Just Transition: draft plan for transport in Scotland

3. People and Communities

By 2045, a successful just transition will mean:

• People and communities benefit from well connected, affordable, reliable public transport and electric vehicle networks, and from improved active travel networks which meet local need and support access to employment and vital services.
• Our transport system and active travel infrastructure is accessible and safe for all users.
• People less able to pay, and with fewer transport options, have not been disproportionately burdened by the transition away from fossil-fuelled vehicles.
• People benefit from a transport system that has been suitably adapted to climate change, and which is supporting biodiversity and better air quality.

People and Communities: Context

Transport and travel are so much a part of everyday life that everyone will be affected by the transition that has to take place. In basic terms, we need to move away from the types of transport that contribute most to greenhouse gas emissions, to types that are less carbon-intensive. Where possible, especially where public transport alternatives are available, this includes moving away from traditional private car use – the largest contributor to transport emissions^[10]. As we do this, our transport system also needs to build resilience and adapt to the impacts of climate change that are already unavoidable.

The Inequity of Transport Emissions

Achieving these aims in a way which is fair and just means recognising the inequity at the heart of the climate crisis – that not everyone contributes to climate change to the same extent. Statistics show that wealthier people are responsible for far more carbon emissions, on average, than people who are less well off^[11]. Yet it is very often the communities who have done least to cause climate change who suffer its most immediate and serious effects^[12].

For example, people on the highest incomes in Scotland are more likely to travel by car, travel further and own multiple cars. By contrast, 56% of households on the lowest income do not have access to a car or van for private use^[13]. Car access and usage is also lower among women, young and older people, disabled people and those from non-white Scottish/British ethnic groups^[14]. All of this links to a further inequity – that the cost of car use, over recent years, has risen more slowly than the cost of using public transport.^[15] In addition, since drivers are not required to pay in accordance with how much they actually use the road network, those who drive less face many of the same costs as those on higher incomes who drive the most.^[16] Evidence also shows that people on the highest incomes are more likely to buy vehicles that produce greater negative effects, in terms of emissions, noise pollution, and road safety. We know these impacts disproportionately affect those who are already vulnerable and disadvantaged.^[17] (Further details on all of this are provided in the People and Equity Annex.)

Air travel provides a further example of this disparity in emissions. In the UK, the energy used for international flights by the average adult in the top 10% of earners was more than that used across all transport modes by those in the lowest 10% of earners^[18]. (Whilst this data may be impacted by Heathrow’s status as an international transport hub, it still tells us that the more income individuals have, the more energy they use on transport.)

These are complex issues, not all of which have simple solutions. For example, we know that air travel is often the only way in which island residents can access services in a reasonable timeframe. This is particularly the case when regular travel is required – e.g. when people are accessing medical treatment that cannot be provided locally. However, ensuring a just transition means acknowledging these complex challenges, and taking them into account.

Place-based Inequities

As we make the necessary changes, we also need to address, and avoid exacerbating, the inequities that many people and communities already face under our current transport system.

As the ‘Action to date’ section (below) sets out, significant work is already being done to address these inequities. For example, the Scottish Government provides £2 billion per year to support and strengthen our public transport system, with over £400 million allocated for concessionary travel and bus services. In addition, we have seen important action at a local level, in the form of community-based initiatives that support the needs of particular areas and improve connectivity. Community use of accessible minibuses and the creation of community-owned car clubs are just two examples.

However, notwithstanding these efforts, it is also clear that people and communities continue to face particular challenges under our current transport system.

Some of these challenges relate to the places where people live or work. For example, we know that the cost of transport in the islands and in rural areas is much higher, relative to income, than in the rest of Scotland. This is just part of what has become known as the ‘rural premium’ – a term used to describe the higher cost of many goods and services in rural areas. The problem has been exacerbated, in recent years, by the cost of living crisis, and is a contributor to the risk of rural transport poverty.

“Feumaidh còmhdhail sheasmhach agus cunbhalach a bhith ann (bàtaichean-aiseig). Tha siubhal aig cridhe grunn mhath de na trioblaidean seo anns na h-eileanan agus air tìr-mòr na Gàidhealtachd. [There must be sustainable and regular transport (ferries). Travel is at the heart of many of these problems in the islands and in the mainland Highlands..]” – Written submission, Climate Hebrides Gaelic Climate Conversation

People in rural and island communities face an additional challenge, in that they are also particularly vulnerable to climate-related disruptions to the transport network. This is one reason why, even as our country reduces our usage overall, the use of cars (albeit decarbonised ones) will remain a necessary part of rural and island life.

