Circular economy and waste route map to 2030: strategic environmental assessment - environmental report

3 Approach to the assessment

3.1 SEA process to date

SEA has a number of distinct stages: screening, scoping, the environmental assessment, the production of an Environmental Report, and the publication of a Post-Adoption Statement. At each stage, there is a requirement to consult with three statutory Consultation Authorities. These are Historic Environment Scotland (HES), NatureScot and the Scottish Environment Protection Agency (SEPA).

The first stage of SEA leads to the production of a Scoping Report. This sets out the proposed scope and approach to assessing the potential environmental effects. The SEA Scoping Report for the Route Map was issued to statutory consultees and three responses to the consultation were received, which resulted in amendments to the proposed scope and approach to assessment. A schedule of consultation responses to the Scoping Report is contained at Appendix B.

Through the first Route Map public consultation, specific views on information or evidence that should be considered with regards to the environmental impact of proposals outlined in the Route Map was sought, to inform the development of the Strategic Environmental Assessment process.

The findings of the subsequent environmental assessment are presented in this SEA Environmental Report.

3.2 Scope of the assessment

3.2.1 SEA topics

Table 2, Table 3, and Table 4 list the SEA topics scoped into this assessment exercise against each strategic theme of the Route Map to which they are relevant.

It was originally proposed that Cultural heritage and the historic environment could be considered out of scope for the assessment of all interventions except those under the Reduce and Reuse theme relating to circular construction practices. It was not anticipated that any other Route Map interventions would have a significant direct impact on the preservation of historic buildings, archaeological sites, or other culturally important features. Feedback from the consultation authorities indicated that all statutory consultees agreed with the results from this scoping exercise.

During the course of the assessment, Cultural heritage and the historic environment was scoped into the assessment of interventions under the Modernise Recycling strategic aim, as potential impacts were identified as a result of the proposed co-design of collection services and previous investigation into commercial zoning which could impact historic settings. Following inclusion in the first Route Map consultation, the draft Circular Economy and Waste Route Map does not propose mandatory zoning as a preferred approach.

The measures within the ‘Strengthen the Circular Economy’ theme are considered out of scope for this SEA since they will support the other interventions rather than leading to specific impacts themselves.

Table 2 - Scope of environmental topics assessed within the “Reduce and Reuse” strategic aim of the Route Map.

	Reduce and Reuse: Responsible consumption, production, and reuse	Reduce and Reuse: Food waste	Reduce and Reuse: Circular construction
Biodiversity, flora and fauna	In	In	In
Population and human health	In	In	In
Soil	In	In	In
Water	In	In	In
Air	In	In	In
Climatic factors	In	In	In
Material assets	In	In	In
Cultural heritage and the historic environment	Out	Out	In
Landscape and visual impacts	In	In	In

Table 3 - Scope of environmental topics assessed within the "Modernise Recycling" strategic aim of the Route Map.

	Modernise recycling: Household	Modernise recycling: Commercial
Biodiversity, flora and fauna	In	In
Population and human health	In	In
Soil	In	In
Water	In	In
Air	In	In
Climatic factors	In	In
Material assets	In	In
Cultural heritage and the historic environment	In	In
Landscape and visual impacts	In	In

Table 4 - Scope of environmental topics assessed in the "Decarbonise disposal" and "Strengthen the Circular Economy" strategic aims of the Route Map.

	Decarbonise disposal	Strengthen the circular economy
Biodiversity, flora and fauna	In	Out
Population and human health	In	Out
Soil	In	Out
Water	In	Out
Air	In	Out
Climatic factors	In	Out
Material assets	In	Out
Cultural heritage and the historic environment	Out	Out
Landscape and visual impacts	In	Out

3.2.2 SEA objectives

The SEA objectives for each of the scoped-in environmental topics are listed below. These objectives form the basis of the assessment questions addressed in this report. One additional objective was added against the topic ‘Cultural heritage and the historic environment’ following a recommendation from Historic Environment Scotland in their feedback on the Scoping Report.

Biodiversity, flora, and fauna

• Avoid adverse impacts to habitats and species.
• Protect, maintain, and enhance biodiversity.

Population and human health

• Create conditions to improve health and reduce health inequalities.
• Protect and improve human health and wellbeing through improving the quality of the living environment of people and communities.
• Increase sustainable access to essential services, employment, and the natural and historic environment.

