Delivering the Action Plan

This Action Plan sets out a series of actions that should be taken by the public sector to accelerate decarbonisation of the public fleet and achieve a zero-emission road fleet by 2040. The actions have been split into two categories:

Strategic actions overview

Strategic actions are intended to address barriers identified as expected to influence or impact the decarbonisation of public fleets between now and 2040, and potentially beyond.

Work on strategic actions should begin now, whilst delivery of some strategic actions may have pre-requisites or require preparatory work for some bodies, such as ensuring appropriate access to fleet data, planning for delivery of strategic actions should be incorporated into fleet decarbonisation strategies from the outset.

Delivery of some strategic actions will be supported through implementation of short-term actions proposed in this Action Plan.

Short-term actions overview

Short-term actions proposed are more specific and focused, are intended to have a more immediate impact and to be completed in a relatively short time frame.

Short-term actions that should be taken from now and fully implemented by 2030 or sooner depending on circumstances for individual public bodies.

How quickly individual public bodies are able to implement these actions will depend on the size and complexity of fleets and type of services they deliver and the geography of the operational area.

As technology, policy and service requirements develop over the period of the Action Plan, additional short-term actions may be developed, particularly related to vehicle types where there are not currently viable zero emission options readily available.

Strategic actions

As part of developing this draft Action Plan, five barriers to fleet decarbonisation have been identified that are expected to continue to impact or influence public sector fleet decarbonisation between now and 2040.

Through a collaborative approach to developing the draft Action Plan a suite of strategic actions have been identified that the public sector can take to address or manage these barriers.

For each of these barriers, this section of the Action Plan describes the identified barrier, outlines the aims of actions identified to address or mitigate that barrier then lists strategic actions and who may typically be considered appropriate to take responsibility for implementing those actions within a public body.

Securing senior leadership buy-in to zero-emission vehicles 

Barrier description

There are many positive examples of the impact of public sector leaders taking action that has helped to put some public bodies at the forefront of fleet decarbonisation. However, there are inconsistencies across many parts of the public sector in the approach taken by senior managers and leaders and demonstrating a commitment to drive the level of change required to accelerate fleet decarbonisation across the public sector.

Aims

These strategic actions aim to ensure that strategic planning is consistently applied and enables large scale transition to zero-emission fleets. Leaders should own and embed strategies and governance that promote collaboration and foster innovation, enabling approaches that can deliver financial and operational efficiencies and prioritise the use of zero-emission vehicles. Public sector leaders should be accessible and openly accountable for the organisation’s progress towards delivering climate targets, advocating partnership for collaborative working both across the organisation and more widely across the public, third and private sectors.

Strategic actions for leaders and senior managers

End of 2026-27

By the end of 2026-27, ensure there is a comprehensive fleet decarbonisation strategy in place that identifies how to transition to a zero-emission fleet by 2040 (including provision of appropriate energy infrastructure), integrates strategic planning across the organisation, prioritises zero-emission travel modes, identifies clear targets and budget requirements and supports consistent messaging and communication of the organisations aims and approach.

From now, and to support delivery of the strategy, establish and implement clear governance structures and decision-making processes that support sustainability and decarbonisation goals, challenge the purchase or use of non-zero-emission vehicles and use up-to-date and accurate data to support decision-making.

Promote the shared use of vehicles and charging / refuelling infrastructure within the organisation and with other public, private and third sector organisations to maximise asset utilisation, environmental benefit and emission reductions. A policy on shared vehicle and infrastructure use should be incorporated into the fleet decarbonisation strategy.

Public sector leaders should also ensure that their organisations’ fleets operating within LEZ areas are fully compliant with emission standards at the earliest opportunity, and where possible go beyond minimum requirements. This will demonstrate leadership, improve public confidence, and contribute to local air quality improvement.

2026-2028

To support a transition to zero-emission vehicles at scale, between now and 2028 ensure systems are in place to monitor and analyse organisational energy requirements and contribute to coordinated planning of management and investment in energy systems for the public sector estate and fleets, support cross-sector collaboration and enable early engagement with DNOs.

