Draft Environment Strategy: strategic environmental assessment

Strategic environmental assessment (SEA) to determine the potential impacts of implementation of the draft Environment Strategy on the environment.


Non-Technical Summary

Introduction to the Draft Environment Strategy

The Scottish Government has prepared a Draft Environment Strategy which creates an overarching strategic framework for Scotland’s policies on the environment and climate change.

The Strategy outlines a framework for addressing the challenges of climate change and nature loss. It sets out a vision for 2045 focused on restoring Scotland’s natural environment and contributing to global efforts to tackle environmental issues. The Strategy takes an integrated approach, linking environmental, social, and economic objectives to support wellbeing, social equity, and economic resilience. It highlights the potential for a transition to a green economy to create new opportunities for employment and industry while improving public health and reducing inequality. The Strategy also addresses Scotland’s international environmental impact and outlines steps to promote global climate and environmental responsibility. Developed through stakeholder engagement and guided by advice from the First Minister’s Environment Council, the Strategy provides a framework for long-term action, with measures to monitor and adjust progress over time.

The Draft Environment Strategy sets out a vision and set of outcomes, and eight outcome pathways, setting out existing and future policy actions:

1. Scotland’s biodiversity is restored and regenerated.

2. We have ended Scotland’s contribution to climate change.

3. We minimise pollution and waste in our environment.

4. Scotland’s global environmental impact is sustainable.

5. Scotland’s society is transformed for the better by living sustainably, in harmony with nature.

6. Scotland’s net zero, nature positive and circular economy thrives within the planet’s sustainable limits.

7. We build Scotland’s resilience to climate change and other global environmental risks.

8. These transformations are achieved through a just transition and support climate and environmental justice.

What is Strategic Environmental Assessment?

Strategic Environmental Assessment (SEA) is a way of considering the environment when preparing public plans, programmes and strategies. It identifies potential significant environmental effects and, where necessary, describes how these effects can be avoided or reduced. Through consultation, SEA also provides an opportunity for the public to express their views on proposed policies and their potential environmental impacts.

In this case, SEA is being used to assess the likely environmental effects of the Draft Environment Strategy.

How was the Strategic Environmental Assessment undertaken?

This SEA is an assessment of the likely significant environmental effects of the Draft Environment Strategy and the alternatives to it. The Environmental Report considers the environmental effects of the Draft Environment Strategy as they would influence activities across Scotland. The SEA is required to consider the likely significant effects in relation to the following topics (referred to as the ‘SEA topics’): biodiversity fauna and flora; population and human health; soil; water; air; climatic factors (adaptation and mitigation); material assets; cultural heritage including architectural and archaeological heritage; and landscape; as well as the inter-relationship between the topics.

The assessment identifies positive and negative environmental effects and the significance of these; considers whether they would be temporary or permanent; and notes where they would arise in the short, medium or long term. It also distinguishes between effects arising directly from the Draft Environment Strategy and any ‘secondary’ effects, which would indirectly impact on the environment.

Which reasonable alternatives have been considered?

The Environmental Assessment (Scotland) Act 2005 requires that the likely significant environmental effects of reasonable alternatives of a plan, programme or strategy are assessed as part of the SEA process.

Consideration of alternatives was undertaken in discussion with the Scottish Government. The extent to which alternatives for the Environment Strategy could be considered ‘reasonable’ was influenced by the following factors: the legislative framework for the document and the significant proportion of committed policy and action embodied in the document.

The following alternative option to the Environment Strategy was proposed by the Scottish Government:

  • Demonstrate the additional impact of rapid behavioural change, where the Scottish Government has not yet identified the policies to bring about that change.

What are the key environmental challenges relevant to the Draft Environment Strategy

In terms of climatic factors, Scotland’s total emissions of the seven greenhouse gases (GHGs) in 2022 were estimated to be 40.6 million tonnes of carbon dioxide equivalent (MtCO2e), a decrease of 0.1%% from 2021[1]. The most significant contributor to this overall reduction was electricity supply emissions (such as power stations), with a reduction of 13.0 MtCO2e (88.1%). This was followed by reductions in emissions from industrial emissions of 7.2 MtCO2e (56.8%), from ‘Land use, land use change and forestry’ (LULUCF) of 5.8 MtCO2e and a reduction in emissions in waste management emissions (such as landfill) by 4.9 MtCO2e (75.4% reduction) since 1990[2].

