Purpose

This document supports consideration by the Scottish Parliament of proposed changes to the National Outcomes for Scotland. It describes the process through which representatives of communities in Scotland and others have been consulted as part of a review of the National Outcomes, the results of that consultation, and how the representations received have been taken account of in preparing proposed revisions to the National Outcomes. It forms part of the process of consulting the Scottish Parliament on proposed changes to the National Outcomes, as required by section 2(6) of the Community Empowerment (Scotland) Act 2015.

Introduction and summary

The National Performance Framework (NPF) is Scotland’s wellbeing framework - setting out a vision of societal wellbeing through the National Outcomes, and charting progress towards this through a range of social, environmental, and economic indicators. It has changed the way we do government in Scotland and has evolved since its inception in 2007 to a wellbeing framework with shared National Outcomes for all of Scotland.

A review of the National Outcomes is required by Part 1 Section 2 of the Community Empowerment (Scotland) Act 2015. The Act states that Scottish Ministers may review the National Outcomes at any time but must begin a review before the expiry of the period of five years beginning with the date on which the National Outcomes were published. This Review was to commence no later than June 2023.

Work on this Review began in May 2022. The public engagement phase ran from March to June 2023. This was followed by analysis and development of the proposed changes to the National Outcomes. 

As a result of this Review process, a series of changes to the NPF and the National Outcomes are proposed. These are:

  • New Outcomes: Care, Climate Action, Housing.
  • Amended Outcomes: Children and Young People, Communities, Wellbeing Economy and Fair Work, Education and Learning, Environment, Equality and Human Rights, Health, International, Reduce Poverty.
  • Unchanged Outcome: Culture.
  • Amended extended definitions: All of the National Outcomes have proposed changes to their extended definitions, informed by the consultation evidence. The extended definitions provide greater detail of what is covered by each National Outcome. 

National Indicators will be revised to reflect the changes agreed with parliament to the National Outcomes. 

The National Performance Framework

The National Performance Framework, as Scotland’s wellbeing framework, has several functions. 

It provides a framework for collaboration and planning of policy and services across the whole spectrum of Scotland’s civic society, including public and private sectors, voluntary organisations, businesses, and communities. It is based on achieving shared outcomes that improve the quality of life for the people of Scotland. 

In the case of public services, the NPF builds on the wider Scottish approach to reform – aligning the whole public sector around a common set of shared outcomes, supporting partnership working, collaboration and emphasising prevention. 

The NPF is also a reporting framework that helps us understand, publicly and transparently, the progress we are making as a nation towards realising our long-term vision. The NPF supports decision-making by reporting systematically and objectively across a range of economic, social, and environmental indicators. This data helps us understand the challenges in achieving our outcomes and helps us focus policies, services, and resources on tackling those challenges. 

The NPF is Scotland’s framework to localise the United Nations Sustainable Development Goals (SDGs). Progress towards the National Outcomes is a proxy for progress towards the SDGs given the close alignment between the two. 

Current Landscape 

Since the 2018 Review, a great deal has changed. The scale of the action required to tackle the climate crisis has brought environmental issues to the forefront. And the impact of the Covid-19 pandemic on every aspect of society has required a renewed focus on what we prioritise as a nation. It is in this changed policy landscape that we have reviewed the National Outcomes, and the impact of these changes is also evident in responses to the consultation. 

The 2018 Review of the National Outcomes saw a significant repositioning of the NPF. This included making it a framework for the whole of Scotland, not just the Scottish Government, adding the values section, and simplifying the overall format and language. The revised NPF was widely lauded internationally as an ambitious framework for Scotland. Support for the current NPF has continued, with recognition from many stakeholders that it is still relevant and appropriate. This Review offers an opportunity to build upon the work of the 2018 Review, providing any necessary course correction rather than another complete overhaul.