Ongoing

Continually explore and promote opportunities for joint or collaborative procurement across the organisation and with other public sector bodies, identifying opportunities to reduce costs through economies of scale and applying shared resources, and ensure efficient use of public funding by levering private capital.

Addressing high up-front cost of ZEV and infrastructure

Barrier description

Procuring and operating zero-emission vehicles can involve higher upfront costs compared to fossil fuel alternatives and may require additional investment in charging or refuelling infrastructure by the public sector. While operational costs may be lower due to reduced fuel and maintenance costs, the additional purchase or leasing cost of zero-emission vehicles and development of bespoke solutions where current technologies limit options readily available on the market remain significant barriers to the adoption of zero-emission vehicles at scale, particularly for more specialised public sector vehicles, including emergency and HIAB vehicles. 

Aims

These strategic actions aim to establish and embed a consistent and clear approach to identifying vehicle requirements, comparing operational and cost implications of different options and maximising emissions and operational benefits from budget and other resources available, including to support identification of opportunities for collaboration. It is important to use robust and accurate vehicle use and performance data to identify optimal procurement, financing and operational solutions, as well as recognising emission reduction and other benefits, that support business cases for implementing fleet decarbonisation. The predictability of Public Sector Fleet operation represents an attractive energy usage model, potentially allowing bodies to attract external infrastructure investment in return for a ‘Charging As A Service’ model which can be confidently budgeted.

Strategic actions from 2026 until fleet is fully decarbonised:

For fleet managers:

• Ensure efficient use of vehicles and infrastructure by aligning performance requirements with available technology, using data to understand whole life cost of vehicles and support monitoring of developments in available products, services and technology (including energy supply) that identify opportunities for more efficient or effective procurement and operation of fleets. Prioritise replacement of non-compliant vehicles operating within LEZ areas, focusing first on high-mileage and high-exposure routes, to maximise reductions in NO₂ and particulate emissions

Fleet managers & sustainability leads:

• Identify options for clear and consistent communication supporting fleet decarbonisation decisions / proposals that align budget and business cases to the approved fleet decarbonisation strategy and identifies financial, operational, climate and health benefits to justify urgent action that aligns with climate commitments.
• Identify opportunities to collaborate within the organisation, across the public sector or with the private and third sectors, including by encouraging shared mobility options like vehicle pools and car clubs, to reduce costs, support fleet rationalisation and improve vehicle and infrastructure asset utilisation.

Fleet managers, sustainability leads & procurement specialists:

• Work with procurement and finance professionals to develop new approaches to procurement, ownership and operation of fleets, identifying and challenging operational, regulatory or fiscal barriers.
• Identify and implement interim low-emission or alternative fuel solutions for vehicles or operations that are currently harder to electrify using cost effective vehicles that are readily available on the market.

Challenging existing operational practices limiting opportunities for fleet decarbonisation

Description

Public sector fleets are required to deliver a range of public services and meet business needs. Policy and established operating practices have largely been developed based on petrol and diesel vehicles and at times those established approaches may limit or restrict the use of ZEVs. Actions that involve embedding new approaches to procurement, financing and operating fleets may also require a more flexible approach to fleet management and use and levels of collaboration or partnership working that cannot be incorporated into standard working practices.

In addition to the use of vehicles, electrifying fleet depots presents a range of logistical, financial, and technical challenges. Many depots currently lack the necessary electrical infrastructure to support large-scale vehicle charging, requiring costly upgrades to grid connections and on-site power capacity. Higher costs may be offset by sharing access to infrastructure, maximising charge point utilisation, but constraints including space, insurance, health and safety and security can limit options.

Aims

These strategic actions aim to review established policies and operating practices and identify opportunities to rationalise public fleets, increase the proportion of zero-emission vehicles and mileage associated with delivering public services, reduce the cost of procuring and operating public fleets and enable collaboration. To enable consolidation of underutilised vehicles, encourage cross-departmental or cross-organisational sharing and identify cost effective charging and refuelling solutions.

Consider centralising control of fleet management, making it easier to implement changes in the fleet composition and use, ensuring appropriate resources are allocated to fleet management and decarbonisation.

