Policy paper

Greening Government Commitments April 2021 to March 2024 report

Published 20 February 2025

This is the first report for the 2021 to 2025 Greening Government Commitments (GGCs). This framework was developed and implemented under the previous government. All targets and progress detailed within this report were set and measured under the policies of the previous government. 

Introduction 

The Greening Government Commitments (GGCs) set out the actions that UK government departments and their partner organisations will take to improve their impact on the environment from April 2021 to March 2025. There are 7 headline commitments which cover:

• greenhouse gases
• waste and resources
• water
• sustainable procurement
• nature recovery
• climate change adaptation
• impacts from information communication technology (ICT)

The commitments (unless specifically exempted) apply to the estate and operations of:

• central government departments and their executive agencies
• non-ministerial departments
• executive non-departmental public bodies

The list of bodies reporting as of 31 March 2024 can be downloaded as a comma separated value (CSV) file - GGCs: bodies in scope.

This report covers the first 3 financial years of the framework, which run from 1 April to 31 March for:

• 2021 to 2022 (year 1)
• 2022 to 2023 (year 2)
• 2023 to 2024 (year 3)

The baseline year for this framework was the 2017 to 2018 financial year. Data is linked in each section as CSV files.

How to interpret the data 

The data relates to the government’s performance in meeting the GGCs for the 2021 to 2025 framework. The data is presented in an accessible format, with individual tables for each commitment area. The reporting requirements, including definitions and scope, can be found at Greening Government Commitments: reporting requirements for 2021 to 2025.  

Departments vary widely in functions, size, and estate composition. To allow flexibility in improving estates and operations, commitments are set relative to baselines rather than as absolute targets. While most commitments apply government-wide, greenhouse gas emissions targets are set individually for each department to account for differences in estates and operation. Departments report on behalf of their bodies. 

Due to machinery of government changes during the framework, some departments have merged, split, or changed form. Where practical, data from these departments has been adjusted to reflect the new structures. If a department did not exist in the financial year, their figures are listed as ‘N/A’ (not applicable). 

Collection methods vary across departments, with some relying on the best available estimates. The figures in this report reflect the data as of 31 March 2024, so they may differ from previous publications and could be updated in future reporting.

For commitments A to C, the tables present data for the baseline and the 3 reporting years for which data is available (covering the period from 1 April 2021 to 31 March 2024). The total for government presented in the baseline is based on the departments reporting in year 3.   

The tables also present: 

• the target reduction for each department and the target level to be achieved
• the percentage difference in performance between each reporting year and the baseline 
• the remaining change needed for the department to reach its target (where ‘2025 target level met’ indicates that the change achieved is equal to or exceeds the target) 
• the proportion that each department contributes to the overall government total  

For overall and direct emissions, performance is assessed against each department’s individual target. For all other commitments, whilst each department’s performance is presented in comparison to the target, the targets are to be achieved collectively by government. Individual departmental performance may vary, based on the nature of their estates and operations.  

Levels (such as the tonnes of emissions or waste) are rounded to 0 decimal places. Percentage changes and the proportions are presented as percentages, rounded to 2 decimal places. This means figures may not sum to the exact figure presented. All targets were calculated and are presented as integers in percentages.  

For commitments D to F, the tables present each department’s position as of 31 March 2024.

• ‘yes’ means they have achieved the commitment 
• ‘in progress’ means they were working towards the commitment 
• ‘no’ means they were exempt from the commitment or work was paused  

A response with a ‘*’ next to it represents the position of the department as of 31 March 2023 instead of 31 March 2024.   

All commitments are for departments to complete by the end of the current framework, 31 March 2025, except for the Government Fleet Commitment (A1). 

A: Mitigating climate change: working towards net zero by 2050 

Overall and direct emissions (A)  

Target

Reduce the overall greenhouse gas emissions from a 2017 to 2018 baseline and also reduce direct greenhouse gas emissions from estate and operations from a 2017 to 2018 baseline (set by BEIS in agreement with individual departments). 