Soil

• Safeguard and improve soil quality, quantity, and function in Scotland.
• Water Ensure the sustainable use of water resources.
• Limit water pollution to levels that do not damage natural systems.

Air

• Avoid adverse impacts to air quality.
• Reduce emissions of key pollutants and improve air quality throughout Scotland.
• Reduce levels of nuisance e.g., noise, vibration, dust, odour, and light.

Climatic factors

• Avoid new Greenhouse Gas (GHG) emissions.
• Reduce GHG emissions in order to meet Scotland’s emissions reduction target of net zero by 2045.

Material assets

• Avoid adversely impacting on material assets (e.g., water, heat, energy, and flood protection infrastructure .etc).
• Promote the principles of circular economy.
• Reduce use and promote sustainable management of natural resources.
• Promote the sustainable design, use and management of new and existing assets/infrastructure to support the development of high-quality places.

Cultural heritage and the historic environment

• Avoid adverse impacts on the historic environment including its setting.
• Protect and enhance valued landscapes, historic and archaeological sites and other culturally and historically important features, landscapes, and their settings.
• Encourage the retention, reuse and repair of historic environment assets and materials.

Landscape and visual impacts

• Avoid adverse effects on landscapes and visual impacts.
• Safeguard and enhance the character and diversity of the Scottish landscape and areas of valuable landscape and geodiversity.

3.3 Reasonable Alternatives

The Environmental Assessment (Scotland) Act 2005 requires that reasonable alternatives be assessed.

The Route Map under assessment is designed to set out all reasonable actions required to accelerate progress towards a series of pre-determined targets and ambitions. We have therefore assumed that, taken together, the proposed actions constitute all the reasonable alternatives that could be proposed for such high-level strategies. No additional alternatives were identified in the course of the Scoping stage of the assessment, and feedback from consultees did not recommend any reasonable alternatives that had been overlooked.

3.4 Context to the assessment

3.4.1 Purpose of this section

Schedule 3 of the Environmental Assessment (Scotland) Act 2005 requires that the following be identified:

• Relevant aspects of the current state of the environment and its likely evolution without the plan or programme.
• Environmental characteristics of areas likely to be affected.
• Relevant existing environmental problems.
• Relevant environmental protection objectives at the international, European, or national level.

The Route Map is assessed against this baseline to provide an indication of the type and significance of any environmental effects likely to arise.

3.4.2 Environmental principles

The assessment in this SEA has reflected Minister’s duty to give due regard to the guiding principles in Section 13(1) of the Continuity Act^[1]. These principles are:

• The principle that protecting the environment should be integrated into the making of policies,
• The precautionary principle as it relates to the environment,
• The principle that preventative action should be taken to avert environmental damage,
• The principle that environmental damage should as a priority be rectified at source,
• The principle that the polluter should pay.

The assessment objectives and questions reflect the principles that protecting the environment should be integrated into the making of policies, and that measures in the plan should ensure that appropriate preventative actions are taken to avert environmental damage. The assessment highlights any outcomes of the interventions that may be expected to cause environmental damage, and has informed the assessment, for example when establishing significant environmental topics through the Scoping Report. It is anticipated that once specific interventions have been defined and agreed, further impact assessments may be necessary. In this case, the guiding principles should be considered in any detailed assessments in subsequent SEAs.

It is worth noting that the Route Map has incorporated the principles directly in policy development, as summarised in the SEA screening and scoping reports. The principles underpin the importance in delivering a circular economy in Scotland as part of the vision set out by the Environmental Strategy for Scotland^[2]. To summarise, measures aim to protect the environment by reducing the environmental impacts of material consumption and waste; and cover the breadth of the waste hierarchy, that is, they aim to reduce waste, as well as increase reuse and recycling, and minimise the impact of disposal. In so doing, the Route Map prioritises the rectification of impacts at source as a guiding principle.

Finally, the polluter pays principle informs resource and circular economy policy development through the Route Map, and many of the key interventions have been designed to align with this principle. For example incorporating the principle through product stewardship, extended producer responsibility and introducing charges for damaging products.

3.4.3 2025 Targets and beyond: background information

This section of the report contains background information on the current status of progress towards the five waste and recycling targets and the climate change targets in the Climate Change Plan.

