safely, responsibly, and 

efficiently developing unconventional domestic oil and gas 

resources plays an important role in our Nation’s energy future. 

Research conducted by industry and the United States (U.S.)

Government over a number of decades led to the development

and commercial deployment of horizontal drilling and hydraulic 

fracturing technologies. The combination of these advancements 

and their effective application to the unique geological properties 

of unconventional reservoirs has dramatically increased the Nation’s technically-recoverable domestic natural 

gas and oil resources. At the same time, the new economics enabled by these technological innovations have 

greatly expanded unconventional resource production. In the case of shale gas alone, the Energy Information 

Administration (EIA) estimates it will account for just over one half of the total U.S. natural gas production by 

2040 (EIA, 2014). 

Meanwhile, the scale and nature of the technologies used to develop UOG resources have prompted concerns

over potential human health and environmental impacts. Included among these concerns are such issues as

water quality and availability, air quality, greenhouse gas emissions, ecosystem integrity, impacts on human 

health, and the prospects for inducing seismic events. Understanding these potential impacts, their relationship 

to national energy and environmental objectives, and how they can best be mitigated will play a significant role 

in enabling UOG resources to be safely and responsibly recovered and utilized, and motivates the federal 

research agenda.

On-going Federal Coordination

In 2011, President Barack Obama issued the Blueprint for a Secure Energy Future, a comprehensive plan to 

reduce America’s oil dependence, save consumers money, and make the Nation a worldwide leader in clean 

energy industries. Realizing the benefits of developing and using UOG resources in a prudent and sustainable 

manner is a central objective of the Blueprint. Accordingly, the plan identified the need for ongoing federal 

research that supports sound decision-making and helps ensure responsible and efficient development of 

domestic oil and natural gas resources. In August 2011, the Secretary of Energy Advisory Board Subcommittee 

Unconventional oil and gas

(UOG) refers to resources such as 

shale gas, shale oil, tight gas, and 

tight oil that cannot be produced 

economically through standard 

drilling practices.

Hydraulic fracturing, frequently 

described as a well stimulation 

technique, has been used to 

maximize production of oil and 

natural gas in unconventional 

reservoirs, such as shale, 

coalbeds, and tight sands.

DEPARTMENT OF ENERGY

DEPARTMENT OF THE INTERIOR

PAGE 2 ENVIRONMENTAL PROTECTION AGENCY
on Natural Gas (SEAB, 2011) similarly highlighted the important role the federal government plays in addressing 

UOG research and development (R&D) needs, particularly research to support environmental protection and 

safety. 

To further encourage federal cooperation and coordination, the President issued an executive order in April 

2012 establishing an Interagency Working Group to Support Safe and Responsible Development of 

Unconventional Domestic Natural Gas Resources (Executive Order, 2012). In his 2013 Climate Action Plan, the 

President also called on his administration to develop a comprehensive interagency methane strategy to reduce 

methane emissions from a variety of sectors, including oil and natural gas. In March 2014, the Administration

released a Climate Action Plan Strategy to Reduce Methane Emissions that outlines a series of voluntary actions 

and common-sense standards to encourage cost-effective methane emission reductions in the oil and gas 

sector.

Because a majority of federal UOG research activities and expertise resides collectively within the DOE, DOI, and 

EPA, these Agencies signed a Multiagency Memorandum of Agreement (MOA) pledging to develop a focused, 

collaborative and coordinated research effort addressing high-priority challenges connected to prudent UOG 

onshore resource development (Multiagency, 2012). 

Each agency contributed senior policy and technical leaders to lead the Federal Multiagency Collaboration on 

Unconventional Oil and Gas Research’s Steering Committee. Through this Steering Committee and the 

contributions of a Technical Subcommittee, comprised of scientists and engineers from DOE, DOI, EPA, and the 

Department of Health and Human Services (HHS),

1 the Agencies developed this Strategy for research 

collaboration and coordination. This effort was undertaken by building upon the subject matter expertise in 

each Agency; seeking input from scientists at other federal agencies and consulting with a diverse set of external 

stakeholders during public webinars. These public webinars were delivered over three sessions to target 

different audiences— academia and non-governmental organizations (NGOs); industry; and states and tribes. 

In addition to producing this Strategy, the Steering Committee maintains an outreach effort, including a 

website2

. Among information on the site is the presentation used for the webinars; the MOA; the Blueprint for 

a Secure Energy Future; and President Obama’s Executive Order. Additionally, Multiagency representatives 

periodically present publicly about the collaborative effort’s goals and activities. 

Core Competencies

The Steering Committee acknowledges that each of the Agencies has individual expertise and core

competencies (Figure 1) that can influence the effective implementation of needed R&D. Because these core 

competencies overlap in some areas, emphasis has been placed on a complementary approach that avoids 

duplication and takes advantage of inherent strengths. 

