Supporting Scotland's Transition - Land Use and Agriculture: Technical Supporting Document

Section 3 - What we heard: insights from the people of Scotland

During the summer of 2023, after initial co-development work with key stakeholders around the format and broad content of the LAJTP, we conducted a series of in-person and online workshops with a wide range of people from across Scotland. The aim was to help identify the barriers and opportunities that people face in their daily lives, relevant to achieving a just transition for land use and agriculture. The insights shared with us have helped to identify key themes that are of most immediate concern to those who will be impacted by the changes that are likely to accompany the journey to Net Zero.

For each and every person, a just transition meant something slightly different depending upon their lives and aspirations. Interpretation of the feedback is therefore, to a degree, subjective and many of the insights received are relevant to more than one policy area.

It was clear at a very early stage that a priority for everyone was to focus on the approach that the Government, (and other organisations with a role to play in the Net Zero journey), should take if a Just Transition is to be achieved. There were seven key areas that people felt required greater emphasis right from the start: education, collaboration, communication, innovation, equity, value and respect and local focus. The feedback suggested people wanted to be empowered and better equipped to make their own contribution to tackling climate change.

As the workshops continued, additional themes became apparent. These tended to reflect stakeholders’ specific interests and illustrated the practical issues that will need to be tackled if we are to reach Net Zero. This indicated that, having empowered people to act, addressing the practical issues would provide them with the tools that would enable them to take that action.

For this consultation, we have focussed on the seven key themes identified as priority areas for attention, the themes that outline the approach to achieving a Just transition. However, the insights that helped identify these were initially collected during discussions focussed around the four core Just Transition areas, (as outlined earlier in section 2), namely: Jobs, skills and economy; Environment and adaptation; Communities and place; and People and equity. Here we provide a more extensive narrative of what we heard during those discussions but structured around those four core areas.

We would like to remind the reader that the views summarised below have been collected during discussions with stakeholders and are not the policy positions or views of the Scottish Government.

Jobs, skills and economy

Views on education

The public need to understand the value of food and how it gets from the farm to their forks. They also need to be aware of how interconnected rural activities are and how farming and land use impacts upon the wider environment. Without this broad understanding, it will be harder to change peoples’ behaviour or help them appreciate what public money is being provided for and why that is good.

This applies to all ages, from early years onwards. We must all be made aware of the part we play in achieving net zero and that it is a process that will span many years and many generations. It is important that what is taught is appropriate for the locality.

The role of educator falls to many, from parents and teachers to those with first-hand experience such as farmers, advisors and major food retailers. There is perhaps also a role for children, to encourage their parents and friends to ‘do their bit’.

‘Peer-to-peer’ teaching is considered to be most effective, particularly amongst the farmers and land users who need to make changes ‘on the ground’. Additionally, there is a need for improved access to remote learning, backed up with locally available practical teaching.

The subject matter needs to be broad: from land-based skills to cooking with seasonal food; from understanding rights and responsibilities to development of interpersonal and collaboration skills. Education extends to knowledge transfer and advice, so that those employed in the sector are better informed and continue to develop their personal skills. It includes careers advice, to encourage people, (especially the young), to take up environmental and rural based work.

There is a need to counter the rise of inaccurate and negative information that appears to be especially prevalent across social media. Barriers to providing a comprehensive education service should be identified and removed.

Views on jobs and skills

There are already challenging labour shortages across agriculture and other land uses, of both skilled and temporary/seasonal workers, which is restricting business expansion and diversification. This is compounded by the considerable burden of paperwork that comes with managing employees.

The apparent lack of interest in rural careers is thought to be attributed to factors such as low wages, poor working conditions, perceptions of the value of rural work, housing availability, childcare provision, the seasonal nature of many jobs and accessibility to a variety of work suitable for men and women of different abilities.

There should be more apprenticeships for young people in rural based industries and schools and colleges should focus more on teaching skills suitable for rural activities, to meet both current needs and the new jobs that will be essential for the transition to net zero.

When developing training, do not forget to continue to share the traditional skills that already contribute to positive environmental outcomes. Retain local knowledge and make use of the valuable experience that exists. Be mindful that it takes time to establish training courses and content so get prepared now for future demand. Remember also that the pace of change required will mean that older workers will need suitable training to adapt to new roles.

