Scottish Government Response to the Climate Change Committee's Scottish Progress Report 2025

The Climate Change Committee’s Scottish Progress Report 2025 – Recommendations and the Scottish Government’s Response

Cross-cutting

R2026-001: Publish the final Climate Change Plan. This should address the methodological issues around the assumed inventory change for peatlands and the underlying temperature assumptions for buildings. It should also reflect on how delivery risks can be mitigated in the areas that we have identified as having significant risks or insufficient plans.

Partially Accept

We have now published the final Climate Change Plan. In relation to the assumed inventory change for peatlands, the uncertainties with this ongoing science are reflected in the Climate Change Plan Analytical Annex which explains that, if formally ratified within the UK Greenhouse Gas Inventory, this correction will be treated as a baseline revision with the associated emission reductions applied retrospectively across the full time series. The most recent year of available analysis on winter temperatures and gas demand carried out by the Scottish Government is 2023. Our underlying temperature assumptions for buildings are based on analysis of Met Office weather data and the resulting change in demand in these periods for energy. Our model uses baseline assumptions on temperature which are based on analysis of Met Office heating degree days (a measure of how much heat demand changed over time given the average UK temperature, to summarise) and we do not have enough evidence to justify changing our baseline further back in time than current baseline of 2023, to a colder winter and one before the COVID-19 pandemic.

The final version of the Climate Change Plan includes an updated Monitoring and Evaluation framework which will assist Ministers in identifying and mitigating risks on delivery of policies and proposals as they emerge and, in doing so, best ensure that carbon budgets continue to be met. The final version of the Climate Change Plan also includes additional information on delivery of the policies and proposals, including through accountability tables and commitment to place-based informed delivery of sector planning.

R2026-002: Finalise the monitoring and evaluation framework as part of the final Climate Change Plan. This should clearly set out annual pathways for all key indicators of progress as well as indicative annual sectoral emissions pathways, to enable effective tracking of whether these are progressing as required to deliver the emissions reductions in the Climate Change Plan pathway.

Partially Accept

The final Climate Change Plan contains a final Monitoring and Evaluation framework including the full list of indicators that will be monitored as part of the annual progress report. The new Monitoring and Evaluation framework has been built to use information from the Greenhouse Gas Inventory as well as a series of early warning indicators. The Monitoring and Evaluation framework is based on carbon budget periods to reflect the move by the Scottish Government to report against carbon budgets to avoid the issue of annual fluctuations around an expected pathway.

R2026-003: Set out the Scottish Government’s proposed approach to contingency planning as part of the final Climate Change Plan, to ensure a robust and adaptive approach to achieving carbon budgets and Net Zero. This should include an explicit assessment of contingency options that can be implemented to deliver additional emissions reductions to make up for any potential shortfalls in the pathway.

Partially Accept

The final Climate Change Plan includes a new Monitoring and Evaluation Annex, incorporating a number of early warning indicators. This will provide for early sight of whether the rollout of particular actions are on track. If this demonstrates that any policy is off-track, further work will be undertaken to boost delivery within that area or to review possibilities for compensatory action elsewhere. Ministers also have a statutory duty to publish an annual Climate Change Plan monitoring report assessing whether the Scottish Government is on track to meet the carbon budget for that period, and, if not, what action will be taken as a result (including details of changes to any policies that are to be implemented during the carbon budget period).

R2025-090: Amend the Climate Change (Scotland) Act 2009 (which can be done by order) to extend the definition of greenhouse gas removals to include engineered removals.

Accept

Engineered removals will play a crucial role in ensuring that Scottish carbon budgets are not exceeded. An amendment to the Climate Change (Scotland) Act 2009, proposed through secondary legislation, will be considered in the next Parliament in order to include engineered removals in the definition of greenhouse gas removals. This would mean that engineered removals can be used to offset residual emissions from industry, and assist with preventing Scottish carbon budgets from being exceeded. Engineered removals are not expected to contribute towards emissions reductions until the end of the decade.

R2025-091: Work with communities, workers, and businesses to develop proactive transition plans that enable access to secure employment and business opportunities that come with the Net Zero transition.

