Shetland Tunnels: A Modern Lifeline

Shetland’s Subsea Dream: A Tunnelled Future for the Isles?

Shetland is looking to the sea, not for its surface, but for what lies beneath. An ambitious vision is taking shape to replace ageing ferries with a network of subsea tunnels. This plan would create fixed links between the Shetland mainland and five key islands, one of which is Unst, Britain’s most northerly inhabited location. The proposal is grand, sparking both excitement and scepticism across the archipelago. Can Shetland truly deliver such a complex infrastructure project, especially when the UK has faced challenges with major ventures like high-speed rail? The answer, according to proponents, is a firm yes.

The Faroese Inspiration

Inspiration for this monumental undertaking comes from 200 miles across the Atlantic. The Faroe Islands, a self-ruling territory of Denmark, have successfully built such a network, a process which began in the 1960s. Aksel Johannesen, the Faroese prime minister, believes Shetland can replicate this success to stimulate growth and revitalise its island communities. His nation, comprised of 18 islands, now boasts twenty-three tunnels, with four passing beneath the seabed, and more are currently under construction. This comprehensive network has become a testament to long-term infrastructure investment.

An Engineering Marvel

The most impressive part of the Faroese system is the 7.1-mile Eysturoy Tunnel. This structure links Streymoy island to two different sides of a fjord on Eysturoy island. It is famous for featuring the world's first, and only, undersea roundabout. Nicknamed 'the jellyfish' for its appearance and illuminations, driving through it is a remarkable experience, showcasing an incredible piece of engineering. The tunnel reaches a depth of 187 metres under the sea, dramatically reducing travel times connecting Tórshavn, the capital, with the second-largest town, Klaksvik.

A Proven Construction Method

The tunnels in the Faroes were made using the 'drill and blast' technique. This method involves drilling holes into the rock, placing explosives, and then clearing the resulting rubble to steadily advance the tunnel. Andy Sloan, an executive at COWI, an engineering firm, confirmed this technique is perfectly suited for the geology of Shetland. His company, which was involved in the Faroese project, currently provides advice to the Shetland Islands Council regarding the technical and financial aspects of its own tunnel ambitions. Sloan expresses confidence that Shetland can successfully replicate the Faroese achievement.

Economic and Social Dividends

Erika Anne Hayfield, a professor at the University of the Faroe Islands, highlights the significant social benefits of the tunnels. The fixed links allow people to live and prosper in smaller, more remote settlements while remaining fully connected to the main employment centre in Tórshavn. For many islanders, the tunnels are essential for long-term demographic and social sustainability. This connectivity has been a key factor in growing the Faroese population to 54,000, which is a stark difference from Shetland's 23,000 residents. Johannesen confirms tunnels have been crucial for this economic and population growth.

Addressing Local Concerns

While the benefits are clear, the Faroese experience also offers cautionary lessons. Professor Hayfield notes that the high cost of some tunnel projects has been controversial. Some Faroese citizens argued that the focus on tunnels came at the cost of funding other public services, like educational facilities and medical centres. These debates are relevant to Shetland as it weighs the immense cost of construction against the pressing need to upgrade its infrastructure and the potential long-term returns on such a major investment.

Shetland's Economic Powerhouse

Advocates for the tunnels are keen to portray Shetland not as an isolated outpost, but as a modern economy constrained by inadequate infrastructure. The island group, a collection of around 100 islands where the Atlantic Ocean meets the North Sea, is a hub of significant economic activity. Emma Macdonald, leader of the Shetland Islands Council, points out that Shetland's fishing fleet brings in more valuable catches than those of England, Wales, and Northern Ireland combined. The tunnels, she believes, have the potential to be 'completely transformational' for this and other local industries.

Image Credit - The Mirror

The Vital Salmon Industry

The salmon industry is a cornerstone of the Shetland economy and a critical UK export. A quarter of all salmon from Scotland is produced by the archipelago, a commercial enterprise with overseas revenues valued at £844 million in 2024. However, the industry faces challenges. Anne Anderson of Scottish Sea Farms, a major employer in Shetland, expresses frustration at the lack of infrastructure investment. She notes that Scottish salmon's share of worldwide sales has been slipping, a decline she partly attributes to logistical inefficiencies. Anderson urges leaders to identify what has worked in the Faroes and implement a similar strategy.

Fueling a Modern Economy

Beyond fishing, Shetland contains Britain's most productive onshore wind farm and is embracing the transition to renewable power. The islands also feature the SaxaVord Spaceport on Unst, which is a unique facility in the United Kingdom. Elizabeth Johnson, who is the external affairs manager for the spaceport, states that tunnels would significantly boost the island’s economic health, opening it up for new businesses and supporting the growth of strategic sectors like space and energy. Reliable transport is crucial for getting components in and skilled workers to the site.