A diversity of skills will be required to reach net zero, some of which appear to be lacking at present in Scotland. Technology will be important, as will skills applicable to tackling the nature crisis. However, existing skills should be expanded, such as in deer management, horticulture and making the most of seasonal food.

Views on economy

Tourism is a high value sector of the Scottish economy but one that has a major impact on the environment. These competing needs must be balanced, perhaps via a new tourism strategy.

Renewable energy production is suited to rural areas but there are growing concerns about negative impacts to the environment and to communities. Investigate opportunities beyond large scale wind farms for renewable energy, such as smaller turbines for local energy grids, micro hydro schemes, solar and community heating systems. Large scale developments should be closer to the point of demand. A greater share of profits should come to the community that is impacted by the presence of renewable energy projects to offset the loss of amenity.

Innovative technologies in a rural setting can produce a step-change in how we reach net zero, with suggestions including green hydrogen production, agrivoltaics, automated food processing, methane capture, AI and GIS, and regenerative agriculture. However, more innovative use of current rural outputs is also an option, such as increasing consumption of venison and making more use of wool.

If these ‘green’ technologies are to produce real ‘net zero’ dividends, there will need to be an increase in highly qualified engineers and technicians. Ideally, they would live in the rural areas where they work, helping to sustain viable communities.

Further research is required into the socioeconomics of rural living and into the options available for carbon capture. The likely future impacts of climate change should be investigated to identify new opportunities such as alternative crop production. However, much good work is already being done - we should be making better use of existing land use data to help with strategic planning and build upon current carbon capture calculators to develop one ‘whole system’ version.

Lack of financial profitability limits the appetite and capacity for change, but this could be less of a challenge if Scotland is really looking to shift priorities and become a place-based, wellbeing economy.

Environment and adaptation

Views about using Scotland’s natural capital

Perhaps unsurprisingly the environment and adaptation theme focussed in on the practicalities and specifics of utilising Scotland’s land, in particular the core activities of farming, forestry and peatland management but also the provision of ecosystem services and the benefits of nature.

Agricultural practices should become more varied and diverse, with more tree planting and use of livestock to improve biodiversity. This should be balanced with making the best use of productive land for food production. Crofting and smallholding illustrate how diversity can have environmental benefits. Unproductive land should be identified and utilised for appropriate purposes, for example community housing. Strategies for land use need to be interconnected to ensure land is used for maximum benefit. Land reform is required. Land should be sub-divided into smaller areas to enable more diverse land uses.

Support for agriculture needs to be reviewed: land classification is a barrier to integrated land management; area-based payments are an outdated way to distribute financial support; agri-environment schemes tend to favour the larger holdings; and the Agriculture Wages Board is no longer relevant in light of new employment legislation. There is an urgent need to improve the integrity and regulation of carbon trading to deny carbon emitting companies an easy route to offload their own responsibilities without any benefit accruing to the local communities or the agriculture sector.

It is challenging to recruit staff with the necessary skills and motivation to work on the land. Indeed, there will be a need to ensure farmers and land managers themselves have access to the knowledge and training they will require to adapt to new practices.

Farmers are dealing with a different mix of opportunities and challenges. Opportunities include the support to carry out soil and carbon audits and the potential for growing new crops due to changes in climate. Challenges include a growing administrative burden, higher costs for farming on the islands and uncertainty about future support that prevents farmers from planning ahead. Planning regulations need to change to reflect changes in farming practices. Tenant farmers are not incentivised to adopt environmentally beneficial practices as support funding tends to accrue to the landowners. Farm diversification may not necessarily be an option for everyone.

Crofts and smallholdings are undervalued. These traditional practices provide diversity, support nature and help climate change whilst producing food for themselves and others. A significant amount of crofting land is held in common grazing that could offer additional benefits if managed differently. It has been suggested that future agriculture support needs to include land management options that are appropriate for smallholdings and crofts.

However, it is recognised that many crofts are not productive and action should be taken to utilise these. Additionally, crofting regulation needs to be more effective.