Within this, however, there is another financial and logistical challenge – in ensuring a public electric vehicle charging infrastructure in rural and island areas.

Beyond these communities, we know that people living in and around cities also face inequities relating to transport. A lack of transport connectivity is one such challenge. Evidence also shows that people in these communities are less likely to own a car or van for private use, which can result in long journeys when travelling to work or accessing employment opportunities. Both those on lower incomes and those living in places where public transport is scarce who do own a car may have ‘car dependency’ forced upon them, because of a lack of transport alternatives. These factors contribute to transport poverty in suburban areas, and a range of negative economic, social and health outcomes. (Further details are provided in the Communities and Places Annex.)

Other Demographic Inequities

“Women are telling us they are missing job centre appointments, that they are getting sanctioned for that. Women feel as if they are being penalised by the whole system. At night it’s not safe.” – Member, Poverty Alliance

For certain demographic groups, the issues outlined above are often made worse by other, overlapping inequities.

We know, for example, that disabled people face particular challenges in accessing transport options. The Scottish Household Survey 2023 found that 22% of disabled adults were dissatisfied with public transport compared with 18% of non disabled adults^[19]. While greater accessibility is key to addressing this challenge, it is clear that car use will remain a necessary option for some with particular mobility needs.

We also know that certain groups are more reliant on public transport, and face particular challenges when it does not meet their needs. A key example is the fact that women tend to use public transport, and make multi-purpose trips, more than men – in part, because women are more likely to take children to school or provide other caring responsibilities.

At the same time, reliance on public transport is higher among certain groups of women. For example, the proportion of ethnic minority women who use public transport as their main mode of transport is 40%, compared to 24% for all women. The evidence also shows that, compared to the overall average, disabled women on lower incomes are much less likely to own a car^[20].

For the groups most reliant on public transport, we also know that personal safety is a key concern. Our engagement reinforced what a wide range of research makes clear: that perceptions and experiences of a lack of safety affect the mobility and travel choices of women and girls, and other groups. Among the issues most commonly identified are concerns about travelling at night and the reliability of services. There is also generalised anxiety about potential harassment, assault or anti-social behaviour on services.^[21]

Addressing these concerns is vital as a matter of fairness and equality, but also in allowing people to choose more sustainable travel options with confidence. The transition provides an opportunity to do this, and to build a system of transport that is fundamentally more fair, accessible and sustainable.

Summary of Key Points:

• Across our society, the transport transition will mean much greater use of active travel and public transport.
• Where driving is still required, people need to be able to switch to ultra low emission vehicles affordably. Those with limited choices must not be disadvantaged.
• Those who are better off are responsible for a greater proportion of transport emissions, and this needs to be reflected in our approach to meeting the costs of the transition.
• The transition is an opportunity to tackle the transport inequities that people currently face – including the place-based challenges facing rural and island communities, barriers affecting disabled people and the safety issues facing women and girls.

Urban Communities Said

• Reducing car use, especially for short journeys, is more likely to be supported in urban areas, though careful consideration should be given to avoid generalising all urban areas as “higher income” or “better serviced” by public transport. Some way of charging heavy road users is generally supported as an urban solution if it is applied and benefits shared fairly.
• Safety, particularly for women, younger and older people, and Black and minority ethnic people, was a key deterrent for public transport usage. Fears over safety were heightened at night where services were less regular and people did not feel safe at bus stops, depots, or on the bus itself.
• Focus on ensuring local services and amenities are good quality and accessible by both active travel and public transport routes (integrating the two), avoid “pedestrian deserts” and outer areas only reliant on cars e.g. industrial or retail parks, new housing developments without paths or bus routes.
• Widespread support for increasing active travel infrastructure and incentives, consideration should be given to improving skills and safety on shared routes, while addressing costs for some groups.
• Support for measures to disincentivise ownership of certain vehicle types e.g. SUV in urban areas, including reducing the size of city parking spaces and considering vehicle size in design of future road user charging/taxation schemes. Measures to reduce the number of cars per household had more mixed support.
• Car sharing, ridesharing and car clubs are somewhat supported though some feel that these services need to be better understood and advertised, and there were also concerns that these might only benefit higher-income people.