3.4.3.1 15% reduction of all waste, against 2011 baseline

2018 figures showed a 4% reduction in all waste. In 2021, the target was met, with a total reduction of almost 20%^[3]; however this represents lower construction activity caused by COVID-19 (construction and demolition waste fell by 75% compared to 2018, and accounts for approximately half of the reduction of all waste since 2011)^[4]. This underlines the strong link between this target and the scale of construction activity in any given year.

3.4.3.2 33% reduction of food waste, against 2013 baseline

The latest Scottish food waste data estimate for 2021 suggests that over 1 million tonnes of food was wasted in Scotland during 2021, accounting for around 6% of Scotland's total carbon footprint that year.^[5] It also suggests that the scale of the problem has increased in Scotland over the past decade. In comparison to the 2013 baseline, in 2021 there was a total 2% per capita increase and an overall 5% increase in the volume of food wasted.

3.4.3.3 Minimum of 70% recycling of all waste

In 2021, 56% of all waste managed in Scotland was recycled, a reduction compared 2018 (61%)^[6]. There was notable year-on-year variability from 2011 to 2016, largely driven by construction and demolition waste.

3.4.3.4 Minimum of 60% recycling of household waste [by 2020]

Scotland’s recycling rate more than doubled between 2004 and 2011, but progress since slowed to around 45% for several years, meaning the 2020 target was missed. The recycling rate fell to 42% in 2020, where Covid-19 is believed to have had an impact; and increased to 43.3% by 2022^[7]. Local authority recycling rates range from 20.7% to 57.8%.

3.4.3.5 Maximum 5% of all waste to landfill.

In 2021, 31% of all waste was sent to landfill. Landfilled waste fell from around 7 million tonnes in 2005 to approximately 2.6 million tonnes in 2020, and rose to 3 million tonnes in 2021^[8]. The proportion of household waste landfilled was 25% in 2022 (585 thousand tonnes were landfilled, a reduction of 11.7% compared to 2021)^[9].

3.4.3.6 A ban on all biodegradable waste going to landfill.

In 2021, 738kt of household and similar waste was landfilled, a minor increase in that landfilled in 2020 (736kt)^[10]. According to a waste composition analysis of household residual waste collected at the kerbside, 61% of this could be considered biodegradable^[11]. The total amount of biodegradable municipal waste going to landfill stood at 707,000 tonnes in 2022, a 45% decrease since 2011.

3.4.3.7 Climate Change Plan waste management targets

The 2020 Climate Change Plan update set out emission ‘envelopes’ for each sector, which reflect the pathway to meeting our statutory targets to reduce emissions by 75% by 2030 (compared with 1990) and to net zero by 2045^[12]. Greenhouse gas emissions from waste management have plateaued in recent years. In 2021, total reported sector emissions were 1.5 MtCO₂e^[13], similar to the emissions of reported in 2020 (also approximately 1.5 MtCO₂e )^[14]. Almost all of these emissions were in the form of methane. To achieve the emissions envelopes, Scotland must reduce this to 0.9 MtCO₂e by 2025 and 0.7 MtCO₂e by 2032.

Significant progress has been made in reducing emissions in the waste and resources sector over the past 30 years. Between 1990 and 2021, emissions from waste management reduced by 5.0 MtCO2e (76.2%). This decrease may be due to the reduction of biodegradable waste being landfilled (in preparation for the biodegradable waste landfill ban), as well as the progressive introduction of methane capture and oxidation systems within landfill management.

The subsector covering waste incineration with energy recovery has its carbon dioxide emissions accounted for under the Electricity sector, rather than waste management. Emissions from energy from waste were 0.3 MtCO2e in 2021, representing 19% of Electricity Sector emissions.

3.4.4 Related PPS and Environmental Baseline

The 2005 Act requires the Environmental Report to outline the relationships between the Route Map and other relevant plans, programmes, and strategies (PPS). The following sections outline the most relevant PPS under each environmental topic scoped in to the assessment and provide an overview of the current baseline.

3.4.4.1 Climatic Factors

The Climate Change (Scotland) Act 2009 (‘The 2009 Act’) sets out Scotland’s commitment on tackling climate change. Through this legislation, Scotland contributes to EU and UN efforts on climate change mitigation and adaptation. The 2009 Act set out the statutory framework for greenhouse gas emissions reduction in Scotland and set targets for reduction in emissions of the seven Kyoto Protocol greenhouse gases by 80% by 2050, compared to the 1990/1995 baseline level.