1 Other federal agencies include the U.S. Department of Health and Human Services (HHS), which includes the

Centers for Disease Control and Prevention (which houses the National Institute for Occupational Safety and 

Health (NIOSH) and the Agency for Toxic Substances and Disease Registry (ATSDR)) and the National Institutes of 

Health (NIH) (which houses the National Institute of Environmental Health Sciences (NIEHS)), as well as the 

Department of Labor’s (DOL) Occupational Safety and Health Administration (OSHA). 2 The Steering Committee website is located at http://unconventional.energy.gov.

DEPARTMENT OF ENERGY

DEPARTMENT OF THE INTERIOR

PAGE 3 ENVIRONMENTAL PROTECTION AGENCY

 
Figure 1: Relationships among core competencies in the area of unconventional oil and gas 

resources of the three federal agencies that are coordinating as part of this Strategy. In addition, 

the skills and cooperation of HHS and DOL, including the CDC (ATSDR and NIOSH), NIEHS, and 

OSHA are important for the success of the comprehensive approach outlined in the Strategy. 

In developing this Strategy, the Agencies considered scientific topics relevant to prudent development of UOG 

resources and grouped the results into seven broad topic areas of research:

1. Scale and nature of U.S. unconventional oil and gas resources; 

2. Water quality; 

3. Water availability; 

4. Air quality and greenhouse gas emissions; 

5. Effects on human health; 

6. Ecological effects; and

7. Induced Seismicity.

DEPARTMENT OF ENERGY

DEPARTMENT OF THE INTERIOR

PAGE 4 ENVIRONMENTAL PROTECTION AGENCY
To help achieve the goal of Multiagency collaboration, each Agency agreed to: focus on its individual core 

competencies; work together on research topics, as appropriate; consistently coordinate on their individual 

annual research and budget processes; and join forces to coordinate with stakeholders. Among other things, this 

document helps communicate the coordination among key existing UOG research projects within the three 

Agencies and highlights remaining research needs. Although this Strategy is focused on R&D projects within the 

participating Agencies, the Agencies recognize that additional relevant, valuable research is ongoing elsewhere, 

particularly in the private sector and academia. Exhibit 1 identifies the scope of this Strategy, including what the 

document does and does not address.

The Federal Government’s Role

To meet the challenge of responsibly developing domestic onshore oil 

and gas resources, including on federal lands, one key federal role is

supporting relevant research that characterizes UOG resources, while 

simultaneously protecting human health and the environment. 

Fulfilling this responsibility requires the federal government to address 

issues related to the scale and scope of UOG development; develop 

consistent standards and protocols for sampling and analysis of air, 

water, and biological resources; analyze potential impacts on human 

health and the environment; encourage development and deployment 

of existing and innovative, new technologies and approaches that mitigate these potential risks; and support 

local, state, tribal, or federal level decision-making processes that enable prudent resource development.

Accomplishing these diverse but related responsibilities requires the federal government to coordinate a crosscutting research and technology development program. The scope of essential research is broad and calls for 

integration and coordination across a wide range of stakeholders including scientists, engineers, industry, 

environmental groups, policy-makers, government agencies, NGOs, academia, and the general public.

DOE, DOI, and EPA will use this 

effort to coordinate federal 

research conducted by these 

federal agencies. This Strategy 

outlines research needs and 

presents flagship projects that 

illustrate the degree and nature 

of coordination and 

collaboration that is required.

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DEPARTMENT OF THE INTERIOR

PAGE 5 ENVIRONMENTAL PROTECTION AGENCY
Exhibit 1. Scope: What this document does and does not do.

What this document does What this document does not do

 Identifies research topics

Seven broad topic areas are identified along with a 

discussion of the primary scientific questions 

within each topic. 

 Identifies initial priorities

The Strategy provides an initial prioritization of the 

research topics to be addressed. 

 Defines the roles of the three Agencies

The Memorandum which established this effort,

laid out general areas of core competency for each 

of the three Agencies. This document provides 

further detail and establishes leadership areas for 

each agency. The Memorandum also noted that 

there will be areas for which the combined 

capabilities of more than one agency will be 

necessary to address a particular research topic. 

This document provides a framework for that 

collaboration. 

 Establishes mechanisms for interagency 

cooperation

Through this effort, the participating Agencies have 

established a Steering Committee, which is leading 

the coordination, and it will be a standing entity 

with leadership that will rotate between the three 

Agencies. This document provides further detail on 

the roles and responsibilities of the Steering 

Committee and steps that will be taken to ensure 

that research is coordinated on an ongoing basis. 