In year 3, government’s overall emissions were 41% lower than the baseline. Government produced:

• 2,937,940 tonnes of carbon dioxide equivalent (tCO2e) in the baseline
• 1,921,457 tCO2e in year 1
• 1,813,313 tCO2e in year 2
• 1,737,743 tCO2e in year 3

Eleven departments had already met or exceeded their individual overall emissions targets for 2025 in year 3. The weighted average of the individual targets indicates government should aim for a 42% overall reduction by 2025. 

In year 3, government’s direct emissions were 15% lower than the baseline. Government produced:

• 980,505 tCO2e in the baseline
• 895,349 tCO2e in year 1
• 860,138 tCO2e in year 2
• 836,078 tCO2e in year 3

Eleven departments had already met or exceeded their individual direct emissions targets for 2025 in year 3. The weighted average of the individual targets indicates government should aim for a 16% overall reduction by 2025. 

Reductions in energy consumption meant that government spent an estimated £298 million less on bills in year 3 than if usage remained at baseline levels. Across the first 3 years of the frameworks, these reductions amount to an estimated £753 million in savings.

Download the:

• overall emissions data (CSV)
• direct emissions data (CSV)

The tables present the level of emissions measured in tCO2e units.

Fleet (A1) 

Target

Meet the government fleet commitment for 25% of the government car fleet to be ultra-low emission vehicles (ULEV) by 31 December 2022, and for 100% of the government car and van fleet to be fully zero emissions at the tailpipe by 31 December 2027.

Government met its target to have 25% of the car fleet as ULEV by 31 December 2022, exceeding this by reaching 30%, although some individual departments fell short. As of March 2024, 23% of the government car fleet were zero emission vehicles (ZEV). We are currently improving our data related to ZEV vans.

Download the ULEV performance data (CSV) for October to December 2022.

The table shows the:

• number of ULEVs and non-ULEVs in the government fleet
• total number of cars
• percentage classified as ULEV in quarter 3 of year 2 (1 October to 31 December 2022)

ULEVs are defined as producing less than 50g of CO2 per km. Departments without car fleets are listed as ‘no fleet’. Data for quarter 3 of year 2 was unavailable for DfE, DfT and FSA. Instead, for DfE, data for quarter 2 of year 2 is presented, with data representing only 1 organisation, the Student Loans Company. For DfT, data for quarter 4 of year 2 is presented. FSA were unable to provide the fleet breakdown in year 2 but have been able to provide data from year 3. In the table, FSA’s data is listed as ‘Data unavailable’. DfE, DfT and FSA figures are not included in the government totals. DBT, HMRC and MOD data will be updated in future reporting.

Download the ZEV performance data (CSV) for January to March 2024. The table shows the:

• number of ZEVs and non-ZEVs in the government car fleet
• total number of cars
• percentage classified as ZEVs in quarter 4 of year 3 (1 January to 31 March 2024), the latest available data

ZEVs include fully electric and hydrogen-fuelled cars. Departments without car fleets are listed as ‘no fleet’. Data for ZEV vans is currently unavailable, so only car figures are presented. 

Flights (A2) 

Target

Reduce the emissions from domestic business flights by at least 30% from a 2017 to 2018 baseline, and report the distance travelled by international business flights, with a view to better understanding and reducing related emissions where possible. 

In year 3, government reduced its emissions from domestic flights by 28% compared to the baseline. Government produced:

• 14,687 tCO2e in the baseline
• 3,740 tCO2e in year 1
• 7,465 tCO2e in year 2
• 10,636 tCO2e in year 3

The distance travelled by international flights was:

• 467 million km in year 1
• 962 million km in year 2
• 1,447 million km in year 3

Download the domestic business flight emissions data (CSV) and international business flight travel data (CSV).  The tables show:

• the level of emissions from domestic business flights in tCO2e
• the distance travelled in km for international business flights

Emissions compensation (A3) 

Target

Departments that already have policies in place to compensate for emissions are encouraged to report on their implementation.