With regards forestry, commercial scale coniferous planting brings many negative outcomes, including issues around biodiversity, disease and visual scarring. Alternative options should be considered: neglected woodland should be brought back under effective management; community woodland projects should be supported; agroforestry should be encouraged on farms and local tree nurseries established. There is a need for more diverse tree planting, particularly of broadleaf and native species, and a change to forestry practices such as continuous cover cropping.

Peatland restoration needs to be prioritised. Due to its environmental value there is no justification for further peat extraction, and there should be a review of peatland carbon offsetting.

Thinking about nature and biodiversity, it was felt that meaningful habitat management requires large areas of land. However, traditional farming and crofting practices were considered complimentary with biodiversity and nature restoration, and it was felt that more could be done on farming land for their benefit. Similarly, re-wilding brings benefits, but this should be balanced with other land uses such as carefully managed livestock grazing. There are concerns about the management of deer and the impact this will have on land use if not addressed.

The public needs to be aware of the multiple benefits that are provided by the natural environment, particularly in the form of ecosystem services. Agriculture also has a role to play here but it will need to work with organisations such as SEPA to align with regulations.

Finally, the marine and freshwater environments should not be overlooked as these are connected with the landscape. Land users need to show care and respect in coastal and river areas. Aquaculture contributes significantly to the local community and there are opportunities for the use of by-products within a circular economy.

Views on food security

Support is required to assist farmers to supply directly to local markets. This is particularly important for smaller producers who need an easier route to market if they are to compete with the big retailers. It was suggested that supermarket buyers should have greater freedom to buy local produce for local stores. This could also be encouraged through greater public procurement of locally produced food for public services.

The control and influence that the big supermarket chains have over farmers was a concern; the entire food system needs to be fair for all, from farmer to consumer. Trade deals negotiated with other countries are driving prices down and impacting upon the profitability of Scottish farming. Options to diversify are limited by the supply of cheaper products from the global market.

Picking up again on the education theme, people should recognise that ‘good food is not cheap food’. Consumers should be aware that it is a challenge for Scotland’s farmers to supply reasonably priced food that is of good quality and meets high standards of welfare whilst making a commercial profit. Increased community food production should be encouraged and incentivised, to improve the availability of local produce and encourage better land stewardship.

It is essential to reduce levels of waste. Many consumers are ‘hooked’ on convenience food and processed products, whilst many others are restricted in their choices by home finances. If we are to achieve true food security, consumer behaviour needs to change. Likewise, the food supply chain should itself be as ‘green’ as possible, with investment in new distribution methods given as an example of an area for action.

It was suggested there could be merit in appointing an ombudsman to regulate supermarkets’ control of food supply.

Food supply is impacted by other demands placed upon productive land, for example barley for the whisky industry.

Community and place

Views about local focus

It is important that people who have the knowledge and understand the locality are involved in the decision-making process from an early stage. However, they need support to do this. Currently it appears it is the landowners who have the power to make decisions, without due consideration for the rest of the community.

National policy can limit flexibility as it does not take into account subtle variations between different localities. These differences also place limitations on what climate change mitigations can be implemented from place to place. It is important to be clear on what the most effective action is for each location and implement ‘the right thing in the right place’.

Commercial interests appear to take priority over community interests and take most of the profits without making a meaningful contribution. Some benefit should remain in the local community. Small businesses should be valued for the contribution they make.

It can be challenging to maintain viable communities in rural areas. A lack of skilled tradespeople holds back diversification and adaptation. Young people leave for higher education. A shortage of affordable housing and the growth in the number of second homes makes it hard for people to remain in the area. Depopulation and changing demographics have led to concerns that there won’t be sufficient people in the rural areas to do what has to be done to reach net zero.

Producing food locally, for local consumption, is considered deserving of greater attention and support. In addition to the environmental benefits, small producers will have increased market opportunities and consumers can access healthy produce at lower cost. Foraging is also seen as an environmentally friendly source of food for local consumption. Production could be encouraged by public procurement for services in the local vicinity.

At a local level, key individuals can exert a disproportionate amount of influence. It is important that everyone should be supported to have their say. Conversely, it was suggested that within government, decision making involves too many people resulting in a lack of, or poorly enacted, action. Faster decision making is needed, to minimise problems and enable positive change.

