First Minister's Environmental Council minutes: May 2025

Attendees and apologies

• First Minister, John Swinney MSP– from 12:15 -12:45 (for items 2 and 3 only)

• Ms Martin MSP, Cabinet Secretary, Net Zero and Energy (for items 2-3 only)
• Ms Gougeon MSP, Cabinet Secretary for Rural Affairs, Land Use and Islands (for items 2-3 only)
• Mr Fairlie MSP, Minister for Agriculture and Connectivity (for items 2-3 only)
• Dr Allan MSP, Minister for Climate Action (for items 2-3 only)

Council Members:

• Professor Sir Ian Boyd (FMEC Co-Chair) (in person)
• Professor Ian Bateman OBE, Director of Land, Environment, Economics and Policy Institute, University of Exeter Business School (in person)
• Dr Jocelyn Blériot, Executive Officer of Ellen MacArthur Foundation (in person) 
• Ms Susan Davies FRSB, Chair of James Hutton Institute Board (in person)                                   
• Dr Leslie Mabon, Open University, Associate member (in person)
• Professor Yadvinder Malhi, CBE FRS, Professor of Ecosystem, University of Oxford and a Jackson Senior Research fellow at Oriel College, Oxford (in person)
• Dr Toby Park, Head of Energy and Sustainability at the Behavioural Insights Team (BIT) (in person)                                      
• Dr Dilys Roe, Principal Researcher and Team Leader (Biodiversity) and Chair, IUCN Sustainable Use and Livelihoods Specialist Group (SULi), International Institute for Environment and Development (IIED) (in person)
• Professor Pete Smith FRS, FRSE, FNA, FEurASc, FI Soil Sci., FRSB, Professor of Soils and Global Change, University of Aberdeen (in person)                   
• Professor Peter Haugan, Professor of Oceanography, Geophysical Institute, University of Bergen, and Programme Director at Institute of Marine Research (IMR), Norway (online)
• Dr Ece Özdemiroğlu, founding director of Economics for the Environment Consultancy (eftec) (online)
• Professor Jo House, Professor in Environmental Science and Policy, University of Bristol (online)
• Professor Sandra Diaz, National University of Cordoba, Argentina (online)

Apologies

• Gordon Buchanan MBE, award-winning wildlife cameraman and presenter

Officials

• Professor Mathew Williams, Chief Scientific Adviser for Environment, Natural Resources and Agriculture
• Professor Mark Inall, Chief Scientific Adviser Marine
• Diarmuid O’Neill, Director Environment and Forestry
• George Burgess, Director Agriculture and Rural Economy
• Simon Fuller, Deputy Director RESAS
• Tim Ellis, Deputy Director Future Environment (for Environment Strategy)
• Charles Stewart Roper, Future Environment (for Environment Strategy)
• Anne Aitken, Deputy Director Environmental Quality and Resilience
• John Kerr, Head of Agriculture
• Philip Raines Deputy Director Climate Change (online)
• Katie Bartholomew/officials, Behavioural Insights Team
• Eann Munro, deputy Chief Scientific Adviser for Environment, Natural Resources and Agriculture, Head of the FMEC Secretariat, RESAS
• FMEC Secretariat - Anna O’Connor
• FMEC Secretariat - Natalie White

Items and actions

Welcome and Introductions

The Co-chair Prof. Sir Ian Boyd welcomed members to the nineth meeting of the First Minister’s Environmental Council. 

Eann Munro, deputy CSA ENRA noted the publication of the FMEC scenarios report:scenarios for a resilient net zero and nature-positive Scotland in 2045.

FMEC members discussed ways of sharing FMEC advice over the coming year. Sir Ian noted that the current term of Council would conclude following the Scottish parliamentary election in May 2026 and it was suggested a summary report detailing the Council’s work during their term could be a helpful legacy of the group.

ACTION: FMEC Secretariat to consider opportunities to share FMEC advice and set out a work plan for the remainder of 2025/26.

First Minister Welcome

Sir Ian welcomed First Minister and Ministerial colleagues to the meeting.

First Minister thanked the Council for the work that had been undertaken since their last meeting.  First Minister also reflected that since Council last met there has been an increasing push back both in the UK and globally against climate action and noted that a significant range of challenges must be addressed in winning public confidence and parliamentary support for the measures that we are undertaking.