Strategic actions from 2026 until fleet fully decarbonised for:

Fleet managers:

• Enable fleet sharing across the organisation or through introducing fleet sharing platforms and car clubs to reduce pool vehicle costs, allocating vehicles based on more specific journey or operational requirements, and reviewing how vehicles are used and where they are kept and charged overnight.
• Use data on vehicle and energy use and availability to identify the most appropriate type of charging or refuelling infrastructure for depots, consider options to manage use and access to infrastructure and where appropriate how public fleet charging or refuelling requirements can be met at third party sites.
• Explore options to share access to charging infrastructure, partner with third parties and consider accessing charging or refuelling at other locations, particularly for high capacity charging requirements.

Fleet managers & sustainability leads:

• Consider energy needs beyond transport and identify opportunities to integrate distributed energy resources, such as solar, battery storage or microgrids. Utilise smart charging, load management and grid optimisation to enhance energy efficiency and maximise the use of available grid connections.
• Where possible identify opportunities for the private sector to invest in infrastructure for ZEVs, minimising public investment and maximising utilisation of installed infrastructure, regardless of who owns or operates the infrastructure.
• Consider opportunities to create revenue streams by partnering with the private sector and providing access to EV charging, where appropriate and possible, to other fleets or EV drivers.
• To challenge existing organisational and operational approaches and structures that favour internal combustion vehicles and explore where alternative approaches to procuring, managing and delivering services or business travel can help minimise fleet emissions and deliver operating efficiencies.

Fleet managers, sustainability leads & procurement specialists:

• Identify opportunities for joint procurement of vehicles, infrastructure or services, creating economies of scale and using resources more efficiently through contract and service management and delivery.

Overcoming the lack of maintenance skills and capacity within public bodies and the supply chain.

Description

In comparison to fossil fuel vehicles, EVs are reported as regularly encountering extensive delays associated with vehicle maintenance and repair, resulting in vehicles being off the road for longer than its ICE equivalent, particularly for repairs covered under manufacturer warranties.

In addition, the availability of qualified mechanics, variable manufacturer aftersales support and access to spare parts further impacts on efficient and timely servicing and repair of ZEVs. Specific to the public sector, comparatively lower public sector salaries create issues related to recruitment and retention of EV qualified mechanics. Issues related to skills and supply chains are often more acute in rural and island locations.

Aims

Work across the public, private and third sectors to support skills development and growth of supply chains across Scotland. Develop capacity within the public sector and prioritise local supply chains that create and sustain high quality green jobs.

Strategic actions from 2026 until fleet is fully decarbonised:

Fleet managers & sustainability leads:

• Ensure fleet and estate management strategies are aligned and recognise opportunities to upskill internal maintenance staff and upgrade workshops, identifying opportunities for collaboration and to share resources. This should include policies that target retention of skilled public sector staff and create viable opportunities for local businesses as part of the supply chain.
• Create opportunities to improve service levels for other public, private and third sector organisations through collaboration and pooling of resources to deliver repair and maintenance services for ZEVs and infrastructure owned or operated by other organisations or individuals.
• Identify skills gaps across all aspects of fleet procurement, maintenance, operation and use and explore where training, peer to peer learning or direct experience of using ZEVs would encourage a higher proportion of ZEV use. Develop approaches to engaging those involved in the procurement, management and use of public fleet that encourages behaviour change and maximises emission reduction.
• Identify and highlight cases where demand for training exceeds training capacity or where there is a lack of training courses, opportunities to aggregate demand and highlighting operational impacts to government and training providers. The public sector should engage with government to explore barriers to any identified shortage of qualified ZEV or infrastructure technicians, including within SMEs.

Overcoming grid restraints and capacity and lead in times for upgrades

Description

The availability of up-to-date and accurate vehicle, grid capacity and future energy demand data can impact on the quality of investment plans for decarbonisation of fleets and investment at depots. Distribution Network Operators (DNOs) delays for new connections and lead in times for more significant grid upgrades are a significant barrier to installing the infrastructure required to enable electrification of public sector fleet at pace. The impact of these issues can be more acute in rural or island locations and will potentially be further compounded by rising demand for grid connections across sectors, placing additional pressure on DNOs and creating bottlenecks in infrastructure deployment.

