National Islands Plan

Connectivity

Transport and digital connectivity are fundamental to the social, economic and cultural life of Scotland’s islands. They help to mitigate the challenges of distance and improve equity of access for islanders.

A combination of ferry services, aviation and fixed links provides transport connectivity to and from Scotland’s islands. These services are lifelines for islanders and their economies, supporting two-way access to public services, supplies, jobs and markets, and enabling people to reach facilities not available locally.

A reliable, well-integrated transport system is essential to sustaining and growing island populations. For “islands off islands” – those that rely on multiple travel stages to reach the Scottish mainland – the challenges are even more complex, with higher costs, longer journeys, and fewer alternatives when disruption strikes.

Islanders are known for their resilience and ability to plan ahead. Yet, extended periods of disruption to transport services can have far-reaching impacts. Essential supplies – from food and medicines to fuel and perishable goods – are particularly vulnerable, affecting households, businesses and communities alike. Climate change is expected to bring more frequent and severe weather events. This will place additional pressure on the ability to maintain reliable services in the years ahead. Much of the current transport infrastructure is also ageing and substantial investments are underway to improve resilience and efficiency across networks.

Published in May 2025, the Islands Connectivity Plan (ICP) Strategic Approach sets out the Scottish Government’s vision for ferry services that are safe, reliable, affordable and inclusive. Alongside it, the Vessels and Ports Plan provides a long-term investment roadmap for renewing the fleet and upgrading port infrastructure for the Clyde and Hebrides (CHFS) and Northern Isles Ferry Services (NIFS) networks. The Scottish Government’s Aviation Statement (2024), meanwhile, recognises the importance of air services in linking island communities to the mainland, opening onward travel opportunities within Scotland, across the UK and internationally.

The transport sections of this Plan build on the commitments outlined in the documents above, fostering greater coordination and driving forward a shared ambition for prosperous, sustainable, and well-connected island communities.

With more public and private services available online, digital connectivity can reduce the need to travel and increase equity of access for island residents. Fast and reliable digital connectivity is also a driver of economic growth, opening new markets to businesses of all sizes and supporting individual opportunities for remote working.

Although responsibility for telecommunications rests with the UK Government, ongoing Scottish Government investments in digital infrastructure have contributed to significant improvements in broadband and mobile coverage across many island areas. This is reflected in the largely positive feedback from respondents to the Scottish Islands Survey 2023^[9]. However, gaps and “not-spots” remain, underlining the need for continued effort to extend infrastructure and improve digital access further.

The knowledge, lived experience and priorities of islanders are crucial to delivering effective connectivity – whether by sea, air, road or online.

Ferries

The ICP is the Scottish Government’s principal policy document on island transport connectivity, with a priority focus on delivering reliable and resilient ferry services across the CHFS and NIFS networks.

Table 2 offers an overview of planned investments in the renewal of the Government-owned ferry fleet, with additional details available in the Vessels and Ports Plan. Six new major vessels for the CHFS network are in delivery, with the MV Glen Sannox entering service on the Arran route in January 2025. Through Caledonian Maritime Assets Limited (CMAL), work is also progressing on seven new fully electric small vessels, due to be introduced from 2027 onwards.

For the NIFS network, the procurement of two new freight flex vessels is now underway to replace the MV Helliar and MV Hildasay, enhancing capacity and reliability for both goods and passengers.

Taken together, these investments will replace over a third of the 40 vessels currently serving CHFS and NIFS routes.

This National Islands Plan is underpinned by a firm recognition that each island is unique. It follows that transport connectivity needs also differ from island to island, and can shift over time. Through the ICP, we have committed to completing Community Needs Assessments for every route in the CHFS and NIFS networks. The intention is that they will be refreshed every five years to maintain an up-to-date picture of local transport needs and the options for addressing them.

Island local authorities face similar challenges in renewing their ferry fleets and infrastructure. While developing investment cases and securing funding options is the responsibility of each council, Scottish Ministers have provided targeted support where possible. This has included the establishment of Ferry Taskforces in partnership with Orkney Islands Council and Shetland Islands Council. In 2025-26, both local authorities received a one-off allocation of £10 million to support inter-island connectivity projects, in addition to funding provided through the Local Government Settlement. Separately, Orkney Islands Council was awarded £3 million to pilot two electric ferries and progress the business case for renewing its inter-island fleet.

We will provide advice and practical support to local authorities to help them progress their fleet replacement plans.

Consultation feedback for this Plan was clear: alongside infrastructure upgrades, islanders want a stronger voice in shaping transport services. In particular, respondents called for more island representatives to sit on the boards of public ferry bodies. The Scottish Government supports this, and Ministers have agreed that the process of appointing new board members must place greater emphasis on attracting skilled and experienced applicants from island communities.