Rural and Island Communities Said

• Traditional public transport models have never been fit for purpose in rural areas with impacts such as access to healthcare, social isolation, missed economic opportunities.
• Government should define a rural equivalent of “20 minute neighbourhoods” and improve digital connectivity.
• Demand Responsive Transport was a key theme, with communities under-serviced or unaware of services, and highlighting the challenges of setting up their own schemes.
• Discouraging car usage and frequent flying will need to be treated differently for rural and island communities as these are necessities rather than “lifestyle choices”. Many felt it would be “impossible” to reduce private car use or even reduce the number of cars per household, and to rely on public transport due to cost, unreliability and poor connections especially for “lifeline” services.
• There was consensus that ferries should be decarbonised, moving away from diesel engines to renewable energy solution. The unreliability and capacity of lifeline ferry services were themes that frequently arose in Island communities’ discussions. Beyond ferries, Island communities reflected on the need for improved bus services and highlighted their adaptability as a particular strength.
• Improved public transport to tourism hotspots while applying tourist tax to vehicle rentals, especially campers. Improving transport links will increase visitors so other services need to be planned alongside connectivity.
• Poor road conditions (potholes, blind corners, narrow roads) are not just problems for drivers, they discourage active travel. Public transport needs to link to active travel to overcome longer distances.

People and Communities: Action to date

Since the publication of our National Transport Strategy in February 2020, further significant work has been done to deliver on our priorities for reducing inequalities and improving health and wellbeing. This includes significant action to address place-based inequities, and to improve and build resilience in our transport system. Key examples include:

• Active Travel – we have invested £500 million in active travel in the past 4 years which includes an allocation this year (2024/25) of £157 million. We have also transformed our delivery models to provide regional transport partnerships and local authorities with more flexibility and autonomy in delivering bespoke active travel solutions to their area’s specific challenges. This investment, in infrastructure and specific projects, is helping to make walking, wheeling and cycling an easier travel choice for people and communities across Scotland.
• Public transport investment – we continue to invest over £2 billion per year to support a strong, sustainable and accessible public transport system.
• National Concessionary Travel Scheme – in 2022, we expanded these schemes, to cover people under 22 (in addition to people over 60, and eligible disabled people). As a result, over 2 million people can now benefit from free bus travel. Eligible islands residents can also access free ferry vouchers.
• Bus Taskforce – in April 2022, the Scottish Government convened a Bus Taskforce, to address the immediate challenges facing the bus industry as it recovered from the challenges of the Covid pandemic. Through a subgroup of the taskforce, community and passenger groups were brought together with industry to co-design new best practice guidance for community engagement, which was published in April 2024. The voluntary guidance helps support bus operators and local councils in ensuring that their engagement is meaningful, and seeks to ensure that communities have their say in decisions that affect them.
• Adaptation and Resilience – in 2023, Transport Scotland published its Approach to Climate Change Adaptation and Resilience. It sets out the specific outcomes we are pursuing in our transport system, to build capacity, identify appropriate adaptation initiatives, and improve levels of climate resilience.
• Fair Fares – in March 2024 we published our review into the cost and availability of public transport services. The Review presented a package of measures for potential implementation to make our public transport system more accessible, available, and affordable. This includes further policy development, to consider how best to support public transport access for those who need it most.
• Island Connectivity – in the first half of 2024, we consulted on our Island Connectivity Plan Strategic Approach, which sets out a long term vision of how ferry services, and supporting transport modes, will be delivered and improved. As part of this consultation, we also published a draft update of our Vessels and Ports Plan. We have also announced plans to procure seven new electric ferries which will serve on the Clyde and Hebrides network.
• Smart Ticketing – we have made significant progress in advancing smart ticketing in recent years, including the supporting provision of contactless payment onto 98% of bus services, and further development of regional ticketing schemes. In August 2024, we published our new Smart Ticketing Delivery Strategy, setting out how we will progress development of a new integrated ticketing system, making travel in Scotland easier, more accessible and more eco-friendly.
• EV transition and infrastructure – through a range of schemes, we have supported the uptake of EVs, and the installation of infrastructure to support them – with a particular focus on rural and island communities.
• Low Emission Zones – LEZs have been introduced in Scotland’s four largest cities, with the aim of improving air quality and protecting public health, while also reducing emissions. To help lower income households, microbusinesses and sole traders adapt to the new zones, the Scottish Government, in partnership with local authorities and the Energy Safety Trust, allocated more than £16 million for an LEZ Support Fund. The Fund provides grants for disposing of a non-LEZ compliant vehicle, and credits to support the adoption of cycling, car sharing and public transport.
• Transport to Health Services – in October 2024, the Scottish Government published the Transport to Health Delivery Plan, which sets out commitments to improve transport to health services by bringing transport planning and health planning processes together.

