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AU G U S T 2 0 1 1

Briefing for the Rural Affairs, Climate Change and Environment Committee
1 The Royal Society of Edinburgh has carried out a series of important studies in recent years on issues that are central to the concerns of the Committee, and that draw on the great depth and breadth of experience in its Fellowship, which includes representatives of all of Scotlands major, relevant research bodies. The RSEs strength is its ability to bring together experts from a variety of disciplines and backgrounds, with experience ranging from science to policy and practice, and that crosses traditional boundaries between institutions and government departments, to explore issues that will have wide-ranging impacts on Scotland. Moreover, it is independent and has no sectional interest. The RSE has published the results of major inquiries relevant to the remit of the Rural Affairs, Climate Change and Environment Committee, including Facing up to Climate Change (2011), the Future of Scotlands Hills and Islands (2008), Energy Issues for Scotland (2006) and the Future of Scotlands Fishing Industry (2004). It has also produced the series of relevant advice and briefing papers listed at the end of this document. The RSE will continue to comment on and to develop policy concepts directed towards the challenges of climate and environmental change, sustainable land management for maximum public benefit and sustainable exploitation of marine areas. This briefing paper summarises a number of current issues that the RSE considers to be of key importance for early stages of the fourth session of the Scottish Parliament. breaking the barriers to a low-carbon Scotland. The remit of the inquiry was to investigate the gap between the policies needed to achieve Scotlands ambitious climate change targets and where we are now. 6 The inquiry brought together the expertise of the multi-disciplinary Inquiry Committee and extensive evidence gathered from the public, private and third sectors, communities and individuals from across Scotland.The report reflects the real experiences of both those tasked with leading the transition to a low-carbon society and those who are voluntarily taking action. It considers the policy context, evidence and recommendations for a wide range of sectors, including finance, energy, industry, transport, water and land use. The fundamental message of the report is that while there is significant activity at the level of the EU, the UK, the Scottish Government, local authorities, local communities, households and civil society, there is a disconnection between policies and their implementation at different levels that acts as a major barrier to progress. The reports recommendations are designed to enhance integration and focus on some of the key barriers that urgently need to be addressed.These include an overhaul of the infrastructure and management of the electricity grid; retrofitting existing regulation to achieve a balance with the need to reduce carbon emissions; achieving a step change in energy efficiency; optimising land use for climate change mitigation and adaptation; and developing means of tapping the energy and skills of local communities. The report also emphasises the need for proper engagement with people, communities and civil society, going beyond mere consultation and media campaigns, to ensure that all of society has a stake in the transition to a low-carbon economy.There is a major role for both central and local government and local communities in actively promoting the take up of a low-carbon agenda by civil society.

Climate Change
4 The RSE welcomed the ambitious Climate Change (Scotland) Act adopted by the previous Scottish Parliament in 2009. Since then, the RSE has continued to engage with the suite of strategies and action plans produced in line with the legislation.The implementation of the Act and the drive to achieve its targets will clearly be a key strand of work for the current Scottish Parliament.The RSE looks forward to working constructively with MSPs as this develops. In order to support Scotlands move to a sustainable, low-carbon society, the RSE also initiated, in late 2009, its own major inquiry Facing up to Climate Change: 9

10 We would welcome the opportunity to discuss the analysis and recommendations of the report in more detail with the Rural Affairs, Climate Change and Environment Committee. 1

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The Land Use Strategy
11 The RSE welcomed the Land Use Strategy, laid before the Parliament in March, as a first step in addressing the extremely complex issue of effective stewardship of Scotlands land resource.The success of the strategy will depend fundamentally on the tractability of the practical measures that must be created.With the Land Use Action Plan currently under development, the RSE highlights the need for ongoing engagement with stakeholders who can provide the depth of relevant and valuable expertise that effective implementation will require. 12 The RSE is concerned that there is a missing level between this national Land Use Strategy and the development of local plans. It is not clear how local plans can be effectively created from the current formulation of the national strategy, which fails to analyse how high-level aspirations can be translated into practical reality. One approach which we strongly recommend, would be to undertake three regional pilot studies, representative of Scotlands diversity of land use, to act as five-year projects to assess and provide models for how the LUS should be enacted at a local/regional scale, looking at criteria, concepts and funds.This approach has already worked well in the marine sector and could be equally as successful in the land use sector.The RSE fellowship has the knowledge and expertise to help in the identification of suitable areas, in development of the brief for undertaking the pilot studies, and in defining, and pursuing them and in evaluating the outcomes. 13 As the process of implementation gets underway, the multiple pressures on land will inevitably give rise to numerous conflicts where no simple resolution has been available to date nor will be in the future.The Scottish Government and land managers must be prepared to deal with these conflicts. Currently available mechanisms are not designed to achieve a balance across todays wide-ranging demands, so new approaches must be devised that allow multiple benefits to be realised. 14 Constructive engagement with Scotlands strong research base will be invaluable in ensuring that the right decisions are made when dealing with multiple pressures on land.This includes, but also goes beyond, the work carried out by the RESAS Main Research Providers under government programmes. Policy makers should be aware of fundamental research that may change current understanding of the issues, and be plugged in to areas beyond hard science, including the social sciences, economics and those concerned with the cultural value of Scotlands landscape. 15 This high level of research and scientific evidence must underpin policy, and the RSE remains concerned that key headline policies announced before the development of the Land Use Strategy, such as increased tree coverage, have not been properly evaluated in terms 2