The Failing Ferry System

The push for tunnels is driven by the dire state of the current ferry system. The local council in Shetland runs connections to nine different islands using a fleet of 12 vessels. These services carry approximately 750,000 passengers annually, but the system is under immense strain. The fleet’s typical vessel age is now over 31 years, with some ferries approaching 40 years old. This ageing fleet leads to reliability issues that impact both residents and the local economy. The problems mirror those seen on Scotland's west coast with the troubled Caledonian MacBrayne services.

Soaring Costs and Unmet Demand

Maintaining and running the old ferries is becoming increasingly expensive. The annual cost to the council is £23 million, a figure that has risen sharply over the last ten years due to fuel, maintenance, and salary costs. In 2023, the council reported a funding shortfall of nearly £6 million to simply run the service. Furthermore, certain services cannot cope with the volume of cars needing passage, which means tourists are sometimes turned away and business supplies are delayed. The council even had to recently discontinue the procurement of a new £5.6 million vessel, highlighting the difficulties in just maintaining the status quo.

The Formal Proposal

In response to these challenges, the Shetland Islands Council has formally advanced its tunnel ambitions. A feasibility analysis, with a budget of £990,000, has been approved by the council to investigate the construction of fixed links. This study will connect the main island to four important outlying islands: Bressay, Unst, Whalsay, and Yell. This represents a major step forward, moving the project from a long-held aspiration to a concrete plan with significant financial backing from the council. It signals a clear intent to find a permanent, modern solution to the islands' connectivity problems.

A Strategic Partnership

To deliver this complex analysis, a consortium of expert firms has been commissioned by the council. The project, now formally known as the Inter-Island Transport Connectivity Programme, is being led by Stantec, alongside partners COWI and Mott MacDonald. COWI brings world-leading expertise in tunnel engineering, Stantec specialises in transport planning and business cases, and Mott MacDonald adds marine civil engineering know-how. Their work will produce a strategic business case outlining the options, costs, and benefits, providing the data needed for a final decision.

A Phased Approach

The programme is designed to deliver a robust strategy for the next 30 years. It will first identify the core transport problems for each island community before developing a long list of potential options. These will include various fixed link proposals for Bressay, Unst, Whalsay, and Yell, in addition to options for enhanced ferry services for other islands like Fetlar and Foula. A Strategic Business Case will be presented to the council, which will then decide which options should proceed to a more detailed appraisal in a later Outline Business Case.

Image Credit - BBC

The Funding Question

A major hurdle for the project is funding. With a potential multi-million-pound price tag, the governments in both Scotland and the UK have not volunteered to foot the bill. Consequently, the Faroese model of funding—borrowing money that is then paid back through user charges—is the most likely path forward. Emma Macdonald, the Council Leader, has indicated that residents understand the requirement for tolls, given that they already pay for ferry travel. This model would make the project self-sustaining, but it depends on the community's willingness to fund the new infrastructure over a long period.

Public Support for Tolls

The idea of tolls has a complicated history in Scotland. Successful campaigns led to the abolition of charges for the Skye Bridge in the year 2004 and for the Forth and Tay road bridges four years later. However, the situation in Shetland appears different. Elizabeth Johnson from SaxaVord Spaceport believes most people she has talked with would not oppose tolls, recognising them as a necessary trade-off for a reliable, 24/7 connection to the mainland. The tangible, daily benefits of a fixed link seem to outweigh the reluctance to pay a regular fee.

Community Action

Community support for the project is strong and organised. The Unst, Whalsay, and Yell Tunnel Action Groups have been actively campaigning for fixed links. They advocate that the advantages of tunnels over ferries are "clear, compelling, and necessary" for the future of their communities. These groups have even raised their own funds, with an online auction bringing in £10,000 towards geotechnical investigations and impact studies. This grassroots momentum demonstrates a powerful local desire for a permanent solution and a proactive approach to securing the islands' future.

Preserving Island Identity

Despite the strong support, some residents are asking if tunnels would fundamentally alter the island way of life. The ferry journey is more than just a commute; it is a defining part of the island experience. Pat Burns operates The Final Checkout on Unst, the most northerly retail outlet in Britain, and was initially sceptical. She valued the unique challenges and sense of separation that came with island living. The idea of a simple, quick drive to the mainland felt like it might erode that distinct identity.

A Necessary Evolution

However, the practical realities of running a business and living on a remote island have shifted perspectives. Following a long time spent concerned about storm disruptions interrupting supplies and seeing ferries turn away tourists because they were full, Burns now thinks differently. She now believes that if a tunnel is not built, the challenges for Unst will become "too big" to overcome. Her journey from scepticism to support reflects a wider understanding that preserving the community requires adaptation and that modern infrastructure is now key to the islands' survival.

The Path Forward

The Shetland tunnels project stands at a critical juncture. It is a bold, forward-looking vision that promises to secure the economic and social future of the islands for generations to come. The inspiration is clear, the technical expertise is available, and the local will is strong. However, the financial and political hurdles remain significant. A comprehensive report covering delivery and funding, expected to be completed in early 2026, will be a pivotal moment. The decisions that follow will determine whether Shetland's subsea dream becomes a transformative reality.