The 2009 Act was amended in 2019 through The Climate Change (Emissions Reduction Targets) (Scotland) Act (‘the 2019 Act’). The 2019 Act set targets to reduce Scotland's emissions of all greenhouse gases to net-zero by 2045 at the latest, with interim targets for reductions of at least 56% by 2020, 75% by 2030, 90% by 2040. The 2019 Act also requires that annual greenhouse gas emissions targets are set, by Order, for each year in the period 2021-2045. Following the initial phase of target-setting, the annual targets are set in nine-year batches.

In October 2018, the Intergovernmental Panel on Climate Change published a report which predicts that the impacts and costs of global warming 1.5˚C above pre-industrial levels will be far greater than expected. It also highlights that the impacts will be much worse if global warming reaches 2˚C or more.

In 2021, Scotland’s total emissions of the seven greenhouse gases were estimated to be 41.6 MtCO₂e, an increase of 2.4% compared to 2020, which was impacted by reduced emissions due to COVID restrictions (e.g. reduced transport emissions). Following the adjusted calculation recommended by the Committee for Climate Change, Scotland’s greenhouse gas emissions in 2021 were down 49.9% from the 1990 baseline period, meaning the interim target of a 51.1% reduction by 2021 was not met.^[15]

Waste management was responsible for 1.5 Mt CO₂e greenhouse gas emissions out of the 41.6 Mt CO₂e total. Almost all emissions in the waste management sector were emitted in the form of methane (1.4 Mt CO2e). There was a 2.4% increase in waste management emissions between 2020 and 2021, from 1.4 Mt CO₂e to 1.5 Mt CO₂e. However, since the 1990 baseline, waste management emissions have reduced by 76.2%. The decrease is largely due to the progressive introduction of methane capture and oxidation systems within landfill management.^[16]

It should be noted that reported emissions from waste management do not include emissions from energy from waste facilities, as these are reported under Energy Supply. Emissions from energy from waste were 0.3 MtCO₂e in 2021.^[17] This makes up 19% of total emissions from electricity generation. It is anticipated that in future years, emissions from energy from waste will increase due to additional plants which are currently under construction beginning operation. We must look at all sources of greenhouse gas emissions across the resources and waste sector, including legacy emissions from landfill sites and critical opportunities to decarbonise incineration, as outlined in Dr Church’s independent review of incineration and its role in the waste hierarchy.^[18]

Zero Waste Scotland’s Carbon Metric can be used to understand the full picture of greenhouse gas emissions from Scotland’s household waste, including both energy from waste and embodied carbon from disposed materials^[19]. The whole lifecycle carbon impacts of Scotland’s household waste generated and managed in 2021 was 5.9 Mt CO₂e. This includes resource extraction and manufacturing emissions, right through to waste management emissions, regardless of where in the world these impacts occur.^[20]

The Carbon Impacts of the Circular Economy (2015)^[21] states that over two thirds of Scotland’s’ carbon footprint is directly related to material consumption and to a lesser extent waste.

This assessment focuses on how the measures set out in the Route Map are expected to contribute to changes in Scotland greenhouse gas emissions, for example by keeping valuable materials in use for as long as possible through increased reuse and recycling, and thus reducing consumption of virgin materials and the greenhouse gas emissions associated with their extraction, processing, transport, use, and disposal.

3.4.4.2 Population and Human Health

A range of plans, programmes, and strategies in place will directly or indirectly influence population and human health, spanning a number of other SEA environmental topics such as air, water, and climatic factors.

The second Scottish Climate Change Adaptation Programme (SCCAP)^[22] was launched in September 2019 and outlines how Scotland is preparing for the impacts of climate change over the period to 2024. It responds to the risks set out in the UK Climate Change Risk Assessment (UK CCRA) in 2017, published under section 56 of the UK Climate Change Act 2008. The programme follows an outcomes-based approach, derived from both the UN Sustainable Development Goals and Scotland’s National Performance Framework.

The draft Energy Strategy and Just Transition Plan is in development at the time of writing. The Plan sets out a vision for Scotland’s energy system by 2045 and includes actions to encourage local climate action and community engagement as well as infrastructure improvements and economic opportunities to realise benefits to the population in the transition to a low carbon economy.

Objectives and requirements relating to air quality are laid in the Air Quality Standards (Scotland) regulations 2010, the Air Quality (Scotland) Regulations 2000, and 2002 and 2016 amendment regulations. The Environmental Noise Directive (2002) and the Environmental Noise (Scotland) Regulations 2006 set out regulations at a European and national level respectively to protect the population against noise and vibration nuisance.

