Climate Change Board - Performance Report & Public Sector Duties Return
Argyll and Bute Council · 21 August 2025
Back to Policy and Resources Committee — 21 August 2025 and its agenda
Text extracted from the council's PDF. Layout and reading order may differ from the original.
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ARGYLL AND BUTE COUNCIL POLICY & RESOURCES COMMITTEE CLIMATE CHANGE BOARD 21st AUGUST 2025 CLIMATE CHANGE BOARD - PERFORMANCE REPORT & PUBLIC SECTOR DUTIES RETURN 1.0 EXECUTIVE SUMMARY 1.1 This report demonstrates Argyll and Bute Council's substantial commitment to climate action, with a 31.26% reduction in overall carbon emissions since 2016/17. This achievement positions the Council well in relation to other similar Council’s and indicates the commitment to the journey towards becoming a net zero organisation by 20245. Despite external challenges, including a 7% increase in the national electricity grid's carbon intensity during this 2023/24 reporting cycle, the Council’s Property Services team achieved a 2.1% reduction in actual electricity consumption, a performance 33% better than the national public sector average, and demonstrating continuous improvement and trend that investment in buildings is making the Council’s estate more climate friendly. 1.2 The analysis identifies both challenges and opportunities within the Council’s direct operational control. Our Scope 1 emissions (emissions released directly from sources that an organisation owns or controls) showed mixed performance: while fleet emissions increased by 2.63%, this was offset by a 2.45% reduction in building heating emissions, which constitutes the majority of the Council’s directly controlled footprint and outperformed national trends. This demonstrates effective operational management in our largest controllable emission source. Overall, the net position of the Council rose just under 4% for the most recent reporting year. The overall increase was driven by the external grid factors impacting Scope 2 emissions (indirect emissions generated from the purchase of electricity), masking strong performance in areas of direct Council control. 1.3 The uplift and processing of municipal waste continues to be the single most carbon consuming activity equating to approximately half of all Council emissions – See Appendix A. The upcoming transition to Energy from Waste processing will address the Council’s largest emissions source, potentially
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creating impetus to focus enhanced resources on building decarbonisation and fleet electrification where the Council have demonstrated capability but there remains room for improvement. 1.4 Crucially, this report is set within the context of forthcoming new statutory guidance on Public Bodies' Climate Change Duties anticipated to be enacted for 2026, on which the Scottish Government has recently consulted. This evolving legislative landscape reinforces the need for a more comprehensive and strategic approach to climate action. The Council’s strategic priorities, particularly around Scope 3 emissions (all other indirect emissions that occur in the council's value chain, both upstream and downstream), align directly with the direction of the new guidance, as detailed in a separate report to this Committee. 1.5 In response to our performance analysis and this evolving national context, this report outlines a clear strategic framework. It is built on four key priorities: Strengthening operational efficiency; establishing procurement emissions measurement and management; strengthening our service and community resilience through climate adaptation; and improving related data and information transparency. These priorities build on our demonstrated strengths while directly addressing the enhanced statutory duties and expectations for the future. 2.0 RECOMMENDATIONS That the Policy and Resources Committee is asked to: 2.1 Note and consider progress towards net zero and challenges identified in the Council’s 2023/24 Public Sector Duties Submission which include a 3.8% rise in previous financial year but 31% reduction overall. 2.2 Endorse the strategic priorities outlined to accelerate climate action and ensure progress towards the Council’s net zero targets.
