Our Outcomes and Actions

Having illustrated the strategic importance of aviation to Scotland and recent developments in connectivity and decarbonisation, this section outlines the specific new measures the Scottish Government will take to encourage further progress. These actions are informed by our existing policies and commitments, our new vision for aviation and the responses to our public consultation.

The illustration below describes the outcomes we want to deliver and the related actions we will take to help achieve these outcomes. The timescales relate to the latest point that the outcome will be achieved – some of the related actions will be progressed well in advance of those dates.

In addition to these aviation-specific actions, broader Scottish Government policies, for example, on energy, hydrogen and a just transition, will continue to help create the environment in which our vision for aviation can be realised. While we do not yet know the future shape and size of the hydrogen- and electric-powered fleet, we are confident that there will be sufficient supplies of hydrogen and electricity to make zero emission flight in Scotland a reality.

Aviation decarbonisation is a long-term endeavour and the actions below will be revised as technologies improve and we have greater certainty on the emissions reductions they could achieve. As noted, the Scottish Government may also commit to further aviation-related actions in the Climate Change Plan and Transport Just Transition Plan, including on sustainable aviation fuel. The need for flexibility in the Aviation Statement is therefore considered in more detail below.

Scottish Government actions and outcomes for aviation

The outcome we want:

Actions to deliver this outcome:

• Review a sample of existing routes that have been supported by the Scottish Government to determine the value added and inform our approach to route development.
• Continually consider the support and information the Scottish Government could provide to airlines, to help build the case for future routes.
• Consider the role that more detailed freight information could play as part of our route development work.
• Consider wider data on emerging market opportunities that may inform our support for destinations that are key to Scotland's future growth.
• Our approach to supporting route development must continue to be strictly airport neutral. However, we will consider how we could support individual airports where it is appropriate to do so. This includes Edinburgh Airport’s ambition to become the first UK airport to offer preclearance of immigration for flights to the United States, which could encourage the development of new US routes and, consequently, wider economic growth for Scotland.

The outcomes we want by 2025:

Action to deliver this outcome: Review current governance arrangements for local authority and HIAL-operated airports to consider how economies of scale can be realised (this will not include any discussion on the ownership of non-HIAL airports).

Action to deliver this outcome: Review the Highlands and Islands Air Discount Scheme – which offers a reduction in air fare costs for eligible Highlands and Islands residents – to consider how it could be made fairer and more effective, and to ensure it is providing value for money.

Realising the full environmental, social and economic benefits of deploying new aviation technology in Scotland

Action to deliver this outcome: Work with stakeholders to consider exactly how the possible new routes and lower costs offered by sustainable aviation could improve passenger and cargo services and our tourism offer. This will include examining how low and zero emission aircraft could improve connectivity for island and rural communities. We will also ensure that businesses are supported to take advantage of the opportunities for economic growth to ensure a just transition.

The outcomes we want by the 2030s

• Aviation emissions reduced compared to 2019 levels, with the sector on track to become net-zero by 2045.
• Contribute to the global effort to reduce CO2 emissions in international aviation by 5% by 2030.

Actions to deliver these outcomes: (some of these will be completed well in advance of the dates above):

• Review how our public service obligations (PSO) specifications could encourage a switch to zero emission aircraft when such aircraft become available.
• Work with our European partners to understand how the combined value of our PSO contracts could help to encourage the use of low and zero emission aircraft.
• Agree options for increasing SAF production and use in Scotland.
• Work within the UK Emissions Trading Scheme (ETS) Authority to consider how the ETS could further reduce aviation emissions, including how it could take account of new low and zero carbon aviation technologies.

Actions to deliver this outcome:

• Support HIAL to consider how to complete decarbonisation of its airport operations, building on its published Sustainability Strategy. Explore options for accessing UK Government funding, through its Jet Zero strategy, for this purpose.
• Continue to support the decarbonisation activities of other airports, where resources permit, in consultation with the sector.

The outcome we want by the 2040s

Actions to deliver this outcome:

• Consider buying hydrogen/electric aircraft for use on PSO routes to replace current HIAL-owned aircraft.
• Support HIAL to consider how to develop the infrastructure, equipment and training needed for hydrogen and electric aircraft and explore options for accessing UKG funding.

The outcome we want by 2045

Action to deliver this outcome: Work with stakeholders to consider how to plan for and fund the cost of airport infrastructure for hydrogen/electric aircraft, including possible public sector support. N.B. Some of the actions above will also contribute to this 2045 outcome.

Of the actions outlined above, we will prioritise the following in the short term. This will involve appropriate public and stakeholder consultation:

Review selected existing international routes supported by the Scottish Government to determine the value added

The Scottish Government has been proactive in route development support but we need to be mindful that our competitors are catching up. This work will provide evidence of the benefits we have helped to deliver and help to inform our approach to route development.

Agree options for increasing SAF production and use in Scotland

The expert SAF working group will report in time to inform Scotland’s new Climate Change Plan.

Review the Air Discount Scheme

The scheme has been successful in enabling travel from our most remote and island communities at a price lower than would otherwise have been the case on short routes with small aircraft. However, the scheme has not been reviewed for a considerable period of time. We want to consider how it could potentially be made fairer and more effective, and to ensure that it is providing value for money.

Governance arrangements for local authority and HIAL-operated airports

The Scottish Government provides funding for HIAL’s airports, while some local authorities also provide airport services for scheduled passenger air services in the Highlands and Islands. We want to examine whether there is scope to realise economies of scale.

Carry out refreshed needs assessments as part of the Islands Connectivity Plan

These assessments will look at how and why people use ferries as well as fixed links, air services and onward and connecting travel.

Ensuring progress

This Statement has noted the aviation sector’s primary responsibility for improving international connectivity and reducing emissions. In line with our legal commitments on net zero, the Scottish Government’s actions must encourage and complement these efforts while maintaining clear lines of responsibility and accountability.

We also need to ensure that our actions actually help to drive significant change. Therefore, Ministers will meet regularly with aviation stakeholders to discuss the progress being made on reducing emissions and whether the various decarbonisation strategies that apply in Scotland, including the actions in this Aviation Statement, are working effectively together or whether further action is required. We also want to ensure that there is a just transition to net zero.

Discussions will be particularly helpful in informing possible Scottish Government actions that would require significant public investment: we could not, for example, offer public funding for the airport infrastructure required for hydrogen/electric aircraft without understanding how this is being planned for and funded by the sector itself. In short, the Aviation Statement will be a living document that reflects significant new developments.

Finally, we highlight the specific issue of Air Departure Tax (ADT), which is the Scottish Government’s intended replacement for UK Air Passenger Duty (APD) and potentially one of the main tools available to improve route development and achieve emission reductions. The Scottish Government continues to explore all options to implement ADT in a way that protects Highlands and Islands connectivity and complies with the UK Government’s subsidy control regime. Once a solution to the Highland and Islands exemption has been identified, we will review the rates and bands of ADT prior to the implementation of the tax, to ensure they are aligned with our climate ambitions. UK APD will continue to apply in Scotland until ADT is implemented.