In terms of population and human health, the estimated population of Scotland in 2023 was 5.49 million[3]. Projections forecast that the population will continue to rise and will peak at around 5.53 million in 2033. Approximately 91% of Scotland’s people live in urban areas, which accounts for just 2.3% of Scotland’s land surface[4]. Key findings from the 2020 Scottish Index of Multiple Deprivation show that 14 areas have been consistently among the 5% most deprived in Scotland since the 2004 Index[5].

Air pollution can result in adverse impacts on human health and can significantly affect many aspects of quality of life. The quality of the air around us is affected by the pollutants released into the atmosphere through human activities. Sulphur dioxide, oxides of nitrogen, particulates, and low-level ozone are generally considered to be of most importance in relation to human health and the environment.

In terms of soil and geology, it is estimated that Scotland’s soils contain over 3 billion tonnes of historic carbon, making up over 53% of the UK’s soil carbon. Degraded soil can act as a net carbon emitter, soils in good condition protect the carbon store and, depending on the vegetation cover, can continue to sequester carbon. Land use change and management practices can impact significantly on soil carbon stores and sequestration. Peatlands are of particular importance for mitigating climate change by acting as carbon ‘sinks’. Approximately 1.6 billion tonnes of the carbon stored in Scottish soils is within peat. It is estimated that over 80% of Scotland’s peatlands are degraded[6].

There have been significant improvements to water quality alongside significant reductions in pollution. Most of Scotland’s seas, coasts, and estuaries are in good or excellent condition. Around 80% of Scotland’s groundwater is in good condition, although there are some regions with widespread problems; for example, in the Central Belt[7]. Agriculture and the legacy of industrial activity are the main causes of regional-scale groundwater pollution problems. Flooding can have significant and long-lasting impacts on people, communities, and businesses. Flood Risk Management Strategies co-ordinate action to tackle flooding in Scotland. Scotland's peatlands play an important role in natural flood management. Woodland and forestry can help prevent flooding by intercepting precipitation, reducing surface water runoff through increased infiltration, and increasing the use of water through evapotranspiration.

In terms of biodiversity, flora and fauna, Scotland’s protected areas include 243 Special Areas of Conservation (SACs)[8], 162 Special Protection Areas (SPAs)[9], 51 Ramsar sites[10] and two Biosphere Reserves[11]. There are further national level designations including 1,422 Sites of Special Scientific Interest (SSSIs)[12] and 247 Marine Protected Areas[13]. 5.10 The Scottish Biodiversity List[14] is a list of animals, plants and habitats that Scottish Ministers consider to be of principal importance for biodiversity conservation in Scotland. This includes 42 terrestrial habitats, 1,948 terrestrial species, 20 marine habitats and 159 marine species. By May 2024, the proportion of nationally protected nature sites reported as being in a “favourable” condition decreased by 0.9% in the last year from 76.4% to 75.6%. this represents a stable trend since the current protocols were established in 2007 (-0.4% from 76.0%)[15].

Scotland’s historical sites are unique and irreplaceable. While these assets are distributed widely throughout Scotland there are clusters of sites in and around our settlements and also around our coastlines. As of 2018, it is estimated that there are around 56,000 protected places across Scotland[16]. However, whilst most of the historic environment is undesignated (90-95%), these known but undesignated assets provide important contextual information which helps us better understand designated sites[17].

Scotland's distinctive landscapes are a significant part of the country’s natural and cultural heritage and make a significant contribution to both the country’s economic performance and the well-being of its people. There are currently two National Parks (Loch Lomond and the Trossachs, and the Cairngorms) and 40 National Scenic Areas in Scotland. Over 13% of Scotland’s land area has been classified as a National Scenic Area[18].

Scotland’s natural resources are also material assets. Mineral resources and aggregates are used for purposes such as fuel, and construction. Around four-fifths of Scotland’s carbon footprint comes from the products and services manufactured, used and thrown away[19].

Heating makes up approximately half of Scotland’s energy consumption (48.2%) compared to transport (27.6%) and electricity (21.1%) making up approximately a quarter each[20]. Renewable electricity generation is now equivalent to approximately 97% of Scotland’s gross electricity consumption[21].