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ARGYLL AND BUTE COUNCIL POLICY & RESOURCES COMMITTEE CLIMATE CHANGE BOARD 21st AUGUST 2025 CLIMATE CHANGE BOARD - PERFORMANCE REPORT & PUBLIC SECTOR DUTIES RETURN 3.0 INTRODUCTION 3.1 This report provides the Committee with an analysis of the Council's 2023/24 climate performance, in line with its statutory duties under the Climate Change (Scotland) Act 2009. It presents an analysis of the Council’s most recent emissions data for the 2023/24 period, contextualised with findings from the analysis of national Public Bodies Climate Change Duties Report prepared by the Sustainable Scotland Network (SSN). 3.2 The purpose of this report is to provide the committee with an assessment of the Council’s current performance, enabling informed strategic decisions to be made to accelerate the Council’s progress towards meeting our climate change commitments. 4.0 PERFORMANCE ANALYSIS 4.1 A Strong Foundation of Progress 4.2 It is important to begin by acknowledging the substantial and sustained progress this Council has made. The Council declared a Climate Emergency in September 2021 and Climate Change Board has been progressing with actions to deliver on these commitments. Climate change action cannot be delivered by one Board or team – it requires the support and action of all employees, teams and customers. Since our baseline year the Council has successfully reduced the overall carbon emissions by 31.26%. This is a significant achievement, representing a reduction of over 12,500 tonnes of CO2 equivalent, and it demonstrates a clear, long-term commitment to climate action across this organisation. 4.3 The Council’s performance on electricity emissions (mainly stemming from consumption in buildings, streetlighting and EV chargers) in 2023/24 is a clear example of this progress, especially when set against the external challenges
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faced. That year, the national electricity grid's carbon intensity increased by 7%, creating upward pressure on emissions for all UK organisations. However, our own internal performance on energy management was excellent, as the Council’s Property Services team achieved a 2.1% reduction in actual electricity consumption. This resulted in the Council’s overall emissions performance for electricity being significantly better than the national average. 4.4 While the Council’s Scope 2 emissions (Indirect Emissions from Purchased Energy) did increase by 4.69% due to the grid factor, this was substantially better than the 7% increase seen across the national grid carbon intensity. This means the Council’s emissions increase was smaller than the national average, a direct result of our effective consumption management. The national trend saw Scope 2 emissions increase by 7% due to the grid factor change. Councils that maintained static electricity consumption would have experienced similar increases of 8-12%. However, A&BC's proactive consumption management limited our Scope 2 increase to just 4.7%, demonstrating effective operational discipline despite the challenging external environment. 4.5 Assessment of Challenges and Trajectory While the Council’s long-term progress towards achieving net zero is clear and moving in the right direction, it is apparent both locally and nationally that significant challenges lie ahead. Based on a detailed analysis of the Council’s performance over the last seven years, our current trajectory projects that the Council will not meet its 2045 net zero target without a significant acceleration of effort. It is this analysis that provides the critical evidence base for the four strategic priorities outlined in Sections 31.0 – 34.0 of this report. To meet the 2045 commitment, our analysis shows the Council would need to accelerate its rate of decarbonisation. This challenge and highlights the necessity for the sharper focus and renewed urgency that the Council’s proposed strategy will provide building on the Climate Emergency declared in September 2021. 4.6 Council analysis has identified specific areas where this acceleration is most needed. The Council’s direct Scope 1 emissions (Direct Emissions), which the Council control entirely, showed a mixed performance. While emissions from the Council’s fleet, a smaller component of this category, saw a 2.63% increase, this was contrasted by a positive performance in our building heating emissions. Building heating constitutes much of the Council’s Scope 1 footprint and saw a welcome reduction of 2.45% this year, outperforming the national trend. 4.7 Furthermore, like 91% of local authorities nationally, the Council have identified significant gaps in the reporting of our indirect Scope 3 emissions (Indirect Upstream & Downstream Emissions), particularly those from the goods and services up the Council procure. The Annual Procurement Report 2023/24 confirms that Council procurement-related spending totalled £181.5 million,
