« Previous | Contents | Next »
Listen
07 REPORTING AND SCRUTINY FRAMEWORK
7.1 The Scottish Government believes that its commitment to reducing Scotland's emissions should be underpinned by a regular and comprehensive reporting and scrutiny regime. Strong reporting requirements will strengthen accountability for achieving emissions reductions and ensure that important information is published regularly and consistently so that the public, businesses and other stakeholders can have added confidence that targets and budgets will be met.
Annual report on emissions
7.2 The Scottish Government proposes that the Scottish Ministers report annually to the Scottish Parliament stating:
- The net Scottish emissions for each gas (the total Scottish emissions in the last available year for each greenhouse gas and Scottish removals - e.g. emissions absorbed through carbon sinks);
- identification of the methods used to calculate those amounts; and
- whether any of the amounts are an increase or decrease compared to the previous year.
7.3 Scottish emissions information is already published as part of the Greenhouse Gas Inventories for England, Scotland, Wales and Northern Ireland. However, the proposals in the Scottish Climate Change Bill would build on these arrangements by making it a statutory requirement for the Scottish Ministers to report to the Scottish Parliament. The complete mix of matters to be reported on will also be informed by decisions taken on other issues covered by this consultation paper.
Longer-term reporting cycle
7.4 In addition to the annual report on emissions, the Scottish Ministers could also be required to report to the Scottish Parliament at least once in every emissions budget period providing:
- Proposals and policies that the Government has for meeting future emissions reduction targets and budgets;
- The emissions credited or debited from the Scottish emissions budget for the reporting period; and
- The Government's objectives in relation to adaptation to climate change and its proposals and policies for meeting those objectives (including time-scales for introduction).
7.5 Such reports would only be required once in every budget period because the effects of certain measures to reduce emissions, and the developing effects of climate change itself, only become apparent over periods longer than one year.
Other possible reporting requirements
7.6 There is a range of other issues related to climate change on which the Bill could require the Scottish Government to report. An example of this is a requirement to report on what effect specific policies will have on emissions internationally so that it is clear if a policy is simply shifting Scotland's emissions to another country. Another possible option might be a full reporting of policies which includes not just their possible effect on Scotland's emissions but also on the 'embedded' emissions such as the energy required to produce or transport products, even if these emissions occur outside Scotland.
7.7 Other possible options include:
- Forecast emissions;
- An assessment of the impacts and risks of current emission levels;
- An assessment of the effectiveness (measured or projected) of current and/or planned policies;
- A measure of the energy efficiency of domestic and non-domestic buildings in the public and private sectors;
- The capacity of Scotland's renewable energy sector;
- Emissions produced by the 'Scottish element' of international aviation and shipping; and
- A measure of energy/carbon consumption in Scotland such as carbon footprint.
Q 13. Should the Scottish Ministers be required to report on any other issues related to climate change in addition to the requirements already set out. If so, what and how often?
Accountability for meeting targets
7.8 If one or more of the targets or budgets set by the Scottish Ministers are not met, the Scottish Ministers will be required to report to the Scottish Parliament setting out a plan of how they intend to get back on track. The Scottish Government believes that this requirement, coupled with a robust reporting framework will ensure that the Scottish Ministers are fully and publicly accountable for their work to mitigate and adapt to the effects of climate change.
Q 14. Is a process of Parliamentary scrutiny the appropriate way of holding the Scottish Government to account if targets or budgets are not met?
Handling new and existing functions
7.9 The proposed Scottish Climate Change Bill will introduce a new framework for Scotland in tackling climate change. This framework will require new functions to be carried out, including the setting of emissions budgets and monitoring and reporting on progress and action. This is in addition to existing functions already carried out which are related to climate change such as scrutinising the Scottish Government and the provision and gathering of information and research.
7.10 While some functions clearly lie with Government, there are some functions which could be taken on by other organisations. If the Scottish Climate Change Bill puts targets into statute, the Scottish Government will require advice on how to set budgets for the coming years and how this burden should be shared across the economy. Emissions levels will need to be monitored in a credible and transparent manner in order to demonstrate that targets and budgets are being met. Additional scrutiny may be required of the Scottish Government and the effectiveness of its policies to reduce emissions. Finally, there may be a need to have a centralised point for providing or gathering climate change research in Scotland which can be relied upon by a wide range of public sector bodies.
7.11 This consultation paper is seeking views on which organisation(s) should carry out the following functions:
- A primary source of independent advice to the Scottish Government for setting emissions targets or budgets;
- Monitoring the progress of the Scottish Government on reducing emissions; and
- Additional scrutiny and reporting on the Scottish Government and the effectiveness of its policies in reducing emissions.