The Pollution Prevention and Control (Scotland) Regulations 2012 seek to provide protection for human health through the introduction of a consistent and integrated approach to environmental protection to ensure that industrial activities that may have a significant impact on the environment are strictly regulated. The regulations were designed to eliminate or minimise emissions to air, water and land and extended pollution controls to previously unregulated sectors.

‘Cleaner Air for Scotland 2 - Towards a Better Place for Everyone’^[23] provides a national framework which sets out how the Scottish Government and its partner organisations propose to achieve reductions in air pollution and fulfil legal responsibilities as soon as possible. The document outlines the contribution that better air quality can make to sustainable development whilst improving health and the natural environment and reducing health inequalities for the citizens of Scotland.

Research has shown that air pollution is one of the largest environmental risks to public health in the UK^[24], and increased risk of flooding due to extreme weather and rising sea levels poses risks to life expectancy and physical and mental health, as well as people’s living conditions and disposable income if directly affected^[25].

In 2022, the Good Food Nation Bill was passed, enshrining in law the Scottish Government’s commitment to Scotland being a Good Food Nation, “where people from every walk of life take pride and pleasure in, and benefit from, the food they produce, buy, cook, serve, and eat each day”^[26]. Reducing food waste through redistribution and making the food system more resilient through the measures proposed in the Route Map will support the Bill by improving access to affordable food and helping to realise the food waste reduction and environmentally friendly disposal ambitions in the Bill.

Average life expectancy in Scotland was 76.6 years for males and 80.8 years for females in the period 2019-2021^[27]. This represents a decrease of approximately eleven and eight weeks respectively since 2018-2020, largely due to the COVID-19 pandemic. Life expectancy was higher in rural areas than urban areas, and socio-economics have a significant influence on human health and life expectancy.

This assessment considers the long and short term health implications of projected directional changes resulting from measures in the Route Map, focusing on levels of air pollution, employment impacts, and changes to levels of inequality in Scotland, as well as the impacts of climate change on the population of Scotland.

3.4.4.3 Air

The Air Quality Standards (Scotland) Regulations (2010) transpose the air quality environmental protection objectives from the European Air Quality Directive (2008) into the Scottish context, and further domestic objectives are set in the Environment Act 1995. The Pollution Prevention and Control (Scotland) Regulations 2012 set out regulation and monitoring of airborne pollution from certain industrial activities. These objectives are aimed at reducing harmful air pollution and monitoring air quality, with a focus on areas where air pollution is concentrated.

At UK level, the Air Quality Strategy for England, Scotland, Wales, and Northern Ireland^[28] includes long term objectives for improving air quality, focusing on options to tackle pollutants such as particulate matter, nitrogen oxides, ozone, sulfur dioxide, polycyclic aromatic hydrocarbons, benzene, butadiene, carbon monoxide, lead, and ammonia.

All of the eight main pollutant emission levels reported in the National Atmospheric Emissions Inventory^[29] decreased between 1990 and 2017. Emissions of ammonia declined by 15% between 1990 and 2017, carbon monoxide by 84%, nitrogen oxides by 71%, non-methane volatile organic compounds by 65%, particulate matter <10 micrometres declined by 63%, particulate matter <2.5 micrometres declined by 68%, sulfur dioxide by 96%, and lead by 98%.^[30]

Local Authorities have a duty to designate any relevant areas where air quality objectives are not met, or are unlikely to be met, as Air Quality Management Areas (AQMAs). In 2022, there were 42 current AQMAs across 14 of Scotland’s 32 local authorities. These AQMAs were established primarily as a result of road traffic emissions.^[31]

This assessment considers the scale and direction of changes in levels of air pollution and related nuisance such as noise, vibration, dust, odour, and light as a result of the measures proposed in the Route Map, including any unintended consequences e.g. air pollution resulting from additional recycling, refurbishment, or maintenance processes.

3.4.4.4 Soil

The EU Soil Strategy for 2030^[32] sets out measures to protect and restore soils and ensure they are used sustainably. It sets objectives to achieve healthy and resilient soils by 2050, with interim actions by 2030. It includes a new Soil Health Law by 2023 to ensure a high level of environmental and health protection. It is one of the key deliverables from the EU biodiversity strategy for 2030^[33] and will contribute to the European Green Deal^[34] objectives.