In year 3, 2 departments had policies in place to offset emissions through gold standard credits, voluntary emissions reductions and certified emissions reductions.  

Download the emissions compensation data (CSV). The table presents each department’s position on their emissions compensation policies as of 31 March 2024.

Travel (A4) 

Target

Update organisational travel policies so that they require lower carbon options to be considered first as an alternative to each planned flight.

In year 3, 17 departments had sustainable travel policies in place.  

Download the sustainable travel policies data (CSV). The table presents each department’s position on their sustainable travel policies as of 31 March 2024.

B: Minimising waste and promoting resource efficiency

Overall waste (B) 

Target

Reduce the overall amount of waste generated by 15% from the 2017 to 2018 baseline.

In year 3, the government’s overall waste was 18% lower than the baseline. Government produced:

• 188,283 tonnes in the baseline
• 177,476 tonnes in year 1
• 150,161 tonnes in year 2
• 153,613 tonnes in year 3

Reductions in waste compared to the baseline saved government an estimated £8.6 million in year 2 and year 3. Figures for year 1 are unavailable due to changes in methodology. 

Download the overall waste performance data (CSV). The table presents the level of waste generated in tonnes. FSA will provide waste figures for year 3 in future reporting. In the table, their data is listed as ‘Data unavailable’.

Landfill (B1) 

Target

Reduce the amount of waste going to landfill to less than 5% of overall waste.

4% of waste was sent to landfill in all 3 years. In comparison, 13% of waste was sent to landfill in the baseline.  

Download the waste to landfill performance data (CSV). The table presents the percentage of waste sent to landfill by tonnage. FSA will provide waste figures for year 3 in future reporting. In the table, their data is listed as ‘Data unavailable’.

Recycling (B2)

Target

Increase the proportion of waste which is recycled to at least 70% of overall waste.

Government recycled:

• 56% of overall waste in the baseline
• 52% in year 1
• 52% in year 2
• 53% in year 3

Download the waste recycled performance data (CSV). The table presents the percentage of waste sent for recycling by tonnage. FSA will provide waste figures for year 3 in future reporting. In the table, their data is listed as ‘Data unavailable’.

Consumer Single Use Plastic (B3)

Target

Remove consumer single use plastic (CSUP) from the central government office estate.

Several departments faced challenges collecting CSUP data in the required detail, preventing calculation of an overall government-wide figure or clear conclusions on progress. Data shows an increase in reported CSUPs. This could be due to improved data collection rather than higher usage.

Food (B4)

Target

Measure and report on food waste by 2022, for estates with over 50 FTE (full time equivalent staff) and or over 500m2 floor area offering a food service.

Departments collected:

• 11,482 tonnes of food waste in year 2
• 20,640 tonnes of food waste in year 3
• Data was not collected in year 1

This increase may indicate improved segregation, collection and reporting of food waste, rather than an increase in food waste itself.

Download the food waste data (CSV). The table presents the level of food waste reported, in tonnes, for year 2 and year 3.

Reuse (B5)

Target

Report on the introduction and implementation of reuse schemes.

In year 3, 17 departments reported using reuse schemes.  

Download the reuse schemes data (CSV). The table presents each department’s position on their reuse schemes as of 31 March 2024.

Paper (B6)

Target

Reduce government’s paper use by at least 50% from a 2017 to 2018 baseline.

The volume of paper purchased is used as a proxy to measure progress.  

In year 3, government purchased 66% less paper than the baseline. Government purchased:

• 4,304,041 reams in the baseline
• 1,766,737 reams in year 1
• 1,651,641 reams in year 2
• 1,451,188 reams in year 3

The total reduction in paper purchased in the 3 years is equivalent to approximately 407,000 trees (assuming a tree is equivalent to 20 A4 reams). 