In the first half of 2024, 76.4% of all renewable electricity generated in Scotland was from wind[22]. Hydro is Scotland’s second highest source of renewable generation, while solar capacity has increased rapidly in the first half of this decade[23]. Bioenergy and energy from waste accounts for 6.9% and whilst the current capacity of wave and tidal is considered to be relatively small, technology is developing[24]. Between 2000 and 2021, renewable electricity generation in Scotland has displaced an estimated 173.8 million tonnes of greenhouse gas emissions[25].

Which existing environmental protection objectives are relevant?

There are many established environmental protection objectives within international and national level policies and strategies, which form the context for the assessment. These include:

  • climatic objectives focused on reducing Scotland’s greenhouse gas emissions to net zero by 2045;
  • objectives for population and human health aiming to prevent or limit exposure to environmental harm and nuisance such as air pollution, especially in urban areas;
  • objectives for water and air aiming to reduce pollution, and to reverse the effects of past emissions;
  • soil and geology objectives seeking to protect prime quality agricultural land and valuable soil resources including the protection of peatlands and remediation of contaminated land;
  • biodiversity objectives focused on protecting habitats and species from damage and disturbance and improving natural heritage networks;
  • cultural heritage objectives ranging from the protection of World Heritage Sites and Marine Protected Areas, to the recognition and management of more locally important buildings and archaeology, and their wider setting;
  • landscape objectives reflecting the importance of all landscapes and the need to help to improve those that have become degraded;
  • objectives for material assets seeking to contribute to the core planning objective and supporting sustainable development, reducing greenhouse gas emissions, and making the best use of Scotland’s resources and existing infrastructure.

Strategic Environmental Assessment findings

Biodiversity, flora and fauna

The current policy objectives under the eight outcomes of the Draft Environment Strategy are expected to have primarily indirect positive effects on the protection, maintenance, and enhancement of designated sites, habitats, and protected species in the medium to long term. Current policies supporting biodiversity restoration include the Scottish Biodiversity Strategy and Delivery Plan, which aim to reverse biodiversity loss by 2045 and ensure Scotland is Nature Positive by 2030. Measures to reduce pollution and waste, such as the Cleaner Air for Scotland 2 strategy and the River Basin Management Plan, improve habitat quality and resilience. Investment in peatland restoration (£250 million) directly supports carbon sequestration and ecosystem health. Circular economy initiatives, sustainable food production, and improved air and water quality further contribute to protecting sensitive habitats. Community-led initiatives, such as Climate Action Hubs and forestry projects, strengthen local stewardship of natural resources, promoting sustainable land management and biodiversity recovery.

The future policy actions of the eight outcomes are expected to provide additional indirect positive effects for biodiversity and habitats, though some direct benefits are anticipated from measures such as peatland rehabilitation and blue-green infrastructure development. Proposed policies include a carbon tax on agricultural estates, which would drive restorative land use practices, and enhanced producer responsibility schemes to reduce plastic and chemical pollution. The forthcoming Bioenergy Policy Statement, the second National Marine Plan, and the new agricultural framework from 2025 will further support biodiversity-friendly land and marine use. Expanding blue-green infrastructure and improving nature connectivity through the next Infrastructure Investment Plan are expected to enhance habitat resilience. Improved monitoring, risk management, and business engagement will increase ecosystem resilience to climate change and environmental pressures, providing sustained long-term benefits for Scotland's natural heritage.

Overall, positive cumulative effects are expected in relation to biodiversity, flora and fauna.

Population and human health

The current policy objectives under the eight outcomes of the Draft Environment Strategy are expected to deliver indirect positive impacts on the health and wellbeing of the people of Scotland. Through actions aimed at restoring biodiversity, tackling climate change, reducing pollution and waste, and supporting a circular economy, these policies contribute to cleaner air and water, improved food security, and enhanced access to nature, all of which promote better physical and mental health. Initiatives such as active travel schemes, peatland restoration, and the Cleaner Air for Scotland 2 strategy support healthier lifestyles, reduce exposure to environmental hazards, and foster community resilience, particularly for vulnerable groups. Additionally, current actions addressing climate adaptation and environmental justice—such as the Scottish National Adaptation Plan and investments through the Just Transition Fund—seek to reduce health inequalities and empower communities, contributing to improved wellbeing. While many of these positive effects are expected to emerge over the medium to long term, there are also short-term benefits, notably from measures that enhance air quality, encourage active travel, and support community-led environmental initiatives.