At a national level, the Scottish Soil Framework set out a vision that soils are recognised as a vital part of the economy, environment, and heritage, to be safeguarded for existing and future generations. The framework was created to promote sustainable management and protection of soils consistent with the economic, social, and environmental needs of Scotland. It describes seven main classes of soil function, namely:

• providing the basis for food and biomass production;
• controlling and regulating environmental interactions: regulating water flow and quality;
• storing carbon and maintaining the balance of gases in the air;
• providing valued habitats and sustaining biodiversity;
• preserving cultural and archaeological heritage;
• providing raw materials;
• providing a platform for buildings and roads.^[35]

The 2011 State of Scotland’s Soil report defines soil quality as the ability of soil to carry out these functions^[36].

Soil in Scotland contains over 3 billion tonnes carbon, and it is estimated that losing just 1% of soil carbon as carbon dioxide would triple Scotland’s annual greenhouse gas emissions^[37].

This assessment focuses on the consequences of measures in the Route Map on soil quality and peatland preservation.

3.4.4.5 Water

The European Water Framework Directive sets objectives on the condition of water bodies including rivers, lochs, transitional and coastal waters, and groundwater resources. Assessments of the chemical and ecological status and consideration of the biodiversity status are required as indicators of water quality. The Water Environment and Water Services (Scotland) Act (2003) and the Water Environment (Controlled Activities) (Scotland) Regulations (2011) set out water environment protection and improvement in the Scottish context.

While 80% of Scotland’s groundwater was considered to be in good condition in 2011, widespread problems were reported in particular regions including the Central Belt as well as local problems affecting private water supplies. Inappropriate management of wastes is stated as one of the main causes of the localised issues.^[38]

Scotland’s Environment Groundwater Report^[39] states that landfills can cause locally significant releases of ammonia or hazardous substances if not designed and maintained in accordance with best practice. At the time of the report’s publication, it was not known whether the cumulative impact of landfilling in certain areas was sufficient to impact on the status of whole groundwater bodies.

This assessment considers the impact of measures in the Route Map on sustainable water use as well as pollution levels in the water environment in Scotland.

3.4.4.6 Biodiversity, flora, and fauna

The current Scottish Biodiversity Strategy is made up of Scotland’s 2004 strategy –Scotland’s Biodiversity: It’s In Your Hands^[40], supplemented by the 2020 Challenge for Scotland’s Biodiversity^[41]. The latter sets out the major steps necessary to improve the state of Scotland’s nature. Scotland joined other nations at COP26 in endorsing the Leaders Pledge for Nature, to reverse nature loss by 2030, and in December 2022, COP 15 resulted in the adoption of the Kunming-Montreal Global Biodiversity Framework (GBF)^[42]. The GBF aims to address biodiversity loss, restore ecosystems, and protect indigenous rights. The plan includes measures to halt and reverse nature loss, including putting 30% of the planet and 30% of degraded ecosystems under protection by 2030. It also contains proposals to increase finance to developing countries.

A new 25-year Scottish strategy was drafted in 2022 supersede the 2020 Challenge strategy. It aims to halve biodiversity loss by 2030, and reverse it by 2045. The strategy sets out a vision for what the natural environment in Scotland needs to look like in 2045, through transformational change to protect and restore terrestrial, freshwater, and marine biodiversity in Scotland.^[43]

The 2019 State of Nature Report Scotland^[44] reports a decline in the abundance and distribution of Scotland’s wildlife species over recent decades, with most measures indicating a continued decline in the most recent decade. This includes a 24% decline in average species’ abundance since 1994, with 49% of species having decreased in abundance since 1970. The drivers of change include agricultural management, climate change, and pollution (including plastic pollution).

This assessment considers the likely impacts measures in the Route Map will have on Scotland’s habitats and species.

3.4.4.7 Cultural heritage and the historic environment

The Historic Environment (Amendment) (Scotland) Act 2011 sets out national cultural heritage objectives, primarily focused on ancient monuments and listed buildings, as well as gardens, landscapes, and battlefields. Our Place in Time: the Historic Environment Strategy for Scotland (2014)^[45] is a high-level framework which set out a 10-year vision for Scotland’s historic environment, where it is understood, protected, and valued. The Historic Environment Policy for Scotland (HEPS) statement^[46] supports this framework and highlights the importance of inclusive and transparent decision making, ensuring that the historic environment is managed sustainably to secure benefits and enjoyment for present and future generations.

