Draft circular economy strategy: equality impact assessment

Key Findings

31. The Scottish Government does not believe there to be sufficient evidence to amend the contents of the Strategy at this time based on the framing exercise. Individual interventions will require a period of design and development. Where required this process will need to include consideration of the need for a separate suite of impact assessments, including any required intervention-specific EQIAs.

32. No positive or negative impacts have been identified that will result from the publication of the Strategy itself.

33. However, it is possible that, depending on their design, some of the interventions that result from Strategy priorities may have both positive and negative impacts on the following protected characteristics: age, disability, sex, race, religion or belief and pregnancy and maternity.

34. These include, but are not limited to, the following examples set out below. In addition to the impacts considered, it is important to note that the protected characteristics considered within this EQIA are not independent of each other. Some people may have to deal with complex and interconnected issues.

The Strategy as a whole

35. The Strategy and priorities will necessitate actions that are taken to reduce carbon emissions, achieve our net-zero ambitions and in doing so mitigate climate change.

36. This issue is viewed differently by different age groups and as such the impact and/or understanding of interventions may be different across age groups.

37. There is a recognition that disabled people may be impacted more severely by climate change^[9] as they are often left out of policy making processes. Inclusion of disabled people in decision making processes is critical to understanding impacts, and potential impacts, based on their lived experiences.

Policy Mechanisms

38. Interventions resulting from Strategy priorities, such as empowering consumers and organisations to adopt circular behaviours and supporting businesses to increase circularity and uptake of circular business models may have an effect on the availability and/or price of specific goods in future.

39. On average, disabled people face extra costs. In 2024/25 disabled households needed on average, an additional £1,095 a month to have the same standard of living as non-disabled households^[10]. This may mean that any increase in cost of living is more challenging to manage and should be carefully considered when relevant measures are developed. In addition, the suitability of alternatives for disabled people will need to be considered if measures are taken forward which shift markets to alternative goods.

40. Changes to the price of goods may impact women disproportionately. In 2017 it was estimated that 67% of all UK household consumption is controlled or influenced by women^[11]. In 2020 higher proportion of women reported being mainly responsible for household budgeting (37% vs 22% of men) and taking charge of spending decisions for the house (38% vs 28% of men)^[12]. Women are more likely to be the “household bookkeeper” and will take day-to-day spend decisions on household products all or most of the time (56% vs 15% of men).

41. This means women will have a strong influence on household purchasing of goods and waste production.

42. Behaviour change is central to enabling a circular economy and one area related to maternity is nappy reuse - there remains a preference/default position across all parents in Scotland to use disposable nappies for their young children. For parents, the primary barriers include initial higher costs. Where this group intersects with the Disability characteristic group similar issues may also be a barrier, or act to compound barrier to uptake of reusable options.

43. Expanding the application of a place-based approach to the circular economy has the potential to improve accessibility of circular economy products/practices.

44. Increasing the uptake of circular practices through improved skills and education opportunities should include opportunities for those with protected characteristics.

Priority Sectors

Built Environment:

45. Built Environment sector-specific priorities may lead to interventions that impact on protected characteristics as a result of energy efficiency and building fabric related issues.

46. Future interventions that may improve energy efficiency should consider older people who are less likely to live in the most energy efficient homes, and as a group may be more positively impacted by such changes. Older households are also less likely than families and other household types to report that their heating system doesn’t always keep them warm in winter; 12%, compared to 16% of families and 21% of other households^[13].

Textiles:

47. Improving management of post-consumer textiles may result in an impact on some protected characteristics if this management requires additional household collection requirements.

48. Due to physical changes that become more common with age, mobility may be limited in older adults, restricting their autonomy and ability to manage additional tasks to separate different materials for recycling. Additionally, older individuals (often with health conditions associated to their age) can struggle with the separation of recycling.

49. To make sure any kerbside collections are accessible this will need to be communicated to elderly or disabled people who receive an assisted uplift from their local authority. Responsibility for this would lie with the local authority.

50. These priorities may result in an impact on recycling behaviours of different age groups. Both younger and older people are likely to want to fully participate in any new recycling services that follow on from the Strategy priorities. Inclusive communication is critical. Older adults may not be aware of the proposed changes to the same extent as other groups if communication about the proposal is restricted to digital means.