FMEC Advice ‘Opportunities for Addressing the Climate and Nature Crises’.

Sir Ian summarised eight specific actions that FMEC suggested could suit Scotland’s circumstance and needs to meet Net Zero, thriving nature and the Just Transition. These actions relate to land use, heat in buildings and transportation. He also noted that Council had welcomed First Minister’s recent announcement for a three-year programme of national, land LiDAR scanning.

Sir Ian then handed over to Professor Ian Bateman and Dr Toby Park who summarised the two key recommendations which were to:

1. reform agricultural support to relieve rural poverty and enhance the environment. 
2. deploy widespread behaviour change approaches to accelerate climate change mitigation and adaptation.

Professor Bateman summarised the first recommendation on agricultural reform. FMEC recommend Scottish Government target a greater share of support payments at smaller and most vulnerable farming and crofting communities.  In addition, FMEC suggest that Scottish Government target budgets towards high environmental benefit schemes and support for farmers and land managers who farm uneconomic and unproductive land to return the land to nature. FMEC also support development of new rural employment opportunities in nature-based jobs via re-skilling.

Dr Park then summarised the second recommendation noting that the Scottish Government places a stronger focus on evaluating, designing and implementing behaviour change approaches in policy making. A consistent focus is required to (i) evaluate current policy and identify behaviour blocks and solutions around impact and delivery; and (ii) work with policy teams to shape and enable new policy delivery with a whole systems approach. Broad engagement on behaviour change is needed to ensure that delivery of multiple policies is coherent and supportive, and addresses mitigation, adaptation and nature recovery simultaneously.  He highlighted the Four A's approach (Awareness, Acceptance, Access and Adoption).

First Minister thanked colleagues for their summary of the Council’s recommendations.  He commented that agricultural policy was a challenging issue, and Ministers were actively engaged in conversations with stakeholders to see how we can make progress.  Agricultural subsidies are required to support the industry and rural communities but how we deploy those to meet all our objectives must be done carefully.  First Minister then noted that the recommendations on behaviour change insights were particularly timely as Ministers would be introducing a Heat in Buildings Bill, setting targets for installing clean heating systems by 2045. Deploying behaviour change insights into our mainstream policy agenda could help us improve the pace of delivery. 

Sir Ian thanked First Minister for his thoughts.  He noted that some of the recommendations may seem radical but noted that much of this can be tapered. 

First Minister left the meeting.

Sir Ian opened the meeting to discussion and the following key points were noted:

Agricultural Reform

• The potential to consider Scottish specific case studies on each of the actions proposed was discussed.  Professor Bateman noted that more examples were available on the agricultural payments recommendation but not at a Scotland level and he would be pleased to assist developing this

• Mr Fairlie, Minister for Agriculture and Connectivity, noted SG had introduced new measures aimed at promoting biodiversity, supporting climate mitigation and adaption and most importantly ensuring rural communities are able to thrive.  The new Agriculture and Rural Communities (Scotland) Act 2024 provides the framework for supporting agriculture, rural communities, and the rural economy in Scotland.  It will allow increased flexibility and tapering
• Professor Bateman agreed that it was essential that we support rural communities and noted that the recommendation was not about removing the direct payment but rather reallocation of the payment in a more targeted way
• Colleagues discussed value for money and Mr Fairlie noted that food resilience must be front and centre and that we have to ensure that rural communities are supported and able to thrive
• FMEC agreed that the big farms/businesses were vital to the rural economy and many were developing innovative practises that would support our climate and nature objectives
• Officials noted that when considering value for money the ‘Scottish Public Finance Manual’ was a key component in driving policy in Scotland
• Minister’s noted FMEC advice and agreed that it would be helpful to present their recommendations to the Academic Advisory Panel (AAP) which supports the Scottish Government Agriculture Reform Implementation Oversight Board (ARIOB), to gather their expert opinions

ACTION – Professor Williams agreed to invite Professor Bateman to attend the ARIOB AAP to present the FMEC recommendations around Agriculture Reform for discussion.