Scotland’s Historic Environment Audit 2018^[47] reports that there were over 56,000 protected places in Scotland in 2018, including world heritage sites, scheduled monuments, listed buildings, conservation areas, and national parks. 750 historic buildings on the Buildings at Risk Register were saved between 2009 and 2018, with over 200 others being restored. 20% of Scotland’s dwellings were over 99 years old, and 67% of this pre-1919 housing stock was reported to be in need of critical repairs, a reduction from 74% in 2008.

The effects of climate change, such as warmer weather and increased rainfall throughout autumn and winter are reported to be impacting historic buildings. The 2014 State of the Environment Report^[48] predicts that increased rainfall will mean traditional buildings will be wetter for longer periods of time, resulting in increased weathering of stone, rotting timbers, and corrosion of metals; and that rising sea levels mean that coastal erosion is an increasing threat to heritage sites such as Skara Brae in Orkney. Severe pollution in urban areas has also been known to damage local buildings, particularly those made of materials such as sandstone.

This assessment aims to determine whether the measures set out in the Route Map will impact Scotland’s valued landscapes, historic and archaeological sites and other culturally and historically important features, landscapes, and their settings.

3.4.4.8 Material assets

In 2013, ‘Safeguarding Scotland’s Resources’^[49] detailed an ambition to minimise wasted resources and deliver economic and environmental benefits. It set out a range of measures to promote resource efficiency and lay the foundations for a circular economy.

‘A Manufacturing Future for Scotland’^[50] sets out a series of initiatives aimed at boosting productivity including leadership, employee engagement and skills, energy efficiency, and the adoption of circular economy approaches across the manufacturing sector. The strategy seeks to support businesses to take on opportunities presented by the circular economy to eradicate waste, not just from manufacturing processes, but also systematically throughout a product’s life cycle.

The Scottish Material Flow Accounts show that the estimated material footprint (Raw Material Consumption) is 19.3 tonnes per capita^[51], significantly higher than the amount experts suggest is sustainable (8 tonnes per person per year).

The 2022 Circularity Gap Report for Scotland^[52] found that only 1.3% of the resources used in Scotland are cycled back into the economy, with over 98% of Scotland’s material use coming from virgin resources.

‘Making Things Last: A Circular Economy Strategy for Scotland’^[53] proposes a number of actions to create conditions to embed long term circular economy principles in key sectors across Scotland, including manufacturing. This strategy builds on the Zero Waste Plan (2010)^[54] and the Safeguarding Scotland's Resources (2013)^[55], and reiterates the targets to recycle 70% of all waste and to send no more than 5% of all waste to landfill by 2025. It seeks to ensure materials are designed for reuse, recycling, and recovery, whilst embedding a mindset across the public that materials are finite and that current consumption patterns are unsustainable.

SEPA reported that 9.58 million tonnes of waste were generated in 2021, a reduction of 16.3% (1.87 million tonnes) from 2018, the most recent available year . The decrease in overall waste generated and recycled are primarily due to changes in construction type wastes. For example, the total waste generated for the Soils and Mineral waste from construction and demolition waste categories decreased by 32.8% (1.83 million tonnes) and correspondingly the amount of these wastes recycled decreased by 29.8% (1.17 million tonnes) from 2018. It is likely that the WFAS generated and recycled has been impacted by the effects of COVID-19 and other restrictions. ^[56]

The latest household waste data^[57] describes an annual decrease in household waste, down to 2.33 million tonnes in 2022. The household waste recycling rate for 2022 was 43.3%.

This assessment will seek to determine the likely impacts of the measures in the Route Map on the economic value and utility of affected materials, as well as the likely scale of contributions towards Scotland’s resources and waste objectives. Due to the high-level nature of the Route Map, it will not be possible to quantify the exact impact it will have on waste arisings and recycling rate; it will instead explore qualitatively the likely outcomes of the interventions set out on the wider management of resources.

3.4.4.9 Landscape and visual impacts

The European Landscape Convention lays the foundation for environmental protection objectives relating to landscapes in Europe, both outstanding and ordinary. It was designed to encourage public authorities to adopt policies and measures at local, regional, national, and international level for protecting, managing, and planning landscapes throughout Europe^[58].

