Rural Support Plan (RSP)

Matters Considered

Section 3 of the ARC Act specifies matters that the Scottish Ministers must have regard to when preparing this Plan.

This section therefore considers how Ministers have had regard to those matters, but it is not intended to be a comprehensive description of all the matters to which Ministers have had regard when preparing the Plan.

1. The objectives set out in section 1

The objectives of Scottish agricultural policy are specified in section 1 of the ARC Act as being:

(a) the adoption and use of sustainable and regenerative agricultural practices,

(b) the production of high-quality food,

(c) the promotion and support of agricultural practices that protect and improve animal health and welfare,

(d) the facilitation of on-farm nature restoration, climate mitigation and adaptation, and

(e) enabling rural communities to thrive.

The sections of this Plan on “Strategic Outcomes and Strategic Priorities”, “Overview of Support” and “Monitoring and Evaluation” explain how the ARC Act objectives are incorporated within the ARP Strategic Outcomes, and how those outcomes form the basis for the monitoring and evaluation framework for the overall agricultural reform programme, the four Tiers, and the individual support schemes.

The objectives will be at the heart of any new support schemes that are introduced during the Plan period.

2. The proposals and policies contained in the climate change plan which relate to agriculture, forestry and rural land use

Ministers have had regard to the Scottish Climate Change Plan update (CCPu) for 2018 to 2032 when preparing this Plan.

The CCPu sets out Scottish Government’s approach to delivering a just and green recovery and pathway to delivering net zero. It sets out policies and proposals to reduce emissions from key sectors of the economy from 2018 to 2032 as part of the transition to net zero by 2045, including policies and proposals relating to agriculture and land use, land use change and forestry.

The CCPu sets out how the Scottish Government will reduce emissions from agriculture under six outcomes:

• Outcome 1: A more productive, sustainable agriculture sector that significantly contributes towards delivering Scotland’s climate change, and wider environmental, outcomes through an increased uptake of climate mitigation measures by farmers, crofters, land managers and other primary food producers.
• Outcome 2: More farmers, crofters, land managers and other primary food producers are aware of the benefits and practicalities of cost effective climate mitigation measures.
• Outcome 3: Nitrogen emissions, including from nitrogen fertiliser, will have fallen through a combination of improved understanding, efficiencies and improved soil condition.
• Outcome 4: Reduced emissions from red meat and dairy through improved emissions intensity.
• Outcome 5: Reduced emissions from the use and storage of manure and slurry.
• Outcome 6: Carbon sequestration and existing carbon stores on agricultural land have helped to increase and maintain our carbon sink.

The Scottish Government published a draft Climate Change Plan (CCP) for 2026 to 2040 on the 6 November 2025, which is intended to replace the CCPu. The final CCP 2026-2040 is expected to be laid before the Scottish Parliament elections. The draft CCP sets out policies and proposals for agriculture under five key outcomes:

• Outcome 1: A more sustainable and regenerative Scottish agriculture sector that contributes to delivering Scotland's climate change targets and wider environmental outcomes while continuing to produce high quality, nutritious food.
• Outcome 2: More farmers and crofters have the skills, knowledge and opportunity to implement climate change measures, continuing to produce high quality, nutritious food.
• Outcome 3: Soil health is improved and nitrogen emissions, including from nitrogen fertiliser, have fallen.
• Outcome 4: Reduced emissions from red meat and dairy through the implementation of measures, including improved efficiencies, new technologies and improved animal health.
• Outcome 5: Carbon sequestration on agricultural land is increased, and carbon stores are maintained or increased.

The outcomes of the CCPu and the CCP align directly with the ARP Strategic Outcomes, in particular “Climate Change Mitigation and Adaptation”, and the policies and proposals set out in the draft CCP recognise that the Agricultural Reform Programme is a key delivery mechanism to reduce emissions from agriculture. The outcomes also overlap with the ARP’s “Nature Restoration” and “Support for a Just Transition” Strategic Outcomes which, as described above, underpin and are considered within the support schemes, tiers and Agricultural Reform Programme.

In particular, the reforms introduced in 2025 seek to contribute directly towards these outcomes (the Whole Farm Plan requirements include carbon audit/soil sampling, changes to cross compliance protect carbon sequestering peatland and wetland, the new SSBSS calving interval targets efficient cattle) and they are captured within the draft CCP.

