Publication - Progress report

Climate Change Plan: monitoring reports 2022

Published: 26 May 2022
Directorate: Energy and Climate Change Directorate, +2 more … Chief Economist Directorate, Environment and Forestry Directorate
Part of: Economy, Energy, Environment and climate change, +6 more … Farming and rural, Housing, Programme for Government, Public sector, Transport, Work and skills
ISBN: 9781804354520

The second annual statutory monitoring report against the updated 2018 Climate Change Plan, as per the Climate Change (Emissions Reduction Targets) (Scotland) Act 2019.

Supporting documents

Chapter 5: Waste and the Circular Economy

Part A - Overview of sector

The 2019 annual emissions envelope published in the 2018 Climate Change Plan^[13] for this sector was 1.2 MtCO₂e, whereas the outturn emission statistics for this year (published in June 2021) show a position of 1.6 MtCO₂e. On the basis of comparing these figures, the sector was outside its envelope in 2019.

The updated Plan sets out the following four policy outcomes for the sector:

Reduction in waste sent to landfill	On Track	Off Track	Too Early to Say
Total amount of landfilled waste (tonnes)		x
Total amount of biodegradable landfilled waste (tonnes)	x

Reduction in emissions from closed landfill sites	On Track	Off Track	Too Early to Say
Number of closed landfill sites with exploratory landfill gas capture/ flaring		x

A reduction in food waste	On Track	Off Track	Too Early to Say
Household and non-household food waste reduced (tonnes)		x

Reduce waste and establish a more circular economy, where goods and materials are kept in use for longer	On Track	Off Track	Too Early to Say
Total waste generated (tonnes)		x

Just transition and cross economy impacts

We wish to understand and report on the broader just transition and cross-economy impacts of our emissions-reduction activities in addition to these sector specific policy outcomes and indicators. To do this, we use data from the Office of National Statistics (ONS): Low Carbon Renewable Energy Economy (LCREE) publication. The LCREE is based on survey data of businesses which perform economic activities that deliver goods and services that are likely to help generate lower emissions of greenhouse gases, for example low carbon electricity, low emission vehicles and low carbon services.

The LCREE indicator is narrowly defined and, while useful within its limited scope, does not give us the full picture of the impacts on workforce, employers and communities and progress towards a just transition.

This year we have also included ONS experimental statistics that look at green activity in the economy. These stats reflect green activities in both LCREE and non-LCREE sectors.

Over the next few years we will work to develop a meaningful set of success outcomes and indicators aimed at tracking the impacts of our policies on a just transition to net zero.

Sector commentary on progress

While Scotland has already made significant strides in reducing emissions from waste, with more than 30% reduction in emissions between 2011-2019, our Climate Change Plan Update recognised that progress needs to be accelerated to deliver our ambitious waste reduction and recycling targets, and enable us to meet updated waste sector emissions envelopes. Emissions from the waste and resources sector are currently around 1.5 million tonnes per year (2019). We aim to reduce these emissions to 0.9 million tonnes by 2025, and 0.7 million tonnes by 2030.

To achieve this, we must accelerate action across society to reduce the demand for raw material in products and encourage reuse and repairs through responsible production and consumption; and recycle waste and energy to maximise the value of any waste that is generated.

As set out in this report, the most recent data reporting on outcome indicators was published in 2019 and 2020. However, as a result of the December 2020 cyber-attack on the Scottish Environment Protection Agency (SEPA), waste from all sources publications from 2019 and 2020 are on hold, and this means data for some of our indicators is not available at this time.

While we have made progress in delivering key policy measures set out in our Climate Change Update, based on available information it is clear that, for many of the indicators, Scotland is not on track.

For example, while the reduction in landfilled waste in recent years is encouraging, achieving the 5% to landfill target represents a significant challenge. The indicator to reduce biodegradable landfilled waste (tonnes) to zero is judged as on track, as work with partners to prepare local authorities and the wider sector for the forthcoming ban on landfilling biodegradable municipal waste (which comes into force at the end of 2025) continues at pace.

However, across all of the other targets, we still have a significant challenge ahead and it is unlikely that all of these targets will be met in full without large-scale, significant and rapid system changes. As we set out in the Climate Change Plan Update, we are developing a route map to deliver our waste reduction and recycling targets to 2025 and beyond, in a way that maximises carbon savings potential. Shortly, we will consult on our draft route map and set out proposed new and boosted measures to accelerate progress towards existing targets. Alongside the route map, we will also consult on proposals for a circular economy bill, to ensure legislation is in place to support Scotland’s transition to a circular economy.

