Low Carbon Scotland - meeting the emissions reduction targets 2010-2022: report

9. Monitoring and Delivery

Draft and final reports

9.1 This document is the final version of the Report on Proposals and Policies for meeting the annual emissions reduction targets for 2010 to 2022 that the Scottish Ministers must lay before the Scottish Parliament in accordance with the requirements in section 35 of the Climate Change (Scotland) Act 2009.

9.2 A draft version of this Report was laid before the Scottish Parliament on 17 November 2010 and underwent a 60-day period for Parliamentary consideration. This consideration was led by the Scottish Parliament's Transport, Infrastructure and Climate Change ( TICC) Committee, with additional scrutiny provided by the Economy, Energy and Tourism ( EET) Committee.

9.3 Before laying this final Report, Ministers had regard to all representations on the draft report, resolutions on the draft passed by the Scottish Parliament, and reports on the draft published by the Committees of the Parliament.

9.4 The TICC Committee report on the draft Report, which also incorporates the report of the EET Committee, is available on the Scottish Parliament's website ¹⁴³ , as is the Official Report of the Parliamentary debate on the Committee report, which took place on 12 January 2011 ¹⁴⁴ . The Scottish Government also received direct representations on the draft Report. Where respondents gave us permission to do so, these additional representations have been published on the Scottish Government's website ¹⁴⁵ .

9.5 The Scottish Ministers laid a written statement before the Scottish Parliament together with this final Report, setting out the details of the representations etc. made to them in respect of the draft Report and indicating any changes that were made as a result of those representations.

Strategic Environmental Assessment of the measures in this Report on Proposals and Policies

9.6 As discussed in Chapter 5, the Environmental Assessment (Scotland) Act 2005 sets out statutory requirements for the preparation and publication of Strategic Environmental Assessments ( SEA) by public bodies. The purpose of SEA is to ensure that the likely significant environmental effects of Scottish plans, programmes and strategies are assessed and taken into account during their preparation.

9.7 The Environmental Report is the key medium for outlining the outputs of the Strategic Environmental Assessment process to interested stakeholders. An Environmental Report on the proposals and policies set out in the draft of this Report was published on 17 November 2010 and was available for comment during the 60-day period for Parliamentary consideration of the draft RPP detailed above.

9.8 The Environmental Report details the results of the environmental assessment of these measures, identifying and evaluating the likely significant environmental effects of implementing them, as well as identifying the means to prevent or avoid significant adverse effects and enhance positive ones, while also considering reasonable alternatives where appropriate. As no new measures have been added between the draft and final versions of the RPP, no additional assessment was required.

9.9 The last output of the SEA process is the preparation and publication of an SEA Statement that sets out how the findings of the SEA have been considered, and how views expressed during the consultation period were taken into account.

9.10 More information about the SEA of the proposals and policies set out in the draft of this Report, including details of the consultation on the Environmental Report, is available on the Scottish Government's website ¹⁴⁶ .

Delivery of proposals and policies

9.11 The publication of this final Report on Proposals and Policies allows a shift in emphasis away from fulfilling statutory requirements to set annual targets and demonstrate how they can be met towards the practical delivery of emissions reductions. The Scottish Government has already taken steps to mainstream consideration of emissions reductions across its programme of work, and the policies and proposals in this Report will continue to be developed and delivered as part of this programme.

9.12 Chapter 2 and Annex B of this Report explain the complexity of the issues and the range of uncertainties which can influence the estimation of abatement potential and the delivery of emissions reduction for each policy or proposal in each sector. They also makes clear that this places limitations on the information that can realistically be captured in a summary document of this nature, and this Report is not intended to be a detailed delivery plan for individual policies and proposals. In line with the Scottish Government's approach to mainstreaming, the implementation of policies and the assessment of proposals to reduce emissions will be integrated into the policy process for the relevant sector.

9.13 Each policy and each proposal will require a tailored approach to consider how best to implement the measure within the sector. That approach will vary from sector to sector, and will be influenced by the availability of relevant data, the potential range of delivery partners and the existing policy and regulatory environment into which the measure is to be introduced. The Scottish Government and delivery partners will work together as required to develop an appropriate approach.

9.14 There are, however, a number of common issues relevant across sectors as we move into an implementation phase. They are:

• The scope to deliver multiple benefits across portfolios and outcomes;
• The assumptions about the effectiveness of a voluntary approach, where relevant, and the implications of an alternative, regulatory approach;
• Best value and the cost-effectiveness of measures in the short, medium and long term;
• The scope for prioritisation within the package of proposals;
• The scope to build on or align existing policy measures to secure efficiencies of cost and of scale;
• The up-front and ongoing costs associated with policies and the identification of sources of funding to support them;

• The opportunities and risks associated with the implementation of individual policies and proposals; and
• The role of different delivery bodies and sectors.

Monitoring progress

9.15 As the programme of work arising from the policies and proposals in this Report is taken forward, the Scottish Government will keep under review the progress being made in implementing these measures, and the extent to which these policies and proposals deliver the predicted abatement potential. In the event that it becomes clear that a policy or a proposal is unlikely to deliver the expected abatement, Ministers will identify alternative or additional actions to compensate for the reduced abatement. The circumstances in which this assessment is made will vary depending on the policy or proposal in question. This process is supported by the statutory reporting provisions required by the Climate Change (Scotland) Act 2009, which are set out in more detail below.