 Proposes key flagship projects

These projects are intended to delineate potential 

project-level work that produces outputs taking full 

advantage of the interagency collaboration and 

that addresses the major areas of public concern. 

 Serve as a detailed research plan

The scope of this document is broad, covering 

diverse topics relevant to safely developing UOG 

resources.

 Provide a comprehensive analysis of ongoing 

research efforts across or outside of 

government

It is critical for federal research agencies to 

coordinate and cooperate with their counterparts 

from industry, academia, and non-governmental 

sectors – leveraging those efforts wherever 

possible. While this document assesses initial 

research challenges, it does not provide a detailed 

review of efforts being carried out other than by 

the Agencies or a detailed literature review. Such a 

review will be part of subsequent research plans 

and will influence the scope of specific research 

projects that are undertaken by the federal 

government. While it is the federal government’s 

role in research to inform decision-makers and 

improve environmental performance, industry has 

different drivers, such as lowering the costs of 

technologies.

 Make regulatory recommendations

This document focuses on research issues 

underlying the prudent development of domestic

onshore UOG resources. This document does not 

make policy recommendations. 

 Make recommendations for federal research 

beyond the scope of the Agencies on the 

Steering Committee

There may be research topics that are undertaken 

by federal agencies not represented on the 

Steering Committee and therefore are not covered 

in this document. 

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RESEARCH TOPICS

In developing this Strategy, the Technical Subcommittee considered scientific topics and associated questions 

relevant to safely and prudently developing onshore UOG resources and grouped the results into seven topic

areas of UOG research needs (Figure 2). These key topics will subsequently be used by the Agencies to 

strategically coordinate existing UOG research projects as well as identify remaining R&D needs. 

Figure 2: This figure depicts the seven complementary topic areas of UOG research.

Topic 1: Understanding the scale and nature of U.S. unconventional oil and gas resources: What research is 

necessary to understand the locations of UOG and how much can be recovered? How can new or 

smarter deployment of existing technology enable the resource to be developed from fewer, lessimpactful wells? 

Topic 2: Water quality: What research is necessary to assess the impacts of UOG development on water 

quality? How can any potential negative impacts be mitigated? 

Topic 3: Water availability: What research is necessary to understand the impacts on water resources where

withdrawal may affect supply, use, and ecological health? How can the potential negative effects of 

water usage in UOG development be mitigated?

Topic 4: Air quality and greenhouse gas (GHG) emissions: What research is necessary to understand the

potential air quality impacts from both short-term emissions and life cycle GHG emissions associated 

with UOG development and production? How can any potential negative effects be mitigated?

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Topic 5: Effects on human health: What research is necessary to understand any potential impacts on the 

health of the nation’s population? How can any potential negative impacts on human health be 

mitigated?

Topic 6: Ecological effects: What research is necessary to understand any potential impacts to ecological 

systems? How can any potential negative impacts on ecosystems be mitigated?

Topic 7: Induced seismicity: What research is necessary to understand any potential for UOG-related activities 

to induce seismic events and to characterize any potential hazards? What can be done to mitigate 

any negative impacts or potential risks from these events?

KEY RESEARCH

The following is a summary of key research developed for each of the seven topic areas. PRIORITY RESEARCH 

NEEDS have been identified for each of the topic areas along with potential products or outcomes required to 

meet the goal of the collaboration. These PRIORITY RESEARCH NEEDS represent the most critical research based

on Agencies’ subject matter expertise as well as input from external stakeholders.

A key objective of this document is to define roles and responsibilities for each of the three Agencies in terms of

carrying out new and existing UOG research initiatives. Consequently, specific AGENCY ROLES are indicated for 

each research need in three categories:

Lead Agency: Agency leads the coordination of research activities. Research need 

falls directly within the agency’s core competency. Agency has 

significant relevant experience and capabilities.

Primary Support: Agency has significant relevant expertise, experience, personnel, and 

potential resources.

Secondary Support: Agency has limited capabilities (i.e., individual researchers or historical 

programs). 

The following “Priority Research Needs” summarizes the highest priority items the Agencies would address by 

coordinating proposed, planned, or on-going research. One example of an on-going project is EPA’s Study of 

Hydraulic Fracturing for Oil and Gas and Its Potential Impact on Drinking Water Resources. Additionally, while 

this Strategy will be used to inform budget requests, execution of specific identified priority research needs is

subject to funding availability.

Topic 1: Understanding the Scale and Nature of U.S. Unconventional Oil and Gas Resources

Both geologic setting and development method are primary drivers in determining the locations and 

characteristics of UOG resources and the identification of the potential environmental impacts of UOG resource

production. Priority research needs in this topic area include assessing the location, physical characteristics, and 

potential size of different UOG resources to understand the potential scale of development in different 

geographical areas and geologic settings. Research will assist decision makers in understanding and mitigating 

potentially adverse impacts of unconventional domestic energy resource development while realizing the 

benefits of additional energy supply.