These actions will complement the existing measures we have in place to support delivery of these targets. Work continues on other policies set out in the Climate Change Plan update to meet this challenge. For example, Scotland’s Deposit Return Scheme will be implemented by August 2023; and have established a £70 million fund to improve local authority recycling infrastructure, and made our first investments from the Fund this financial year. To date, over £20.3 million has been awarded to local authorities to increase the quantity and quality of recycling, marking the beginning of one of the biggest investments in recycling in Scotland in a generation.

Developments in monitoring arrangements since last report

Work continues to develop more robust reporting for some of the indicators, including landfill gas capture and food waste measurements.

Part B - Progress to Policy Outcome Indicators

Policy Outcome:

Cross-sectoral social and economic indicator

Indicator

FTE employment in Low Carbon Renewable Energy Economy

On-Track Assessment (Milestone/Targets)

Year-to-year change

Most Recent Data: 2020

Data Source(s): Office of National Statistics: Low Carbon Renewable Energy Economy (LCREE), Time spent of Green Tasks

Assessment: Too early to Say

In 2020, the Scottish low carbon renewable energy (LCREE) sectors were estimated to directly provide 20,500 jobs, down from 21,700 in 2019 and from a high of 24,000 in 2016.
The estimates of LCREE are based on a relatively small sample of businesses and hence are subject to wide confidence intervals. LCREE employment in Scotland in 2020 is similar to previous years and the difference is not statistically higher or lower than any previous year.

A graph showing the Employment in Low Carbon Renewable Energy Economy. In 2020, the Scottish low carbon renewable energy (LCREE) sectors were estimated to directly provide 20,500 jobs, down from 21,700 in 2019 and from a high of 24,000 in 2016. The estimates of LCREE are based on a relatively small sample of businesses and hence are subject to wide confidence intervals. LCREE employment in Scotland in 2020 is similar to previous years and the difference is not statistically higher or lower than any previous year. — Employment in Low Carbon Renewable Energy Economy, FTE

Waste graph 1

Source: Scottish Government presentation of ONS stats

The ONS also released experimental statistics on a wider perspective of green activity in the economy with their time spent on green tasks release. These stats reflect green activities in both LCREE and non-LCREE sectors.
This release showed that in 2019 Scotland achieved an all-time high of hours spent on green tasks and proportion of workers doing green tasks, including workers who spend more than 20% of their time on green tasks.
The proportion of workers doing green tasks in Scotland was 36% in 2019, up from 23.8% in 2004. Workers who have spent more than 20% of their time doing green tasks was 14%, up from 9% in 2004.
The proportion of overall hours spend doing green tasks in Scotland was 7%, up from 4.9% in 2004.

A graph showing a wider perspective of green activity in the economy with their time spent on green tasks release. These stats reflect green activities in both : Low Carbon Renewable Energy Economy and non- Low Carbon Renewable Energy Economy sectors. This release showed that in 2019 Scotland achieved an all-time high of hours spent on green tasks and proportion of workers doing green tasks, including workers who spend more than 20% of their time on green tasks. The proportion of workers doing green tasks in Scotland was 36% in 2019, up from 23.8% in 2004. Workers who have spent more than 20% of their time doing green tasks was 14%, up from 9% in 2004. The proportion of overall hours spend doing green tasks in Scotland was 7%, up from 4.9% in 2004. — Green Tasks Statistics, percentage

Waste graph 2

Source: Scottish Government presentation of ONS stats

Policy Outcome

Indicator

Total amount of landfilled waste (tonnes)

On-Track Assessment (Milestones/ Targets)

Progress to target [no more than 5% of all waste to landfill by 2025]

Most recent data: Landfilled waste reduced from 3.74 million tonnes in 2018 to 3.00 million tonnes in 2019 and 2.61 million tonnes in 2020. However, the percentage of total waste sent to landfill in 2019 and 2020 cannot be calculated due to the absence of total waste figures for those years.

