Cleaner Air for Scotland 2: progress report 2022-2023

Annex C: milestones for longer and medium term actions

For longer and medium term actions, as set out in the Delivery Plan, we have identified key milestones to track delivery progress. Updates against these milestones will be provided in future progress reports. Each action in CAFS2 has been assigned a short (to 2022), medium (to 2024) or longer term (to 2026) timeframe for delivery within the Delivery Plan.

Topic and timeframe

Health (long term action)

CAFS2 Action

Scottish Government with support from Public Health Scotland will assess the evidence on health impacts of low level pollution in countries with levels of ambient air pollution comparable to Scotland.

Milestone(s)

In March 2023 we commissioned a literature review to assess the evidence on health impacts of low level air pollution in countries with levels of ambient air pollution comparable to Scotland.

By end 2023 we will publish the evidence report from the literature review.

Topic and timeframe

Health (long term action)

CAFS2 Action

Scottish Government with support from Public Health Scotland will commission an assessment of actual exposures experienced by a representative sample of the Scottish population, assessing pollution exposures over a realistic activity range during a normal time period.

Milestone(s)

By end 2024 we will commission research.

Topic and timeframe

Health (long term action)

CAFS2 Action

Scottish Government with support from Public Health Scotland will commission population research on the long term effects of air pollution using cohort methods to aid further understanding of health impacts and explain the apparently different epidemiology in Scotland.

Milestone(s)

Following publication of the literature review of health impacts of low level air pollution, we will meet with members of the Health Working Group to discuss if further research is required to aid further understanding of health impacts, by Spring 2024.

Topic and timeframe

Health (long term action)

CAFS2 Action

Transport Scotland with support from Scottish Government will contribute to research on in-vehicle air quality measurement methodology, the use of recirculation mode for long-distance journeys related to CO₂ and in-vehicle air pollution related to occupational health.

Milestone(s)

End 2024 Transport Scotland will commission research.

Topic and timeframe

Health (long term action)

CAFS2 Action

Scottish Government with support from Public Health Scotland will convene a task group to identify what, if any, actions might best be undertaken at Scottish level to address the issues associated with indoor air pollution.

Milestone(s)

The Air Quality Expert Group published a report on indoor air quality in November 2022 Report: Indoor Air Quality - Defra, UK.

During 2024 we will review the outcomes and key findings from this and other ongoing research.

Topic and timeframe

Integrated policy (short term action)

CAFS2 Action

Scottish Government with support from SEPA will ensure that all actions taken by the Scottish Government to address air quality maximise the potential for co-benefits with climate change mitigation and adaptation. The 50 recommendations for maximising co-benefits set out in the CAFS Governance Group climate change report will be used to guide this process. We will work with local authorities to ensure that a similar approach is taken at local level.

Milestone(s)

The CAFS Governance Group climate change report has been used to identify actions in CAFS2 which have potential co-benefits with climate change action. We will ensure opportunities for cross disciplinary benefits are taken into consideration as each CAFS2 action is progressed, with particular attention to actions identified as having the greatest potential for co-benefits, such as the public engagement framework for air quality.

In 2024 we will work to ensure a similar approach is taken at a local level by including guidance for local authorities as part of the wider revision of the LAQM policy guidance.

Topic and timeframe

Integrated policy (medium term action)

CAFS2 Action

SEPA will work with local authorities to ensure that noise action plans are closely aligned with air quality action plans to deliver co-benefits. Guidance will be produced to facilitate this.

Milestone(s)

In 2024 noise mapping to be completed and noise action plans to be developed after that.

In 2024 the wider review of the LAQM policy guidance will be complete and the updated guidance will include a section on how local authorities should closely align air quality and noise work.

Topic and timeframe

Placemaking (short term action)

CAFS2 Action

Scottish Government with support from SEPA will promote the aim of the UK Integrating Tools for Air Pollution Assessment (ITAPA) project in developing an online air pollution risk assessment tool for air pollution effects on ecosystems.

Milestone(s)

The development of the Air Pollution Assessment Service (APAS) tool is ongoing and an initial testing phase has recently completed. At present the Joint Nature Conservation Committee (JNCC) is looking to launch APAS at the end of 2023 or early in 2024.

Topic and timeframe

Placemaking (medium term action)

CAFS2 Action

Scottish Government with support from SEPA will implement the National Modelling Framework Regional air quality model to assess the effects of land-use development on local air quality.