9.16 In particular, it is Scottish Government policy to lobby the UK and the EU to match Scotland's ambition and raise their respective targets to 42% and 30% respectively for 2020. If it becomes clear that the EU will not deliver the required trajectory within the required timescale, the Scottish Government will consider whether existing polices and proposals may be accelerated or expanded, and whether additional policies and proposals may be required in the non-traded sector to deliver the relevant statutory emission reduction target. This approach applies to all policies and proposals, not just those for which lead responsibility lies at EU or UK level. The Scottish Government is well placed to monitor and influence EU discussions, and will keep the situation under review. Any changes to policies and proposals would be identified in a timescale required to comply with the relevant statutory requirements.

The Scottish Government Low Carbon
Management System

9.17 To support and accelerate the mainstreaming of climate change in policy development across the Scottish Government , we are establishing internal governance systems that will ensure that progress is effectively measured and monitored. A Low Carbon Management System is being developed to further embed the responsibility to develop and monitor policies for reducing emissions across the whole of the Scottish Government. The System will:

• provide a robust framework for reporting Scottish Government actions;
• perform a key role in managing carbon effectively across the Scottish Government by increasing awareness on the activities and actions which contribute toward reducing emissions; and

• make the best use of existing frameworks, data, indicators and groups to minimise additional demands.

9.18 Senior Civil Servants leading the key sectors within the System are responsible for developing and implementing policies to reduce emissions in their sector. Each Director will be supported by a "scorecard" of policy actions and indicators against which progress will be monitored. This builds on the cross-sectoral approach taken to the development of the package of proposals and policies contained in this Report.

2020 Climate Group - performance indicators

9.19 The 2020 Climate Group is a gathering of leading figures from business, the public sector and civil society to ensure full realisation of Scotland's Climate Change Delivery Plan, and attainment of the 42% emissions reduction target. The Group was initiated by Ian Marchant, Chief Executive of Scottish and Southern Energy, with support from the Scottish Government, to ensure that all sectors of Scotland's economy and civic society contribute fully to achieving Scotland's ambitious climate change targets.

9.20 The 2020 Climate Group has developed proposals for indicators to help monitor progress in each of the Scottish Government's Low Carbon Management System sectors. The Scottish Government is working with the 2020 Group on a range of issues and has included a number of the indicator proposals within the Low Carbon Management System scorecards.

Reporting

9.21 The Low Carbon Management System complements the mechanisms already in place for monitoring progress to reduce Scottish emissions. Many of these derive from Part 3 of the Climate Change (Scotland) Act 2009 which puts in place a range of reporting requirements. Ministers must lay before Parliament:

• an updated report on proposals and policies as soon as reasonably practicable after each batch of annual targets is set. The next batch, for 2023-2027, must be set by 31 October 2011;
• an annual report stating whether the annual emissions reduction target for the most recent reporting year has been met. Scottish greenhouse gas emissions data is already published each year, generally around 18 months after the end of the reporting year. The first statutory report, in respect of the target for 2010, is due by 31 October 2012;
• in the case of a target not being met, a report saying what action will be taken in future years to compensate for the excess emissions;
• in respect of each year from 2010-2050, a report on emissions attributable to Scottish consumption of goods and services;
• in respect of each year from 2010-2050, a report on the impact on net Scottish emissions of the exercise by the Scottish Ministers of any of their functions relating to electricity generation. The Draft Electricity Generation Policy Statement is a precursor to this report;
• by 31 December 2015, a report on progress towards the interim target;

• retrospective reports on whether the 2020 and 2050 targets have been met.

9.22 Given that there will be a time lag between the end of a year and knowing whether the annual target for that year has been met, the Low Carbon Management System is a valuable tool for ensuring that the delivery of policies takes place at the pace required. Ministers will be able to refer to the scorecards to check that they are delivering the right action on the right timescales, and take additional action if necessary.

9.23 Whenever the Scottish Ministers lay a report on an annual target, a report on proposals and policies for meeting those targets, or retrospective reports on the 2020 and 2050 targets, they must also make a statement to the Scottish Parliament relating to those reports and attend, if requested to do so, any Parliamentary Committee to give evidence on the reports.

9.24 Alongside the statutory reporting requirements, the Scottish Ministers are committed to publishing an annual carbon assessment of the draft Budget, estimating the overall impact on emissions of Scottish Government spending. The second such assessment was published in November 2010.

Presenting actions and milestones to the
public

9.25 This Report is not intended to be the main tool for communicating the benefits of a low carbon Scotland and the associated actions to the public, and it does not attempt to capture the vast range of action that is underway at local level to build capacity and knowledge and share best practice. The Public Engagement Strategy, published in December 2010, sets out the principles and priority activities to inform people about Scotland's climate change targets, encourage them to contribute to achievement of those targets, and identify actions people in Scotland may take to contribute to the achievement of those targets.

9.26 Supporting the work of the Public Engagement Strategy is the Climate Change Behaviours Research Programme 2010-12 ( CCBRP). Led by environment researchers in government, this evolving programme features a range of projects, both in-house and commissioned, that seek to develop a clear understanding how change in key behavioural areas can be enabled and encouraged. The overall aim of the CCBRP is to inform the development and delivery of effective behaviour change interventions. More information about the CCBRP, including an update report published in February 2011, is available on the Scottish Government's website. ¹⁴⁷