The Finance and Public Administration Committee (FPAC) undertook an inquiry into the NPF, publishing their report “NPF Ambitions into Action” in October 2022. The report noted the continued value of the NPF, alongside considerations on its implementation, stating that:

It is clear to us that the NPF remains an important agreed vision of the type of place Scotland should aspire to be. As we show in this report, the NPF now needs to make more sustained progress towards achieving that vision and to ensure its ambitions are translated into action. (FPAC 2022: 6)

Recommendations for improving implementation of the NPF included improving accountability and the alignment of budgets to the National Outcomes. The report suggested that, overall, “a more systematic approach to implementation of the next iteration of the NPF is needed” and recommended that “the Scottish Government as part of the forthcoming review should also consult on an implementation plan, to sit alongside the final NPF, which sets out how organisations will be supported to embed the revised NPF and adopt its approach.” (FPAC 2022:12)

The stakeholder engagement that has taken place as part of this Review has therefore considered how to improve implementation of the NPF, as well as seeking views on the National Outcomes. Additionally, the Scottish Government has committed to working with a wide range of stakeholders throughout the development of an implementation plan that will be published alongside the reviewed NPF and to developing a Wellbeing and Sustainable Development Bill. 

In June 2023, the Convention of Scottish Local Authorities (COSLA) and the Scottish Government agreed a new Partnership Agreement, setting out a vision for a more collaborative approach to delivering on shared priorities for the people of Scotland. This ‘Verity House Agreement’ sets out the way we will work together, how we will approach our shared priorities, and how we will engage. COSLA were co-signatories of the 2018 National Outcomes, and are key partners in working towards the National Outcomes. This approach aligns with the principles of the Verity House Agreement. 

It is within this broader context that changes to the NPF have only been recommended where there is strong evidence that this is necessary to ensure the NPF remains as ambitious and forward looking for the coming five years, as it did in 2018

The Community Empowerment (Scotland) Act 2015

The Review of National Outcomes is being undertaken in accordance with Part 1 of the Community Empowerment (Scotland) Act 2015. The Scottish Ministers must begin a Review of the National Outcomes before the expiry of the period of five years beginning with the date on which the National Outcomes were published.

The Scottish Ministers must also regularly and publicly report on progress towards these outcomes. 

In carrying out a Review of the National Outcomes, the Scottish Ministers must consult with representatives of communities in Scotland. Following the Review they must consult the Scottish Parliament on the proposed revisions during the consultation period, for a minimum of 40 days when the Parliament is not in recess. In consulting the Scottish Parliament they must also lay before the Parliament a document describing the consultation, any representations received, and how those representations have been taken account of in preparing the proposed revisions.

The Consultation Process 

Scale and scope

Building on the 2018 Review of National Outcomes, this Review primarily considered the National Outcomes. It also considered the purpose, vision, name and presentation of the NPF, and more broadly, its implementation and data.

In addition to the Review, the Scottish Government has committed to producing an implementation plan for the revised NPF in response to the FPAC inquiry report – “National Performance Framework: Ambitions into action”. It has also proposed introducing a Wellbeing and Sustainable Development Bill that will contain provisions to strengthen the NPF, potentially including the creation of a Future Generations Commissioner. Evidence gathered from the Review will inform these next steps.

Governance       

A project board has provided oversight to the Review. Additionally, three advisory groups helped inform the Review process: 

NPF Expert Advisory Group of external stakeholders with expertise in wellbeing frameworks and community engagement; 

NPF Technical Advisory Group of Scottish Government senior analysts, chaired by the Scottish Government Chief Statistician; 

NPF Policy Advisory Group of Scottish Government officials from various policy areas. 

The Scottish Government Executive Team provided oversight at key milestones during the Review. Engagement with COSLA Chief Officers and Leaders also took place during the development of proposed revisions to the National Outcomes.

Process

The consultation and engagement phase of the Review consisted of four strands, as shown in Figure 1. 

A diagram of arrows containing the four strands of engagement during the review phase pointing towards the NPF flower

(Figure 1)

Desk based research

Thematic gender review

The National Advisory Council on Women and Girls (NACWG) is a key leadership organisation in Scotland that raises awareness of gender inequality and provides advice and support to the First Minister. In 2018, the NACWG issued the following recommendation: “carry out a thematic gender review of the new National Performance Framework as a catalyst for system analysis and change.”

This thematic gender review consisted of a review of the data available for National Indicators that can currently be disaggregated by sex, a stakeholder meeting focused on gender and an equality impact assessment focussing on the characteristic of sex. This was supported by consideration of consultation evidence that referenced gender.

The gender review brought to light issues including: the importance of intersectional data to understand differing experience of the National Outcomes; the need to better mainstream gender throughout the NPF; the gendered aspects of access to safety and freedom from violence mentioned in the NPF; gendered differences in experiences of housing/homelessness and care. 