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of their real costs and benefits compared to other forms of land use.This must be addressed in order to ensure that actions taken now will bring maximum benefits in the long term.

Future support for agriculture in Scotland and CAP reform

16 The RSE welcomed many of the points and recommendations of the Pack Report on the future of support for agriculture in Scotland.With the European Commissions proposals for the reform of the Common Agricultural Policy expected in Summer 2011, it is important that Scotland has a clear, informed vision for a modern, productive agricultural sector that will be able to meet its future needs for food security. 17 The RSE is concerned that the Pack Report focuses exclusively on agriculture and an over-riding emphasis on food production.The future of the agricultural sector is not considered in the wider context of land use in Scotland, nor does the report sufficiently explore the range of public benefits, including non-market goods, that can be secured through farming activity and effective management of agricultural land. One such benefit, reported in the 2011 UK National Ecosystem Assessment, has been the under-reported value of ecosystem services across the rural environment. More generally, agriculture policy will not be successful unless it also takes into account the role of the agricultural sector in meeting a series of other legitimate public policy objectives, including water quality, renewable energy, biodiversity conservation and landscape quality. This critical point must be addressed. 18 The Pack Report also fails to address the current issues of loss of land to forestry and energy development, or the need to maintain and restore landscape quality as part of Scotlands culture and natural heritage. Mechanisms must be developed to deal with conflicting pressures on land and to facilitate effective decision-making. 19 The RSE does not support the recommendation that the majority of CAP funds should continue to be directed through Pillar 1 just to produce food and provide a cushion against market uncertainties. If Pillar 1 is to retain the greater proportion of support, it must deliver positive outcomes for a range of public goods, in addition to food. Continued high-levels of European funding for the agriculture sector will only win popular support if taxpayers have greater clarity on what it is delivering.Work must be done to exemplify how the outcomes for public goods should be quantified. 20 In 2008, the RSE published a major report on the Future of Scotlands Hills and Islands, initiated because of concerns about the future viability of agriculture in light of reforms to the CAP.The report proposed a new, more integrated and wide-ranging support scheme, based on an assessment of not only the food production potential of the land, but also other benefits listed in paragraph 17.

Management of flood risks

21 The RSE responded to the Scottish Governments consultation Delivering Sustainable Flood Risk Management in March 2011.The statutory guidelines were subsequently published in June 2011, setting out the responsibilities of SEPA, Scottish Water and local authorities under the Flood Risk Management (Scotland) Act and the steps that should be taken to manage flooding in a sustainable manner. The focus now must be on converting objectives into reality and delivering them on the ground. 22 The emphasis on partnership working in flood risk management is welcome and reflects wider moves to ensure that Scotlands inland and coastal environments are managed sustainably and in a properly integrated manner. However, it must be recognised that partnership working in this area is in its infancy. Local authorities have, until now, acted independently from each other when investing in flood protection schemes. Obtaining buy-in from local authorities for strategic investments in areas out with their jurisdiction will require persuasive and effective advocacy by SEPA and the Scottish Government. 23 The success of this approach will in large part depend on the funding arrangements put in place to support partnership working.The absence of ring-fenced joint funding or structures for the pooling of resources would act as a key barrier to implementing the partnership approach. Aligning the timetabling of key budgetary decisions across local authorities, SEPA and Scottish Water will present a major challenge. 24 Although both natural flood management (rural areas) and sustainable urban drainage systems (SUDS) can mitigate the impacts of frequent, modest floods, it is important that these benefits are not oversold with respect to rare, very damaging large floods. Extreme events are poorly predicted by climate models and there should be more reliance on the historical record of variability. One of the major impacts of climate change in Scotland is likely to be a rapid increase in urban area flooding. In addition to ensuring the installation and maintenance of SUDS in new developments, wherever possible, opportunities to retro-fit existing developments should also be taken.This will require a fully integrated policy on urban drainage between spatial planners, those concerned with urban renewal and surface water managers. 25 Key to the successful delivery of flood management planning will be the ways in which stakeholders views are captured in the organisational structure, and in which information is communicated to communities. Once established, local flood groups provide a valuable resource for raising flood awareness, but the challenge lies in retaining their long-term engagement. 26 A key determinant of sustainability is fairness for all. The whole agenda of social (or environmental) justice has been understated in the Flood Risk Management (Scotland) Act 2009.This aspect of social sustainability should be seen as a key element of sustainable flood management.