The future policy actions set out in the Draft Environment Strategy build on these foundations, with an emphasis on amplifying health and wellbeing benefits and addressing inequalities more directly. Planned actions include expanding integrated public transport systems, developing green and blue infrastructure, enhancing access to sustainable and healthy food, and aligning air quality standards with updated World Health Organisation guidelines. These policies aim to strengthen community resilience, reduce exposure to pollution, and promote mental health through greater connection to nature and inclusive decision-making processes. Future strategies also focus on supporting climate and environmental justice, ensuring that marginalised communities benefit from a fair transition. Although most of the health and wellbeing benefits from future policies are expected to materialise in the medium to long term, certain measures—such as improvements to active travel infrastructure and community engagement initiatives—are likely to deliver shorter-term positive outcomes.

Overall, positive cumulative effects expected in relation to population and human health across all eight of the Outcomes in the Draft Environment Strategy.

Climatic factors: Climate change mitigation

The current policy objectives under the eight outcomes of the Draft Environment Strategy have direct and indirect positive impacts regarding minimising greenhouse gas emissions from natural and man-made sources. Current measures include five-yearly carbon budgets and the 2020 Climate Change Plan Update, which address emissions across key sectors such as transport, electricity, and waste. The £250 million peatland restoration programme enhances carbon sequestration, while policies like the 20% reduction in car kilometres by 2030 and annual emissions reporting promote sustained emissions reduction. The Cleaner Air for Scotland 2 strategy and the ban on single-use plastics reduce emissions from agriculture, transport, and waste. The Green Industrial Strategy, Carbon Border Adjustment Mechanism, and investment in renewable energy infrastructure further reduce emissions from industrial processes and energy generation. Sustainable land management, ecosystem restoration, and low-carbon infrastructure promoted through the Scottish National Adaptation Plan and Scotland’s Biodiversity Strategy enhance resilience and support long-term emissions reduction. Overall, current policies are expected to deliver medium to long-term benefits for climate change mitigation.

Future policy objectives aim to build on these positive effects through systemic interventions. A proposed carbon tax on large agricultural estates, pilots to reduce methane emissions from livestock, and the next Climate Change Plan (2026–2040) will drive further emissions reductions through resource efficiency and low-carbon practices. Expanding electric vehicle (EV) charging networks and introducing integrated public transport ticketing will accelerate the transition to low-emission transport. A long-term air quality framework, the fourth River Basin Management Plan, and extended producer responsibility for packaging will cut emissions from industrial activity and waste management. Strengthening biodiversity measures for carbon storage and reforms to electricity market arrangements will further reduce emissions. Future policy actions under the Green Industrial Strategy will encourage low-carbon industrial practices and financial incentives for decarbonisation. Overall, future policies are expected to reinforce Scotland’s transition to a low-carbon economy, with sustained benefits in the medium to long term.

In combination, the future actions identified in the Draft Environment Strategy are expected to deliver positive cumulative effects for SEA objective 3a: Climate change mitigation.

Climatic factors: Climate change adaptation

The current policy objectives under the eight outcomes of the Draft Environment Strategy are expected to provide an overall indirect positive effect in relation to supporting adaptation to climate change. Current policies focus on restoring biodiversity, enhancing ecosystem resilience, and implementing nature-based solutions, which strengthen Scotland’s ability to cope with the impacts of climate change over the medium to long term. Actions such as peatland restoration, the expansion of green and blue infrastructure, and improvements in air and water quality contribute to reducing climate risks such as flooding, heat stress, and biodiversity loss. Community initiatives, sustainable land use strategies, and circular economy measures further support local resilience and reduce pressures on ecosystems. Additionally, Scotland’s engagement in international collaboration and trade practices helps build resilience in food and energy security. While these measures primarily result in indirect positive impacts, they collectively foster a more climate-resilient society and environment.

In terms of future policy objectives, the Environment Strategy is also expected to have an indirect positive effect on climate adaptation, although the magnitude of impact is less certain due to a lack of detail in some areas. Future actions aim to build on existing initiatives, with an emphasis on strengthening climate resilience through increased provision of green and blue infrastructure, the development of updated air and water quality frameworks, and the expansion of circular economy practices. The integration of climate and nature risks into government planning, horizon scanning, and risk management, along with the promotion of climate justice and inclusive adaptation strategies, is expected to enhance Scotland’s ability to respond proactively to climate challenges. While these future policies are likely to contribute positively to climate adaptation in the medium to long term, the scale and timing of their effects will depend on the implementation and scope of the proposed measures.