Milestone(s)

SEPA has contributed 99k to support the development and incorporation of features to facilitate air quality and human health assessments in the APAS tool. At present JNCC is looking to launch APAS at the end of 2023 or early in 2024.

A consortium has been formed to consider next steps for implementation of the APAS tool.

Topic and timeframe

Placemaking (medium term action)

CAFS2 Action

Scottish Government will undertake a review of nature based and green infrastructure interventions which can benefit air quality, using the outcomes to develop a database of potential solutions.

Milestone(s)

In 2024 we will commission a literature review with support from the Placemaking Working Group.

Topic and timeframe

Data (short term action)

CAFS2 Action

Scottish Government with support from SEPA will provide guidance to local authorities on how best to always commission traffic data collection in a way that supports local air quality objectives.

Milestone(s)

SEPA has developed minimum requirements for future traffic data collection contracts for inclusion onto the Improvement Service Spatial Hub. The Improvement Service has met with several of the key traffic data collection companies to encourage a more standard approach to collecting and presenting traffic data. In 2024 SEPA, Transport Scotland and the Improvement Service will build on these early discussions with the traffic data collection companies and map out the steps needed to standardise data collection going forwards.

Topic and timeframe

Data (long term action)

CAFS2 Action

Scottish Government with support from SEPA will commission research to explore the potential of utilising satellite data to complement air quality monitoring.

Milestone(s)

In 2025 we will review current research in this area and commission new research if needed.

Topic and timeframe

Data (long term action)

CAFS2 Action

Transport Scotland with support from SEPA will undertake a review of [road] transport data capture and associated gaps with relevance to air quality.

Milestone(s)

In 2024 SEPA and Transport Scotland will scope out the review and establish a virtual project team to deliver this action.

Topic and timeframe

Data (long term action)

CAFS2 Action

Transport Scotland with support from SEPA will collect transport data within Air Quality Management Areas and beyond to support air pollution mitigation planning, following the good practice established by SEPA’s National Modelling Framework.

Milestone(s)

In 2024 SEPA, Transport Scotland and the Improvement Service will build on discussions with the traffic data collection companies and map out the steps needed to standardise data collection going forwards to support air pollution mitigation planning.

Topic and timeframe

Behaviour change (medium term action)

CAFS2 Action

Scottish Government will develop a public engagement strategy on air quality in Scotland, taking into account the recommendations from the University of the West of England evidence review.

Milestone(s)

We are working with stakeholders on the development of a public engagement framework, with a view to publish the framework in 2024.

Topic and timeframe

Industrial emissions regulation (long term action)

CAFS2 Action

Utilise SEPA’s sector plan approach to encourage businesses to go beyond compliance to achieve further reduction in air pollutants and greenhouse gas emissions.

Milestone(s)

SEPA is currently in the process of reviewing its strategic regulatory approach. The review will be complete by the end of 2023 at which time the future role of sector planning will be clarified.

Topic and timeframe

Industrial emissions regulation (long term action)

CAFS2 Action

Scottish Government and SEPA will, as part of the review of the Clean Air Act 1993 (see domestic burning actions), address the regulatory gap relating to stack height assessment for SEPA permitted sites.

Milestone(s)

In 2024 we will work with SEPA and local authorities to review the Clean Air Act 1993. Following the review we will develop a timeline for progressing amendments to the Act if required.

Topic and timeframe

Industrial emissions regulation (long term action)

CAFS2 Action

Transport Scotland will explore opportunities across traffic management, behaviours and legislation/standards to reduce non-exhaust emissions (NEE) from road traffic.

Milestone(s)

In 2025 Transport Scotland will undertake an assessment of the opportunities to reduce NEE from road traffic, and produce a report.

Topic and timeframe

Industrial emissions regulation (long term action)

CAFS2 Action

Transport Scotland will contribute into research to develop a consistent method of measuring NEE from road traffic, in order to improve the understanding of NEE emissions in Scotland.

Milestone(s)

In 2026 Transport Scotland expects to complete this action taking account of the findings from the assessment of the opportunities to reduce NEE from road traffic.

Topic and timeframe

Industrial emissions regulation (long term action)

CAFS2 Action

Scottish Government, Transport Scotland and SEPA will engage with industry to produce guidance on requirements for gaseous and particulate emission from Non-Road Mobile Machinery (NRMM).

Milestone(s)

In 2025 Scottish Government with support from Transport Scotland will look to commission research to help quantify the impact of emissions from NRMM on air quality in Scotland. The evidence will be used to inform the next steps.

