Environment Strategy for Scotland: island communities impact assessment

Data and stakeholders

Evidence

Population

The 2022 census data shows that Scotland's population will age in every area to 2043, with the highest percentage reduction in children and the working age population in the islands and remote rural areas^[1].Island communities tend to have an older population when compared to the rest of Scotland^[2]. This makes those island communities more vulnerable to climate change. This is an issue because age is a factor which compounds vulnerability to climate change, and health issues that arise from poorer air quality due to a lack of access to green spaces and poor air quality^[3].

Risks of climate change

The Scottish Islands Data Overview published in December 2023 found that Scotland’s islands have become warmer, and with sea levels projected to rise it could pose a significant risk for the islands in terms of flooding and contamination of freshwater. The publication also found that without significant reductions in the world's carbon emissions, the Scottish islands could see significant sea level rises. Consultation responses also flagged the impact of extreme weather events on island communities and how climate change will increase the number of these extreme weather events.

Access to greenspaces

The Scottish Islands Survey 2023^[4] found that those living in island communities are more likely to have green or blue outdoor space within a 5-minute walk than residents of Scotland as a whole.

Access to waste services

The Scottish Islands Survey 2023^[5] also found that the rates of recycling in island communities, Scottish island local authorities are generally lower^[6] when compared to the rest of Scotland. Additionally, every island local authority generally has a higher carbon impact from waste than the Scottish average.

The survey also found^[7] that island communities are generally very positive about their local environment, and find it easy to recycle waste but litter is a problem in some island regions and it is not always easy to dispose of bulky items.

Most islanders (65%) agreed that their local environment is clean and litter free, however this varies amongst different islands with the Shetland Outer Islands being most likely to report that their local area is clean and litter free (73%) and respondents in Arran, Bute and the Cumbraes are the least likely (53%).

Some consultation respondents noted that islands face higher costs and fewer options for waste and recycling, including limited local facilities and a reliance on mainland transport. Some of these respondents also reported higher burdens from marine litter, including aquaculture and fishing-related materials, with concerns about volunteer fatigue in small communities.

Energy

Generally, every island local authority has a larger proportion of energy inefficient properties than the Scottish average^[8]. This is likely to result in homes being more expensive to heat and increases the risk of fuel poverty, as well as increasing the use of fossil fuel to heat homes.

On the building of renewable energy infrastructure and, due to the close proximity of developments to certain island communities, there may be additional localised opportunities for employment and supply chain benefits. However, some of the possible intended consequences that were referenced in the responses to the consultation included the impact on island communities and the environment from renewable energy expansion.

Transport

Transport costs are significantly higher for Scottish island residents when compared to urban UK transport costs^[9]. Responses to the consultation highlighted the impact on island communities of poor access to services and infrastructure, especially from geographic isolation which could make access to green jobs, training, and environmental initiatives more challenging. Responses suggested that if this is not mitigated against it could potentially limit participation in the benefits of the transition to a green economy. Potential effects on their livelihoods could also be caused by initial increased travel costs which could increase living costs as a consequence of the transition costs.

Biodiversity

A number of consultation respondents also emphasised the unique biodiversity and habitats of the Scottish islands, including machair, Celtic rainforest and globally important seabird populations.

Island communities

Many of the responses to the consultation raised the fragility of island economies and the importance of local control and benefits. These responses warned of the potential risks of losing traditional island economic activities if the unintended consequences of the Strategy are not mitigated against.

Stakeholders

In the preparation of the Environment Strategy, we have engaged with representatives from Island Councils and worked with colleagues across Scottish Government to identify whether there were any potential impacts the Strategy, and its associated priorities and proposals, could have on island communities. Some of these key stakeholders include:

• Scottish Government including the Islands Team
• NatureScot
• Historic Environment Scotland
• SEPA
• Community councils, including those representing island communities
• COSLA
• Local authorities
• Public Health Scotland
• Environmental NGOs
• Business and industry groups

We will continue to work with internal and external stakeholders to help determine the impact on island communities during the implementation and monitoring of the priorities and proposals in the Environment Strategy.

Consultation

As part of our consideration and development of the Strategy, a formal public consultation was carried out. The consultation was launched on Thursday 3 July and closed on Monday 29 September. The consultation was held on the Scottish Government’s Citizen Space website. There were 126 responses submitted to the consultation from individuals and a wide range of organisations. A number of public engagement sessions were also held with stakeholders to discuss the draft Environment Strategy.

The draft ICIA formed part of the public consultation, alongside the draft Environment Strategy, and a question was included in the public consultation to help assess the impact of the Environment Strategy on island communities. The summary below provides a detailed view of the responses that were provided on the draft ICIA. The full analysis of the consultation can be found here.