DEPARTMENT OF ENERGY

DEPARTMENT OF THE INTERIOR

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Table 1: Priority Research Needs – Scale and Nature of UOG Resources

Topic 1 Summary

• Geologic setting and development method of UOG production are primary drivers of potential UOG 

environmental impacts.

• Research will help decision makers identify the likely location and development timeframe of UOG resources, 

which will inform decision makers on the potential harmful impacts of UOG development, while allowing the 

nation to better realize the benefits of additional energy supply. 

Topic 2: Water Quality

Water quality encompasses a range of biological, chemical, and physical conditions for both surface (lakes and 

streams, as well as near-shore oceans) and subsurface waters (aquifers). Many public comments regarding UOG 

development and production reflect concern about potential water quality impacts on both ecosystems and 

human well-being. Priority research needs in this area include improved quantitative evaluations of contaminant 

pathways in water resources that can be used to assess potential human and ecological health effects.

Important additional research is needed to generate a quantitative understanding of water quality impacts over 

the entire cycle of UOG operations (site preparation, water acquisition, drilling, completion and fracturing, 

production, waste disposal, pipeline construction and site closure). Also needed is better understanding of how 

these impacts may vary over time and space and due to differences in UOG operations. Consequently, the goals 

of this research are to provide better data for evaluating impacts (e.g., ecological, human, or community effects) 

and to help identify best practices and new technologies for UOG operations that may help to avoid or reduce

Priority Research Need Agency Roles

1 Estimate Technically-Recoverable Resource (TRR): Identify where assessment is 

needed, gather and analyze data, and report findings. 

2 Characterize Scale/Timelines of Development: Reduce the surface and subsurface 

impacts of development by analyzing TRR in the context of economic factors, 

industry capacity, and developing technology to determine the potential intensity of 

future development activity.

3 Characterize Linkages among UOG Development Processes, Variable Geology, and 

Pathways for Impact on Human Health and the Environment: Conduct field and 

laboratory studies to understand how UOG development in different reservoirs with 

varying geologic characteristics influence impacts on human health and the 

environment. 

4 Foster Technology Development for Mitigation of Impacts on Human Health and 

the Environment: Identify opportunities where new approaches can reduce 

environmental footprint of UOG development, either through smarter and smaller 

stimulations, more streamlined well/field development designs, or improved 

controls technology. 

5 Understand Long-Term Implications of UOG Development on Co-Located 

Subsurface Industrial Activities or Resources: Understand the impacts of pervasive 

change in subsurface environment resulting from natural hydrocarbon leakage on 

possible future large-scale activities such as carbon storage. 

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potential adverse impacts. EPA’s Study of Hydraulic Fracturing for Oil and Gas and Its Potential Impact on 

Drinking Water Resources is an on-going component of the Agencies’ efforts to address these research goals.

Table 2: Priority Research Needs – Water Quality

Priority Research Needs Agency Roles

1 Determine the Impact of Well Injection (Hydraulic Fracturing Fluids and 

Wastewaters) and Produced Waters on Water Quality: Conduct state-of-the

science assessments, review literature, review data from industry, and determine 

research gaps; conduct monitoring and modeling to establish driving factors for 

well injection-groundwater connections; and develop analytical methods for the 

detection of chemicals used or reported to be found in hydraulic fracturing fluids or 

wastewater.

2 Assess Wellbore Integrity to Prevent and Minimize Contamination: Assess 

contribution of current wellbore integrity practices to risk of contamination; 

identify materials for improved wellbore design, construction, testing and 

remediation to enhance environmental performance of wellbores; apply computer 

models to explore the potential for gas or fluid migration from poor, incomplete, or 

degraded well cementing or cement failure during hydraulic fracturing in nearby 

wells and existing faults; and develop an “Area of Review” methodology for 

horizontal drilling similar to the method that is employed for vertical wells.

3 Develop Mitigation Technologies: Develop improved technologies for water reuse 

and/or recycling to reduce the amount of water requiring disposal through 

injection or treatment technologies.

4 Identify and Model Water Quality Changes Associated with UOG Life Cycle: 

Examine UOG impacts on groundwater and surface water quality; identify 

indicators, including tracers that can be used to document hydraulic fracturing 

impacts on groundwater and surface water; establish baseline monitoring for 

surface water and groundwater quality and stray gas; and determine the relative 

source contributions and environmental pathways for contaminants associated 

with UOG produced and flowback wastewater.