Topic and timeframe

Industrial emissions regulation (long term action)

CAFS2 Action

Transport Scotland will develop an emission impact and evidence base on Transport Refrigeration Unit (TRU) emissions.

Milestone(s)

A report has been published by Transport Scotland’s specialist consultant Zemo, which presents the results from research commissioned by Transport Scotland on emissions from auxiliary diesel engines used on some Transport Refrigerated Units (auxTRUs). As part of their next steps Transport Scotland will establish a working group by early 2024 with stakeholders to establish a collaborate approach as to how emissions from auxTRUs can be improved. This action is expected to be completed by end 2024.

Topic and timeframe

Tackling non transport emissions (short term action)

CAFS2 Action

Scottish Government, in developing policies and programmes to support households and businesses in transitioning to low-carbon heating solutions, will consider the needs of those affected by controls on the supply of the most polluting domestic fuels.

Milestone(s)

The Scottish Government undertakes impact assessments at the early stages of developing policies. An evidence report to inform future proposals to ban the sale of house coal and high sulphur fuels has been published.

Topic and timeframe

Tackling non transport emissions (short term action)

CAFS2 Action

Scottish Government will commission work to provide further evidence on the proportion of particulate matter emissions and other key pollutants attributable to domestic burning in Scotland, together with geographic and demographic distribution of domestic burning.

Milestone(s)

A research project led by Scotland’s Rural College is focusing on urban air pollution issues, particularly domestic combustion, its effects on particulate matter and the consequences for human health. The research will also look at the geographical distribution of combustion and types of fuel used. For a spatially complete assessment of the contribution of domestic burning to particulate matter an atmospheric chemistry and transport model was used together with the 2022 release of the UK National Atmospheric Emissions Inventory (NAEI) for 2020 to model the contribution from biomass burning. This modelling exercise will be updated with further improved emissions, the resolution will be increased from currently 3 km to 1 km, model performance will be assessed against measurements, and the results will then be made available (by March 2024) for an assessment of health impacts as well as their geographical and demographic distribution (by 2025).

Topic and timeframe

Tackling non transport emissions (short term action)

CAFS2 Action

Scottish Government will encourage uptake of Ecodesign stoves through Ecodesign Ready and other initiatives, along with consideration of how best to address widespread replacement of pre Ecodesign appliances.

Milestone(s)

From January 2022 Ecodesign standards now apply for all new appliances. When developing our public engagement framework for air quality during 2024 we will consider the best approach for engaging with the public on domestic burning issues.

Topic and timeframe

Tackling non transport emissions (medium term action)

CAFS2 Action

Scottish Government with local authorities will consider what changes are needed to the current permitted development rights for flues for woodburning stoves and biomass boilers.

Milestone(s)

We consulted on the third phase of the review of permitted development rights (PDR) between May and August 2023. The consultation sought views on potential changes to the current PDR for flues for woodburning stoves and biomass boilers. We are carefully considering the responses received and will use these to inform next steps.

Topic and timeframe

Tackling non transport emissions (medium term action)

CAFS2 Action

Scottish Government will work with local government and SEPA to consider revision of the Clean Air Act 1993.

Milestone(s)

In 2024 we will work with SEPA and local authorities to review the Clean Air Act 1993. Following the review we will develop a timeline for progressing amendments to the Act if required.

Topic and timeframe

Tackling non transport emissions (medium term action)

CAFS2 Action

Scottish Government will undertake a specific assessment of visible smokes and their health and amenity impacts arising from muirburn. The assessment will consider pollution characteristics and downwind impacts into populated areas, along with appropriate management responses and interventions.

Milestone(s)

The Wildlife Management and Muirburn (Scotland) Bill was introduced in the Scottish Parliament on 21 March 2023. The Bill repeals the muirburn provisions in the Hill Farming Act 1946 and replaces it with provisions to require that any muirburn should be unlawful unless carried out under a licence, for limited purposes, with further limitation on muirburn on peatland. Limitations on muirburn for the purposes of environmental sustainability are likely to have co-benefits for air quality. We will explore these in more detail during 2024 to inform our next steps.

Topic and timeframe

Tackling non transport emissions (medium term action)

CAFS2 Action

Scottish Government will work together with SEPA and the agricultural industry to develop a voluntary code of good agricultural practice for improving air quality in Scotland.