Furthermore, the Agricultural Modernisation Programme, reflected in the introduction of the Future Farming Investment Scheme in 2025-26 provides upfront funding for capital investments that protect, restore or enhance the environment, reduce greenhouse gas emissions or mitigate the effect of climate change.

Scottish Ministers will consider these outcomes when adjusting existing or developing future support schemes.

It is worth noting that Section 29 of the ARC Act stipulates that the Scottish Ministers must prepare and publish a “Code of Practice on Sustainable and Regenerative Agriculture” (“the Code”) providing guidance on sustainable and regenerative agriculture to include:

(a) an explanation of what the Scottish Ministers consider to be sustainable and regenerative agriculture,

(b) the agricultural activities and methods which they consider to constitute best practice for sustainable and regenerative agriculture, and

(c) such other information and guidance relating to sustainable and regenerative agriculture as the Scottish Ministers consider appropriate.

The publication of a preliminary version of the Code was announced on 19^th June 2025 at the Royal Highland Show with a final version to follow this Plan.

The Scottish National Adaptation Plan published on 25 September 2024 sets out a range of actions that can further build our agriculture industry’s resilience to climate change and this will also be considered as part of agricultural reform.

3. Statutory duties of the Scottish Ministers relating to agriculture, forestry, rural land use, biodiversity or the environment

There are a number of statutory duties relating to agriculture, forestry, rural land use, biodiversity or the environment to which the Scottish Ministers have had regard to in the preparation of this Plan.

This section of the Plan is not intended to describe all such statutory duties, nor to detail how Scottish Ministers have had regard to them. It provides examples of where the Scottish Ministers have taken account of particular duties, noting that they will continue to have regard to all their statutory duties as agricultural reform progresses.

Agriculture

The Scottish Ministers must take such steps as they consider appropriate to promote awareness of the Code of Practice on Sustainable and Regenerative Agriculture, and it is intended that the Code will play a key part in the planned transition as considered above.

Forestry

Scotland’s Forestry Strategy (2019 – 2029) sets out the Scottish Ministers vision, objectives and priorities for forestry in Scotland, and the Forestry and Land Management (Scotland) Act 2018 places a duty on the Scottish Ministers to have regard to sustainable forest management when exercising any of their functions.

Scottish Ministers have had regard to their statutory duties in respect of forestry when preparing this plan, including for example in respect of the Forestry Grant Scheme within Tier 3, which supports the creation of new woodlands and the sustainable management of existing woodlands.

Rural Land Use

Section 57 of the Climate Change (Scotland) Act 2009 requires the Scottish Ministers to lay a land use strategy (LUS) no later than 31 March 2011, and thereafter to lay a revised strategy at the end of every subsequent 5 year period.

The LUS sets out the Scottish Ministers’ long term vision for integrated sustainable land use, its objectives to support the delivery of this and their proposals and policies for meeting those objectives.

The Scottish Ministers have in preparing this Plan had regard to the objectives in the third LUS (2021 to 2026), and the proposed objectives in the fourth LUS (2026 to 2030).

Sustainable land use is a key outcome of the measures described in the Plan, and the Scottish Ministers have considered the land use objectives land use in the preparation of this Plan.

For example, the intended changes to Greening support will reward environmentally sensitive land use by protecting permanent grassland with high nature value.

Biodiversity

The Nature Conservation (Scotland) Act 2004 places a duty on the Scottish Ministers to further the conservation of biodiversity when exercising their functions so far as doing so is consistent with the proper exercise of those functions. In 2024 the Scottish Government published Scotland’s Strategic Framework for biodiversity which includes the Scottish Biodiversity Strategy, which sets out the goal to be nature positive by 2030 and restore and regenerate biodiversity by 2045. The six-yearly rolling Delivery Plans (2024-2030) includes a comprehensive set of over 100 cross sectoral actions and the introduction of statutory targets for nature restoration, established by the natural environment bill to address the twin crisis of climate change and biodiversity loss.

The Natural Environment was passed by Scottish Parliament which delivery both for nature and people, this Bill supports the commitment set out within the Scottish Biodiversity Strategy to be nature positive by 2030 and restore our natural environment by 2045. The Bill creates the strongest statutory framework Scotland has ever had for nature recovery. But putting nature targets into law, Scottish Ministers are ensuring that the government can be held to account for delivering real and measurable change to tackling the nature crisis. The Bill also places a duty on Ministers to; modernise the aims of the national parks; reform the way deer are managed, helping to ensure protection to ecosystems while supporting a suitable venison supply chain that benefits real communities; and gives new powers to develop legislation relating to wildlife management, sustainable forestry management and protected sites.