The gender review informed the changes that are proposed to the National Outcomes, including the addition of a new Care Outcome, which recognises that the majority of caring is carried out by women and that the economic value of unpaid care should be acknowledged. The Equality and Human Rights Outcome includes promotion of gender equality and addressing discrimination and violence against women and girls. The Communities Outcome extended definition has been amended to note that different approaches may be needed to enable all groups to feel safe in public spaces. The Health Outcome extended definition now references the need to ensure those with differing health needs, such as women, have access to the healthcare they need. The Reduce Poverty Outcome recognises the link between gender and poverty.

Existing citizen engagement

There have been significant efforts made in recent years by the Scottish Government to engage with citizens in new ways, such as through citizens’ assemblies, and on key emerging policy priorities including Covid recovery and climate change. Given the depth of these engagement projects, they offer an opportunity to gather data on what matters to people in Scotland and to feed those themes directly into the Review. This has the benefit of including as many voices as possible in the Review, without risking further ‘consultation fatigue’, and maximising efficient use of resources.

The reports that have been considered are:

  • Doing Politics Differently: Citizens’ Assembly of Scotland (2020)
  • Scotland’s Climate Assembly (2021)
  • From Scotland’s Young People: The Scottish Youth Parliament’s Manifesto 2021-2026 (2020)
  • If not now, when?: Social Renewal Advisory Board report (2021)
  • Scottish Parliament Citizens’ Panel on Covid 19 (2021)
  • Covid Recovery Strategy: for a fairer future (2021)
  • All Learners in Scotland Matter: National Discussion on Education (2023)

Different methods of engagement were used to develop these reports, and therefore the number of participants is highly variable. For example, the ‘Covid-19 Citizens Panel’ comprised of 20 individuals, whereas the ‘All Learners in Scotland Matter’ discussion included at least 38,000 people. In some cases the number of individuals involved cannot be identified. Using the data available, it is possible to say that a minimum of 44,000 people have contributed to the reports used in this part of the desk based research.

Commissioned research

 In order to ensure the voices of children were included in the Review, a report was commissioned from The Children’s Parliament, which reviewed their work from 2018 to 2023 in the context of the NPF. 

  • What Kind of Scotland? Reviewing the National Outcomes for Scotland through the lens of Children’s Parliament’s programme of work from 2018 to 2023 report (2023) 

Community action plans

A community action plan is developed with a community, identifying what a community wants to achieve, how to do so, and what resources and organisations will need to be involved to make it happen. The action plans that flow from this engagement work offer insights into the priorities for these communities. 

The Expert Advisory Group recommended that these be considered as part of the wider engagement activity of the Review. Reviewing a range of community action plans from across Scotland, which were developed over the period 2015 – 2022, can offer a snapshot of what kind of place matters to communities. While these action plans were not intended to respond to the Review, they can offer an additional source of information on what matters to people in the communities in which they live. 

Action plans were selected to give as wide a geographic spread as possible, across 17 local authority areas. Population estimates have been lifted directly from the plans where available. It can be assumed that a population of around 90,000 is covered within these combined action plans.

Community engagement took a variety of forms, both in person and online. Using available data, the plans together provide a minimum of 7,000 identified interactions with local residents and stakeholders. The actual number will be higher. 

The action plans that were analysed for the Review are:

  • Tarbert and Skipness Community Trust (Argyll and Bute) 
  • Menstrie (Clackmannanshire) 
  • Denny, Dunipace and Dennyloanhead (Falkirk
  • Stratherrick and Foyers (Highland)
  • St Monans and Abercrombie (Fife) 
  • Newmilns and Greenholm (East Ayrshire)
  • Glenkens (Dumfries and Galloway) 
  • Harthill (North Lanarkshire) 
  • Forres (Moray) 
  • Insch (Aberdeenshire) 
  • Sandford and Upper Avondale (South Lanarkshire) 
  • Mercat Cross and City Centre (Stirling)
  • Galashiels (Scottish Borders) 
  • Scalloway (Shetland Islands) 
  • Stromness (Orkney Islands)
  • Greenock (Inverclyde) (Developed with the Health and Social Care Partnership) 
  • Auchterarder and Aberuthven (Perth and Kinross)

Additional documents

The following sources have also been reviewed for views on the implementation gap and changes to the National Outcomes or Indicators:

Written consultation

The written consultation was hosted on the Scottish Government’s Consultation Hub and was open for responses from 14 March to 12 June 2023. The questions sought views on whether the existing National Outcomes reflect the kind of Scotland people want to see, and what changes should be made to the National Outcomes. A total of 87 valid responses were received.