Centralisation of services is removing agency from smaller, rural communities. This could be changed by giving community councils greater powers and the community greater access to discretionary funds. Be aware that community engagement can be impacted by political influences; it should have a cross-government agenda.

Views on infrastructure

The lower population density and extensive geographical area limit the commercial viability of infrastructure in rural areas and yet it is an essential component for the successful functioning of communities. Issues around infrastructure were frequently raised during our community engagement.

The major problem for producers of food is the lack of local abattoirs, local auction marts and processing facilities. This needs to be addressed if Scotland is to make better use of its agricultural land and keep rural communities viable.

For forestry, there is a need for more locally based sawmills and processing facilities, especially if we wish to reduce haulage volumes.

Housing was identified as being absolutely key to ensuring the viability of rural areas. There are many issues to resolve, around availability, affordability, suitability, quality and diversity. If these are not addressed rural de-population will continue, and the people needed to support future land use change will be unable to find homes. Innovative ways to finance housing were proposed, such as ‘pay what you can afford’ schemes and community house building projects. One interesting suggestion was to give greater consideration to the provision of adequately sized gardens to support the production of more home-grown food.

A shortage of workspaces for rural businesses is limiting diversification and expansion. Many people have to work from their homes, raising concerns that this is not only restricting rural development now, but it may limit the scale and range of future activities that can be done to respond to climate change.

Improved digital connectivity has the potential to allow people to work from home and run their businesses effectively, and to access essential services and partake in wider engagement and decision making.

Energy networks could be improved for the benefit of local communities. Rural customers have high access costs compounded by high usage requirements in the winter months, yet energy produced in their locality is exported directly into the national grid. Other infrastructure challenges were identified: mains water and sewerage; three phase electricity; transport, (road, rail and ferry, private and public); recycling facilities and waste disposal. It is hoped new technology could provide solutions to these challenges.

Wider considerations

There are broader issues to keep in mind if we are to achieve a just transition. For instance: existing good practice should be recognised through appropriate support and subsidies; lack of certainty about the future is preventing new entrants from taking on farming; change takes time, particularly the cultural and behavioural change that is required; beware of unintended consequences; and encourage balance in all that is done, particularly between nature and agriculture.

Recognise the diversity that already exists in Scotland, (geographic, social, etc.), but also the value of creating wider diversity to ensure resilience in the future. Dealing with land use change alone misses the point; everything is interconnected, necessitating a whole system approach. There is also an international context to Scotland’s journey to net zero that should not be overlooked.

The answer to our climate change and nature problems is basically a reduction in everything we consume. We should be wary of vested interests with disproportionate lobbying power, and the dangers of malicious ‘fake’ information. Benefits are often valued in financial terms, but profit should not be the driver for change; wellbeing, health, nature, sustainability and resilience should be some of the values to aim for. Change is needed and it is needed urgently; we cannot afford to be complacent.

People and equity

Views on working together

One of the most often repeated comments heard throughout our engagement was the need for effective communication, to ensure the scale of the challenge ahead is fully understood. This includes communicating what needs to be done so that people understand their role, and how it can be done so that people can take appropriate action. Communication needs to be clear, open and far reaching. It is a two-way process and should allow for feedback.

Extensive engagement is essential. People need and want to be included in the planning and preparation of the journey to net zero. This should be continuous, and support is required to empower people to be involved.

Collaboration is equally important, at all levels, even between groups that have traditionally taken opposing positions. Farmers for example, and landowners to a lesser degree, have concerns they are seen as separate from the wider community when, in reality, they are very much part of it. There were requests to avoid politicising rural issues but to identify the best outcomes and work together to achieve them. Getting to net zero requires everyone to work together. Regional Land Use Partnerships (RLUPs) were often identified as a good example of how effective collaboration could be facilitated.

Networks must be established across different sectors as well as within, if they are to be effective. This could well require some creative approaches, the merging of many organisational ‘visions’ into one common purpose, and less complacency from everyone. The combined will of the people as it stands now is not sufficient for the task in hand!

The scale and pace of change to achieve net zero requires a new approach to policy making. There are too many people involved in the decision-making process, too far removed from the issues and lacking sufficient knowledge of the detail. Policy needs to be flexible to reflect the diversity within Scotland. It was suggested that amending existing policies is more effective than developing new ones.