Together across all eight Outcomes, positive cumulative effects are identified for SEA objective 3b: Climate adaptation.

Air

The current policy objectives set out under the eight outcomes of the Draft Environment Strategy positively impact Scotland's air quality by reducing harmful atmospheric pollutants and emissions. Current measures such as the Cleaner Air for Scotland 2 strategy, which establishes Low Emission Zones and promotes sustainable agriculture, contribute to lowering nitrogen oxides (NOx), particulate matter (PM), and ammonia levels. The Circular Economy and Waste Route Map reduces waste-related emissions, while active travel initiatives and the goal of reducing car kilometres by 20% by 2030 lower transport-related pollution. Woodland expansion, peatland restoration, and urban green spaces further improve air quality by absorbing pollutants. Measures such as banning single-use plastics and improving chemical regulations also prevent pollution at the source. These current policies provide a direct positive effect in the medium to long term, with some short-term improvements from specific initiatives like Low Emission Zones and plastic bans.

Future policy objectives aim to build on these improvements by introducing more stringent regulations and supporting low-emission technologies. Plans for an integrated public transport system and expanded electric vehicle charging networks are expected to reduce transport emissions. A long-term air quality framework aligned with updated World Health Organisation guidelines will introduce stricter pollution limits, particularly in urban areas. The fourth River Basin Management Plan is expected to address emerging water quality challenges, reducing pollutants that could impact air quality. Further measures, such as extended producer responsibility for packaging, a ban on single-use vapes, and closer alignment with EU chemical regulations, are expected to reduce industrial emissions and pollution from waste. These future policies are likely to have a positive effect in the medium to long term, but the scale of impact will depend on the implementation of specific regulations and infrastructure.

Overall, positive cumulative effects are expected for air quality from the actions set out in the Draft Environment Strategy.

Soil

The current policy objectives under the eight outcomes of the Draft Environment Strategy are expected to have an overall indirect positive impact on the conservation and enhancement of Scotland’s soil resources and geological sites. Existing measures, such as those promoting sustainable land management, peatland restoration, afforestation, and nature-friendly farming, contribute to improving soil health, preventing erosion, and safeguarding unique geological features. Policies aimed at minimising pollution—through strategies like Cleaner Air for Scotland 2, chemical regulation, and waste reduction efforts—help protect soils from contamination and degradation. Furthermore, initiatives supporting green and blue infrastructure, community-led land management, and renewable energy development enhance soil stability and resilience to climate-related risks. Although these actions are largely indirect in their effects, they collectively support the long-term protection and restoration of soil quality and geodiversity across Scotland.

The future policy objectives outlined in the draft strategy are anticipated to strengthen and build upon the existing framework, continuing to deliver indirect positive effects on soil conservation and the protection of geological sites. Planned measures include the introduction of a carbon tax on large agricultural estates, pilots to reduce livestock emissions, and further commitments to peatland restoration and sustainable farming practices within the next Climate Change Plan (2026–2040). Future enhancements to pollution control, such as the development of a long-term air quality framework, an updated River Basin Management Plan, and extended producer responsibility schemes, are expected to reduce harmful pollutants and plastic waste, mitigating their impact on soils. Additionally, continued support for green and blue infrastructure and organic food production will aid soil health and stability over the longer term. The integration of climate and nature-related risks into government and business planning, as proposed under resilience and risk management policies, is likely to provide further indirect benefits. While the specific details of some future actions remain unclear, the overall direction of policy suggests a continued focus on sustainable land management and nature-based solutions, offering further protection to Scotland’s soil resources and geological sites over the medium to long term.

Overall, positive cumulative effects are expected for soil resources and geological sites from the actions set out in the Draft Environment Strategy.

Water

The current policy objectives under the eight outcomes of the Draft Environment Strategy provide a largely indirect positive impact on preserving and enhancing the quality and quantity of waterbodies and groundwater, while also reducing the risk and effects of flooding. Existing policies related to biodiversity restoration, climate change mitigation, pollution control, and sustainable land use contribute to improved water retention, reduced contamination, and enhanced flood resilience. For example, peatland and wetland restoration, supported by the £250 million peatland programme, helps regulate water flow and filter pollutants, benefiting both surface and groundwater. The River Basin Management Plan plays a direct role in maintaining water quality by tackling pollution from agriculture, industry, and urban runoff. Additionally, the Scottish National Adaptation Plan integrates nature-based solutions such as floodplain restoration and sustainable drainage systems to mitigate extreme weather impacts. Green and blue infrastructure initiatives also enhance infiltration rates, reducing pollution and runoff. These measures provide benefits over the medium to long term, although some immediate improvements can be seen in waste and pollution control efforts, such as bans on single-use plastics and reductions in airborne pollutants.