Milestone(s)

Work is currently underway with SAC Consulting and SEPA colleagues to update the PEPFAA code. Content of the PEPFAA code is being produced in chapters which will be published online. The CAFS2 Agriculture and Environment Working Group agreed that measures to prevent emissions to air should be incorporated into the relevant chapters of the PEPFAA code, rather than as standalone guidance. We have identified two chapters as being particularly important for air quality, these being manure handling and storage, and inorganic and liquid fertilisers. The chapter covering manure handling and storage is currently under review with relevant officials and both chapters are expected to be complete by end 2023.

Topic and timeframe

Tackling non transport emissions

(medium term action)

CAFS2 Action

Scottish Government will support investigation into the method of assessing risk of significant harmful ecological effects from atmospheric nitrogen (nitrogen deposition and elevated concentrations of ammonia and NOx), comparing critical loads/levels with dose-response or other options.

Milestone(s)

A project led by the James Hutton Institute is focusing on understanding the interactive impacts of nitrogen deposition and climate change on biodiversity and ecosystem functioning, particularly carbon and nitrogen cycling. The project will develop indicators of these impacts for use in environmental monitoring on protected areas and in the wider countryside and explore the potential for mitigation of impacts and appropriate methods to apply.

The final strand of this project will be modelling of scenarios of nitrogen deposition and climate impacts on natural ecosystems. These modelling frameworks will be used to explore and map risks to biodiversity and ecosystem function for a series of scenarios of future nitrogen deposition rates and climate change, based on socioeconomic, climate change and air quality policy scenarios. The key outputs of this work will be risk maps/visualisations and a scientific manuscript in year five of the project (2026/27). NINE | The James Hutton Institute.

Topic and timeframe

Tackling non transport emissions (medium term action)

CAFS2 Action

Scottish Government with support from SEPA and NatureScot will assess the potential costs of implementing identified improvements to the current site condition monitoring of designated conservation sites, to improve on current methods which don’t detect air pollution effects.

Milestone(s)

A project led by the James Hutton Institute commenced in April 2022. The second work package will consider the mitigation potential for identified nitrogen impacts. Field experiments began in August 2023.

Topic and timeframe

Tackling non transport emissions (medium term action)

CAFS2 Action

Scottish Government with support from SEPA and NatureScot will review current monitoring of terrestrial ecosystems (and air pollution effects) in Scotland.

Milestone(s)

NatureScot is reviewing current monitoring of terrestrial ecosystems to support a transition from a feature based approach to a whole ecosystem health approach. As part of the project tools will be developed to support consideration of air pollution effects.

2023/24 – system development phase (technical development, end user research and testing).

2025/26 – system deployment and implementation (training, transition and integration).

Topic and timeframe

Tackling non transport emissions (long term action)

CAFS2 Action

Scottish Government will take forward, working with businesses that may be affected and other interested parties, potential measures to control the supply of the most polluting domestic fuels – including a ban on house coal, restricting the sulphur content of smokeless fuels to 2%, prohibiting the sale of certain types of wet wood and introduction of a minimum renewables content for manufactured smokeless fuels. In taking forward this work, we are mindful that any new measures would require to be implemented over a period of time, such as a transitional period during which businesses could adapt to the new requirements without disproportionate costs.

Milestone(s)

An evidence report to inform proposals for introducing a ban on the sale of house coal and high sulphur content manufactured solid fuels in Scotland has been published.

Topic and timeframe

Tackling non transport emissions (long term action)

CAFS2 Action

Scottish Government and SEPA will continue to share best practice and raise awareness of greenhouse gases and ammonia, and actions that farmers and crofters can take to minimise their environmental impact while improving efficiency.

Milestone(s)

Good practice to minimise emissions to air will be incorporated into relevant chapters of the updated PEPFAA code. By end of 2023 the slurry and manure management and inorganic and liquid fertilisers chapters of the revised code review are expected to be complete.

In addition a project led by Scotland’s Rural College commenced in April 2022, with one of its objectives being the development of tools to encourage farmers, land managers and decision makers to reduce ammonia emissions. Researchers will draw on literature and existing and developing expertise to develop a farm-level ammonia foot printing and decision support tool for ruminant farmers, demonstrating the benefits of mitigation interventions on commercial farms. In March 2024 recruitment for farm case studies will begin.

Topic and timeframe

Tackling non transport emissions (long term action)

CAFS2 Action

Scottish Government will consider options to reduce emissions from large scale units in consultation with the agricultural sector, aligning with broader policy development around future rural support.

Milestone(s)

Early 2024 we will discuss with the CAFS2 Agriculture and Environment Working Group and consider options.