Data source(s): SEPA official statistics

Waste landfilled in Scotland 2020, Waste from all sources 2018

Assessment: Off track

A graph showing landfill and total waste in tonnes from 2011 to 2020. Currently Scotland landfills less than half of what it did in 2005, with waste sent to landfill falling from around 7 million tonnes in 2005 to around 2.6 million tonnes in 2020. Although the reduction in landfilled waste in recent years is encouraging, the trajectory in terms of the percentage of total waste landfilled cannot be calculated for 2019 and 2020 because total waste figures are not available (as a result of the December 2020 cyber-attack on SEPA, waste from all sources publications from 2019 and 2020 are on hold). — Landfill and Total Waste (tonnes)

Waste graph 3

Commentary: Currently Scotland landfills less than half of what it did in 2005, with waste sent to landfill falling from around 7 million tonnes in 2005 to around 2.6 million tonnes in 2020. Although the reduction in landfilled waste in recent years is encouraging, the trajectory in terms of the percentage of total waste landfilled cannot be calculated for 2019 and 2020 because total waste figures are not available (as a result of the December 2020 cyber-attack on SEPA, waste from all sources publications from 2019 and 2020 are on hold).

Despite this delay in up-to-date data on waste from all sources, achieving the weight-based, 5% to landfill target represents a significant challenge and the pace of reduction would need to accelerate to meet the target. We are therefore assessing this as ‘Off track’, pending development of our Route Map to drive progress towards our 2025 targets and beyond, which will set out new and boosted measures to accelerate the pace of waste reduction and recycling. The Route Map will be in early 2023, taking account of the outcome of public consultation on proposed measures. This will complement the existing measures we have in place to support delivery of this target. Other factors (for example fluctuations in total waste due to changes in construction and demolition waste) will also influence whether the target is met.

Policy Outcome

Indicator

Total amount of biodegradable landfilled waste (tonnes)

On-Track Assessment (Milestones/ Targets)

Year-to-year change + Progress to interim target [0 tonnes of biodegradable municipal waste landfilled by 2026]

Most recent data: 2020

Data source(s): SEPA official statistics – waste landfilled in Scotland.

Assessment: On track

Commentary: Clear progress is being made. Biodegradable municipal waste has reduced from 1.36 million tonnes in 2011 to 0.69 million tonnes in 2020. This means that Scotland has exceeded the EU based target to reduce the quantity of biodegradable municipal waste landfilled to less than 1.26 million tonnes by 2020.

The ban on landfilling biodegradable municipal waste, delayed from 2021, will come into force at the end of 2025. Work is in train to support remaining local authorities to put in place alternative solutions to comply with the ban. Although progress has been impacted by COVID-19, overall this work is on track.

Policy Outcome

Indicator

Number of closed landfill sites with exploratory landfill gas capture/ flaring

On-Track Assessment (Milestones/ Targets)

Progress to target [12 by 2025]

Most recent data: n/a

Data source(s): To be determined.

Assessment: Off track

Commentary: This was a new [boosted] policy, as outlined in the recent Climate Change Plan update, to accelerate Landfill Gas Capture, working with SEPA and key industry partners to scale up the existing landfill gas capture programme to mitigate effects of landfill and environmental impact of closed landfill sites. This is supported by additional funding from the Low Carbon Fund, with the aim to harness the energy generated from landfill gas capture and maximise circular economy opportunities. Due to other unavoidable resource implications, including COVID-19 contingency work, progress on this policy outcome was paused in 2021/22. We are reviewing plans for 2022/23 to ensure progress is made.

Policy Outcome

Indicator

Household and non-household food waste reduced (tonnes)

On-Track Assessment (Milestones/ Targets)

Progress to target [reduce all food waste by 33% by 2025]^[14]

Most recent data: An estimated 987,890 tonnes (baseline year) of food and drink in Scotland was wasted. As part of work on the Food Waste Reduction Action Plan (FWRAP), Zero Waste Scotland is currently developing updated estimates of food waste in Scotland.

Data source(s): ‘How much food is wasted in Scotland?’ – Zero Waste Scotland, November 2016.

Assessment: Off track

Commentary: A review of the FWRAP and progress towards the 33% target will be published in 2022. This review has been delayed by the significant impact COVID-19 has had on the whole food and drink supply chain. The review will provide updated estimates of total food waste in Scotland and further sector specific data. Scotland does not currently collect waste data at the granular level necessary to report annually or by supply chain sector.

According to our 2013 baseline data, the two largest sector sources of food waste are Household & Consumer (61%) and Food & Drink Manufacturing (25%). While the Scottish householder is a clear target for change, the relationships between the consumer, the retailer and the supply chain are complex, with each influencing the others’ decisions and behaviour. The remaining 14% is food waste generated by the Hospitality & Catering, Wholesale & Retail, Education, and Healthcare sectors.