Future policy objectives will likely reinforce and expand these efforts, further enhancing water resource management and flood resilience. The proposed carbon tax on agricultural estates will encourage tree planting and wetland restoration, reducing surface runoff and improving water retention. The next Climate Change Plan (2026–2040) is expected to include additional measures for mitigating flooding and protecting water quality. Further regulatory improvements, such as a long-term air quality framework, stricter chemical regulations, and extended producer responsibility for packaging waste, will help reduce pollution entering Scotland’s water systems. Future commitments to expanding green and blue infrastructure will provide longer-term benefits, as vegetation and sustainable drainage solutions develop over time to improve water filtration and flood mitigation. Additionally, the continued integration of climate and nature-related risks into government planning will help ensure a more resilient approach to water management. While these future actions are expected to strengthen Scotland’s environmental protections, their full impact remains uncertain, as many details are not yet fully outlined in the Environment Strategy. Nonetheless, they indicate a positive trajectory towards improving water quality, groundwater security, and flood resilience in the medium to long term.

Overall, positive cumulative effects are expected for water from the actions set out in the Draft Environment Strategy.

Cultural heritage including architectural and archaeological heritage

The current policy objectives under the eight outcomes of the Draft Environment Strategy provide largely indirect and long-term benefits for the conservation and enhancement of Scotland’s historic environment, cultural heritage, and built quality. Efforts to restore biodiversity and improve ecological connectivity contribute positively to the character of landscapes and urban spaces. Climate adaptation policies help protect historic sites from extreme weather and flooding, while pollution reduction measures, such as Cleaner Air for Scotland 2 and the River Basin Management Plan, mitigate environmental damage to built heritage. Sustainable urban design and green infrastructure initiatives also play a role in shaping settlement character, although these may result in mixed effects depending on how they interact with existing heritage settings. Resilience-building policies further safeguard historic environments by integrating climate risk management into planning frameworks. However, some actions may take time to deliver visible benefits, and their impact is mostly indirect, relying on broader environmental improvements rather than targeted heritage conservation efforts.

The future policy objectives build on these efforts, with enhanced measures to mitigate climate change and further integrate sustainability into planning and conservation. Proposed developments, such as a long-term air quality framework aligned with World Health Organisation guidelines, are expected to provide stronger protection for historic buildings by limiting exposure to harmful pollutants. Future transport and circular economy initiatives, including integrated ticketing and sustainable building practices, may also contribute to preserving settlement character by reducing environmental degradation. Additionally, planned enhancements to climate resilience, risk management, and nature-based solutions will further support the safeguarding of Scotland’s cultural heritage against future environmental challenges. While these future policies are expected to strengthen the existing framework, their exact impact remains uncertain as detailed measures have yet to be fully outlined. Nonetheless, they indicate a continued commitment to ensuring Scotland’s historic and built environment is resilient, sustainable, and well-preserved for future generations.

Overall, due to the indirect effects of the outcomes no cumulative effects are expected for cultural heritage from the actions set out in the Draft Environment Strategy.

Landscape, seascape and townscape

The current policy objectives under the eight outcomes of the Draft Environment Strategy provide an indirect positive impact on conserving and enhancing Scotland’s landscapes, townscapes, and seascapes, primarily through environmental restoration, pollution reduction, and climate adaptation. The Scottish Biodiversity Strategy supports green infrastructure and ecological connectivity, reinforcing Scotland’s cultural and natural heritage. Climate policies, such as peatland restoration and sustainable urban planning, improve landscape resilience, while efforts to reduce pollution, including Cleaner Air for Scotland 2 and waste reduction initiatives, help maintain visual and environmental quality. The Scottish National Adaptation Plan further strengthens landscape protection by integrating nature-based solutions, sustainable land management, and climate-adaptive planning. However, while these policies contribute to landscape enhancement, their effects are mostly long-term and indirect, with only some short-term benefits, such as improved air and water quality from pollution control measures.