Consideration has been given to biodiversity by, for example, the inclusion of “Nature Restoration” as an ARP Strategic Outcome. A Biodiversity Audit is an option within the 2025 Whole Farm Plan requirements.

Environment

• Natural environment

The Scottish Ministers must, in making policies, have regard to the guiding principles on the environment under section 14 of the UK Withdrawal from the European Union (Continuity) (Scotland) Act 2021. The guiding principles are:

(a) the principle that protecting the environment should be integrated into the making of policies,

(b) the precautionary principle as it relates to the environment,

(c) the principle that preventative action should be taken to avert environmental damage,

(d) the principle that environmental damage should as a priority be rectified at source, and

(e) the principle that the polluter should pay.

The measures in the Plan have been prepared having regard to those principles, including for example in the inclusion of “Climate Change Mitigation and Adaptation” and “Nature Restoration”, within the ARP Strategic Outcomes.

In particular, support under Tier 2 and Tier 3 is directed towards the delivery of these outcomes, with enhanced Greening being introduced from 2026.

• Historic environment

Historic Environment is a sub-outcome in the ARP Strategic Outcomes Framework. As agricultural reform progresses, the Scottish Ministers will continue to consider the importance of protecting and enhancing the historic environment, in particular the Historic Environment Policy for Scotland (HEPS) and the European Landscape Convention.

4. Developments in the law and policy of the European Union

The EU CAP 2023-27 is structured around ten key objectives linked to EU goals as set out in the CAP strategic plans of the Member States for social, environmental and economic sustainability in agriculture and rural areas. The objectives are:

• to ensure a fair income for farmers
• to increase competitiveness
• to improve the position of farmers in the food chain
• climate change action
• environmental care
• to preserve landscapes and biodiversity
• to support generational renewal
• vibrant rural areas
• to protect food and health quality
• fostering knowledge and innovation

The development of the ARC Act aligned with this approach, and its five overarching objectives of agricultural policy shape many of the measures described in this Plan. It is the policy of the Scottish Ministers to ensure broad alignment to EU CAP objectives and they will continue to consider developments in the law and policy of the European Union as agricultural reform progresses.

5. The desirability of the agricultural sector operating with fair work principles

Fair Work First (FWF) is Scottish Government's policy for promoting fair work and workforce diversity across Scotland’s labour market.

The Scottish Ministers have had regard to the principles/dimensions when developing measures described in the Plan, so that for example from 1 April 2024 all recipients of agricultural grants are required to pay at least the real living wage and provide appropriate channels for effective workers’ voice. This requirement applies to grant support schemes such as Agri–Environment Climate Scheme (AECS) and Crofting Agricultural Grants Scheme (CAGS).

6. The objectives of a plan produced under section 1 of the Good Food Nation (Scotland) Act 2022

In 2014, the Scottish Government published a new food and drink policy - Becoming a Good Food Nation It expresses our vision of Scotland “a Good Food Nation, where people from every walk of life take pride and pleasure in, and benefit from, the food they produce, buy, cook, serve, and eat each day”.

To help realise this vision, the Scottish Ministers introduced the Good Food Nation (Scotland) Act 2022 (“the Act”). Under the Act, the Scottish Ministers are required to produce a national Good Food Nation (GFN) Plan setting out the Government’s goals for food and drink policy and how it intends to achieve them.

The GFN Plan was published on 17 December 2025. At the heart of the Plan are six overarching outcomes, namely:

• Outcome 1: The food environment in Scotland enables people to eat well. Everyone benefits from reliable and dignified access to safe, nutritious, affordable, enjoyable, sustainable and age-appropriate food.
• Outcome 2: Scotland’s food system is sustainable and contributes to a flourishing natural environment on our land and in our waters. It supports our net zero and climate adaptation ambitions and plays an important role in protecting and improving animal health and welfare and in restoring and regenerating biodiversity.
• Outcome 3: Scotland’s food environment and wider food system enables and promotes a physically and mentally healthy population. This leads to the prevention of, and a reduction in, diet-related conditions.
• Outcome 4: Our food and drink sector is prosperous, diverse, innovative, and vital to national and local economic and social wellbeing. It is key to making Scotland food secure and food resilient, and creates and sustains jobs and businesses underpinned by fair work standards throughout food supply chains.
• Outcome 5: People and communities are empowered to participate in, and shape, their food system. Scotland has a thriving food culture with a population who are educated about good and sustainable food.
• Outcome 6: Decisions we make in Scotland contribute positively to local and global food systems transformation. Scotland actively engages in learning and exchanging knowledge and best practice internationally.