Accept

The Scottish Government is determined to work closely with communities, workers and their trade unions, and businesses, as we transition to net zero – indeed, this is currently a vital part of our work on just transition planning. That is why we have already committed to developing Just Transition Plans focussed on ensuring support for workers, communities and businesses underpinned by our Just Transition Planning Framework. The Plans are intended to act as a guide for people and organisations across Scotland – addressing how we ensure a fair distribution of the transition’s costs and benefits, address rather than exacerbate inequalities, and seize new economic opportunities. In 2025 we published our draft Transport Just Transition Plan (February), our Grangemouth Plan (June), and our draft Land Use and Agriculture Plan (August). The Scottish Government also continues to take specific action to support a just transition, including through the Just Transition Fund for the North East and Moray, where we will provide up to £17m in 26/27; and our £25m Fund for Grangemouth. We have also announced joint funding with the UK Government of up to £18m for the Oil and Gas Transition Training Fund over the next three years, to support offshore oil and gas workers in accessing the training they need for sustainable energy sector jobs.

R2025-092: Work with the UK Government to communicate a clear vision to the public. Provide clear, trusted information about the most impactful low-carbon choices for households and businesses in Scotland to reduce emissions and the benefits of low-carbon choices, signposting to available sources of advice and support.

Accept

The Scottish Government will continue to provide clear, trusted information and coordinate with the UK Government on our net zero communications strategies – including on things like scheduling for our campaigns to avoid any potential confusing messaging, and share campaign learnings. Everyone in Scotland has a role to play in responding to climate change. The Scottish Government's statutory public engagement strategy sets out our approach to building public understanding of climate change, including the actions needed across society. Our approach is shared with the other three nations of the UK as part of ongoing official level coordination on climate engagement. The Let's Do Net Zero marketing campaign aims to reach all of Scotland with information on low-carbon and adaptation choices. Following the 24/25 campaign, 78% of those who recognised the campaign reported that they understood the actions needed to tackle climate change and 76% felt more motivated to take action to cut their emissions having seen it. This suggests that the campaign’s messaging is resonating and prompting constructive shifts in attitudes and behaviours among those who are exposed to it. We also signpost support and advice through the website NetZeroNation.scot, which attracts between 80,000 and 100,000 visitors annually. The Scottish Government is extending its reach beyond those typically engaged, through initiatives such as the network of 24 Community Climate Action Hubs, which support community-led climate action nationwide; and the Climate Engagement Fund, which works with new audiences to deepen their understanding of climate change, equipping them with knowledge and skills to take action. Over 1,000 schools are also involved in the Climate Action Schools programme, which has direct impact on children and young people’s understanding of the importance of climate action.

Transport

R2025-093: Expand provision of charging infrastructure and provide reliable public information on electric vehicles to support the successful implementation of the ZEV mandate.

Accept

Since 2011 the Scottish Government has provided over £65m to support the development of public EV charging infrastructure across Scotland. As a direct result of this funding and increasing private sector investment Scotland now has over 12,000 EV chargers. Scotland has one of the most comprehensive public charging networks in the UK, with more rapid public EV charge points per person than any other part of the UK except the South East of England. The Scottish Government's draft Vision Implementation Plan published in December 2024 sets out a route map towards 2030, largely funded and delivered by the private sector.

The private sector is already making significant investments in public EV charging in Scotland and is estimated to have invested between £25-£35m in 2023, £40-£55m in 2024 and £50-£75m in 2025. Through the Scottish Government's £30m EV Infrastructure Fund, we are continuing to support local authorities to work in partnership with the private sector to expand public EV charging across Scotland, with public funding prioritising those areas of Scotland less likely to benefit from stand-alone private sector investment in public EV charging infrastructure, including rural and island communities and enabling matched private sector investment. In August 2025 the Scottish Government also announced a further £4.5m to support the delivery of public EV charging infrastructure in rural and island communities. We also recognise the importance of public engagement and clear information to support EV uptake. We will continue to consider what more we can do in this area, for example through the Scottish Government's Let’s Do Net Zero campaign to raise awareness and encourage the adoption of EVs. Continued engagement with UK Government on its taxes and incentives affecting vehicles, charge points investment and coordination with the energy sector remain vital to a successful transition to decarbonised transport.

R2025-094: Improve Scotland’s public transport services and active travel infrastructure through strategic investment in integrated networks, enhanced services, and dedicated walking and cycling routes, supported by long-term funding and powers for local councils.