A waste compositional analysis across several local authorities is currently ongoing and will inform the updated estimate for household food waste in Scotland. Our Route Map to accelerate progress towards our 2025 waste and recycling targets will set out additional measures to tackle food waste, and further detail will be set out in updated Food Waste Reduction Action Plan to be published in 2022.

Policy Outcome

Indicator

Total waste generated (tonnes)

On-Track Assessment (Milestones/ Targets)

Progress to target [reduce total waste by 15% by 2025 against 2011 baseline]^[15]

Most recent data: 2018

Data source(s): Official statistics publication by SEPA- waste from all sources 2018.

Assessment: Off track

Commentary: The total amount of waste generated in 2018 was 11.45 million tonnes, the same as in 2017. This equates to a 4.2% reduction compared with 2011.

Changes in waste from different sources can be marked. For example, whilst household waste decreased by 8% during this period, construction and demolition waste increased by 12%. As a result of the December 2020 cyber-attack on SEPA, waste from all sources publications from 2019 and 2020 are on hold, with limited data available to update our assessment.

We are developing a Route Map to set out additional actions that we will take to accelerate progress towards our 2025 waste prevention and recycling targets. This will be published later in 2022, taking account of the outcome of public consultation on proposed measures.

Part C - Information on implementation of individual policies

Outcome 1: Reduction in waste sent to landfill

Policy

End landfilling of biodegradable municipal waste by 2025, reduce the percentage of all waste sent to landfill to 5% by 2025 and recycle 70% of all waste by 2025 by:

Developing a new route map to reduce waste and meet our waste and recycling targets for 2025 in a way that maximises their carbon savings potential.
Developing a post-2025 route map for the waste and resources sector, identifying how the sector will contribute towards Scotland’s journey towards net zero in the period to 2030 and beyond.
Establishing a £70m fund to improve local authority recycling collection infrastructure.
In line with EU requirements, further promoting reuse and recycling ensure separate collection of textiles by 2025; and ensuring that bio-waste (e.g. garden waste), is either separated and recycled at source, or is collected separately and is not mixed with other types of waste by 2023. In response to the Committee on Climate Change’s (CCC’s) latest recommendations, it is our intention to extend the forthcoming ban on biodegradable municipal waste to landfill to include biodegradable non-municipal wastes, subject to appropriate consultation and work to provide assurance around some specific waste streams.

Date announced

2020-2021 PfG

Progress on implementation since time of last report / CCPu

Our £70 Recycling Improvement Fund was launched in March 2021. So far £20.3 million has been awarded to local authority projects to improve recycling infrastructure.
Our Route Map to reduce waste, and meet our 2025 targets and beyond, has been under development, and a formal consultation will be published in May 2022.
Work is ongoing to support remaining local authorities to put in place alternative solutions to comply with the ban on landfilling biodegradable municipal waste.

Have any implementation indicators / milestones been set for this policy? If so, most recent data for progress against these.

For Recycling Improvement Fund: Projected recycling tonnage increase 22,100 tonnes per year, and potential CO₂ emissions savings as a result of investments so far 21,400 tonnes each year - the equivalent of taking 11,400 cars off the road.

Timeframe and expected next steps?

Recycling Improvement Fund is a five-year fund, further investments will be made across the lifetime of the Fund.

See above

Timeframe and expected next steps?

See above

Outcome 2: Reduction in emissions from closed landfill sites

Policy

Accelerate Landfill Gas Capture and Landfill Legacy Management: we will work with SEPA and key industry partners to scale up the existing landfill gas capture programme to mitigate effects of landfill and environmental impact of closed landfill sites

Date announced

Low Carbon Fund 2020

Progress on implementation since time of last report / CCPu

This was a new [boosted] policy, as outlined in the recent Climate Change Plan update, to accelerate Landfill Gas Capture, working with SEPA and key industry partners to scale up the existing landfill gas capture programme to mitigate effects of landfill and environmental impact of closed landfill sites. Due to other unavoidable resource implications, including Covid-19 contingency work, progress on this policy outcome was paused in 2021/22. We are reviewing plans for 2022/23 to ensure progress is made.

Have any implementation indicators / milestones been set for this policy? If so, most recent data for progress against these.

N/A

Timeframe and expected next steps?

Landfill gas capture: Engagement with sector and key stakeholders in first half of 2022/23, alongside research on investment opportunities.