The future policy objectives build on these existing efforts, with further potential to enhance Scotland’s landscapes, townscapes, and seascapes, although their specific effects remain uncertain in scale. Proposals such as a carbon tax on agricultural estates aim to encourage tree planting and wetland restoration, improving rural and coastal environments. The next Climate Change Plan and Circular Economy Strategy may introduce additional sustainable building practices that could influence townscape character. Future pollution control measures, including stricter air quality regulations, an extended producer responsibility scheme, and further bans on single-use plastics, are expected to enhance landscape cleanliness and resilience. Additionally, plans to integrate climate and nature risk management into government decision-making could strengthen protections for natural and built environments. As with current policies, the impact of these future measures is expected to be indirect and realised over the medium to long term, as landscape improvements and ecological changes take time to manifest.

Overall, due to the indirect nature of effects no cumulative effects are expected for landscape, seascape or townscape from the actions set out in the Draft Environment Strategy.

Material assets

The current policy under the eight outcomes of the Draft Environment Strategy contributes to the more efficient use of natural resources and energy through a range of initiatives. Existing policies promote sustainability by enhancing biodiversity, improving waste management, and supporting a circular economy. Actions such as peatland and woodland restoration, the Climate Change Plan Update, and the Circular Economy and Waste Route Map help to reduce resource waste, improve land productivity, and lower reliance on energy-intensive processes. Measures like Cleaner Air for Scotland 2, the ban on single-use plastics, and the expansion of renewable energy infrastructure directly support energy efficiency and sustainable resource use. Additionally, policies encouraging decarbonisation, climate resilience, and nature-based solutions indirectly contribute to long-term sustainability. While these existing policies primarily generate medium- to long-term benefits, some, such as bans on wasteful products and improvements in air quality, are expected to have positive short-term effects.

Future policy actions build upon these efforts by further embedding resource and energy efficiency across multiple sectors. The next Climate Change Plan (2026–2040), expanded integrated public transport and EV charging networks, and strengthened product and procurement standards will drive greater efficiency in transportation, industrial processes, and consumer behaviour. The Circular Economy Strategy, extended producer responsibility measures, and initiatives to localise food production will reinforce waste reduction and responsible resource use. Additional policies, such as the Strategic Spatial Energy Plan, agricultural support frameworks, and environmental risk management strategies, will further integrate sustainability into decision-making and infrastructure development. While these future policies are expected to deliver long-term efficiency gains, some initiatives, such as improved transport systems and procurement reforms, may result in medium-term benefits as they become established.

Overall, positive cumulative effects are expected for material assets from the actions set out in the Draft Environment Strategy.

Cross cutting policy proposals

In addition to the cumulative, secondary and synergistic effects identified from the outcomes and objectives of the Draft Environment Strategy, there are also strong interlinkages with cross cutting policy proposals. This includes existing and forthcoming national plans and strategies which support climate change mitigation, bring positive effects for biodiversity, flora and fauna, water, material assets and support the delivery of positive effects for population and human health.

What measures could be put in place to avoid, reduce or manage the environmental effects of the Draft Environment Strategy?

The 2005 Act states that ‘the measures envisaged to prevent, reduce and as fully as possible offset any significant adverse effects on the environment of implementing the plan or programme’ are outlined within the Environmental Report. These measures are often referred to as mitigation measures. The following text summarises the mitigation measures identified from the assessment.

No significant negative environmental effects have been identified, however a range of enhancement measures are described in relation to the actions below.

Outcome 1: Scotland’s biodiversity is restored and regenerated

  • The Environment Strategy should include a clearer statement of the priority of additional action to accelerate biodiversity restoration.
  • The Environment Strategy should include proposals on how to bring about change in the shorter term, identifying the resources required to achieve change at a faster rate. This is particularly relevant to those actions dependent on behavioural change such as sustainable farming, fishing and forestry, sustainable consumption choices, pollution reduction and sustainable travel.

Outcome 2: We have ended Scotland’s contribution to climate change

  • The Environment Strategy should give more detail on the scope of new changes to forthcoming plans and strategies outlined in Outcome 2, including the next Climate Change Plan, forthcoming Circular Economy Strategy and forthcoming Product Stewardship Plan. This would provide clarity on how these documents would further contribute to this outcome.
  • The Environment Strategy could provide further detail on what additional research is needed to drive behaviour change to achieve emissions reductions.
  • The Environment Strategy could include proposals to increase consumer awareness of product carbon footprints, for example through product labelling.