Accept

The Scottish Government remains committed to its 2030 vision for active travel – where walking, wheeling and cycling are the natural choice for shorter everyday trips. It will continue to support the delivery of high-quality active travel and bus infrastructure, sustainable travel integration, and behaviour change activity to promote walking, wheeling and cycling for everyday shorter journeys. In 2024-25, through programmes including the Active Travel Infrastructure Fund, National Cycle Network and the Iain Findlay Paths Fund, this investment supported delivery of over 94km of new and upgraded Active Travel infrastructure; more than 85 new or improved pedestrian/cyclist crossings; and over 50 dropped kerb and junction improvements. In 2025-26, with £178m of investment, we continue to transform communities, enabling more people to walk and cycle, and help to improve their health and wellbeing. We provided £20m through the Bus Infrastructure Fund in 2025-26 and that is delivering improvements on the ground for passengers as well as continuing the development of more ambitious schemes. Construction projects include part funding of a bus gate in West Edinburgh, improving passenger waiting areas including lighting and information at Ninewells Hospital and bus priority at a number of traffic signals in Glasgow and Midlothian. Through legislation, the Scottish Government has given local authorities powers on partnership working, franchising and to run their own bus services. Our approach enables local transport authorities to determine what is best to address any transport challenges in their local areas. The final regulations needed for bringing the bus franchising powers into full effect came into force on 10 June 2025 and the Scottish Government continues to develop the statutory guidance for both Bus Services Improvement Partnerships and Local Services Franchises. To improve bus services, the Scottish Government allocated almost £50m in 2025-26 to support current bus services through the Network Support Grant so that operators can continue providing access to affordable transport. Consultation on legislative provision of bus services 'open data' information was undertaken in 2025 and work continues to develop guidance for bus operators on enhancements to this to include fares, stops, ticketing and real time location information ahead of measures being laid at the end of this year. This data supports provision of quality journey planning information across Scotland and aligns with Scottish Government and the National Smart Ticketing Advisory Board commitments for 'one true source' of travel data, made openly available for use.

Agriculture and land use

R2025-095: Provide incentives and address barriers for farmers and land and estate managers to diversify land use and management at a range of scales into woodland creation, peatland restoration, agroforestry, and renewable energy. These policies need to support and empower rural communities to deliver these changes.

Accept

The Scottish Government offers advice and funding for small-scale renewables through Business Energy Scotland and provides comprehensive guidance and advice on renewable energy through the Farm Advisory Service. The Scottish Government already provides extensive support for farmers and crofters to plant trees. Through the Forestry Grant Scheme, it provides funding for tree planting, including specific agroforestry funding and the award-winning Integrating Trees Network supports farmers and crofters across Scotland to develop their knowledge and understanding of planting and managing trees on their land. The Agri-Environment Climate Scheme (AECS) has already committed over £338m to more than 3,400 businesses to support biodiversity and environmental enhancement. Through the Agricultural Modernisation Fund, in 2025/26 the Future Farming Investment Scheme offered flexible support for capital items that can be used to improve efficiency or support nature and climate-friendly farming and the Farm Advisory Service provides extensive, high quality advice to support agricultural businesses, including around diversification and land use. On peatlands, the Scottish Government has introduced new cross compliance protections for peatland and wetlands within GAEC 6. Looking ahead, as stated in the Climate Change Plan, we will continue our work with partners and stakeholders to develop incentives, guidance and advice on peatland stewardship within the new agricultural support framework for landowners and managers looking to enhance peatland protection, management and restoration on their land.

R2025-096: Ensure that funding and incentives are set at the correct level to deliver the scale-up in tree planting that is needed this decade.

Accept

The Scottish Government remains firmly committed to ambitious levels of appropriately located and designed woodland creation to help address the climate crisis. Over 50,000 hectares of new woodland have been created in Scotland in the past 5 years, representing 70% of all new woodlands created in the UK in that time. Over 15,000 hectares were planted in 2023-24, the highest in 34 years, including 7,700 hectares of native woodland (the highest since 2001). A decrease in the budget and the constrained fiscal environment has reduced the amount of woodland creation in 2024-25 to 8,470 hectares although this still represents the majority of new planting across the UK. Scottish Forestry published a route map in 2024 that sets out measures to support woodland creation in the next 5 years. This includes taking opportunities to reduce grant payments where carbon revenues through the Woodland Carbon Code can make schemes financially viable. This will help the grants budget to be maximised to support a greater number of schemes across all types of woodland. Scottish Forestry released a new version of the Woodland Carbon Code in August 2025, and is implementing measures to streamline processes for administration, monitoring, reporting and verification of Woodland Carbon Code projects. These actions aim to facilitate further private finance towards woodland creation. Work to develop the Future Forestry Grant Scheme for Scotland starts in 2026 and will allow grant rates to be more precisely tailored to the funding requirements of projects of different scales and types.

