The Scottish Government published its annual Heat in Buildings progress report on 27 October 2023, setting out progress against the Heat in Buildings Strategy published in 2021 and confirming that a consultation on proposals for a Heat in Buildings Bill would follow1. The report states that delivery schemes have supported the heat transition through £170 million of capital investment1.
The report fulfils a requirement under the Climate Change (Scotland) Act 2009 to report annually on progress against the Strategy, and follows the previous report laid in Parliament on 27 October 20222. A review concluded that the Strategy should be varied, with the varied Strategy to be published in 20242. The Scottish Government says it remains committed to making available at least £1.8 billion over the course of this Parliament, including at least £465 million to support those least able to pay through Warmer Homes Scotland and Area Based schemes, £300 million for Scotland's Heat Network Fund, £200 million for the Social Housing Net Zero Heat Fund and £200 million for the Scottish Green Public Sector Estate Scheme2.
On skills and supply chains, the report notes that the Heat in Buildings Supply Chains Delivery Plan was published in November 2022 and launched a £17.6 million Green Heat Innovation Support Programme to support Scottish companies responding to clean heat innovation challenges3. It also records investment in a Mobile Heat Pump Training Centre, accessible to any college in Scotland, capable of delivering on-site training in remote and rural areas3.
"We have developed regulations for new buildings, but now the biggest challenge remains in existing buildings."
The report states that the Scottish Government will shortly seek views on proposals for a Heat in Buildings Bill and will take account of those views before bringing legislation to Parliament1. The consultation, Delivering Net Zero for Scotland's Buildings, was published in November 2023 and closed on 8 March 20244. It proposed prohibiting the use of polluting heating from 2045, requiring those purchasing a property to comply with the prohibition within a specified period after sale, a minimum energy efficiency standard for owner occupied homes by the end of 2033 and for private rented homes by the end of 20285. The Scottish Government stated its intention to pass the Heat in Buildings Bill by the end of this term of the Scottish Parliament, in May 20264.
A later Scottish Government publication, dated 22 April 2025, records that the consultation on proposals for a Heat in Buildings Bill was published in November 2023, significantly later than anticipated, and that the consultation analysis is yet to be published7.
Why it matters for households
The report sets out the direction of travel for how homes in Scotland are heated and how energy efficient they are expected to be. The proposed Heat in Buildings Standard would apply to the main heating system of a property, with the consultation stating that the prohibition would not extend to systems such as gas cookers or portable heaters used in emergencies5. For owner occupiers, the consultation proposed that homes ending their use of polluting heating by 2033 would not be required to meet the minimum energy efficiency standard, while private rented properties would still be required to meet it even where clean heating had been installed5. The consultation also stated that it did not propose to prohibit the sale of properties that do not meet the minimum energy standard by or after the backstop dates, and that no new obligations would be placed on sellers4.
The consultation discussed cost protections, including the possibility of a ceiling or cap on the potential cost of meeting the Heat in Buildings Standard, and set out worked examples including a grant of £7,000 towards a £14,000 installation and zero interest loans through the Home Energy Scotland and Business Energy Scotland schemes4. The Home Energy Scotland Grant and Loan Scheme supports homeowners to decarbonise heat and reduce heat demand in their primary properties, and second and holiday homes are not eligible6. Scotland's climate targets and what they mean for homes are set out in the context of the Climate Change (Scotland) Act 2009 and the devolved powers that apply to energy and buildings policy in Scotland.
What happens next
The consultation closed on 8 March 20244. The Scottish Government stated its intention to pass the Heat in Buildings Bill by the end of this term of the Scottish Parliament, in May 20264. The varied Heat in Buildings Strategy was to be published in 20242. As of the 22 April 2025 publication, the consultation analysis had not been published7.
Sources7 cited
- Conclusion - Heat in Buildings: progress report 2023 - gov.scot, gov.scot
- Context and purpose - Heat in Buildings: progress report 2023 - gov.scot, gov.scot
- Workers and skills - Heat in Buildings: progress report 2023 - gov.scot, gov.scot
- Delivering Net Zero for Scotland’s Buildings - A Consultation on proposals for a Heat in Buildings Bill, gov.scot
- Delivering Net Zero for Scotland’s Buildings - A Consultation on proposals for a Heat in Buildings Bill, gov.scot
- Home Energy Scotland grant and loan scheme - second homes: EIR release - gov.scot, gov.scot
- Organisations - Tackling fuel poverty - periodic report 2021-2024: engagement responses - gov.scot, gov.scot