The direct award of the new CHFS contract to CalMac, effective from October 2025, provides a unique opportunity to place communities at the centre of service delivery. Under the new contract, the Ferries Community Board – facilitated by CalMac and made up of islanders from across the CHFS network – will play a key role in representing communities and informing strategic decisions.

For the NIFS network, a public consultation on the next contract (NIFS4) closed in October 2025, and its findings will help inform the development of the forthcoming contract. This process reaffirms our continued commitment to the provision of ferry services under the NIFS contract.

We will work with public bodies delivering ferry services and infrastructure to improve and increase the reach of Board appointment campaigns amongst island communities and strengthen residency criteria for future positions. Under the new Clyde and Hebrides Ferry Services contract, we will work with the Ferries Community Board to further increase its role and voice.

* Decisions on deployment plans, cascading and disposal of existing vessels remain under review.

** It is expected these routes will be served by vessels redeployed from other parts of the network as a result of new vessels entering into service.

Accessibility remains a priority across the transport network, going beyond baseline legislative compliance. A new Ferries Accessibility Standard will provide guidance on physical and mental accessibility requirements for ferry services, including vessel and port design. It will also shape the objectives of a new Islands Transport Accessibility Fund, which will support improvements across ferries and aviation infrastructure.

We will publish the Ferries Accessibility Standard in 2026 and open a new Islands Transport Accessibility Fund whose remit will include both ferries and aviation infrastructure.

The introduction of the Road Equivalent Tariff (RET) has made ferry travel more affordable across most of the CHFS network. An evaluation of the rollout of RET reported that average fares fell by around 34% for passengers and 40% for cars, saving ferry travellers around £25 million per year^[10].

In line with the ambitions of this Plan, we have already taken tangible steps to support young islanders and their families. From June 2025, we expanded eligibility for the concessionary ferry vouchers scheme so that all island residents aged 16-21 can make four free journeys per year between their island and the Scottish mainland. This change increased the number of eligible island card holders to around 30,000.

In April 2025, we also introduced free inter-island ferry travel for under-22 residents in Orkney, Shetland and Na h-Eileanan Siar, making it easier for young people to access education, training, employment, and social opportunities.

We will monitor and evaluate the uptake and impacts of the new under-22s concessionary ferry travel schemes and consider potential enhancements.

Maritime freight remains the backbone of island supply chains, enabling the movement of goods and services to, from, and between islands. Most regular freight is carried by commercial road vehicles on subsidised ferries, meaning deck space can become constrained during peak periods. Procurement of new vessels has taken these needs into account. In addition, where feasible and affordable, additional sailings are provided to help manage seasonal spikes – for example, during livestock sales.

In 2025-26, we have allocated £4.4 million through Highlands and Islands Enterprise (HIE) to help some island businesses recover from service disruption, with support focusing on sectors that are especially vulnerable – such as tourism and the transport of perishable goods, including seafood.

Looking ahead, the economic opportunities emerging in island areas – from renewable energy projects and the food & drink industry to the expansion of the aquaculture and space sectors – require long-term consideration of maritime freight capacity. In some cases, peaks in demand linked to new developments will exceed the capacity of regular ferry services.

We recognise that subsidised commercial vehicle fares are important for island economies, whose business bases largely comprise small and micro enterprises. At present, these subsidies are available to all businesses, regardless of size, turnover or profitability.

In line with recommendations from the Scottish Parliament’s Net Zero, Energy and Transport Committee^[11], the ICP commits us to reviewing the future role of subsidised ferry services in providing freight capacity – particularly where they support profitable investment. This review will explore how subsidies can be better targeted to maximise value for money, strengthen the sustainability of services, and ensure that public funding delivers the greatest benefit to island businesses and communities.

We will explore options to support island businesses, including alternatives to the current ferry freight fare subsidies, to identify approaches that offer better value for money and respond more directly to business needs, remaining cognisant of the higher costs of doing business on islands.

Aviation

Air connectivity enables rapid access to healthcare, education and business opportunities, and links islanders to the wider world. For some islands, aviation links can be as critical as ferry services in ensuring communities remain connected and resilient.

The Scottish Government’s Aviation Statement sets out actions to improve the efficiency of airport operations and strengthen air services across the Highlands and Islands region. It also commits to exploring the environmental, social and economic benefits of emerging aviation technologies, including hydrogen and electric aircraft, which are expected to be used first on routes in the Highlands and Islands.

While most air services operate on a commercial basis, the Scottish Government continues to subsidise the Glasgow to Tiree and Barra routes, recognising their essential role for local communities. Local authorities provide separate funding for specific routes within their areas through Public Service Obligations. The Scottish Government also continues to deliver the Air Discount Scheme (ADS), providing significantly reduced fares for residents of Orkney, Shetland, Na h-Eileanan Siar, Colonsay, Islay, and Jura. In 2024-25, over £13.5 million was invested in the scheme.