The Fourth National Planning Framework^[59] was adopted by the Scottish Ministers on 13 February 2023, following approval by the Scottish Parliament in January. The Framework sets out a national spatial strategy for Scotland, including spatial principles, regional priorities, national developments and national planning policy. The strategy will be relevant to wider policies and strategies relating to land use. The framework recognises the significant progress requires to reach Scotland’s Net Zero goals will require new development and infrastructure across Scotland, as well as adaptation to the impacts of climate change that are already locked in, including increased flood risk, water scarcity, environmental change, coastal erosion, impacts on forestry and agriculture, extreme weather events, and risks to health, food security and safety.

NatureScot’s Landscape Policy Framework describes an overarching aim “To safeguard and enhance the distinct identity, the diverse character and the special qualities of Scotland’s landscapes as a whole, so as to ensure tomorrow’s landscapes contribute positively to people’s environment and are at least as attractive and valued as they are today.” ^[60]

The National Litter and Flytipping Strategy^[61] was published in June 2023 and seeks to build on the progress made since ‘Towards a Litter-Free Scotland’^[62] was published in 2014 to tackle litter and flytipping in Scotland and acknowledging the wider context of the circular economy and Scotland’s net zero aims. The strategy will cover three broad themes: behaviour change, services and infrastructure, and enforcement. Data and research will also be covered as cross-cutting elements of the strategy.

This assessment will seek to determine whether measures within the Route Map risk any adverse impacts on landscapes and visual impacts. It will assess whether the measures are likely to safeguard and enhance the character and diversity of the Scottish landscape.

3.5 Undertaking the assessment

Given the broad nature of the Route Map, this SEA has been undertaken as a high level assessment of the likely environmental impacts, and not at an individual intervention level. The proposals in the draft Route Map have been assessed against the SEA assessment questions set out below.

Biodiversity, flora, fauna

• Will the plan avoid adverse impacts to habitats and species?
• Will it protect, maintain, and enhance biodiversity?

Population and human health

• Will the plan reduce the health gap and inequalities and improve healthy life expectancy?
• Will it protect and improve human health and wellbeing through improving the quality of the living environment of people and communities?
• Will it increase sustainable access to essential services, employment, and the natural and historic environment?

Soil

• Will the plan safeguard and improve soil quality, quantity, and function in Scotland, particularly high value agricultural land and carbon-rich soils?

Water

• Will the plan ensure the sustainable use of water resources?
• Will it help to reduce levels of water pollution?

Air

• Will the plan avoid adverse impacts to air quality?
• Will it reduce emissions of key pollutants and improve air quality throughout Scotland?
• Will it reduce levels of nuisance e.g., noise, vibration, dust, odour, and light?

Climate factors

• Will the plan help to reduce existing and avoid new Greenhouse Gas (GHG) emissions?

Material assets

• Will it reduce use and promote sustainable management of natural resources?
• Will it reduce ‘leakage’ of material to landfill or energy recovery or as litter?

Landscape and visual impacts

• Will the plan avoid adverse effects on landscapes and visual impacts?
• Will it safeguard and enhance the character and diversity of the Scottish landscape and areas of valuable landscape and geodiversity?

Cultural heritage and the historic environment

• Will it avoid adverse impacts on the historic environment including its setting?
• Will it protect and enhance valued landscapes, historic and archaeological sites and other culturally and historically important features, landscapes, and their settings?
• Will it encourage the retention, reuse and repair of historic environment assets and materials?

3.5.1 Assessment methodology

Step 1. Define the policy outputs of each package

• Causal loop diagrams were developed for each strategic theme to assess the expected outputs and the effects on different parts of the life cycle of relevant materials/products. Diagrams can be found in Appendix A.
• Each of the outcomes identified using the CLDs was then described in further detail in a summary table.

Step 2. Assess effect on environmental topics and answer assessment questions

• The environmental impacts linked to each of the outputs were explored under each of the relevant SEA topic headings.
• To answer the assessment questions, symbols and colours were used to illustrate the nature of the impacts identified in terms of their contribution to achieving the environmental objectives:

+ : Positive impact

+ / ? : Minor or uncertain positive impact

? : Nature of net impact uncertain at this stage

- / ? : Minor negative impact

Step 3. Cumulative effects

The interaction of strategic themes was assessed to evaluate cumulative effects. Package-level directional impacts were displayed in Appendix A, and overall impacts and interplay between packages was considered.