R2025-097: Provide long-term certainty on public funding for farming practices and technologies to reduce emissions from managing crops and livestock. As part of this, ensure low-regret and low-cost measures are taken up through baseline regulations or minimum requirements in the new agricultural support mechanisms (for example, actions to deliver resource protection, enhance nature, and build resilience), especially when they can deliver efficiency improvements.

Partially Accept

The Agriculture and Rural Communities (Scotland) Act 2024 provides the powers to introduce the new four-tiered support framework that will deliver high-quality food production, climate mitigation and adaptation and nature restoration. The Agricultural Reform Route Map outlines the phased transition to that new framework. The first changes began in 2025, introducing new conditions to the Scottish Government's existing agriculture support schemes which mean that farmers and crofters are now expected to do more for the climate and farm more sustainably to continue to receive this funding. The Scottish Government has introduced:

• A new calving interval for the Scottish Suckler Beef Support Scheme to help reduce emissions and encourage efficient beef production;
• The Whole Farm Plan to help farmers and crofters measure their businesses’ impact and find ways to become more efficient and to cut emissions;
• New cross compliance requirements for peatlands and wetlands; and,
• Enhanced Greening which requires more farmers to manage ecological focus areas, a small portion of land managed for the benefit of the climate and the environment and provides new options for meeting that requirement.

Agriculture requires future funding certainty due to its multi-annual funding commitments and long lead-in time for farmers, crofters and land managers. The UK Government has imposed a short-term Barnett settlement, contrary to the Bew Review recommendation for collective four nation engagement to agree the principles of future funding allocations. It fails to provide the uplift called for by stakeholders, to reverse the real terms cuts of previous years, or to provide the multi-year certainty required. On peatlands, as stated in the Climate Change Plan, we will continue our work with partners and stakeholders to develop incentives, guidance and advice on peatland stewardship within the new agricultural support framework for landowners and managers looking to enhance peatland protection, management and restoration on their land.

Business and industrial processes

R2025-098: Continue to work with the UK Government to support the development of plans to develop carbon capture and storage (CCS) and hydrogen in the Scottish Cluster and work with the UK Government to develop new low-carbon industrial opportunities, such as those identified by Project Willow for Grangemouth.

Accept

The Scottish Government remains committed to support the development of carbon capture and storage (CCS) in Scotland as they can play a central role in the decarbonisation of key sectors such as heat, industry and power. The Scottish Cluster is crucial for a just transition to net zero, both in Scotland and the UK. We are supporting the Acorn Project with £3.1m to help the project develop a business case to help unlock £200m UK Government development funding, and will continue to work collaboratively with the UK Government to ensure that the Acorn Project and Scottish Cluster secure the fastest possible deployment. The Scottish Government remains committed to developing and supporting our hydrogen economy which will provide economic benefit and a renewable and low carbon source of energy to help meet our net zero ambitions. Additionally, regarding Grangemouth, the Scottish Government continues to support the work of the Grangemouth Investor Taskforce, to identify the most commercially and technologically viable proposals that are the best fit for the site. Recent announcements include our £1.5M support towards MiAlgae and £6.23M to Celtic Renewables.

Residential and public buildings

R2025-100: Urgently consult on and implement measures to enable a rapid transition from fossil-fuel heating systems to low-carbon heating in existing buildings.

Partially Accept

Having already consulted in detail on proposals for a Heat in Buildings Bill, we now intend to prepare a new heat decarbonisation Strategy and Delivery Plan, setting out the actions that Ministers intend or consider should be taken to meet the decarbonisation target. The Plan will provide clear direction on the future of heating Scotland's buildings, including the policy, delivery and regulatory framework needed to accelerate the transition and set out the actions on the part of the Scottish Government and others which will be designed to enable and achieve this target. The Strategy and Delivery Plan will be developed in partnership with stakeholders. Decisions on the timing and scope of any formal consultation will be for Ministers following the election.