Findings from the 2023 Scottish Islands Survey show that concerns remain over air fares for both inter-islands routes and mainland connections. The Aviation Statement commits to reviewing the ADS to ensure it is fair, effective and offers better value for money.

Further Scottish Government investment in 2025-26 is helping to make air travel more accessible. This includes funding for a third aircraft in Orkney and the deployment of a larger aircraft on the Stornoway–Benbecula route to address healthcare transport pressures.

We will work with the UK Government to implement a Highlands and Islands exemption to the Air Departure Tax that protects connectivity and complies with the UK Government’s subsidy control legislation. We will engage with island communities and stakeholders to inform further policy development as we progress towards implementation.

Fixed Links

The Scottish Government recognises the transformative role that fixed links – tunnels, bridges and causeways – can play in improving island connectivity. By removing the constraints of weather, increasing capacity, and reducing travel times, fixed links can deliver lasting benefits for communities, businesses, and visitors alike.

Within the CHFS and NIFS networks, the second Strategic Transport Projects Review (STPR2) has recommended further assessments in relation to three potential links:

• Sound of Harris – linking the Uists and Harris/Lewis
• Sound of Barra – linking Barra and the Uists
• Mull and the Scottish mainland

Working closely with island communities, local authorities and partners, we will take forward detailed appraisals for the three potential fixed links identified in STPR2.

Public engagements for this new National Islands Plan have shown that views on new fixed links vary. While some see them as transformative opportunities, others prefer to prioritise investment in existing transport modes. The perspective of islanders will therefore remain central to guiding our work in this area.

Potential fixed links outside the CHFS and NIFS networks fall under the responsibility of local authorities. For example, Shetland Islands Council’s Inter-Island Transport Connectivity Programme is considering the viability of options for new connections to Bressay, Unst, Whalsay and Yell within their Network Strategy business case.

The Scottish Government’s position is one of pragmatic support. We recognise the significant upfront costs involved but also the benefits that could be delivered through increased fixed links infrastructure.

We will support local authorities’ exploration of financing models and promote investment opportunities in fixed links projects.

On-Island Travel and Integration

Public engagement for this Plan highlighted that on-island public transport remains limited in many areas. This can leave residents reliant on private vehicles and limit younger islanders’ access to social events and job opportunities^[12].

Although the picture varies between islands, and recognising that it is for local transport authorities to identify need, overall bus usage remains below the Scottish average, and integration between different transport modes continues to be flagged as an area for improvement^[13].

Transport Scotland’s Bus Infrastructure Fund provides direct awards to local authorities to improve the quality and accessibility of bus services, including by supporting integration with other modes of transport. Under a new tiered model, island local authorities are allocated a top-up in recognition of the unique demographic and geographic challenges they face.

Offering a similar island “premium”, Transport Scotland’s Active Travel Infrastructure Fund (ATIF) supports projects that make walking, wheeling and cycling easier for everyday journeys. In 2024-25, for example, ATIF awarded Orkney Islands Council £200,000 for the Weyland Bay Coastal Path project in Kirkwall, creating a new segregated off-road footway and cycle path.

We will support partners to deliver sustainable infrastructure elements of the Stornoway, Tarbert (Harris), Lochmaddy, Lochboisdale, Castlebay and Kirkwall Active Travel Masterplans, with a focus on where these align with supporting integrated journeys at ferry terminals. We will also support partners to deliver sustainable transport masterplans for Bowmore and Tobermory.

We will work with Orkney Islands Council and Historic Environment Scotland to complete the Stenness Movement Study (Maeshowe – Stones of Stenness – Brodgar corridor) as part of the Orkney World Heritage Site Programme within the Islands Growth Deal. This will support the development of a heritage-sensitive sustainable travel plan, with insights and learning shared with other island communities.

Better integration of timetables, ticketing and fares remains a key priority. We are working with partners to strengthen multi-modal connections at ferry terminals and to improve smart and integrated ticketing.

In late 2024, we launched a new Traveline Scotland website and app, offering enhanced information on fares, tickets, carbon emissions, and timetables. Work is underway with ferry operators to further develop this service, including improved passenger facilities and real-time location data to support journey planning. In the same year, ferry concessions in Orkney and Shetland moved from paper vouchers to a smart platform, making tickets easier to access and eliminating the inconvenience of lost or damaged passes. Work is now underway to extend this improvement to Na h-Eileanan Siar.

Together, these investments and initiatives will make it easier for islanders to plan journeys, encourage more people to choose public transport and active travel, and help reduce reliance on private vehicles.

We will deliver smart, interoperable ticketing and better travel data for island passengers, including support for multi-modal and concessionary travel, in partnership with the National Smart Ticketing Advisory Board.