5 Investigate the Transport and Disposition of UOG Wastewater: Inventory current 

wastewater volumes and disposition; study impacts of direct discharges as allowed 

in certain geographic areas of the country for agricultural and wildlife propagation; 

evaluate the efficacy of wastewater treatment technologies; develop methods to 

detect and quantify contaminants in UOG wastewater and receiving environmental 

waters; and conduct source apportionment and bromine disinfection by-product 

precursor studies.

Topic 2 Summary

• Water quality encompasses a range of biological, chemical and physical conditions for surface and subsurface 

waters.

• Research is needed to help understand potential impacts over the entire cycle of UOG operations, and develop 

best practices and mitigation technologies.

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Topic 3: Water Availability

For purposes of this Strategy, the term water availability is used to include the amount and quality of water 

needed to meet human and ecosystem needs; impacts of water withdrawn from surface and groundwater 

systems; and water produced during the active phase of a UOG operation. Produced and flowback wastewaters

are important because they can: 1) potentially be reused in hydraulic fracturing, thereby reducing total 

freshwater withdrawals; and 2) potentially be treated and returned to the environment, thereby potentially 

reducing demands on the local water budget.

This research area relates to how UOG activities may impact both the quantity and availability of water required 

for hydraulic fracturing, and better understand the possible impacts of ground and surface waters withdrawals 

on drinking water resources. As a result, it would develop information that would allow for a quantitative 

understanding of how water availability is impacted by UOG resources, geographic locations, methods of 

production, and reuse and recycling of wastewaters, as well as the technologies and approaches that optimize 

water use.

Table 3: Priority Research Needs – Water Availability

Priority Research Need Agency Roles

1 Provide Supporting Water Resources Information: Support streamgage baseline 

monitoring in states where UOG production is ongoing and/or planned. Collect 

baseline information on water resources in three case study areas (Marcellus 

Shale, Barnett Formation, and Bakken Shale) before, during, and after UOG 

operations; develop regional hydrogeologic frameworks; and identify sources of 

lower quality water to be used in lieu of fresh water in development activities. 

2 Provide Supporting Water Resources Information: Compile published information 

on water withdrawals, including ancillary data.

3 Develop Water Budgets: Develop complete water budgets for sub-watersheds in 

each of the three case study areas, accounting for withdrawals, discharges to 

streams and groundwater, and characteristics of produced waters; provide an 

understanding of how much water is required to produce UOG and how the water 

demands are changing with increased recycling.

4 Develop Predictive Tools: Develop statistical models for estimating the amount of 

water required for UOG operations; predict volumes of flowback fluids and 

produced waters. 

5 Develop Innovative Mitigation Technologies: Develop hydraulic fracturing 

technologies that require less water consumption and/or alternative waterless 

technologies.

Topic 3 Summary

• Water availability includes the amount and quality of water, from surface or groundwater sources, needed to 

meet human and ecosystem needs.

• Research is needed on how UOG activities impact water quantity and availability, and also to better 

understand possible effects of withdrawals on drinking water resources.

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Topic 4: Air Quality and Greenhouse Gas (GHG) Emissions

UOG development and operations release various pollutants into the atmosphere including particulate matter, 

volatile organic compounds (VOCs), such as methane and hazardous air pollutants (HAPs), as well as radon. 

These pollutants can impact human health, ecological resources, and the Earth’s climate. Many of the pollutants

released from unconventional reservoirs are likely the same as those released from extracting oil and gas from 

conventional reservoirs. However, the air pollutants and their emission rates from unconventional reservoirs 

and the technologies associated with the development of these reservoirs remain insufficiently characterized to 

allow a scientifically-based evaluation of human health effects, ecological effects, and GHG emissions. In 

addition, UOG development has the potential to have both local (multiple wells developed from a single well 

pad; compressor stations) and regional (widespread exploration of UOG resources within a given shale play) 

impacts on air quality. Therefore, the answers to key science questions regarding air pollutant impacts require 

improved quantitative evaluations of emissions for use in assessments of health, ecosystem, and climate effects.

Table 4: Priority Research Needs – Air Quality

Priority Research Need Agency Roles

1 Air Quality Modeling: Perform preliminary air quality and dispersion modeling to 

evaluate potential changes.

2 Source Emissions Measurements: Measure VOCs, including methane, and other 

HAPs from hydraulically fractured oil and gas well completions, surface 

impoundments, and other sources. Apply source-receptor modeling to estimate 

contributions from UOG activities.

3 Ambient Air Measurements: Measure ambient VOC/HAP levels around wellpads, 

compressor stations, and distribution networks.

4 Exposure Assessment: Conduct scoping evaluation of potential for exposure to 

VOCs/HAPs near UOG operations.