We are also taking action to address personal safety concerns. In 2022, Transport Scotland commissioned research exploring women’s and girls’ perceptions and experiences of personal safety when using public transport. This research recommended a number of actions which are being taken forward as part of the Scottish Government’s wider work to tackle violence against women and girls. During the 16 Days of Action against gender violence in 2023, Transport Scotland also convened a meeting involving the Scottish Government, police authorities, transport operators, trade unions, and relevant stakeholders, to agree draft principles for addressing this challenge. Actions from operators include ScotRail’s launch of safety campaigns and the provision of literature on board trains and at stations, highlighting ways to report incidents to the British Transport Police.

Case Study 1 – Transport solutions for health, adaptation and biodiversity

A new active travel route in Clackmannanshire was opened in September by Cabinet Secretary for Transport, Fiona Hyslop MSP.

The £1.8 million project was delivered by the Council and funded by the Scottish Government’s Active Travel Transformation Fund. The new route follows the old railway line and provides a safe, user friendly, off-road link between the two communities which is lit at night, and fully accessible to disabled users.

The project included forming a biodiversity corridor along the new route, with Council land services staff working in some challenging, muddy conditions to plant 5,500 trees to create new hedgerows. The project was funded as part of the £145 million already allocated by the Scottish Government to active travel this year.

Councillor Fiona Law, spokesperson for the environment and net zero, said: “This latest, fantastic addition to our extensive Active Travel network creates a vital link between Alva and Menstrie. Active Travel routes aim to offer everyone in the community a safe and accessible way to commute and will hopefully encourage people making short to medium distance journeys to walk, cycle or wheel instead of driving.”

The Scottish Government’s Active Travel Transformation Fund provided £20 million directly to local authorities, regional transport partnerships and national park authorities working in partnership with Transport Scotland to deliver ambitious, construction-ready active travel infrastructure schemes across Scotland.

People and Communities: Future priorities

As Scotland’s transition continues, we will maintain our focus on fairness. A big part of this will be about continuing to ensure people and communities are supported in switching to EVs, and in accessing the necessary EV infrastructure. This includes:

• publishing a new Implementation Plan for the delivery of approximately 24,000 additional charge points by 2030, through a mix of public and private finance.
• continuing to support a public charging network through our EV Infrastructure Fund (EVIF). Through this Fund, we are providing £30 million to local authorities, with the aim of attracting a further £30 million in private investment. The Fund has been designed specifically with the needs of rural and island communities in mind.
• encouraging charge point operators and owners to prioritise minimum accessibility standards^[22], so that the public network is inclusive of all drivers, including those with disabilities.
• supporting uptake of vehicles sold through the Vehicle Emissions Trading Scheme (‘the ZEV mandate’), via automotive manufacturers. This mandates incremental sales of zero emission cars and vans, driving both new sales and a second-hand market, and reducing the purchase price of ZEVs for individuals and communities (e.g. through car clubs). We will also consider how we can better support consumers transitioning to EVs, especially for rural and island areas and lower-income groups.

We know, however, that simply expanding electric vehicle ownership will not, on its own, ensure greater fairness in transport, or deliver the very substantial emissions reductions that are required. A central priority for the next stage of our transition will therefore be to deliver interventions to achieve our commitment to cut car use by 20% - ensuring a better, fairer transport system for everybody, non-drivers and remaining drivers alike. The intervention will include a number of actions to improve the places people live in and enhance quality of life – particularly for those who are currently experiencing transport poverty. For example:

• Incentives for people to travel more sustainably– including:
  • Locating and designing new developments in a way which encourages local living, making best use of existing infrastructure and makes sustainable modes the priority for everyday travel
  • Ensuring a sustainable and integrated approach to transport fares and actions to provide a public transport network which is accessible, affordable and available, where the costs more fairly shared across government, business and society.
  • Better geographical digital connectivity, to reduce the need for unnecessary travel.
  • interventions aimed specifically at rural and island communities – such as improving integration at ferry terminals; Demand Responsive Travel, which are services that use vehicles not bound by fixed routes to provide shared transport to users; and the piloting of ‘Mobility as a Service’ – the use of digital solutions to make it quicker and more convenient for people to plan, book and pay for alternatives to private car journeys.
• Disincentives to car use – such as demand management interventions, more focused on urban areas, and designed and implemented to ensure fairness.
• Local Road User Charging and Workplace Parking Licencing schemes – which enable local authorities to invest in delivering the transport outcomes set out in their local transport strategies, particularly around sustainable transport. The design of each scheme – which should focus on urban areas or regional approaches – can ensure fairness and avoid disproportionate burdens on those with least choice and ability to pay.
• Continued engagement with the UK Government – who reserve the main policy levers required to disincentivise car use – Fuel Duty and Vehicle Excise Duty. Scottish Ministers will continue to press the UK Government to reform motoring taxes in order to deliver a fair and redistributive system, which takes account of Scotland’s geography and demographics.