Behaviour Change and Incentive Design

• Dr Allan, Minister for Climate Action, noted interest in the behavioural insights techniques including “nudges” which could help in the transition to Net Zero and particularly cleaner heating systems.  Ministers noted they were particularly interested in ways of supporting the transition without exacerbating the cost of living for families already struggling financially
• Ministers commented that one of the most important phrases they had heard mentioned during the presentations was “incentive design”, how can we incentivise people/businesses to changes their behaviour
• Council suggested that there were also opportunities to consider upstream incentives e.g. to support manufacturers to do more to reduce costs for the consumer, making it easier/more affordable to change from a gas boiler to a heat pump.  It was noted however that control of some of these upstream mechanisms are reserved and out with the control of the Scottish Government
• Dr Park noted that actions could also promote positive change were about encouraging individuals to plan ahead and prepare for the transition. Change comes from awareness and communication, including resolving misconceptions and promoting better understanding about new technologies
• Officials noted the SG Climate Behaviours team continue to support and train other policy teams in applying behavioural science to climate policymaking. Projects include work to support more farmers to plant trees, and work to support flood-risk communities to prepare themselves for extreme weather

Investment in Natural Capital

• A FMEC member agreed about the importance of incentive design and suggested that the agricultural payments system was in effect incentive design.  She mentioned that another area where Scotland could take leadership was with green finance and private investment in nature.  She noted that this is another area where we need to incentivise private actors, investors and companies to invest in nature
• She commented that there had been very good work done by Scottish Government in publishing the ‘Natural Capital Market Framework’ however investors were slow to act. The member suggested that one of the ways to get over this blockage was to show decisive, consistent and sustained political leadership and provide political messaging. She commented that we need private investment into nature to reduce pollution, to reduce the impacts of climate change, to enhance biodiversity etc. The private sector depends on nature to maintain their own financial sustainability
• FMEC agreed that this was very important for Scotland; private investment in nature can provide important community benefits and Scotland already has a well-developed finance sector that could be a world leader in green finance and nature markets

Concluding remarks

• Ministers noted that they would encourage further conversations with Council on these issues and agreed smaller focused sessions with Minister’s and/or officials would be valuable - how can we make these difficult policy decisions around climate and the environment palatable and deliverable

Sir Ian concluded the session and Ministers thanked Council for a very positive discussion.

Environment Strategy

Officials presented an overview of the draft Environment Strategy.  They explained that it will set out a holistic framework for delivering Scotland’s role in tackling nature loss, climate change and pollution.  It was noted that the Strategy builds on the ‘Vision and Outcomes’, published by the Scottish Government in February 2020.

Sir Ian thanked officials for their presentation and invited Professor Pete Smith to lead the feedback and discussion with Council.  The following key points were raised:

• FMEC members supported the draft Strategy’s holistic approach and alignment with the Intergovernmental Science-Policy Platform on Biodiversity and Ecosystem Services (IPBES) principles
• Members approved the level of ambition in the document and supported the inclusion of rights and trade-offs, and that these should be extended to overseas. Members noted the need for honesty in the strategy, as compromises will be inevitable
• Members suggested that it would be helpful to have a theory of change diagram for the strategy which would set out how the high-level objectives/outcome pathways link to the delivery mechanisms
• Members welcomed the inclusion of the Marine Environment in the Strategy
• Members emphasised the importance of community engagement and timing engagement effectively.  It was suggested that the Strategy could also further showcase successful community led initiatives
• Members also welcomed the inclusion of the role of art and culture in the Strategy and suggested expanding on this further
• FMEC encouraged transparent data sharing to build trust and comparability of indicators across sectors to support trade-off analysis
• Members warned against unintended consequences, advocating for improved regulation, incentives, and decision support tools
• Members concluded the document was currently very long and suggested a hierarchical structure with key messages separate from annex details

Sir Ian thanked members for their comments and feedback, which would be shared in detail with the policy team. 

AOB

A FMEC member asked for an update on the progress with the National Marine Plan 2 following the FMEC advice on national marine planning.  Secretariat colleagues agreed to seek an update from the relevant policy officials.

A FMEC member highlighted the ‘Young Sea Changers Scotland’ commission to create a Youth Manifesto for Scotland's seas ahead of the election and requested an opportunity at a future FMEC meeting for the team leading this to present their findings to the Council.  Sir Ian thanked the member for these details and noted that we would try to accommodate this excellent suggestion.

Sir Ian thanked colleagues for their contributions and closed the meeting