Electric Vehicles

Scotland has one of the most comprehensive electric vehicle (EV) charging networks in the UK. Many islands have benefited from this expansion, with community groups also playing an important role in installing chargers as part of wider decarbonisation efforts.

In August 2025, we announced an additional £3 million to help councils in Argyll and Bute, Orkney, Shetland and Na h-Eileanan Siar work with the private sector to further expand their public EV charging networks. Recognising that private investment can be harder to secure in areas with lower traffic volumes and higher grid connection costs, a further £4.5 million has been made available through the Rural and Island Infrastructure Fund to support rural and island businesses, landowners and charge point operators.

The growing pipeline of renewable energy projects hosted – and in some cases owned – by island communities also offers opportunities to support further expansion of EV charging infrastructure.

We will support the expansion of the public EV charging networks, providing reliable, accessible infrastructure in the right places for visitors and residents.

Digital Connectivity

Today, the majority of premises in all island local authorities have access to fast broadband, with figures ranging from 84% in Orkney to just under 100% in North Ayrshire for access to fixed superfast broadband^[14]. By contrast, in 2014 only 4% of premises in Argyll and Bute had access, and there was no coverage at all in Orkney, Shetland or Na h-Eileanan Siar^[15].

Much of this progress has been delivered through Scottish Government programmes – from the legacy Digital Scotland Superfast Broadband (DSSB) rollout to the current Reaching 100% (R100) programme. The Scottish Broadband Voucher Scheme (SBVS) complements R100 by offering subsidies of up to £5,000 for premises not included in commercial or R100 contract build plans. As of the end of November 2025, over 8,000 connections have been delivered across 42 islands through a combination of R100 contracts and SBVS support.

To date, the R100 programme has laid 16 subsea cables for a combined length of around 224 kilometres. They will enable over 12,000 premises on 15 islands^[16] to be connected to full fibre broadband.

Alongside this, the Scottish Government is playing a leading role in delivering Project Gigabit procurements in Scotland, using UK Government funding. This creates opportunities to align R100 and Project Gigabit delivery, maximising efficiency and coverage for island communities.

Despite these gains, challenges remain, and some island premises continue to experience slow or unreliable internet connection. In the Scottish Islands Survey 2023, residents of Orkney’s and Shetland’s Outer Islands were among the least likely to be satisfied with their internet service.

We will carry out a mapping exercise to monitor broadband delivery, identify gaps in gigabit-capable coverage, and inform discussions with industry and UK Government on future digital connectivity investments for islands.

We will aim to align delivery of our Reaching 100% (R100) contracts with Project Gigabit contracts to maximise island coverage. In Spring 2026, we will announce the outcome of the regional Project Gigabit procurement to further extend gigabit-capable broadband coverage to over 13,000 eligible premises across Orkney and Shetland.

The Scottish Government has strengthened island mobile coverage through the award-winning Scottish 4G Infill programme (S4GI), which has delivered 17 new masts on 11 islands – including Bruray (Skerries), North Uist and Stronsay. Work is ongoing to increase the number of mobile network operators using S4GI sites, giving island residents and businesses greater choice and resilience in their service providers.

The programme has also provided a head start for the UK Government’s Shared Rural Network initiative, which aims to extend mobile coverage even further into rural and island areas. Despite these improvements, further expansion is required, and existing mobile infrastructure on islands can experience capacity pressures due to increased customer demand – for example, during peak visitor seasons.

Case Study - S4GI Delivery in Ardlussa (Jura)

The 2024 evaluation of the Scottish 4G Infill Programme found that improved connectivity boosted community wellbeing through greater connectedness, safety, and resilience.

Delivering this infrastructure is often logistically challenging. The erection of a new mast in Ardlussa (Jura) required the construction team to navigate fragile roads and create a new access track to the site. Together with materials shipped from Islay, contractors used local resources, reducing the carbon footprint of the project and benefiting the island’s economy.

The enhanced coverage has enabled the local GP practice to adopt a modern digital phone system, making patient contact more reliable. Crucially, the mast now provides coverage at the helicopter landing site used for emergency transfers to mainland hospitals – previously a communications blackspot – allowing the practice to stay in direct contact with ambulance control and track movements in real time.

We will take forward a programme of trials to support our understanding of viable technologies and commercial models that have the ability to improve mobile coverage in unserved and underserved areas. This will include trialling the deployment of small cells as a method of addressing coverage gaps.

Improved infrastructure alone is not enough. To benefit all islanders, enhanced connectivity must be matched by investment in digital literacy, helping people who are less confident with technology to build the skills they need. By increasing digital confidence, we can unlock new economic opportunities, improve access to public services, and reduce social isolation.

We will roll out digital skills training in island communities, beginning with a pilot tailored on the farming and crofting sectors to improve confidence in using the rural payments portal.