Outcome 3: We minimise pollution and waste in our environment

  • The Environment Strategy should give more detail on the improvements of new strategies outlined in Outcome 3, including the long-term framework for air quality and fourth River Basin Management Plan.
  • In the chemical pollution section of Outcome 3 the Environment Strategy should outline which chemicals in particular are included in the strategy, especially regarding future actions.
  • The Environment Strategy could introduce the deposit return scheme sooner and introduce measures to expand producer responsibility and support investment in advanced recycling technologies.
  • The Environment Strategy could support introducing stronger pollution regulations, measures to enhance public engagement and incentivise business innovation in waste reduction.
  • The Environment Strategy could support awareness and consumer choices in relation to air quality, plastic and chemical pollution.

Outcome 4: Scotland’s global environmental impact is sustainable

It is recommended that detail is added to Outcome 4 on how actions will be achieved, or the wording should be more definite that actions will be achieved.

Detail is recommended on the type:

  • of climate and nature action that will be undertaken through international collaboration.
  • of environmental impacts to be fully considered during the negotiation of trade deals.
  • of opportunities to strengthen Scotland’s role as a good global citizen.

The addition of timescales is suggested for when a ban on plastic waste exports to non-OECD countries will be delivered.

Outcome 5: Scotland’s society is transformed for the better by living sustainably, in harmony with nature

  • The Environment Strategy should include proposals on how to bring about change in the shorter term, identifying the resources required to achieve change at a faster rate. This is particularly relevant to those actions dependent on behavioural change such as addressing food waste and food choices.
  • The Environment Strategy should outline how the creation of blue and green infrastructure will be designed to support positive effects for landscape and cultural heritage.

Outcome 6: Scotland’s net zero, nature positive and circular economy thrives within the planet’s sustainable limits

Further detail in Outcome 6 is recommended on:

  • How private and public investment in infrastructure to enable the net zero transition will be generated.
  • Design of new due diligence requirements for tackling deforestation.
  • Timescales for proposals to deliver a Scottish equivalent to the Passivhaus standard.
  • How environmental impacts and opportunities will be taken into account during the negotiation and implementation of trade deals.
  • Potential implications for Scotland from strengthened EU action on due diligence.
  • Approach to strengthening climate and nature literacy across the public sector.
  • Potential implications for Scotland from the design of new due diligence requirements for tackling deforestation.
  • Approach to decarbonising existing industrial technologies.
  • Timescales should be indicated for:
  • Developing a Carbon Border Adjustment Mechanism.
  • New Scottish Air Departure Tax.

Outcome 7: We build Scotland’s resilience to climate change and other global environmental risks

  • The Environment Strategy should include proposals on how to bring about change in the shorter term, identifying the resources required to achieve change at a faster rate.
  • Policy on resilience to climate and nature-related risks could be improved by enhancing integration, funding, and accountability measures.

Outcome 8: These transformations are achieved through a just transition and support climate and environmental justice

  • Further detail could be added in Outcome 8 into how the Scottish Government can achieve just transition and support climate and environmental justice, considering all nine SEA Topics.
  • Further detail on how people will be supported to access justice on environmental matters could be included.

What monitoring is proposed?

Monitoring significant environmental effects is a statutory requirement within the 2005 Act. Monitoring seeks to ensure that plans avoid generating unforeseen adverse environmental effects and enables the responsible authority to undertake appropriate remedial action.

Section 11 in the Draft Environment Strategy sets out the monitoring arrangements for the Strategy. An Initial Monitoring Framework, published in 2021, sets out high-level indicators designed to provide a strategic overview and link to more detailed measures within related strategies and plans. In 2022, a website was launched to report on indicator trends and their implications for progress. The framework identifies areas where further work is needed to establish robust measures, and a review is planned to refine it, incorporating updates to the Strategy’s outcomes and ongoing developments such as nature restoration targets and the Circular Economy Strategy. The monitoring arrangements in the Draft Strategy also outlines that collaboration with stakeholders and public bodies will be key to this process.

The proposed approach to monitoring offers key opportunities to incorporate the monitoring of unforeseen environmental effects. As the Scottish Government develops the detail of the Environment Strategy monitoring, this should reflect environmental indicators which reflect the SEA topics. The proposals for monitoring will be addressed and further outlined within the post adoption statement at the end of the SEA process.

How can I comment on this Environmental Report

Consultation responses to the Environmental Report can be submitted via Citizen Space or email environment.strategy@gov.scot.

Contact

Email: environment.strategy@gov.scot

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