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representing a substantial economic activity with associated carbon implications that are not currently fully measured or reported. The Scottish Government has confirmed that mandatory comprehensive Scope 3 reporting will commence in November 2027, requiring local authorities to account for procurement emissions, staff commuting, business travel, and capital goods. This enhanced reporting framework will provide a more complete picture of the Council’s true carbon footprint, though we cannot quantify the scale of unreported emissions without implementing proper measurement methodologies. Current national data indicates that only 9% of local authorities report procurement emissions comprehensively, highlighting this as a sector- wide challenge rather than a unique organisational limitation. 5.0 THE STRATEGIC RESPONSE 5.1 This data does not exist in a vacuum; it informs the Council’s overall strategy. The Council have used the Leaders' Climate Emergency Checklist [See Appendix B] - a national self-assessment tool designed to help public bodies embed climate action into their core functions - to guide our thinking. The Council’s assessment confirmed that while we have strong foundations, we have clear opportunities to improve how we integrate climate considerations into governance, finance, and procurement. 5.2 Evolving National Context: New Draft Statutory Guidance on Climate Change Duties 5.3 Alongside the Council’s performance analysis, it is essential for the Committee to be aware that the national policy landscape is evolving. The Scottish Government has recently concluded its consultation on new draft statutory guidance for Public Bodies' Climate Change Duties, which, once finalised, will introduce more detailed legal requirements. The Council via the Climate Change Board and Policy Lead for Climate Change and Environment submitted a formal response to this consultation. [see separate CLIMATE CHANGE BOARD UPDATE & DECARBONISATION TRACKER report] 5.4 The separate report is provided to the Committee detailing the full implications of this new guidance. In summary, its direction reinforces and formalises the strategic priorities already identified in this Performance Report, confirming that our focus on procurement, adaptation, and data transparency aligns with the enhanced statutory duties ahead. 5.5 Adapting to Our Changing Climate 5.6 Recent national reports have highlighted that the Council’s duty under the Climate Change (Scotland) Act 2009 extends beyond just cutting emissions of the Local Authority. As a Council, our actions and responses are also required to proactively prepare for the already locked-in impacts of climate change –
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flooding, wildfires, coastal erosion, sea level rises, landslides and storm damage. The national analysis shows that while all local authorities have undertaken some form of risk assessment, many have opportunities to develop more comprehensive adaptation plans. This is not just a cost, but a critical investment. As noted in the "Into the Red" report by the Royal Scottish Geographical Society, for every £1 spent on protecting our communities from impacts like flooding, the Council could save around £9 in future damages. The Council’s strategy should therefore place a renewed emphasis on proactive adaptation, viewing it as a prudent way to safeguard our services and communities for the future. 5.7 Strategic Shift in Waste Management 5.8 In line with Scottish Government policy, the Council will be transitioning our residual waste from landfill to external Energy from Waste processing by the end of 2025. While this will have a material and positive impact on the Council emissions profile, and is a strategic catalyst, it should not be viewed as a final solution for waste. This change is a medium-term transitional step that allows the Council to pivot resources. It is important to use this as a strategic opportunity to double down on efforts to reduce waste at the source and improve recycling, shifting our focus from disposal to driving better behaviours in how we all produce and manage waste. 5.9 Priorities for Acceleration The Council’s plan is clear and is built on four key priorities, which will be delivered through a new strategic approach to net zero. The Council is developing a comprehensive Net Zero Route Map that is currently in draft form and will be subject to the full committee approval process in due course. Once approved, this new plan will replace and supersede the existing Decarbonisation Plan (2022 – 2025) and provide the structured delivery mechanism for these four priorities: 5.10 Strengthen Operational Efficiency: Work is ongoing to enhance the efficiency of the Council’s fleet operations and address the recent emissions trend. Our approach includes systematic electrification where viable, whilst developing alternative fuel solutions for challenging applications across our extensive geography. Alongside this, the Council recognise the need to strengthen our approach to reducing emissions from heating our buildings through both fabric improvements (challenging in historic / older buildings) and technology-led solutions for the Council’s most challenging assets. Continued progress in this area will depend on increased investment and the allocation of additional resources, proposals for which will be developed and brought forward for consideration through the Council's established annual budget-setting process. By building on the proven experience and skills within the Council’s Property Services team, and ensuring they are properly resourced, the