51. Additional household collection requirements may result in an impact on recycling behaviours of disabled people – and their engagement and use of services. Adults who are disabled or who have a long-term illness are less likely to view climate change as an immediate and urgent problem than those without. In 2018 people with a long-term illness or disability were less likely to view climate change as an immediate and urgent problem as people without (60% compared to 67%)^[14].

Transport

52. Improving circularity of passenger and light goods vehicles should consider issues this would raise for those with protected characteristics who are more reliant on personal transport.

The Food System

53. Work on household food waste reduction behaviour, improving circularity in the supply chain and work with stakeholders to support food waste reduction by businesses may impact on some protected characteristics.

54. For example, future interventions may influence the redistribution of surplus edible products. Evidence suggests a higher proportion of those reporting food insecurity eat no fruit or vegetables or are struggling to afford healthy food. Food insecurity and nutritional disparities affect different groups in society more acutely. As such future activities should consider the need for sufficient access to nutritional foods at redistribution outlets.

55. The prevalence of food insecurity among children was higher than among adults: around 11% of children lived in food insecure households in 2016. According to a study conducted by the Trussell Trust in 2019^[15], redistribution of edible food surplus is becoming part of an accepted non-emergency response to alleviating and mitigating food insecurity in the UK.

56. The Trussell Trust found that levels of food insecurity were greater in households with people affected by ill health and disability^[16]. Adults living in food insecure households are more likely to experience poorer mental health and chronic health conditions, such as diabetes, hypertension, arthritis and heart disease.

57. The Trussell Trust identified that women living in a couple with children tend to be more food insecure, on average, than men living in such couples, consistent with key ‘informants’ suggestions that mothers are particularly likely to skip meals or cut down portion sizes so that children have enough to eat^[17].

58. According to the Scottish Health Survey 2018^[18], a quarter (25%) of single parents (predominantly single mothers) reported that they had been worried they would run out of food in the previous 12 months due to a lack of resources. Over three-quarters of these single parents (21%) reported having eaten less than they should, and around half of them (13% of all single parents) said they had run out of food due to a lack of resources.

59. Analysis by ONS shows that there are statistically significant differences in wealth by ethnicity of UK households, even after adjustment for a range of household characteristics including age and household composition^[19] - this can exacerbate food insecurity.

60. There is also a lack of evidence on the availability of culturally appropriate food through redistribution and community food providers. The design of measures to influence redistribution of surplus edible products should ensure sufficient access to culturally appropriate nutritious food at redistribution outlets^[20].

61. The future design and implementation interventions related to this priority which influence redistribution of surplus edible products should consider those who disproportionately experience food insecurity and are dependent upon food assistance.

62. The Scottish Government remains committed to ensuring that household incomes prevent food insecurity.

Product Stewardship

63. Adopting a product stewardship approach to priority products based on evidence-driven criteria may include actions resulting from this priority that impact on those with protected characteristics. It is not possible to assess at this stage where any impacts will occur but all subsequent activities should encourage inclusivity and diversity to avoid bias and generalisations. It should be accessible and ensure perspectives, and experiences represent the breadth of Scottish society.

Research activity, policy development activity and communications activity

64. It is not possible to assess at this stage where any impacts will occur due to research methodologies resulting from Strategy priorities. However, future research activity must encourage inclusivity and diversity to avoid bias and generalisations. It should be accessible and ensure perspectives, and experiences represent the breadth of Scottish society.

65. It is not possible to assess at this stage where any impacts will occur due to policy implementation following research resulting from Strategy priorities. However, future research activity should require a methodology that includes perspectives, and experiences of those with protected characteristics

66. It is not possible to assess at this stage where any impacts will occur due to policy development resulting for Strategy priorities. However, future policy development activity must encourage inclusivity and diversity to avoid bias and generalisations. It should include voices from organisations that represent those with protected characteristics.

67. It is not possible to assess at this stage where any impacts will occur due to communications activity resulting for Strategy priorities. However, future communications activity must be inclusive and suitable for non-English speakers. Large print/braille options will be required – and should meet all required accessibility standards.