5 Emission Mitigation: Assess the current capabilities of control strategies and 

measures to reduce emissions from UOG operations including extent of current 

use, costs and performance, availability and applicability, and operational benefits 

and challenges.

6 Support Development of Engineering Controls, Technologies, and Strategies for 

Emissions Control during UOG Operations: Conduct measurement activities to 

provide information on performance of control technologies and practices; and 

collaborate with industry and others to move promising control concepts to 

demonstration stage.

Topic 4 Summary

• UOG development and operations can release potentially harmful emissions into the atmosphere.

• Emission data are needed to underpin a scientific evaluation regarding possible impacts on human health, the 

environment, and GHG emissions.

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Topic 5: Effects on Human Health 

Air quality, water quality, and water availability impacts from UOG production may ultimately affect human 

health. Priority research needs in this area include an analysis of the available data and identification of 

knowledge gaps; understanding of the changes in water quality, water availability, air quality, and other 

environmental media; knowledge of the likely human exposures and exposure scenarios; supportive toxicology 

related to likely exposures; the populations and life stages susceptible to exposure, adverse physical and mental 

health outcomes, as well as fire and explosion hazards; and best practices for evaluating potential cumulative 

risks associated with multiple chemical stressors resulting from UOG development activities. 

The Steering Committee recognizes that most of the research needed to address potential impacts on human 

health is beyond the scope of this Multiagency effort and would most appropriately be led by federal health 

agencies. Therefore, Table 5 does not indicate agency leads among DOE, DOI, and EPA, although the three 

agencies can contribute to these efforts (e.g., by performing environmental sampling). The following identified 

research needs were developed with input from the health agencies listed on page 3. 

Table 5: Priority Research Needs – Effects on Human Health 

Priority Research Need Agency Roles

1 Occupational Studies: Identify data and knowledge gaps for assessment of 

exposures and health hazards for workers. This includes the identification of 

contaminants of concern and prioritization of environmental pathways. As data 

gaps are addressed, research needs would be periodically re-prioritized.

2 Toxicity Assessment: Identify known chemical, physical, and toxicological 

properties of chemicals used in hydraulic fracturing or found in hydraulic fracturing 

waste waters and air emissions. For chemicals with known structures, estimate 

properties using quantitative structure activity relationship methods.

3 Health Studies: In coordination with partners including other federal health 

agencies, as appropriate, conduct health studies in the vicinity of UOG sites; 

synthesize a comprehensive stressor inventory; conduct temporal/spatial

assessments of health conditions of concern that may be associated with UOG

development and production.

Topic 5 Summary

• Human health may be affected by impacts of UOG development and production on air and water quality, and 

water availability.

• A better understanding of the changes caused by these impacts, exposure levels, toxicity, susceptibility, and 

other potentially harmful outcomes, is essential moving forward.

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Topic 6: Ecological Effects

Taken collectively, impacts to air quality, water quality, and water availability discussed in the previous sections 

can translate into a mixed set of stressors on biological communities in areas of UOG development. Additional 

impacts to associated ecosystems can come through land use change, habitat fragmentation or loss, increased 

pathways for introduction of invasive and non-native species, and noise and light pollution. Many of these types 

of impacts are not unique to UOG development, but the pattern, intensity and geographic context of UOG 

development presents a unique threat to ecological resources.

Research proposed for this topic focuses primarily on potential impacts to aquatic and terrestrial ecosystems 

unique to UOG development for which parallel information cannot be extracted from experiences with other 

development activities, particularly species of state and federal concern, and risk assessments to unique 

landscapes that have not been previously developed, or that affect species or ecosystems of state or federal 

concern that have not been previously studied. Unique UOG activities that can cause surface or groundwater 

contamination include high concentration of salts, produced water spills, wellbore casing failures, contamination 

from naturally occurring radioactive materials (NORMs), and contamination from toxic chemicals that are 

specifically used for hydraulic fracturing. Additionally, large water withdrawals generally required for hydraulic 

fracturing could alter freshwater availability and the environmental flow regimes necessary to sustain terrestrial 

and aquatic ecosystems and the species they support. Research would support resource protection, restoration, 

and mitigation activities so that land and water managers can identify risks unique to UOG development, and 

industry can refine best management practices to maintain and possibly restore affected habitats.

Table 6: Priority Research Needs – Ecological Effects

Priority Research Need Agency Roles

1 Information Gap Analysis: Review and synthesize literature, data sources, and 

monitoring protocols relevant to evaluating impacts of UOG on habitats, 

ecosystem services, aquatic life uses, migratory birds, and threatened and 

endangered species.

2 Wastewater Toxicity Testing: Characterize and build upon the available ecological 

toxicity data for the chemicals in wastewaters that we project pose the greatest 

potential risk to ecosystems.