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Council can make steady improvements in the way we heat our buildings and reduce our overall emissions from this important sector. 5.11 Enhance Strategic Integration: It is imperative that the Council enhance how we manage our indirect emissions ahead of the November 2027 mandatory Scope 3 reporting deadline. This requires developing a robust framework to measure and manage the Council’s Scope 3 emissions, ensuring our procurement processes are brought into line with our climate ambitions. With the Councils annual procurement spend of £181 million representing a substantial portion of our total emissions post-waste transformation, systematic supplier engagement and carbon criteria integration becomes central to our net zero delivery. 5.12 Strengthen Resilience: It is critical the Council steps up adaptation activity to meet their duties under the Climate Change Act. This involves developing a more advanced adaptation plan, treating investment in resilience as a core part of the Council’s financial strategy to protect council assets and community well-being. The Council’s approach will leverage our extensive land holdings for both carbon sequestration and climate adaptation benefits. 5.13 Improve Data and Information Intelligence: A recurring theme is that data is not always visible, accessible, or robust enough. A foundational priority is to improve the Council’s climate data and information handling across all operations. This will ensure we can best understand, target, and manage emissions, adaptations, and sustainability duties. 5.14 This strategic approach demonstrates the Council's proactive response to meeting its enhanced statutory duties. It provides a robust and coordinated framework for turning our ambition into accelerated, measurable, and transparent action across all services, addressing our unique operational and geographical challenges through integrated delivery in all areas of activity. 6.0 CONCLUSION 6.1 This detailed analysis gives us the clearest picture yet of the Council’s climate performance. It is a complex picture, one that has required us to dig deep into the Council’s data and be honest about its limitations, but it ultimately points towards a path of focused, evidence-based action. 6.2 This year’s performance must be viewed in the context of both progress and challenge. Although total reported emissions increased by 3.8% in 2023/24, the Council has delivered a sustained 31.26% reduction since the 2016/17 baseline—a performance that contrasts sharply with the recent national trend of rising emissions. At the same time, the wider legislative and policy landscape is changing rapidly; to remain compliant and effective, there is a
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clear need to evolve our decarbonisation plan in line with new statutory requirements. On this basis, the Committee is asked to support the principles underpinning the Council’s emerging Net Zero Route Map, which will ensure our next phase of climate action is both strategically focused and robustly governed. 7.0 IMPLICATIONS 7.1 Policy The four strategic priorities endorsed in this report and the development of the Net Zero Route Map will guide future Council policy and replace the existing decarbonisation plan. 7.2 Financial The need for investment will be managed through the established annual budget-setting process. Enhanced efficiency is expected to deliver long-term operational savings and future cost avoidance. 7.3 Legal The report outlines the Council's performance against its duties under the Climate Change (Scotland) Act 2009 and prepares the organisation for future mandatory requirements, including comprehensive Scope 3 reporting from November 2027. 7.4 HR Delivering the strategic priorities will require ongoing upskilling and capacity building across services, particularly in procurement and data management, to meet the challenges of enhanced emissions reporting and management. 7.5 Customer Service By strengthening the resilience of Council assets and services, the strategy aims to minimise disruption for customers and maintain service continuity during extreme weather events. 7.6 Risk The report identifies the strategic risk of the current emissions trajectory. The four priorities are designed to mitigate this risk by improving operational performance and enhancing resilience to climate impacts. 7.7 Climate Change The entire report is dedicated to analysing the Council's climate change performance and setting a strategic framework to accelerate action on mitigation and adaptation. 7.8 Fairer Scotland Duty
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7.9 Equalities – protected characteristics The focus on building and community resilience through adaptation planning supports the protection of vulnerable groups who are often most affected by climate impacts. 7.10 Consumer Duty The focus on operational efficiency, prudent investment, and future-proofing services against climate impacts contributes to delivering Best Value for the public. 7.11 Island Communities The strategic priorities explicitly acknowledge the need for solutions tailored to the Council's extensive and challenging geography, including its island communities. 7.12 Children’s Rights and Wellbeing The commitment to accelerate climate action and build a sustainable, resilient future directly supports the general principles of protecting the wellbeing of children and future generations. Douglas Hendry, Executive Director with responsibility for Commercial Services Policy Lead Climate Change & Environment, Councillor Luna Martin For Further Information:- Ross McLaughlin, Head of Commercial Services Helensburgh and Lomond Civic Centre ross.mclaughlin@argyll-bute.gov.uk
