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In our hands: behaviour change for climate and environmental goals Contents

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Chapter 1: Introduction

Our inquiry

1.In June 2019, the Government enshrined the net zero target in law, requiring a 100 per cent reduction of UK greenhouse gas emissions by 2050 compared to 1990 levels.2 The Government has also committed to cut these emissions by 78 per cent by 2035: just 13 years away.3

2.The Committee on Climate Change (CCC)4 was clear in its advice for the 2035 target that “more than ever before, future emissions reductions will require people to be actively involved. This need not entail sacrifices. Many people can make low-carbon choices, about how they travel, how they heat their homes, what they buy and what they eat.”5

3.The CCC was also clear on the focus and leadership required from the Government in all areas, including behaviour change:

“The utmost focus is required from government over the next ten years. If policy is not scaled up across every sector; if business is not encouraged to invest; if the people of the UK are not engaged in this challenge—the UK will not deliver Net Zero by 2050. The 2020s must be the decisive decade of progress and action.”6

4.Alongside legally binding targets to reduce emissions, the UK has—and is due to establish—long-term environmental goals and targets. The Government set out goals to achieve clean air, use resources from nature more sustainably and efficiently, and minimise waste in the 25 Year Environment Plan in 2018.7 At the time of writing the Government is developing long-term targets for environmental improvement in air quality, water, biodiversity and resource efficiency and waste as required under the Environment Act 2021.8

5.In this inquiry we set out to review the evidence about how and why people change their behaviours and to explore the Government’s approach to enabling individuals, households and communities to adopt the changes anticipated by the CCC and others to meet net zero, as well as changes to meet the UK’s environmental goals. We used a broad definition of behaviour change which includes individual and household choices made as a result of government policies—ranging from communications to regulation and taxation—as well as changes brought about by shifts in social and cultural norms. We considered how individuals and households are being supported to adopt new technologies, switch to more sustainable products and services, change travel modes and reduce carbon-intensive consumption.

6.We found that we cannot rely on large-scale and unproven technologies alone to achieve the transition to net zero. Behaviour change is also needed. We have worked with the CCC to calculate that 32 per cent of emissions reductions up to 2035 relies on decisions by individuals and households, while 63 per cent relies on the involvement of the public in some form.9 This means the whole country needs to be engaged in this immense challenge—every government department, every layer of devolved and local government, every business, every charity, civil society group and faith community, and every household. Leadership and coordination from the Government are vital.

7.We launched our inquiry on 15 November 2021. We held 13 evidence panels, involving 34 witnesses, and two ministerial sessions, and we received 112 written submissions. We also met with four participants from Climate Assembly UK and students from the six schools on our youth engagement programme, on which more information is available in the public engagement section of Chapter 8 and the appendices.

8.During the course of the inquiry, we took evidence from ministers and departments from the Government led by Prime Minister Johnson. On 6 September 2022, Liz Truss became Prime Minister. We hope the new Prime Minister and her Cabinet find this report useful.

9.Ewa Kmietowicz, a long-time staff member at the Committee on Climate Change who gave evidence to the Committee at the beginning of this inquiry, died earlier in 2022. We extend our deepest sympathies to her family, friends and colleagues.

Structure of this report

10.This report is structured as follows:

• Chapter 2 explores the rationale for behaviour change to meet climate and environmental goals, what kinds of change are required and the extent to which different individuals and groups need to, and are able to, make changes.
• Chapter 3 assesses the implications for government policy of the UK public’s level of concern and understanding about climate change and the environment, and people’s appetite for changing behaviour.
• Chapter 4 discusses how research on theories, drivers and levers of behaviour change can inform policies.
• Chapter 5 considers lessons that can be drawn from successes and failures in behaviour change interventions in other policy areas including the COVID-19 pandemic, smoking, obesity and pensions.
• Chapter 6 looks at how change can be delivered in partnership with civil society, including faith groups, as well as local government, businesses and devolved governments and administrations.
• Chapter 7 explores the challenges and opportunities of delivering behaviour change in the key areas of travel, food, energy use at home and what we buy.
• Chapter 8 assesses how information communicated by the Government, the wider media and education can influence everyday behaviours and considers the role of public engagement in supporting effective and publicly accepted behaviour change interventions.
• Finally, Chapter 9 evaluates the Government’s overall approach to behaviour change to meet climate and environmental goals and considers how coordination can be achieved within Government and with other groups and organisations.

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