Consultation responses

Just over half (55%) of those answering Q17 felt there could be additional impacts on island communities that are different from the impacts on mainland areas from the draft Environment Strategy, which have not been identified in the draft ICIA.

Additional comments on the draft ICIA were provided by 22 respondents. Many highlighted infrastructure and connectivity, as well as economic resilience and local benefits, as the most prevalent themes. Other recurring themes included exposure to climate impacts, the cost of living and fuel poverty, waste and circular economy logistics, community capacity and participation, biodiversity and heritage, and sector-specific considerations.

Infrastructure and connectivity

The most prevalent theme concerned the transport and infrastructure constraints faced by island communities. Respondents noted heavy reliance on ferries and air services, higher transport costs, weather-related disruption, gaps in electric vehicle charging and digital connectivity. It was felt that mainland models for active travel and public transport may be unrealistic in some island settings without tailored approaches.

Economic structure and local benefit

The second most prevalent theme, raised by many respondents, related to the fragility of island economies and the importance of local control and benefits. Respondents were concerned that land reform, large-scale rewilding or decarbonisation could reduce traditional activities without viable alternatives, and that islands risk being used primarily as carbon offset locations or to generate energy that is sent elsewhere. Several respondents cautioned that green energy schemes leasing land to external firms without clear community benefit could disempower islanders, and asked that policies support population retention, local ownership models and economic sovereignty. Several respondents highlighted that community-led energy projects could be an opportunity, provided they retain local value.

Many respondents noted that the prominent economic sectors in rural areas faced specific challenges. Several respondents highlighted the challenges faced by the seafood sector, including cumulative regulatory and spatial pressures, higher logistics costs and the importance of stable year-round employment in coastal and island communities. Some respondents highlighted similar challenges for farming and crofting, recommending support for farmers to adopt nature-friendly practices, diversify, and access local markets. Some respondents highlighted the potential for job creation in marine-based renewables, conservation and nature-based tourism. They highlighted the importance of opportunities for young people to remain in or return to islands, including training and green skills pathways linked to local projects.

Climate impacts and adaptation

Several respondents highlighted disproportionate exposure to sea level rise, coastal erosion and extreme weather on islands. They supported place-based adaptation strategies that protect settlements, heritage and tourism-dependent landscapes. Some respondents raised concerns about perceived trade-offs between large energy or grid projects and valued scenery and nature-based recreation, with implications for wellbeing and tourism.

Cost of living, fuel poverty and energy efficiency

Several respondents described how island homes can be less energy-efficient and face higher energy costs, thereby increasing the risk of fuel poverty. Some respondents highlighted grid fragility and noted that modern stoves can provide resilience when the electricity supply is unreliable. A few respondents requested targeted support for affordable and reliable heating in island settings.

Waste and circular economy infrastructure

Several respondents noted that islands face higher costs and fewer options for waste and recycling, including limited local facilities and a reliance on mainland transport. They reported higher burdens from marine litter, including aquaculture and fishing-related materials, with concerns about volunteer fatigue in small communities, and asked for ring-fenced support for clean-up capacity and practical disposal routes. Some respondents supported investment for on-island consolidation and reprocessing pilots, as well as realistic waste and recycling logistics where anaerobic digestion or energy-from-waste facilities are not available locally. A few respondents noted data gaps and underrepresentation of islands in national marine monitoring, and requested improved island-specific monitoring to inform policy.

Biodiversity and heritage

Some respondents emphasised the unique biodiversity and habitats of Scottish islands, including machair, Celtic rainforest and globally important seabird populations. They cautioned that otherwise positive actions can have unintended effects in sensitive island environments, and asked that the ICIA reflects these potential “green on green” tensions.

Views on the draft ICIA

Several respondents considered the Strategy too broad to assess confidently without fuller cumulative analysis for islands. Some respondents disagreed with the view that a full ICIA is not required, citing different costs and delivery realities for island settings. They requested island-tailored scenarios, clearer modelling of transport and logistics, and greater consideration of island-specific data and monitoring. Respondents suggested that the challenges faced by rural communities merit consideration in equality assessments, with the recommendation that the Scottish Government apply the Rural Assessment Toolkit to the Environment Strategy.

Mitigation

Several respondents suggested measures, including ring-fenced funding for island infrastructure and services, rural and island-specific scheme payment rates, community benefit and local ownership clauses for energy projects, targeted support for farmers, crofters, and seafood SMEs, improved ferry reliability and digital connectivity, and practical solutions for waste and marine litter. Some respondents called for sustained engagement, youth pathways into green skills, and island-specific monitoring to track impacts over time.