Call for evidence

The call for evidence was also hosted on the Consultation Hub and ran for the same time period as the written consultation. Aimed primarily at organisations and stakeholders, it sought submissions on the National Outcomes and National Indicators, and how to improve implementation of the National Performance Framework. It resulted in 125 valid responses, including internal Scottish Government policy responses.

Stakeholder meetings

A series of 11 stakeholder meetings were held between March and June 2023 to gain further insight into key topics that had emerged through the consultation and engagement. These sessions were themed and the topics were based on existing commitments to consider changes to the National Outcomes, topics that required further discussion, or opportunities to engage with groups who expressed an interest in feeding into the Review. They followed a similar workshop format, allowing for the size and make up of each group of participants. In addition, one open session was held with no theme. Most were facilitated by the National Performance Framework Unit.

The themes covered by a stakeholder meeting were:

  • Young people (facilitated by the Scottish Youth Parliament)
  • Care
  • Business
  • Transport
  • Housing/homelessness
  • Environment (facilitated by the Economy and Environment Leadership Group)
  • Sustainable Development Goals
  • Gender
  • Consumers (facilitated by Consumer Scotland)
  • Just transition
  • Open session (no specific theme)
  • The format of the workshops covered three main areas:
    • What is good about the current set of National Outcomes and what should be changed
    • Why does the theme matter to collective wellbeing
    • How should it be reflected in the National Outcomes

In total, 110 stakeholders attended these sessions.

Review communications

Outwith the Scottish Government the consultation and call for evidence were primarily promoted via existing NPF communication and engagement channels, including:

  • NPF website
  • NPF newsletter (500 subscribers)
  • NPF X (previously known as Twitter) account (5500 followers)
  • NPF blog on the Scottish Government blogging site
  • LinkedIn
  • Stakeholder networks

People were encouraged to respond to the consultation or call for evidence, as appropriate, and to encourage their respective networks and stakeholders to respond. A communications pack was provided to support organisations to promote the Review.

A number of organisations held online sessions designed to inform their members and stakeholders about the Review and to encourage them to respond to the consultation or call for evidence. In some cases, these sessions were also used to gather views to inform an organisational response. The NPF Unit attended these sessions to provide an overview of the Review process and answer any questions.

Within the Scottish Government, existing communications channels, including the Scottish Government intranet, were used to promote the Review and to encourage colleagues to share the details with their networks and stakeholders. 

Additionally, online engagement sessions open to all Scottish Government colleagues have been held bi-monthly throughout the Review.

Findings from the Consultation 

Thematic analysis of text-based responses was completed for all evidence received. Thematic analysis is the process of identifying patterns of meaning within qualitative data and categorising them into themes through coding. Each piece of evidence was coded through the lens of our Review question “Do the National Outcomes still reflect the kind of Scotland we want to see?” Final themes and sub themes were collated and categorised for consideration in the development of updated National Outcomes. In addition to this, the National Outcomes and Indicators category of themes will feed into the development of the National Indicators to support the new National Outcomes. Further detail of the analysis and results can be found in the thematic analysis summary report (Annex 3). 

The Implementation Gap category of themes, and associated evidence, will inform the development of the implementation plan that will be published alongside the reviewed NPF, as well as policy development on the Wellbeing and Sustainable Development Bill.

The main themes were as follows:

National Outcomes and National Indicators

  • Emerging themes with most comments

  • Care

  • Housing and Homelessness

  • Transport, Travel and Connectivity

  • Environment, Climate Change, Climate Resilience and Just Transition

  • Communities

  • Education

  • Economy

  • Health

  • Human Rights and Equalities

Implementation gap

  • Emerging themes with most comments
  • Policy
  • Delivery
  • Funding
  • Legislation
  • Accountability
  • Communication and engagement

Other

  • Emerging themes with most comments
  • Positive feedback
  • Format
  • Website
  • Feedback on the review process
  • Change the purpose wording
  • Change the name of the NPF

  • Language

     

The evidence for each theme was summarised and considered for inclusion in the proposed revisions to the NPF. This evidence informed whether to include a new National Outcome, change an existing outcome, mainstream within the wider NPF, or not make a change where it did not meet the outcome criteria for inclusion in the NPF. 