Summary of Future Priorities

• People should reduce their transport emissions where possible.
• The Scottish Government will work with a wide range of stakeholders, including businesses, Regional Transport Partnerships and Local Authorities to:
• deliver the interventions to reduce car use by 20%, which will enable greater fairness in the transport system, improve the places where people live, and help deliver the neccessary emissions reductions.
• The Scottish Government will continue to press the UK Government to reform motoring taxes, in order to deliver a fair and redistributive system, which takes account of Scotland’s geography and demographics.

Case Study 2: Glenfarg Community Transport Group

In 2022, faced with losing the only local bus service, Glenfarg Community Council and a team of volunteers established the Glenfarg Community Transport Group, in order to deliver the bus route themselves. The 55 bus was taken over from a commercial operator who had seen declining bus ridership. Since the community take-over, ridership has gone up, the regularity of the bus service was increased to hourly, and the route has been extended. The group now operates five projects, with an explicit aim to improve transport in and around Glenfarg, and to reduce dependence on cars. These include: the 23 and 55 Bus Service running between Tillicoultry, Kinross, Glenfarg and Perth: the Glenfarg Community Bus which offers social outing opportunities for individuals and groups in the community; the Glenfarg School Bus (which operates on school days to the Arngask primary school); Active Travel ‘walking’ aiming to improve local walks and Active Travel ‘wheeling’, which offers e-bike loans, training, and linking to other forms of transport in the area.

People and Communities Consultation Questions:

Aim: To understand priorities for people and communities, gather feedback and identify gaps in the content, including the vision, and collect evidence to inform Just Transition Planning for the sector. Inviting people to reflect on how costs of the transition might be shared fairly.

Audience: Individuals answering on their own behalf as members of communities and households. Organisations representing communities, places, or groups with protected characteristics, as well as the public sector.

Question 4 (Everyone): This question relates to all the content in the section on People and Communities. Are there any gaps in our priority actions to support people and communities in the transition of the transport sector?

Question 5 (Everyone): Which of the following priorities we have set out in the draft Plan do you think would be most helpful for people like you to reduce how often, or how far, they drive in a private car? You do not need to own or drive a car to answer the question, because reliance on private cars impacts everyone.

• Better use of space for active travel and public transport.
• More access to online services so people don’t need to travel unnecessarily
• Availability of demand responsive transport for some areas for example dial-a-bus services.
• Access to ‘car clubs’ which allow people to hire a car or van for shorter trips.
• Increasing costs to make driving a less attractive option in some circumstances, especially where there will be other benefits such as reducing pollution and congestion.

Question 6 (Everyone): Does the draft Plan take all groups in society into account in setting out a vision for a future transport system for people and communities?

• The Plan considers the impacts of decarbonising transport on all groups in our society.
• The Plan considers the impacts of decarbonising transport on people like me.

Question 7 (Everyone): Is there anything else you would like to see in the draft Plan for people who are more likely to face challenges accessing affordable, convenient and safe travel options?

Question 8 (Everyone): Which of the following principles do you think should be the most important to guide the development of a fair system of payment, to deliver a just transition to net zero in Scotland?

• Those who emit the most pay the most, with protections for low-income groups.
• Those who earn the most pay the most, without disadvantaging middle-income groups.
• Costs shared through taxation and incentives, such as reduced costs, will support low-carbon choices.
• None of the above.

Question 8 Context note: This question is based on independent evidence suggesting that there is a link between households with higher incomes and higher harmful emissions from personal transport. Meanwhile those on lower incomes are more likely to be reliant on public transport and more impacted by negative effects of emissions such as air pollution. We commissioned researchers to work with members of the public to consider how the costs of transforming our transport system and changing travel behaviours should be shared. Over a series of discussions, the group came up with different ideas, or principles, for how costs could be shared based on earnings, emissions, or incentives.