Br i efi ng Pa p er Scotlands National Marine Plan

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27 The RSE has recently commented on the draft National Marine Plan and we were particularly pleased that this was a pre-consultation consultation. Too frequently, consultation documents are too narrowly defined, excluding broader, fundamental issues in favour of narrowly defined ones that beg too many questions.The pre-consultation approach permits government to benefit from the depth of knowledge and experience in civil society, which is often much greater than is available to it from within its own ranks. We look forward to continuing to engage in the development of the Plan as it is consulted on in the autumn. 28 The RSE recognises that, relative to its size, Scotland has substantial marine assets and historically has not built as strong a marine-based economy as these assets could support. As with the Land Use Strategy, the RSE welcomes the NMP as a significant step forward for marine management in Scotland but highlights that key issues, including implementation of the Plans high level objectives and the resolution of conflicts, still require to be addressed. 29 The RSE is also conscious of the urgency there is to implement the Plan because of the considerable growth that is predicted in the exploitation of offshore resources and their increasing importance to the economy and wellbeing of Scotland. 30 While recognising that the draft NMP is at an early stage and that implementation involves a complex set of issues, the document should address how implementation is to be approached and how some of the most pressing problems will be resolved. An important element of this will be an assessment of the skills and capacities that will be required for effective implementation in Scotland and how any skills gaps will be addressed. 31 Consideration must urgently be given to how the conflicts that will inevitably arise in the management of the marine environment will be resolved. Processes for the resolution of these conflicts will determine the success, or otherwise, of the Plan.This needs to include recognition from the outset that there will need to be a managed transition from some traditional forms of marine use towards new working practices and that the balance of use will change substantially in the next 10 years. 32 Governance of the marine environment is complex and multi-layered, with Scotlands NMP sitting alongside European, regional and UK legislation and initiatives. A clear picture of how the NMP will sit within this wider framework is needed, with reference to the legal and planning systems which will often be the first barriers to implementation.

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33 The draft NMP makes clear the presumption for development but it also must recognise more fully the potential constraints on this, such as the EU Habitats Directive.There is a distinction to be made between weighing up the economic and environmental costs and benefits in the short term and in the long term.This must be properly considered. 34 The NMP must continue to work towards the reform of the fishing industry. Fish can be a renewable resource for Scotland if exploited at sustainable levels, but this will require a commitment to fishing at levels well below Maximum Sustainable Yield, given the uncertainties inherent in such assessments. 35 Aquaculture is an increasingly important sector for Scotland, but it must be managed carefully to ensure that it is sustainable in terms of its impacts; that Scotland has the expertise needed to protect its aquaculture against disease; and that the sector brings maximum long-term benefits to Scotlands coastal communities. 36 Most of Scotlands population lives within a few miles of the coast and the highest impact of Scotlands population on its marine system is within that area. While SEPAs implementation of the Water Framework Directive does much to ensure integration of water management across the coastal boundary, the interface between marine planning and land use policy still needs attention to ensure that it is managed effectively to minimise conflicting priorities.

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Reform of Common Fisheries Policy

37 The RSE has contributed to the discussion about reform of the Common Fisheries Policy through its responses to the European Commissions consultation in late 2009.With the publication of the Commissions proposals in July this year, the RSE will consider the reforms set out and continue to engage as amendments are negotiated by the Council of Ministers and the European Parliament. 38 The RSE has emphasised that the priorities for the reformed CFP must be to recover healthy stocks, maintain sustainable harvesting and protect biodiversity. High-level direction setting, co-ordination and control of fisheries must remain at European level in order to achieve the needed integration of policy at the appropriate scales. However, this must be accompanied by devolution of responsibility for regionally appropriate management of fish stocks. 39 Regional management organisations must be able to rely on sound, independent scientific advice in the development of management plans.