3 Vulnerability Assessments: Identify and prioritize key geographic regions, 

ecosystems and their services, sensitive aquatic communities, wastewater disposal 

facilities, and critical wildlife habitats that have the greatest potential for impact 

from ongoing and potential UOG activities.

4 Cumulative Impact Models: Estimate total cumulative impact of the full life cycle 

of UOG exploration, development, and delivery on natural resource systems of 

concern.

Topic 6 Summary

• UOG activities can cause a wide range of impacts to ecosystems and associated species and habitats.

• Research is needed to connect air and water quality, and water availability, findings with direct exposure of 

flora, fauna, ecosystems, and land use change impacts.

DOE DOI EPA

DOE DOI EPA

DOE DOI EPA

DOE DOI EPA

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DEPARTMENT OF THE INTERIOR

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Topic 7: Induced Seismicity

Researchers have long known about the potential of human activity for causing seismic activity, from petroleum 

extraction to water reservoir impoundments and fluid injection into the subsurface. Current scientific knowledge

suggests changes in fluid volume and pore pressure, primarily through fluid injection, can induce seismic events. 

Consequently, the three stages of the UOG life cycle that could potentially cause such events to occur are: (1)

during the disposal of UOG produced and flowback wastewater through deep injection wells; (2) long-term 

extraction of oil and gas; and, (3) the phase of hydraulic fracturing. 

Although very small magnitude (microseismic) events are commonly produced by hydraulic fracturing 

operations, current understanding suggests that the potential risk of felt or damaging earthquakes is greatest 

from wastewater disposal in deep injection wells. There is a need for more data and analysis to relate UOG 

operations to induced seismic events, to connect these events to specific operational parameters and geologic 

conditions, and to develop and assess possible mitigation options for decision makers attempting to minimize 

seismic risks.

Table 7: Priority Research Needs – Induced Seismicity

Priority Research Need Agency Roles

1 Data Collection–Field and Laboratory: Identify five to ten industrial sites where 

background geologic site characterization and monitoring activities could be 

conducted; conduct geologic background and monitoring studies at several of 

these sites chosen for detailed assessment.

2 Hazard and Risk Assessment: Analyze seismic hazard background data for multiple 

sites; and develop models for probabilistic hazards assessment that account for 

induced seismicity (IS).

3 Physics-Based Model Development: Develop models for assessing the likelihood of 

induced seismic events and validate models with lab experiments and field data. As 

predictive models are developed, they must be validated and calibrated with 

seismic field data to demonstrate effectiveness.

Topic 7 Summary

• There is the potential for induced seismic activity resulting from UOG development.

• A need exists for research that yields a better understanding of potential risks, causes and effects throughout 

the UOG development and production life cycle.

DOE DOI EPA

DOE DOI EPA

DOE DOI EPA

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FLAGSHIP PROJECTS

Descriptions of six cross-cutting “Flagship Projects” have been developed to illustrate the type of collaboration 

and cooperation envisioned by the Steering Committee. While the Agencies are engaged in research outside of 

these examples, these proposed, planned, and on-going projects involve cross-cutting, multiagency, multidisciplinary research that builds on each Agency’s core strengths and existing Agency research. Some of the 

Flagships examine areas where there is complementary research being conducted or where there are 

opportunities for significant synergy. Other projects expand on current research funded by DOE, DOI, and EPA, 

and address priority research needs identified in the Strategy. Finally, some of the proposed Flagships outline 

potential projects that the Steering Committee is considering. All of these suggested research efforts depend on 

available resources at the three Agencies. Envisioned are research products that would be useful to decision 

makers at each of the Agencies, as well as stakeholders from other federal and state agencies, tribes, industry, 

and the public. Descriptions of the six Flagship Projects and their projected research products are summarized 

below:

Flagship: Understanding Resource Volumes, Potential Scale of Future Drilling Activity, and Water 

Consumption in Representative Unconventional Oil and Gas Plays

Purpose: Develop approaches to better understand undiscovered UOG resources and the possible 

impacts of their development on the environment, especially water resources. 

Products: New tools that can assess the potential intensity of future UOG drilling and water availability in 

priority basins.

Flagship: Study of the Potential Impacts of Hydraulic Fracturing for Oil and Gas on Drinking Water 

Resources

Purpose: Study of the potential impacts of hydraulic fracturing for oil and gas on drinking water resources 

by assessing research questions related to the five stages of the hydraulic fracturing water cycle: 

water acquisition; chemical mixing; well-injection; flowback and produced water; and 

wastewater treatment and waste disposal. 

