Coal extraction: policy position

We are transitioning to a net zero emissions Scotland for the benefit of our environment, our people, and our prosperity, with Scotland’s ambitious climate change legislation setting a target date for net zero emissions of all greenhouse gases by 2045. This means that our contribution to climate change will end, definitively, within one generation.

In line with this commitment, our Programme for Government 2021 to 2022  stated that: "unlimited extraction of fossil fuels is incompatible with our climate obligations and meeting the aims of the Paris Agreement"; in a post-COP26 world, it is more important than ever that we move towards this goal at pace, and continue to put words into actions.

Coal exploitation is a matter reserved to the UK Government, and the Mining Remediation Authority is responsible for licensing coal mining activity in Scotland. However, planning policy and determinations are devolved to the Scottish Government.

Position on coal extraction in Scotland

We have undertaken a full policy development process in order to reach a finalised position on coal extraction in Scotland, in line with statutory requirements. The first step in this process was the launch of a call for evidence on coal extraction which ran from 21 June to 02 August 2022, which invited stakeholders’ views and expanded our evidence base in this policy area.

The call for evidence set coal extraction in its wider context of our statutory emissions targets and just transition and highlighted our work to date in relevant policy areas, including energy security, heat regulation and air quality.

The responses to the call for evidence, and the independent analysis report, are both publicly available. Having considered stakeholders’ views and the evidence received alongside wider Scottish Government energy and climate change policies, we confirmed our preferred policy position of no support for coal extraction in Scotland in October 2022.

National Planning Framework 4

Our National Planning Framework 4 (NPF4) was published and adopted in February 2023 following approval by the Scottish Parliament. NPF4 Policy 33a sets out development proposals for the exploration, development and production of fossil fuels (excluding unconventional oil and gas which is the subject of NPF4 policy 33b) will not be supported other than in exceptional circumstances aligned with national policy on energy and climate.

We recognise that there may be circumstances where the extraction of coal is legally required for example as part of building works or where a seam needs to be removed in the course of preparing foundations. Any holder of a licence issued by the Mining remediation Authority may submit an application for planning permission for coal mining-related activities. As a matter of law, all planning applications must be determined in accordance with the development plan, unless material considerations indicate otherwise. As a statement of national policy, the finalised policy position on coal extraction would be a material consideration.

Policy finalisation process and implementation

The preferred policy position was subject to statutory and other assessments before the policy-making process was completed, including in our draft Energy Strategy and Just Transition Plan, and our National Planning Framework 4 (NPF4).

NPF4 policy 1 makes clear that significant weight will be given to the global climate and nature crises when considering all development proposals.  NPF4 Policy 33 sets out a policy of no support for the exploration, development and production of fossil fuels, other than in exceptional circumstances aligned with national policy on energy and targets for reducing greenhouse gas emissions. This includes our policy position on coal extraction.

Following this comprehensive policymaking process, the Scottish Government’s finalised policy position is of no support for coal extraction in Scotland.

As noted above, coal exploitation is a matter reserved to the UK Government, and the Mining Remediation Authority is responsible for licensing coal mining activity in Scotland. Scotland’s planning system is fully devolved to the Scottish Government.

Where any planning applications come forward, these must be determined in accordance with the development plan, unless material considerations indicate otherwise. As a statement of national policy, the finalised policy position on coal extraction would be a material consideration. 

Further information

You can find a previous version of our preferred policy position in our archive.