Download the paper waste performance data (CSV). The table presents the amount of paper purchased, measured in A4 reams equivalent.

C: Reducing our water use

Overall water (C)

Target

Reduce water consumption by at least 8% from the 2017 to 2018 baseline.

In year 3, water consumption was 1% lower than the baseline. Government consumed:

• 31.5 million cubic metres (m3) in the baseline
• 28.7 million m3 in year 1
• 30.0 million m3 in year 2
• 31.3 million m3 in year 3

Reductions in water consumption meant that government spent an estimated £480,000 less on bills in year 3 than if usage remained at baseline levels. Over the 3 reporting years, consumption dropped by 5.2 million m3, equivalent to around 2,100 Olympic swimming pools, saving an estimated £11 million.

Download the water consumption performance data (CSV). The table presents the level of water consumed in m3.

Water consumption (C1)

Target

Ensure all water consumption is measured.

All departments monitored their water consumption to support ongoing efforts in reducing consumption and improving water efficiency across government estate.

Water efficiency (C2)

Target

Provide a qualitative assessment to show what is being done to encourage the efficient use of water.

Departments implemented various measures to promote water efficiency. This included:

• installing sensor taps
• dual flush toilets
• automated meter readers
• rainwater harvesting
• leak detection systems
• water-saving refurbishment practices

D: Procuring sustainable products and services

Target

Continue to buy more sustainable and efficient products and services with the aim of achieving the best long-term, overall value for money for society.

By year 3, 15 departments had integrated sustainable procurement into their policies.  

Download the sustainable procurement policies data (CSV). The table presents each department’s position on their sustainable procurement policies as of 31 March 2024.

E: Nature recovery – making space for thriving plants and wildlife

Target

Departments and partner organisations with the greatest potential to improve biodiversity should develop and deliver nature recovery plans for their land, estates, development, and operations. All other departments and partner organisations should consider what they can do to support the government’s commitment to improve nature and develop and deliver nature recovery plans for their organisations, where suitable.

By year 3, 4 departments had developed nature recovery plans.

Download the nature recovery plans data (CSV). The table presents each department’s position on their nature recovery plans as of 31 March 2024.

F: Adapting to climate change

Climate adaptation strategy

Target

Develop an organisational climate change adaptation strategy across estates and operations. This headline commitment is broken down into 2 parts:

• departments should conduct a climate change risk assessment across their estates and operations to better understand risk and to target areas that need greater resilience 

• departments should develop a climate change adaptation action plan, including existing or planned actions in response to the risks identified

Departments should develop a strategy as most appropriate to the size and diversity of their estates and operations and their existing approach to adaptation.

In year 3, 7 departments had completed climate change risk assessments and developed climate change adaptation action plans.

Accountability (F1)

Target

Departments should establish clear lines of accountability for climate adaptation in estates and operations and engage in wider governance and risk structures when appropriate.

In year 3, 19 departments had established clear lines of accountability.

Transparent reporting (F2)

Target

In their annual report and accounts, departments should provide a summary of how they are developing and implementing a climate change adaptation strategy for their department. Departments may wish to give a high-level statement and describe specific actions they are undertaking where appropriate.

In year 3, 16 departments included a summary of their adaptation strategies in their annual report and accounts.

Download the climate adaptation data (CSV). The table shows each department’s climate adaptation status as of 31 March 2024, including:

• risk assessments
• adaptation plans
• accountability
• transparent reporting

G: Reducing environmental impacts from information communication technology (ICT) and digital

Target

Departments should report on the adoption of the greening government: ICT and digital services strategy and associated targets and ensure they provide membership to the sustainable technology advice and reporting team, who manage and deliver the GGCs ICT reporting.

Performance on this commitment is reported separately: 

• year 1 ICT report  

• years 2 and 3 ICT report