R2025-101: Develop appropriate governance frameworks to coordinate residents in buildings containing multiple residential dwellings (in particular, tenements) to allow for the installation of communal low-carbon heating systems, where these are appropriate.

Accept

In 2022 the Scottish Government commissioned the Scottish Law Commission to undertake a review of tenement law in Scotland with a focus on considering the establishment of compulsory owners' associations in these properties. Owners' associations in tenements could act as an important decision-making structure for residents and enable owners in multi-owner buildings working together to undertake common works, including the installation of communal clean heating systems. The SLC project is now complete, with a final report and draft Tenements Bill submitted to Scottish Ministers in December 2025. The draft Tenements Bill would establish compulsory owners’ associations in tenement properties across Scotland as well as reducing the proportion of owners in a tenement required to vote in favour of a communal improvement (such as the installation of a new communal clean heat system) from 100% to 75%. The reduction in this threshold could also play an important role in ensuring fewer common works projects are stalled by a small minority of owners. Scottish Ministers are now taking the time to consider the SLC report and draft Bill. The Scottish Government will explore this further as part of the Heat in Buildings Strategy and Delivery Plan.

R2026-006: Implement proposals for minimum energy efficiency standards for private rented homes and revised standards for social housing. Continue to develop plans for equivalent standards across tenures.

Accept

Private rented sector: The Scottish Government published a consultation on proposals for a Minimum Energy Efficiency Standard (MEES) for the private rented sector on 6 June 2025. This has now closed and the Scottish Government will respond in due course. The consultation included the detail of Scottish Government proposals and draft regulations, with final proposals to be decided on post-election to ensure that landlords are able to source a new Energy Performance Certificate (EPC) assessment under our separate EPC Reforms, to understand the current heat retention of their properties before being asked to meet a standard. Social housing: We have also consulted on proposals for a Social Housing Net Zero Standard and will continue to liaise with our partners in the social housing sector before confirming next steps. In the meantime, we have published interim guidance. Owner occupied: The Draft Buildings (Heating and Energy Performance) and Heat Networks (Scotland) Bill would, if passed, give Scottish Ministers a regulation-making power to set minimum energy performance standards for buildings with direct emission heating systems. Subject to the outcome of the election, the Bill will be introduced to Parliament.

Waste management

R2025-102: Ensure that new energy from waste capacity is only permitted where a viable route to connecting carbon capture and storage (CCS) can be established.

Partially Accept

Scotland’s National Planning Framework 4 policy 12)g), adopted February 2023, states that development proposals for energy from waste plants will not be supported except under limited circumstances - some of these being that consideration is given to methods to reduce carbon emissions of the facility (for example through carbon capture and storage), the development is consistent with climate change mitigation targets and in line with circular economy principles, and that it has supplied an acceptable decarbonisation strategy aligned with Scottish Government decarbonisation goals. This approach and our response to this recommendation recognises 1) the diverse geographical characteristics across Scotland that may present barriers to CCS connection; and 2) the dependency on UK Government action in this space as it relates to matters within reserved competence. Within devolved competency, the Scottish Government intends to facilitate the development of a sector-led plan to minimise the carbon impacts of the energy from waste sector. This plan will ensure that actions across the Energy from Waste sector are aligned with net zero ambitions, and give consideration to the Climate Change Committee’s advice.

Negative emissions technologies (NETs)

R2026-004: Publish a negative emissions technologies (NETs) delivery plan setting out the expected role of each technology and the actions required to deliver them. A co-ordinated approach with the UK Government and plans for UK-wide NETs will be needed to ensure successful delivery, and the Scottish Government should set out how they intend to make Scotland an attractive location for NETs, such as through efficient planning, permitting, and consenting processes.

Accept

By the end of 2026 we will publish a route map to deployment of NETs at scale by 2040 that provides industry a clear timeline and preferred technologies, enhancing the prospects of securing funding, creating jobs, and develop new industries in Scotland. The Scottish Government is also continuing to work with the UK Government to ensure the legislative and regulatory framework is in place, so that the deployment of CCS and NETs can happen at the earliest opportunity.

Energy supply

R2026-005: Act to accelerate planning and consenting for electricity transmission infrastructure to boost exports of electricity from Scotland and to support the rest of the UK to decarbonise through the transition to low-carbon electric technologies.

Accept

The Scottish Government published a plan in 2025 that set out how an accelerated process for consenting priority transmission network infrastructure could be achieved.