Regulation can be a burden and unnecessarily complicated for many rural situations, and many people thought it could be simplified. That said, there was also a recognition that legislation and enforcement have a definite place in ensuring actions for climate change and nature are enacted. It is important to achieve the right balance.

Views on equity, value and respect

There is concern that a disproportionate share of profits from natural resources leave the area where they are generated and that the benefits are not fairly distributed within the community. Some geographical areas are home to just one dominant type of land use, the imbalance resulting in bland landscapes and potentially the loss of the resilience that comes with diversity.

Meeting the challenge of climate change involves greater risk which smaller businesses are unwilling or unable to take on. These risks should be shared by government and wider society. Uncertainty holds back change; farmers and other land users need clarity about the future to give them the confidence to take action.

Much of the burden of achieving net zero will fall to the more sparsely populated rural areas. It is important to build capacity within communities and provide support where appropriate. Where communities take on ownership of natural assets, revenue funding should be included with the capital to support initial project management costs. It is felt there are certain fiscal interventions that could be used to ‘level up’ across Scotland. Even modest amounts of funding can be the catalyst for greater community action.

Living in rural areas brings challenges. Capacity to act is restricted by limited infrastructure and poor access to land, housing and jobs, something felt more acutely by younger people. Rural residents are faced with higher costs for many essentials such as food, energy and transport. Respect those challenges and have realistic expectations.

There is potential for conflict between outside organisations and smaller community groups and individuals, where change can have a disproportionate impact on the latter. There should be greater community input throughout the decision-making process to alleviate this, especially around land use issues.

Much rural activity uses traditional practices that are good for the environment, and this should be recognised. Rural and island communities take great pride in their ability to be self-sufficient and these skills could be expanded as part of the actions to get to net zero. There should also be recognition of the contribution the more pioneering landowners and managers have already made through taking the lead on climate change and nature restoration actions.

Regulation can have both positive and negative impacts on equity, the effects often more keenly felt by the people who lack the resources, time or skills to respond.

Views about health and wellbeing

There was little variation in the comments made around health and wellbeing, both mental and physical, but it was an emotive subject for most people. Stakeholders felt that significant benefits can be achieved for people by:

• Working on the land;
• Spending time in the natural environment;
• Being engaged in community activities;
• Having access to healthy food.

It is essential to appreciate the pressures people face through living and working in isolated areas, often made more extreme by having to work long hours for low wages. The very nature of change itself, and the fear of it, can have an impact on health and wellbeing; keep this in mind when making the transition to Net Zero.

Resilience, of both individuals and communities, is considered important in achieving long term sustainability. It was suggested that diversity was an important element to build resilience. Also, community projects enabled the sharing of benefits and helped people learn how to cope with change. In a rural setting, engaging with people who are suffering with mental health and wellbeing issues is challenging.

Additional perspectives

Further insight was collected during a series of bespoke events held to try and ensure there were as few gaps as possible in stakeholder involvement. Much of the discussion mirrored what had been said during the earlier community workshops but these sessions did provide some interesting variations to the themes that reflected the different experiences and aspirations of these additional stakeholder groups.

Views around rural mental heath

In addition to educating people about the direct benefits that come from our use of land, there also needs to be greater awareness of the indirect benefits. In particular, employment on the land and living with nature can contribute to physical and mental health, a sense of wellbeing and a sense of community. Urban dwellers also benefit through access to both green and blue spaces.

As new, ‘green’ jobs are created, they should be seen as an opportunity to do more than just provide an income and economic benefit. Provided there are realistic expectations around workloads, conditions and capacity, there is potential to provide long term stability for individuals and communities alike. Year-round work would be more beneficial than seasonal employment, offering security and peace of mind.

In the same way a Just Transition is an intrinsic part of all policy making, the benefits for mental health should likewise be embedded within the Just Transition. Mental health should be discussed more openly and not stigmatised as it often is. Impacts on mental health need to be considered equally alongside commercial interests, suggesting that, like natural capital, it should be valued differently than it perhaps currently is.

Those who work the land are often more practically minded so ensure that solutions to problems are practical ones. Often rural residents can be reticent about speaking up, so reach out and encourage them to give their views by showing respect and listening carefully.