These outcomes align directly with the ARC Act objectives of Scottish agricultural policy, which, as described above, underpin and are considered within the support schemes, tiers and Agricultural Reform Programme.

For example, the Soil Analysis Report and Integrated Pest Management Plan introduced as part of the Whole Farm Plan requirements in 2025, seek both to reduce the costs of production and to mitigate the impact of pesticide use on the environment and on human health.

7. The need for sustainable food systems and supply chains in delivering food security

The Food and Drink Industry Growth Strategy, Sustaining Scotland, Supplying the World‘ has been produced by Scotland Food & Drink in partnership with the Scottish Government and the wider Scotland Food & Drink Partnership, which includes sectoral representative bodies, research organisations, and Scotland’s enterprise agencies.

The need for sustainable food systems and supply chains is taken into account through “the adoption and use of sustainable and regenerative agricultural practices” and “the production of high-quality food” and “enabling rural communities to thrive” as ARC Act objectives that underpin sustainable food systems and supply chains.

The Whole Farm Plan measures described in this Plan will ensure that farmers and crofters undertake a baseline review of their current land and livestock practices, and will over time support more efficient and sustainable farming and cultivation. For example, the integrated pest management plan will help farms to be more sustainable by reducing risks to the environment and human health.

The Scottish Suckler Beef Support Scheme will ensure more efficient beef production by promoting sustainable livestock management through changes to calving interval requirements.

Existing Schemes included in the Plan, such as the Fruit and Vegetables Aid Scheme, also support connections with the ongoing supply chain (for example basic processing and marketing).

The need for sustainable supply chains has also been considered as part of the development of the Small Producer Pilot Scheme. More generally, the continuation of base support mitigates the impacts of market and weather volatility on the resilience and viability of food-producing businesses, while environmental interventions will support the long-term environmental viability of farming in Scotland, at the beginning of the food supply chain.

8. The benefits of a diverse and resilient agricultural sector including small producers, tenant farmers, crofters, and agricultural co-operative societies

The Scottish Ministers have had regard to the benefits of a diverse and resilient agricultural sector when developing the measures described in this Plan.

For example, support is provided to:

• new entrants to farming through the Land Based Pre-Apprenticeship Programme, Next Generation Practical Training Fund and the Scottish Land Matching Service. The Farming Opportunities for New Entrants (FONE) Group, brings together internal and external stakeholders to maximise opportunities for new entrants, with a particular focus on increasing and coordinating opportunities on public land,
• small producers through the Small Producer Pilot Fund, and
• crofters through the Crofting Agricultural Grant Scheme, Croft House Grant and the Crofting Cattle Improvement Scheme.

Recognition of the benefits of a co-operative approach to agricultural production is reflected in the Fruit and Vegetables Aid Scheme.

Our support scheme requirements, such as the Whole Farm Plan, will be proportionate for smaller businesses such as crofts and small producers to ensure support schemes are accessible and to promote a diverse industry. For example, in 2026, we will be introducing small herd derogation to the Scottish Suckler Beef Support Scheme. This will mean that those claiming support for 10 calves or fewer in 2026 will not need to meet the calving interval requirement.

Further considerations

Section 2(3) of the ARC Act states that the Rural Support Plan may describe how the Scottish Ministers consider the support provided under the plan will:

(i) reduce greenhouse gas emissions (within the meaning of section 10 of the Climate Change (Scotland) Act 2009) from agriculture,

(ii) reduce harm from pesticides,

(iii) reduce nitrogen loss and waste,

(iv) optimise the proportion of land which is farmed organically,

(v) optimise the proportion of land which is used for agroforestry,

(vi) improve the biodiversity of agricultural land, including the contribution of agriculture to landscape-scale nature recovery,

(vii) protect and improve the welfare conditions of farmed animals,

(viii) improve the quality of ground and surface water

Whilst the support described in this Plan will contribute towards the achievement of these outcomes, their consideration is not specifically covered in this Plan.