Products: An assessment of the potential impacts of oil and gas hydraulic fracturing activities on the 

quality and quantity of drinking water resources in the United States. The assessment is based 

upon extensive review of the literature, results from recently completed EPA research projects, 

and technical input from state, industry, and other stakeholders.

Flagship: Understanding and Managing Risks from UOG Development on Water Resources

Purpose: Address the potential for adverse effects on water quality, more broadly than just drinking 

water supplies, resulting from UOG operations. 

Products: Peer-reviewed reports, publications, models, technology assessments, and decision tools ready 

for use to inform policy decisions and technical practices for protecting water resources.

Flagship: Application of Source and Remote Emission Measurement Methods to Quantification of Air 

Emissions from UOG Operations 

Purpose: Characterize source emissions and control technology effectiveness using on-site and nearsource remote methods.

Products: Sampling and measurement methods that can be used to conduct air quality characterizations 

from UOG operations to address impacts on local and regional air quality and potential 

community air toxic exposures. Conduct an assessment of the effectiveness of control 

technologies to mitigate air emissions.

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Flagship: Water and UOG Development: Ecological Effects of Wastewater and Water Withdrawal 

Purpose: Study the ecological effects of UOG development on aquatic biota, including direct effects of 

wastewater from UOG wells with high salt content and other chemical constituents on aquatic

life. 

Products: Baseline GIS layers in a representative play to support developing decision tools to locate and 

classify streams and riparian habitats with a high degree of potential degradation from UOG and 

a high propensity for restoration. Peer-reviewed publications that summarize the state of the 

science on potential effects of UOG on aquatic ecosystems; the development, validation, and 

application of suitably sensitive test species for detecting UOG effects; and describe watershedbased monitoring and assessment protocols needed to protect aquatic ecosystems from UOG 

impacts.

Flagship: Induced Seismicity, Implications of UOG Activities

Purpose: Improve the technical base needed both to define appropriate operational safeguards and to 

monitor sites effectively to minimize the potential for induced seismic events. 

Products: Data to provide improved detection and location identification of seismic events at a site that is 

representative of produced and flowback wastewater disposal wells to elucidate key 

relationships between existing geologic features, injection activities, and seismic events. 

NEXT STEPS

This document provides a strategy, identifies a set of priority research needs, and describes a process through 

which the Agencies will support relevant collaborative research to develop these resources while protecting 

human health and the environment. Because the Steering Committee is dedicated to a collaborative, 

coordinated process that takes into account the perspective and knowledge of all stakeholders, comments 

received will inform the future planning efforts of the three Agencies.

In the future, the Steering Committee, supported by appropriate research staff, will continue to meet on a 

regular basis to coordinate research efforts, and ensure that projects are implemented in a manner that 

maximizes public benefit and financial resource allocation. While this document initiates the process of 

identifying the highest priorities for research, all of the suggested research efforts depend on available resources 

at the three Agencies. As resources are allocated, more detailed research plans for the Flagship Projects 

identified in this Strategy will be prepared, describing existing literature, key milestones, required resources, 

funding sources, and specific outcomes.

Finally, the Steering Committee will continue to communicate with stakeholders to ensure: research conducted 

by the federal government addresses areas of greatest concern and impact; federal researchers appropriately 

leverage ongoing efforts pursued by NGOs, academia, and the private sector; and the results of federal efforts 

are effectively and transparently communicated to the public. The Steering Committee will continue to 

coordinate with external scientific communities to draw a comprehensive picture of research results and 

outcomes. The outputs of the multiagency research effort will expand our knowledge about UOG activities and 

provide information for policy decision-makers and the public to safely and responsibly develop these resources.

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REFERENCES

Multiagency: U.S. Department of Energy, U.S. Department of the Interior, and the U.S. Environmental Protection 

Agency. “Memorandum: Multi-Agency Collaboration on Unconventional Oil and Gas Research.” (Washington, 

DC: April 13, 2012).

The White House. Blueprint for a Secure Energy Future. (Washington, DC: March 31, 2011).

The White House. “Executive Order: Supporting Safe and Responsible Development of Unconventional Domestic 

Natural Gas Resources.” (Washington, DC: April 13, 2012).

The White House. “The President’s Climate Action Plan.” (Washington, DC: June 2013).

U.S. Department of Energy. Secretary of Energy Advisory Board (SEAB). Shale Gas Production Subcommittee 

Second Ninety Day Report. (Washington, DC: November 18, 2011), accessed from 

http://www.shalegas.energy.gov/resources/081811_90_day_report_final.pdf.

U.S. Energy Information Administration. Annual Energy Outlook 2014. DOE/EIA-0383(2014) (Washington, DC: 

April 2014), accessed from http://www.eia.gov/forecasts/aeo/.

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