There is a disconnect between ‘planning’ and ‘community’. Planners may prefer new housing to be alongside existing conurbations, but people often want to remain in their own community with family and friends, especially in more sparsely populated areas, or simply because they prefer the relative isolation.

‘Social farming’ initiatives have been proven to improve the general happiness of people with serious mental health issues. This is supported by the NHS and should be subject to specific Scottish Government policy.

Community ownership is often seen to provide ‘work’ when in reality it can be under-resourced and heavily dependent upon a small number of volunteers sharing a heavy workload. It may not be a sustainable option, particularly for volunteers’ mental health and wellbeing.

Inequalities are increasing as we are not responding quickly enough to the issues that are arising from our actions to tackle the climate and nature crises.

Views from younger people

Focussing on education was a high priority for younger stakeholders, perhaps because many had recently completed their studies or were still at college or university. They emphasised the importance of engaging with children from as early an age as possible. Experiencing the natural environment first hand, visiting farms, and understanding where food comes from were given as examples, recognising the fact that not only are children the land managers of the future they are also the next generation of consumers.

There was also recognition of the value of land-based learning, with apprenticeships seen as offering experiences that classroom-based study simply could not provide, and an effective way to produce competent and motivated people. Tackling climate change is a long-term challenge and this is an area that requires significant investment, with the food industry identified as needing to make more of a contribution.

Pay and working conditions, including health and safety, were uppermost in their minds, illustrating that these are extremely important if young people are going to be attracted to the sector as a long-term career choice. There is anxiety about ‘greenwashing’ pushing land prices higher, reducing the availability of farms for new entrants and other opportunities for careers in agriculture. Retiring or disillusioned farmers are tempted to take the 'easy pound' that comes from inflated prices for land for trees, and large profitable farms have the means to acquire additional land despite high prices.

Younger people felt there was a need for training around interpersonal skills, so that land managers could manage people effectively. An example provided was of family members ‘managing’ other family members, where the working relationships are more complex. Another was where jobs on a farm are given to family members who don’t necessarily have the right people skills or experience to manage external workers properly. One stakeholder highlighted that sometimes people brought up on farms think they have the skills, experience and knowledge to farm effectively when in reality they have inherited outdated approaches and bad habits; they’re unlikely to take up training as they’re not aware they could be doing things differently. Perhaps these views demonstrate some of the frustrations inherent within the agricultural sector? There was, however, recognition of the value of practical skills and knowledge about the locality that have been learnt over time and passed down between generations.

There were concerns that the media seemed to be painting a very negative picture of the agricultural sector, one that was not justified. It seemed particularly unfair that the positive aspects of farming were not being talked about:

"Every time you see something about agriculture coming on the news, you jump behind the sofa because you're just having to brace yourself against what's going to come out, what they're going to say".

Young people were very supportive of taking a collaborative approach to our climate and nature actions, recognising that whilst large holdings can facilitate larger projects at scale, it is also possible for a diverse range of smaller holdings to do likewise, perhaps if financial support was organised differently.

These stakeholders took a nuanced approach to equity and equality, agreeing wholeheartedly about the need to support minority groupings but pointing out the need to be careful not to discriminate unintentionally. Remember there will be people within the mainstream majorities who also face challenges and need support, and take care not to treat women as ‘token farmers’ when they are definitely there on merit. From a diversity perspective, we should not be looking simply at gender and ethnicity. What about cognitive diversity and how that can bring fresh perspectives and diverse ideas from other industries, helping to look at farming and land use in different ways.

Views from women in agriculture

Provision of childcare is definitely a barrier for many people in rural areas. Although not without its challenges, farming is one career where it is possible to raise children whist still playing a valuable role in running the business.

There was a strong sense of optimism around the contribution agriculture can make to climate change and nature restoration. If done properly, agriculture can provide top quality food, environmental benefits and resilience against future issues such as drought.

It can be hard finding the opportunities to learn if you have come into farming having completed another course of education and do not have an agricultural background.

Agriculture is a very significant contributor to the viability of rural areas, from the economic benefits that the business generates to the contribution the farming family brings to the community, whether that is from supporting the local school, playing an active role in social events, or helping out when flooding or heavy snowfalls cause problems for local residents.