Any proposed new outcomes - or changes to existing outcomes - were expected to meet the following criteria:

  • Population level theme - applies to everyone 
  • Contributes to wellbeing of people and planet/human flourishing 
  • Describes an outcome not a process 
  • Distinct enough from the other National Outcomes 
  • Improved alignment with the UN’s Sustainable Development Goals

Where responses were considered to be more appropriately delivered by another route, these were noted and passed to the relevant team in the Scottish Government.

This approach has ensured that any revisions are proportionate and informed by the evidence received. 

Proposed Revised National Outcomes 

All evidence was considered, with particular emphasis on the main emerging themes. These themes have been addressed in the proposed changes to the National Outcomes as follows:

Theme - Care

This theme included evidence from the campaign ‘A Scotland that Cares’ led by Oxfam Scotland, Scottish Women’s Budget Group, Carers Scotland, Scottish Care and One Parent Families Scotland, and supported by over 50 organisations. The proposal to include a new National Outcome reflects the requests to acknowledge all aspects of care, paid and unpaid, for those who care and are cared for. It also responds to the findings of the thematic gender review, by increasing visibility of work that is carried out predominantly by women. 

Theme - Housing and Homelessness

This theme included representations from housing organisations requesting a specific Housing Outcome, to underline that housing is foundational to wellbeing, through its impact on many other aspects of life. The evidence set out the importance of a secure, affordable, safe and suitable home to improving progress across other National Outcomes. 

Theme - Transport, Travel and Connectivity

The evidence identified transport as a significant theme that should be more strongly represented across the National Outcomes. It was a frequent theme in the Community Action Plans that formed part of the desk based research, with a focus on active travel, public transport, road safety and better infrastructure. The evidence suggested that transport is a key contributor to progress towards many of the National Outcomes, rather than being an outcome in its own right. It is now represented through inclusion of ‘Connected’ in the definition of the Communities Outcome, as well as being referenced in the descriptions of Climate Action, Wellbeing Economy and Fair Work, Health and Reduce Poverty National Outcomes. 

Theme - Environment, Climate Change, Climate Resilience and Just Transition

The evidence reflected the increased concern about climate change, mitigation and adaptation. A new standalone National Outcome has been proposed to emphasise the distinct yet interconnected climate and biodiversity crises. The addition of the Climate Action Outcome would allow the Environment Outcome to focus more strongly on the natural environment and biodiversity. This responds to the evidence that emphasised the urgency of the biodiversity crisis, and the relevance of planetary boundaries to the wellbeing economy. 

Theme - Communities

There was considerable evidence that related to communities. This in part was due to the large number of community action plans included in the desk based research. The main issues that emerged as priorities for local communities have been reflected in the extended definition of the Communities Outcome. These include better infrastructure maintenance of community spaces and facilities as well as improved access to amenities and services, community engagement and resilience, safety, and connectedness. 

Theme - Education

This theme was prominent in the evidence, in part due to the inclusion of the National Discussion on Education report. Some of the recurring comments covered improving inclusion and diversity within education settings, developing high-quality education professionals and shifting the focus to practical and lifelong skills development, including digital skills. The proposed changes to the Education Outcome reflects this emphasis on lifelong learning. 

Theme - Economy

The main topics raised in the consultation evidence on economy included shifting the focus of the National Outcome towards a wellbeing economy that is sustainable, deprioritising economic growth and becoming more locally focussed. The proposed Wellbeing Economy and Fair Work Outcome recognises this in the extended definition, and emphasises wellbeing, sustainability and environmental limits as well as supporting communities. 

Theme - Health

The strongest evidence from this theme included parity between physical and mental health within the National Outcomes, higher prioritisation and better support for mental health care, a high-quality healthcare system delivered through a fully supported and resourced NHS and recognition that healthcare is a lifelong right. The proposed change to the Health Outcome reflects the parity between mental and physical health, and the extended definition acknowledges the need for high quality health care and services. 