Aims

These strategic actions aim to ensure that comprehensive, up-to-date data is available to support planning for energy requirements, new electrical connections and grid upgrades, enabling early engagement with DNOs and other organisations planning future investment that require grid connections, particularly where this supports local or regional planning and may offer interim or permanent solutions to locally grid constrained sites.

Strategic actions from 2026- 2028:

Fleet managers & sustainability leads:

• Identify energy needs in fleet and estate decarbonisation strategies and align data gathering and management to support energy demand forecasting, including how much energy is required when, and consider how energy demands can be met through grid capacity or other on-site generation or storage solutions.
• Engage as early as possible on future energy requirements and site decarbonisation plans with DNOs, involving regional energy planning initiatives and local area energy system planners to understand options, logistics and cost implications of proposed grid upgrades.
• Ensure fleet and estate managers work together, use grid and electrical supply planning tools and identify and engage with local public, private or third sector organisations also considering future energy needs and fleet decarbonisation, ensuring future grid connections or upgrades are planned as effectively as possible.
• Explore opportunities for collaboration with the private sector to manage short-, medium- and long-term energy demands, including use of public or shared EV charging networks, exploring short to medium term Power Purchase Agreements and partnership or joint investment options.

Short-term actions

Although not all actions are directly relevant to every public body, some public bodies have already made significant progress in these areas. Where possible this experience has been used to develop guidance and case studies that outline the approach and principles that could be effectively applied across the whole public sector.

Rationalise fleets and only procure zero-emission cars and vans

Short-term actions for senior managers:

By the end of 2026-27 ensure decision-making and management of public sector fleet vehicles is co-ordinated appropriately, empowering fleet managers to have more control over how the organisations fleet is procured and used.

Short-term actions for fleet managers:

By the end of 2027

• Develop and embed a vehicle replacement policy that defaults to ZEVs.
• Use data to conduct fleet analysis to review and identify underused vehicles, review operational mileage across the fleet with the aim of converting as many vehicles to electric as possible prioritising replacing high mileage vehicles with EVs.
• Conduct cost benefit analysis of vehicle use and charging options, including vehicles taken home by staff overnight.

Ongoing:

• Consider leasing and purchasing nearly new, used EVs.
• Where feasible, downsize cars and vans to an appropriate electric alternative.
• Select vehicles with smaller battery packs where feasible as these will offer a more efficient and sustainable option.

Short-term actions for fleet managers & sustainability leads:

• Identify opportunities to work collaboratively across the organisation and wider public, private and third sectors

Enable the sharing of vehicles and infrastructure

Short-term actions for senior managers

• Implement centralised fleet management within the organisation to better enable cross-departmental access and oversight. Reduce fleet costs and maximise vehicle utilisation by requiring the use of shared pool vehicles across departments and where possible externally. This can include car clubs and shared fleet schemes.

Short-term actions for fleet managers

• Identify and implement fleet sharing solutions with other public, private and third sector organisations.

Short-term actions for fleet, estate and sustainability managers

• Reduce the cost of operating zero-emission fleets by exploring opportunities to lever private sector capital through collaboration across the organisation and with the wider public, private and third sectors.
• Enable shared use of depot charging infrastructure by redesigning site layouts to support multi-user access and implementing a back office system with both booking and individual pricing functionality.
• Engage with insurance providers early to understand liability and operational risks associated with shared use of vehicles and infrastructure, taking action to mitigate risks where required and possible.

Short-term actions for fleet & finance managers

• Develop sustainable financing models for shared fleet and infrastructure initiatives that can operate sustainably and without relying on ongoing central government or other grant support.

Plan for charging electric fleets and heavier fleet replacement programmes to phase out fossil fuel vehicles.