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APPENDICES Appendix A - Supporting Data and Statistics Appendix B - Leaders Climate Emergency Checklist (PDF attached with report circulation) Appendix C - Sustainable Scotland Network SSN_Analysis_Report_23-24 (PDF attached with report circulation)
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Classification: OFFICIAL Appendix A - Supporting Data and Statistics Electricity 15.6% Heating Fuels 20.9% Transport Fuels 10.5% Business Travel 1.4% Water 0.2% Waste Landfill 49.9% Waste Recycling 0.7% Waste Combustion 0.3% Waste Other 0.4% Emissions Breakdown (tCO2e) Electricity Heating Fuels Transport Fuels Business Travel Water Waste Landfill Waste Recycling Waste Combustion Waste Other 40,029.10 35,530.70 32,144.32 28,642.77 26,619.00 28,217.61 26,512.42 27,515.12 - 5,000.00 10,000.00 15,000.00 20,000.00 25,000.00 30,000.00 35,000.00 40,000.00 45,000.00 2016/17 2017/18 2018/19 2019/20 2020/21 2021/22 2022/23 2023/24 Emissions History (tCO2e) Chart 1 - 2023-24 emissions breakdown Chart 2 – emissions reduction plateau
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Classification: OFFICIAL Emissions Scope Definitions: Scope 1: Direct Emissions These are emissions released directly from sources that an organisation owns or controls. This includes emissions from fuel combustion in boilers, and vehicles owned by the council. It also covers fugitive emissions, such as leaks from refrigeration or air conditioning units. Scope 2: Indirect Emissions from Purchased Energy This category covers indirect emissions generated from the purchase of electricity. Although these emissions are created at the facilities where the energy is generated, they are a consequence of the council's energy usage. Scope 3: Other Indirect Emissions Scope 3 encompasses all other indirect emissions that occur in the council's value chain, both upstream and downstream. These are not owned or controlled by the council but are related to its activities. This is often the most extensive category and includes emissions from: • Purchased goods and services • Business travel • Employee commuting • Waste disposal • Use of sold products • Transportation and distribution Summary Performance Metrics This summary provides the key performance indicators and national benchmarking data that underpin the analysis in the main report. Headline Performance Metric Value Note Overall Emissions Reduction -31.26% Since 2016/17 baseline, demonstrating significant long-term progress.
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Classification: OFFICIAL 2023/24 Emissions Breakdown and Context Scope Emissions (tCO2e) Year- on-Year Change Context for Change Scope 1 (Direct) 8,630.6 -0.81% This net decrease was driven by a 2.45% reduction in building heating emissions, which successfully offset a 2.63% rise in fleet emissions. Scope 2 (Energy) 3,957.5 +4.69% Driven entirely by a 7% increase in national grid carbon intensity. The Council's own electricity consumption decreased by 2.1%. Scope 3 (Indirect) 14,927.0 +6.39% Reflects a rebound in post-pandemic business travel and, crucially, improved data capture as we prepare for future mandatory reporting. Total 27,515.1 +3.78% The overall increase was driven by the external grid factors impacting Scope 2, masking strong performance in areas of direct Council control. National Benchmarking: Performance vs Scottish Public Sector Average Category Argyll & Bute Performance National Average Assessment Energy (Scope 2) +4.69% +7.0% Outperforming: Our emissions from electricity rose by less than the national grid's carbon intensity increase, due to a 2.1% reduction in consumption. Building Heating -2.45% +1.0% Outperforming: Demonstrates effective management of our largest controllable emissions source against a rising national trend. Fleet Emissions +2.63% -7.0% Underperforming: Highlights an area requiring strategic focus. While transport emissions rose slightly, this increase equated to just 0.27% of our total emissions in 2023 Key Strategic Context Area Key Statistic / Context Procurement & Scope 3 Annual procurement spend of £181 million underscores the scale of emissions to be addressed by the November 2027 mandatory reporting deadline. Waste & EfW Transition Waste currently accounts for 51.4% of total emissions. The transition to Energy from Waste is the single most impactful decarbonisation action in the short term. Adaptation & Resilience For every £1 invested in proactive climate adaptation, an estimated £9 in future damages can be avoided, making it a prudent financial strategy.
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Classification: OFFICIAL Appendix B - Leaders Climate Emergency Checklist (PDF attached with report circulation) Appendix C - Sustainable Scotland Network SSN_Analysis_Report_23-24 (PDF attached with report circulation)