Independent advice and scrutiny
The Committee on Climate Change
7.12 The UK Climate Change Bill introduced in the UK Parliament in November 2007 will create a new public body, the Committee on Climate Change. One of the Committee's functions will be to report to the UK and Scottish Parliaments, and to the other devolved legislatures, each year setting out its views on the progress being made towards meeting the targets and budgets set under the UK climate change legislation. It will also be required to report during the second year after the end of each carbon budget period setting out its views on the way in which budgets have or have not been met and the action taken by government, business or society at large to reduce net emissions of greenhouse gases. The UK Secretary of State will have to lay a response to each of these reports before the UK Parliament and is required to consult with the Scottish Government before doing so. This will provide a mechanism for Scottish Ministers to ensure that information about Scotland's ongoing efforts to reduce emissions is reflected in the response.
7.13 The Committee on Climate Change will also provide advice to the UK Government and the three devolved administrations. These include advice on:
- the level of each five year carbon budget set by the UK Government, consistent with the optimal trajectory towards the statutory 2050 and 2020 limits established by the UK Bill;
- how much effort should be made in the UK and overseas; and
- how much effort should be made by the part of the economy covered by cap and trade schemes, and by the rest of the economy.
7.14 The membership of the Committee will consist of experts from fields such as climate change, technology, business competitiveness, economic analysis and energy production. Further information on the Committee on Climate Change can be found at: http://www.defra.gov.uk/environment/climatechange/uk/legislation/committee/index.htm.
7.15 The UK Climate Change Bill allows for the Committee on Climate Change to provide similar advice to the Scottish Government. It may, however, be difficult for Scotland to confer new functions on the UK Committee so the Scottish Government may wish to receive advice from another organisation and can do so if it so chooses - it is not bound to using the Committee on Climate Change.
7.16 The Scottish Climate Change Bill could be used to create a separate Scottish Committee on Climate Change to carry out such functions as necessary in order to ensure that the Scottish Government receives advice which is best suited for the needs of Scotland. However, the Bill could also allow for an existing Scottish public body to carry out this function though the high-quality expertise required to provide advice on reducing emissions while protecting the economy is not currently held by any one public body in Scotland.
7.17 There may also be a role for other organisations to scrutinise formally the climate change proposals and policies of the Scottish Government, including the evaluation of projects or programmes.
Advice to the Scottish Government for setting emissions targets or budgets
7.18 The Scottish Government is minded to utilise the UK Committee on Climate Change in the short-term and evaluate within three years the effectiveness of the Committee's advice for Scotland and its unique circumstances. The Scottish Government is also minded to include provisions in the Bill to create a new Scottish Committee on Climate Change if the evaluation concludes that the advice of the UK Committee does not fully meet Scottish needs.
Q 15. What should be the primary source of advice to the Scottish Government for setting emissions targets or budgets and why? Options include: the proposed UK Committee on Climate Change, a new Scottish Committee on Climate Change, an existing public body in Scotland, or the Scottish Government itself.
Q 16. If it were to be an existing Scottish public body, which public body is most suited to carrying out this task and why?
Monitoring the progress of the Scottish Government on reducing emissions
7.19 The Scottish Government is minded to utilise the UK Committee on Climate Change to monitor the progress of the Scottish Government on reducing emissions in the short-term and evaluate the effectiveness of the UK Committee within three years time. The Scottish Government is also minded to include provisions in the Bill to create a new Scottish Committee on Climate Change if the evaluation deems the UK Committee to not fully meet Scottish needs.
Q 17. Which organisation should be tasked with monitoring the progress of the Scottish Government on reducing emissions and why? Options include: the proposed UK Committee on Climate Change, a new Scottish Committee on Climate Change, an existing public body in Scotland, or the Scottish Government itself.
Q 18. If it were to be an existing Scottish public body, which public body is most suited to carrying out this task and why?
Additional scrutiny and reporting on the Scottish Government and the effectiveness of its policies in reducing emissions
Q 19. Should additional independent mechanisms for scrutinising the effectiveness of the Scottish Government's policies in reducing emissions be created by the Bill (in addition to any scrutiny already provided by the Scottish Parliament)?
Q 20. If so, which organisation is best placed to carry out this function and why? Options include a new Scottish Committee on Climate Change or an existing public body in Scotland.
Q 21. If it were to be an existing Scottish public body, which public body is most suited to carrying out this task and why?
Other functions relating to climate change
Q 22. Are there any other functions related to climate change, existing or new, which should be carried out at arm's length from the Scottish Government and why?
« Previous | Contents | Next »