Short-term actions for fleet managers 

• Early strategic planning is a priority action with the development of a fleet decarbonisation strategy by 2026-27 that includes plans on where an electric fleet will charge and the phasing in of heavier vehicles and forecast energy needs transition to zero-emission heavy-duty vehicles (HDVs) by 2040.
• Identify where existing technology is available to operate zero emission heavy fleet, including refuse collection vehicles, trucks and buses, which should be prioritised for decarbonisation in the strategy.
• Collaborate with other public sector bodies and the private sector to explore joint procurement opportunities, shared infrastructure, and the development of smart charging hubs to reduce costs and improve efficiency.

Short-term actions for fleet, estates & sustainability managers

• Plan upgrades of depot charging infrastructure provision to support charging for vehicles, including heavier fleet vehicles, and explore where partnerships with other public or private sector organisations or use of third-party sites is a more effective charging solution.
• Engage early with Distribution Network Operators (DNOs) to avoid delays and plan for future grid capacity requirements. Consider battery storage, solar, and microgrid solutions to support depot energy needs. It may be helpful to engage with specialist charging partners who have experience in providing these services in support of mixed fleets and can navigate sophisticated energy use strategies and commercial investment to spread the cost of installation over time.

Short-term actions for fleet managers and finance managers

• Consider innovative procurement (e.g. OPEX models such as Charging as a Service (CaaS) for depot charging infrastructure), financing and leasing models to reduce upfront capital investment (e.g. per-bin-lift leasing for electric refuse vehicles). Local authorities may be able to access Public Works Loan Board (PWLB) or UK National Wealth Fund for capital borrowing.
• Use data to assess total cost of ownership (TCO) and carbon impact of heavier fleet vehicles.

Use data from telematics and other sources to inform decision-making and reduce emissions.

Short-term actions for fleet managers

• Use data to identify opportunities to rationalise fleets and identify optimal ZEV replacements.
• Consider establishing a monitoring process to assess compliance with organisational fleet and sustainability policies and implementing corrective actions where non-compliance is identified.

Short-term actions for fleet and service delivery managers

• Use telematics to optimise route planning, monitor usage, increase efficiency and safety by monitoring driver behaviours and identify any training or coaching needs. Consider deploying telematics with AI integration technology to enhance data analysis and fleet management.
• Support drivers with training and guidance to improve driving efficiency, optimise route planning to incorporate charging stops where necessary, minimising downtime and emissions.
• Use data to maximise emission savings, organisations should implement policy to reduce annual mileage completed in fossil fuel vehicles and increase the mileage in ZEVs and monitor fuel usage.

Actions for Scottish Government

• Responsibility for taking action to decarbonise the public sector fleet rests with the public bodies that own and operate fleets across Scotland. The Scottish Government will adopt a convening and enabling role, helping to create an environment that encourages collaboration and recognises where government influence is required to address legislative, financial, or other structural barriers to decarbonising the public sector fleet.
• Incorporate future reporting on fleet decarbonisation and public sector fleet emissions as part of statutory reporting requirements for public bodies.
• Engage with the public sector, public body sponsorship leads, and liaison officers on this draft action plan; then finalise and publish the definitive version in 2026, as committed in CCP.
• Share with sponsorship leads to confirm the forecast additional costs of transitioning the remainder of the public sector fleet to zero-emission vehicles so that they can then cascade the information around approximate lifetime saving relative to the combined additional Total Cost of Ownership and EV Cost of Infrastructure to their respective sponsored bodies.

This draft Public Sector Fleet Decarbonisation Action Plan has been developed through engagement and collaboration with the public sector. Following the publication of this draft Action Plan, Transport Scotland will continue to engage with key stakeholders across the public sector and more widely.

This final round of engagement and consultation is intended to:

• Confirm that the identified barriers reflect the environment the public sector is currently working under, and actions are appropriate and proportionate.
• Identify assumptions or pre-requisites required to deliver the actions set out in the Action Plan, including advances and further development of energy networks and systems and zero-emission vehicle and infrastructure technology.
• Confirm that the actions proposed within the draft Action Plan are considered sufficient to deliver the ambition for public sector fleet decarbonisation set out in the Action Plan.
• Confirm that public bodies are willing to endorse the ambition and actions set out within the plan and work collectively and collaboratively to continue decarbonising Scotland’s public sector fleet.