Theme - Human Rights and Equality

There was a broad range of evidence that can be brought under equalities and human rights. The main themes included a dedicated equalities National Outcome, democracy, improving equality for protected groups and children’s rights. It is proposed that the existing Human Rights Outcome is amended to include equality, in response to the evidence. 

The proposed new National Outcomes are: 

Care - We are cared for as we need throughout our lives and value all those providing care 

Children and young people - We grow up loved, safe and respected and every single one of us can realise our full potential

Climate action - We live sustainably, achieve a just transition to net zero and build Scotland’s resilience to climate change

Communities - We live in communities that are connected, inclusive, empowered, resilient and safe

Culture - We are creative and our vibrant and diverse cultures are expressed and enjoyed widely

Wellbeing economy and fair work - We have a competitive, entrepreneurial economy that is fair, green and growing, with thriving businesses and industry and fair work for everyone

Education and learning - We are well educated, have access to high quality learning throughout our lives and are able to contribute to society

Environment - We actively protect, restore, enhance and enjoy our natural environment 

Equality and human rights - We respect, protect and fulfil human rights and live free from discrimination

Health - We are mentally and physically healthy and active

Housing - We live in safe, high-quality and affordable homes that meet our needs 

International - We are connected, open, show leadership and make a positive contribution globally.

Reduce poverty - We tackle poverty by sharing opportunities, wealth and power more equally

Each National Outcome also has an extended definition (Annex 4).

The proposed changes to the National Outcomes can be summarised as follows:

  • Care. This has been added to recognise paid and unpaid care in the National Outcomes as essential aspects of social and economic wellbeing. 
  • Children and Young People. The definition of this Outcome has changed to reflect that being loved, safe and respected are positive outcomes in their own right.
  • Climate Action. This has been added to better align with the Sustainable Development Goals and address the urgency and scale of the climate crisis which impacts wellbeing of people and planet. 
  • Communities. This Outcome has a slightly revised definition to include ‘connected’. This emphasises the important role of transport and digital connectivity to the wellbeing of communities. 
  • Culture. This Outcome has not been revised. Consultation evidence has been reflected in the long description. 
  • Wellbeing Economy and Fair Work. This Outcome brings together the former Economy and Fair Work and Business Outcomes. This streamlines the Outcomes.
  • Education and Learning. This Outcome has been revised to emphasise the significance of all forms of learning, throughout life. 
  • Environment. The definition of this Outcome has been revised to reflect the need to proactively restore the natural environment.
  • Equality and Human Rights. This Outcome has been revised to reference equality in the name. This improves alignment with the SDGs as well as ensuring equality has a specific focus as well as being mainstreamed through the National Outcomes. 
  • Health. The definition of this Outcome has changed to better reflect the equal significance of physical and mental health for wellbeing. 
  • Housing. This Outcome has been added as it is foundational to everyone’s wellbeing and is considered distinct from the other Outcomes.
  • International. This Outcome’s definition has been slightly reworded to broaden the scope from a focus on the relationships between nations (‘international’) to wider environmental and social factors (‘global’).
  • Reduce Poverty. The name of this Outcome has been changed to clarify that we are working towards a reduction in poverty. 

Impact Assessments 

The National Outcomes actively seek to promote equality and to ensure equality groups have equal access to the realisation of the Outcomes. Though it will be for specific policy areas to assess the impact of any policies relating to the achieving of the National Outcomes, Impact Assessments (Equalities Impact Assessment, Island Communities Impact Assessment, Fairer Scotland Duty Assessment, Children’s Rights and Wellbeing Impact Assessment, Strategic Environmental Assessment) were carried out on the 2018 National Outcomes in order to understand any improvements that could be made in this Review, as well as on the proposed revised National Outcomes set out in this document. The evidence gathered throughout the Review was used to better understand the interests of equality groups, and these were reflected in the development of proposed revisions to the Outcomes. 

Additional Proposed changes to the National Performance Framework 

As well as the National Outcomes, other aspects of the framework have also been considered as part of the Review.

Name 

Consideration has been given to the name of the framework. Evidence was received that proposed changing the name of the NPF to ‘Scotland's Wellbeing Framework’, in order to improve clarity about the role and purpose of the framework. Consideration of the name was also recommended by the FPAC inquiry. However, there was also some concern about what a change of name could mean for the framework’s brand that has been build up since 2007, and that removing ‘performance’ could be perceived as altering the focus of the framework. Having considered this carefully, it is proposed that the existing name ‘National Performance Framework’ be retained.

