Outer Continental Shelf: Debate Over Oil and Gas Leasing and Revenue Sharing. CRS Report for Congress (Updated January 22, 2008)

摘要

Oil and gas leasing in the Outer Continental Shelf (OCS) has been an important issue in the debate over energy security and domestic energy resources. The Department of the Interior (DOI) released a comprehensive inventory of OCS resources in February 2006 that estimated reserves of 8.5 billion barrels of oil and 29.3 trillion cubic feet (tcf) of natural gas. Another 86 billion barrels of oil and 420 tcf of natural gas are classified as undiscovered resources. Congress has imposed moratoria on much of the OCS since 1982 through the annual Interior appropriation bills. Proponents of the moratoria contend that offshore drilling would pose unacceptable environmental risks and threaten coastal tourism industries. Several bills related to oil and gas leasing in the OCS were introduced in the 109th Congress. On June 29, 2006, the House approved H.R. 4761, the Deep Ocean Energy Resources Act of 2006, by a vote of 232-187. The bill would have allowed states, using specified criteria, to petition the Secretary of the Interior to lease the OCS adjacent to state waters. The Senate proposed an offshore leasing bill that was much more narrow in scope (S. 3711). The bill would make available about 8.3 million acres, provide coastal states with a share of the revenues generated from offshore leases (37.5%), extend the buffer zone within which drilling will not be allowed to 125 miles from parts of Florida, and provide a share of the revenues (12.5%) to the Land and Water Conservation Fund state-run programs. On August 1, 2006, the Senate approved S. 3711 by a vote of 71-25. A conference agreement on the two very different OCS bills (H.R. 4761 and S. 3711) did not take place. Instead, at the end of the 109th Congress, the House leadership attached S. 3711 to a broad tax relief measure, H.R. 6111 (P.L. 109-432), that passed the House on December 8, 2006, and the Senate on December 9. Royalty relief, particularly for deep-water projects, has come under closer scrutiny since it was revealed in a February 2006 New York Times article that leases issued during 1998 and 1999 did not contain price thresholds for royalty relief (above which royalties apply) as part of the Deep Water Royalty Relief Act (DWRRA) of 1995 (leases issued between 1996-2000). As a result, those leaseholders continue to pay no federal royalties on specified suspension volumes, even though oil prices are at an all-time high. Under the new majority leadership in the 110th Congress, the House passed legislation (H.R. 6 and H.R. 3221) that would offer a remedy for the offshore leases without price thresholds. On December 6, 2007, the House passed amendments to the Senate-passed version of energy policy legislation (H.R. 6) without the royalty relief remedy contained in the two earlier House-passed bills above. The royalty relief remedy provisions were subsequently not enacted in final energy policy legislation, (P.L. 110-140). However, Kerr McGee Oil and Gas Corp. (now Anadarko Petroleum Corp.) filed a lawsuit challenging MMSs authority to impose price thresholds in the DWRRA leases. On October 18, 2007, a ruling was issued by the U.S. District Court, Western District of Louisiana, in favor of Kerr McGee.