During Summer 2026 Transport Scotland officials will continue to engage with key stakeholders who have already contributed to drafting of the Action Plan and including, Scottish Government public body sponsorship teams, COSLA, the Society of Local Authority Chief Executives and Senior Managers (SOLACE), Association for Public Service Excellence (APSE), Blue light Emergency Services EV group and private sector charge point operators with an interest in fleet charging. This final stage of engagement and consultation will be used to finalise the Public Sector Fleet Decarbonisation Action Plan, which will be published in late 2026.

Measuring success & monitoring progress

Ongoing monitoring of the composition and use of the public fleet will be essential to track progress with fleet decarbonisation and emission reductions, identify where actions are not having the expected impact and identify where progress has or could be impacted by additional new or emerging barriers.

In the mid-term Transport Scotland may continue to undertake a high-level survey of the public fleet to continue to track progress public fleet decarbonisation in 2027 or 2028, subject to available funding. However, this is not an effective approach to monitoring progress with decarbonising the public fleet and emission reductions in the medium to long term. It is essential that fleet decarbonisation strategies identify how data on fleet composition, use and replacement plans is captured, shared and reported, wherever possible applying a consistent approach across public sector bodies.

In addition to statutory reporting, public bodies should make information on fleet composition and use available in the public domain, including the proportion of zero-emission, low carbon and traditional combustion engine vehicles and miles. This will help ensure a more transparent approach to reporting progress, which in turn will ensure that public bodies are accountable for performance against both emission reduction targets and their own fleet decarbonisation strategies.

The targets proposed in this Action Plan are based on a percentage reduction in fleet emissions in 2035. This trajectory is based on assumptions around the proportion of different vehicle types that could be decarbonised to deliver those target emission reductions, however in practice financial, operational or other factors will mean the route to achieving emission reductions will vary across different public bodies.

To help ensure there is an appropriate level of clarity around progress towards meeting these targets, a fleet decarbonisation strategy should identify how each public body aims to decarbonise its respective fleet. Regular and accurate reporting of the number of zero-emission, ultra-low emission and internal combustion vehicles, as well as mileage and/or fuel use will help calculate greenhouse gas emission levels, reporting is important to enable slippage or new or evolving barriers to be identified as early as possible.

Future reporting of progress towards fleet decarbonisation and fleet emission reductions is expected to be incorporated from 2028/29 as part of statutory annual public body greenhouse gas emissions reporting.

In addition to greenhouse gas emissions, public bodies should consider how fleet data can be used to monitor and report on air quality-related outcomes, including reductions in NO₂ and particulate emissions, particularly in urban and LEZ areas. This will support alignment with national air quality strategies and provide a more complete picture of environmental benefits.

Forecasting/mapping technology and cost

ZEV and infrastructure technology and associated services continue to develop, providing more choice and options for ZEVs and making it practical to use a zero-emission vehicle for a wider range of applications or services.

There is a requirement for further development in ZEV technology, particularly in relation to heavy and specialist vehicles, Transport Scotland has already supported the introduction of zero-emission heavy vehicles and development of prototype emergency ZEVs, like Scotland’s first zero-emission fire engine, which was manufactured by the Cumnock-based specialist fire-fighting technology provider Emergency One. A number of public bodies have also begun to introduce zero-emission heavy fleet using their own capital or operating budgets, it will be important to understand how existing technology performs and to identify where there are operational requirements, or cost barriers, that require further technological developments.

Collating data on the operational requirements of public sector fleets will be essential to fully understand where there are gaps in existing technology that need to be addressed, either through developments in battery electric technology or through other zero-emission technology solutions. This information can help to engage with vehicle and infrastructure manufacturers, installers and associated service sectors.

Fleet decarbonisation strategies should identify specific vehicle types or uses that cannot currently be decarbonised utilising available technology, as well as reviewing when appropriate technology is expected to be available. Information on current technology gaps was collated as part of the 2025 public sector fleet survey and will be used to support forecasting of solutions becoming available on the market. This informed any revisions on assumptions related to how fleet decarbonisation targets proposed in the draft Action Plan could be delivered.