Purpose 

Based on feedback from the Review consultation and engagement it is proposed that the purpose is updated and streamlined to: 

To improve the wellbeing of people living in Scotland now and in the future

Values 

It is proposed that the values remain unchanged. 

Alignment with the Sustainable Development Goals

We heard from stakeholders that alignment with the Sustainable Development Goals (SDGs) could be improved. We have addressed this in proposals to the revises framework in several ways.

  • The new Climate Action Outcome mirrors the wording of SDG 13. This also rebalances the National Outcomes by including two Outcomes with an environmental focus. It was noted in the consultation that the SDGs have a greater number of specific environmental Goals than the NPF. 
  • SDG 5: Gender Equality is now more effectively represented in the National Outcomes through the addition of the Care National Outcome and explicit reference to gender equality and gender based violence in the extended definitions. 
  • The addition of Equalities to the Human Rights Outcome echoes SDG 10: Reduced Inequalities. 
  • Consideration will be given during development of the National Indicators to the consultation evidence received that suggested how to better align with the SDG indicator set. 

Accessibility

The consultation highlighted that the NPF website and the ‘flower’ graphic are not as accessible as they could be. Accessibility will be a key consideration in the design of the revised graphic. Improvements are also being made to the NPF website to ensure it is as accessible and usable as possible for all abilities and disabilities.

Next Steps

Development of indicators

The current set of National Indicators are set out in Annex 5. These will be revised to reflect the new National Outcomes agreed by Parliament, and will be  informed by the consultation evidence. 

Following the Review of National Outcomes, it is expected that the National Indicators that underpin them will also undergo changes. Currently we have 81 indicators in the NPF across 11 National Outcomes, of which 6 indicators are still in development (as at January 2024). We want to ensure the indicator set remains fit for purpose and focussed on measuring progress towards the updated National Outcomes. Therefore, indicator development is required to ensure the indicator set best reflects the new National Outcomes, alongside considering further data improvements from the feedback received through the National Outcomes Review consultation. 

Work is ongoing on a revised set of National Indicators. It is being led by Scotland’s Chief Statistician, and will be completed once a revised set of National Outcomes has been agreed with Parliament. We are assessing the relevance and quality of all current 81 National Indicators as well as exploring alternative measures that would better reflect the refreshed National Outcomes. The indicators will need to meet a minimum data quality level to be included in the updated indicator set. The indicators will go through rigorous quality assurance with analysts and will be independently peer reviewed and critiqued by the NPF Technical Advisory Group (NPFTAG), which is chaired by the Chief Statistician, prior to indicators going live. Additional engagement will be undertaken with the NPF Policy Advisory Group (PAG) and NPF Expert Advisory Group (EAG). Executive Team (ET) will be briefed during indicator development to update on progress and provide an opportunity for feedback. 

Implementation plan

The plan will primarily be informed by the evidence gathered during the Review of National Outcomes including that coded under the ‘Implementation Gap’ theme. Other relevant evidence, including that gathered during the development of the Wellbeing and Sustainable Development Bill and the FPAC report, will be considered where appropriate. 

Project governance has been set up for the development process of the plan and the objectives and scope for the plan have been shared with the three Review advisory groups.

Better implementation of the NPF requires a cohesive, coordinated approach and continuous learning and improvement across the Scottish Government, the wider public sector and beyond. The implementation plan will set out a route for change and the support, ideas and energy of a wide range of stakeholders will be required to ensure its success. A collaborative approach is being taken that will seek stakeholder input throughout the development process. The NPF Expert Advisory Group have provided feedback on an early draft of the plan and will continue to shape its development.

Wellbeing and Sustainable Development Bill

Work is ongoing on a proposed Bill on Wellbeing and Sustainable Development to be introduced during the current parliamentary programme.

Building on work which has been underway since the Bill was first proposed in the 2021-2022 Programme for Government, a public consultation was held December 2023 - February 2024, including a series of engagement workshops with the public, public bodies, and third sector. 

Following analysis of consultation responses, the team will continue to engage across the public sector both nationally and internationally to develop the contents of the Bill to best suit Scotland’s needs. 

For more information on this report please contact: Caroline Dodds (National Performance Framework Unit, Scottish Government)

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