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Energy
40 While recognising that energy issues will principally fall within the remit of the Enterprise, Energy and Tourism Committee, there is a major overlap with the environment and climate change agendas.The RSE has commented extensively on the energy issues facing Scotland today.We highlight some key points below, but would be happy to expand on any issue that falls 4

within the remit of the Committee for Rural Affairs, Climate Change and Environment. If Scotland is to make the most of the opportunities the move to a low-carbon economy presents, there must be a clear analysis of where its competitive advantages lie. It is not enough to have advantages in natural resources, there must also be access to engineering expertise, a skilled workforce, finance, infrastructure and a supportive regulatory environment. It is vital that Scotland maintains a secure, competitive, socially equitable and low carbon supply of energy from a variety of sources, for both social and economic reasons. At the same time, policy makers must take account of the vital goods and services provided by the natural environment that can only be realised through good management. Decision-making on Scotlands energy future must be based on a realistic evaluation of its future energy needs, balanced with an understanding of the capacity of the various options to meet those needs, within the limitations of capital and timescales available. No energy source should be ruled out until security of supply can be ensured. The importance of an extensive and intelligent grid system as a tool to maximise efficiency and minimise risk cannot be overestimated. A fit-for-purpose grid will maximise the potential to transmit energy from outlying renewable energy sources, and allow Scotland to import electricity in times of need and export it in times of surplus. An ideal policy would be one in which private providers are stimulated to provide low carbon energy, with the strategy for the overall design attributes of an efficient and intelligent system of transmission and supply being a government responsibility. The potential for economic benefit to local communities from energy technology and energy production from renewable sources is substantial. It is of greatest importance that local communities receive real financial benefits throughout the lifetime of activity from the outset. The Scottish Government should assist people and local communities to take a real and, to them, meaningful stake in the low-carbon economy rather than merely being consultees in a process over which they have no control.With bold political leadership, economic and social wellbeing, sustainability and strengthened local communities could be within our grasp. Nevertheless, the scale of the renewable energy developments being proposed and planned is vast, especially offshore. In many cases the technology required is unproven (e.g. wave power and some forms of tidal power) and there are high risks from technology failure associated even with scaling-up technologies, such as wind power, that are proven at smaller scales and in relatively benign environments.The effects that some of these developments will have on the environment are unknown and unpredictable. Scotland needs to continue to develop and explore the rationale for the deployment of some technologies and be prepared to change direction if the required technological advances or the net benefits to the environment do not materialise.

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Conclusion
47 This briefing paper flags the key issues within the rural affairs, climate change and environment remit that will require consideration in the early part of Session Four of the Scottish Parliament, and beyond. Scotlands land and marine environment are of fundamental importance to its future economic and social wellbeing. At a time of increasing pressure on our resources to provide economic returns, mitigate and adapt to climate change, provide food, water and energy security and protect and conserve our ecosystems and natural heritage, the need to ensure we manage our environment effectively and sustainably is increasingly urgent.The RSE looks forward to working constructively with the Rural Affairs, Climate Change and Environment Committee as the above issues are taken forward. Inquiry Report (September 2008): The future of Scotlands hills and islands.

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Inquiry Report (June 2006): Scotlands energy supply. Inquiry Report (March 2004): The future of Scotlands fishing industry.

This Briefing Paper has been signed off by the General Secretary on behalf of the RSE Council. Any enquiries should be addressed to the RSEs Consultations Officer, Susan Lennox. Email: evidenceadvice@royalsoced.org.uk Briefing Paper (Royal Society of Edinburgh) ISSN 2040-2694

Additional Information and References

All RSE Reports and Advice Papers can be found on its website www.royalsoced.org.uk. Advice Paper 11-08 (June 2011): The National Marine Plan, a response to the Scottish Governments pre-consultation. Inquiry Report (March 2011): Facing up to Climate Change. Advice Paper 11-04 (March 2011): Management of Flood Risks, a response to the Scottish Government. Advice Paper 11-02 (February 2011): Scotlands Next Energy Revolution, a response to the Scottish Government. Briefing Paper 11-01 (February 2011): The Future of Agricultural Support in Scotland. Advice Paper 10-16 (December 2010): A Land Use Strategy for Scotland, a response to the Scottish Government. Advice Paper 10-09 (June 2010): Towards a Low-Carbon Economy, a response to the Scottish Government. Advice Paper 10-03 (March 2010): Future Support for Agriculture in Scotland, a response to the Interim Pack Report. Advice Paper 09-17 (December 2009): Sustainable Fisheries, reform of the CFP a response to the European , Commission. Advice Paper 09-12 (September 2009): Reform of the EU Budget, a response to the Scottish Parliament.

The Royal Society of Edinburgh (RSE) is Scotlands National Academy. It is an independent body with a multidisciplinary fellowship of men and women of international standing which makes it uniquely placed to offer informed, independent comment on matters of national interest.
The Royal Society of Edinburgh, Scotlands National Academy, is Scottish Charity No. SC000470