Policy

Landfill gas capture on closed sites: in association with SEPA and the waste industry, double the number of landfill gas capture sites that undertake investigative or development work (from 12 to 24 sites) by 2025, in order to harness energy generated from landfill gas capture and maximise other circular economy opportunities. SEPA has already identified 12 sites for potential investigative work.

Date announced

Low Carbon Fund 2020

Progress on implementation since time of last report / CCPu

See above

Have any implementation indicators / milestones been set for this policy? If so, most recent data for progress against these.

See above

Timeframe and expected next steps?

See above

Outcome 3: A reduction in food waste

Policy

We will lead collaborative efforts to deliver Scotland’s landmark Food Waste Reduction Action Plan (FWRAP). To reduce food waste by 33% from the 2013 baseline by 2025. Actions include:

Improving monitoring and infrastructure by considering a mandatory national food waste reduction target and mandatory reporting of Scotland’s food surplus and waste by food businesses. Consulting on the current rural exemption and food separation requirements for food waste collections, to help break down barriers to food waste reuse and recycling.
Supporting leadership, innovation, effectiveness and efficiency in Scotland’s public, private and hospitality sectors by expanding pilot programmes across the education sector and public sector buildings;
Support the development and implementation of an NHS Scotland national action plan on food waste;
Develop best practice guidance for public sector procurement teams to drive new ways of working and more transparent supply chains.
A sustained approach to public engagement and communications to enable the public to make changes in their choices and behaviours around food and food waste, in partnership with Zero Waste Scotland.

Date announced

FWRAP published 2019; 2020-2021 PfG

Progress on implementation since time of last report / CCPu

Although implementation of FWRAP has been delayed due to Covid-19 pandemic, key activities undertaken across range of settings to support food waste reduction, including support for businesses.
Phase 2 of food waste marketing campaign launched Feb 2022, honouring our 2019-20 PfG commitment which was delayed due to COVID-19. The campaign highlights the importance of preventing food waste in the first place, but also encourages people to recycle the food waste they can’t prevent.
Scottish Government provided £200,000 of funding in 21/22 for FareShare’s Surplus with Purpose scheme to support food redistribution. The programme works with farmers, growers and manufacturers to cover the additional costs involved with getting their unsold good-to-eat food onto people's plates.
£20.3m has been awarded to 13 local authorities via the Recycling Improvement Fund to increase the quantity and quality of recycling, funding a range of improvements, including the extension of food and garden waste collections.

Have any implementation indicators / milestones been set for this policy? If so, most recent data for progress against these.

FWRAP Review to be published in 2022 and will provide updated estimates of total food waste in Scotland and further sector specific data.

Timeframe and expected next steps?

Consultation on proposed additional actions to drive progress towards food waste reduction target (May).
Continued delivery of actions in 2019 FWRAP; publish FWRAP review in 2022 with new proposals to achieve the 33% reduction target by 2025.

Outcome 4: Reduce waste and establish a more circular economy, where goods and materials are kept in use for longer.

Policy

We will work with local authorities and the future DRS scheme administrator(s) to explore options that will unlock reprocessing investments, including pricing and incentive schemes, to create jobs and a ready supply of recycled material for new packaging.

Date announced

2020-2021 PfG

Progress on implementation since time of last report / CCPu

Options continue to be explored

Have any implementation indicators / milestones been set for this policy? If so, most recent data for progress against these.

N/A

Timeframe and expected next steps?

Options work expected to be completed during 2022

Policy

Measures to encourage more sustainable consumer purchasing, including plans to take further steps to consult on a charge on single use disposable beverage cups and to increase the carrier bag minimum charge from 5p to 10p in this parliamentary session.

Date announced

Boosted [2020-2021 PfG]

Progress on implementation since time of last report / CCPu

Regulations to increase carrier bag charge passed by Parliament and came into force on 1 April 2021

2020-2021 PfG

Progress on implementation since time of last report / CCPu

Publication of Policy “Taking Account of Climate and Circular Economy Considerations in Public Procurement”

Ministerial call to action to Chief Officers in the Public Sector, highlighting the need for wider engagement across organisations to maximise the positive impact procurement can have on addressing the Climate Emergency.

Development and launch of Climate Literacy eLearning. A unique, demand led product which helps to encourage and assist public bodies to take account of climate and circular economy in their procurement activity.

Refreshed guidance and development of a library of best practice case studies, covering Climate Change as well as wider sustainable procurement.

Have any implementation indicators / milestones been set for this policy? If so, most recent data for progress against these.

n/a

Timeframe and expected next steps?

Contact

Email: climate.change@gov.scot

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