Topic and timeframe

Transport (short term action)

CAFS2 Action

SEPA working with local authorities and Transport Scotland will provide updates on the performance of the LEZs and continue to update the LEZ models to reflect changes associated with projects such as Spaces for People fund.

Milestone(s)

SEPA are working with the local authorities in developing the reporting criteria for assessing LEZ performance. Local authorities are now looking at other areas out with their LEZ boundary that were identified through SEPA modelling as potentially persistent areas of concern. SEPA has met with other parties that have been reporting on Clean Air Zones along with Glasgow University in building up reporting methodologies.

The formal LEZ reporting process will start from when enforcement begins, with the first annual report to be expected from Glasgow in 2024.

Topic and timeframe

Transport (medium term action)

CAFS2 Action

Public bodies should incorporate travel from employee commute as part of their corporate carbon footprint and will report these emissions via their public bodies duties reporting.

Milestone(s)

Scottish Government guidance to public bodies - Public Sector Leadership on the Global Climate Emergency published in Oct 2021 - says that it is expected as a matter of best practice that public bodies should have targets to reduce emissions from commuting and the guidance makes suggestions for how public bodies might influence and measure commuting emissions. The Scottish Government is developing new statutory guidance on public bodies’ climate change duties and climate change reporting to be published in 2025.

Topic and timeframe

Transport (long term action)

CAFS2 Action

Transport Scotland will work to more fully understand the role of non-electrification routes to decarbonising transport – to lead to a better-defined wider policy position that complements existing electrification work streams. We will explore alternative fuels’ potential to power certain vehicle types in the short, medium and long term, whilst still contributing to Scotland’s statutory climate change targets.

Milestone(s)

Transport Scotland is working with Scottish Enterprise to consider the place of low carbon fuels such as biomethane, in our transport system, (including road transport, as well as harder to decarbonise non-road modes of transport). Transport Scotland recently funded a study looking at the opportunities for Scotland in low carbon fuels. The conclusion was that there were potential opportunities for Scotland in sustainable aviation fuel production and maritime decarbonisation in particular, in the long term, with hydrogen as a feedstock. However no specific opportunities in low carbon fuels for road transport were identified at this time. The draft Energy Strategy & Just Transition Plan (ESJTP) was published 10 January 2023. Consultation closed 9 May 2023 . Over 1500 responses were received. These are currently being independently analysed and the results will be taken into account as we move towards finalisation of the ESJTP in due course.

Topic and timeframe

Transport (long term action)

CAFS2 Action

Transport Scotland will collaborate with the private sector to identify effective pragmatic solutions on the uptake of zero and ultra low emission vehicles.

Milestone(s)

Scottish Government’s Vision for the future public electric vehicle charging network for cars and vans and the Electric Vehicle Infrastructure Fund (EVIF) support the public and private sectors to work together to grow the network.

• Early 2024 - publication of HGV Decarbonisation Pathway by the Zero Emission Truck Taskforce.
• End 2026 - EVIF has doubled the public EV charging network to 6,000 charge points.

Topic and timeframe

Transport (long term action)

CAFS2 Action

Transport Scotland will work to revoke all Air Quality Management Areas where trunk roads are the primary contributor to air pollutants.

Milestone(s)

In 2024 Transport Scotland will meet with the two local authorities where trunk roads contribute to air pollution to discuss key issues.

Topic and timeframe

Governance accountability and delivery (medium term action)

CAFS2 Action

Scottish Government with support from SEPA will undertake a further revision of the LAQM policy guidance to take account of developments since the last update in 2016.

Milestone(s)

March 2023 revised LAQM policy guidance was published with revisions to sections 1 – 9. The revisions take account of the recommendations made by ESS to strengthen the LAQM regime following its investigation into air quality.

In 2024 we will review the wider policy areas covered by the LAQM policy guidance and update as necessary.

Topic and timeframe

Governance, accountability and delivery (medium term action)

CAFS2 Action

The Scottish Government with support from SEPA will assess the advantages and disadvantages of extending LAQM assessment to all areas with public access, to provide the necessary evidence base on which to make a decision on whether this would deliver overall benefits.

Milestone(s)

In 2024 we will engage with SEPA and local authorities to develop a scope for the assessment.

Topic and timeframe

Further progress review (long term action)

CAFS2 Action

Scottish Government with support from SEPA will initiate a review on progress with implementing CAFS2 during 2024, with a view to having a further version of Scotland’s air quality strategy in place by the end of 2025.

Milestone(s)

We will develop a timeline with the CAFS2 Delivery and Working Groups and publish the revised timeline in the next progress report.