SPELTHORNE BOROUGH COUNCIL

1.1. Spelthorne Borough Council (SBC) remains committed to achieving net zero greenhouse gas emissions from its Scope 1 and Scope 2 activities by 2030, as set out in its Climate Emergency declaration in December 2020. Delivery of this ambition is being progressed through the Green Horizon Programme, which provides a structured framework for reducing emissions across buildings, fleet and land use.

1.2. In Financial Year 2025/2026, the Council recorded total Scope 1 and Scope 2 (location-based) greenhouse gas emissions of 1,166.25tCO2e, representing a 2.41% decrease compared to the baseline year (2019/2020). The Council’s combined reported greenhouse gas footprint, including Scope 3 emissions, is 2,053.55tCO2e.

1.3. However, net emissions (including market-based electricity factors and land-use reductions) fell to 873.39tCO2e, a 26.91% reduction from baseline, reflecting the continued impact of renewable electricity procurement and the introduction of land-use sequestration.

1.4. This year marks a turning point in emissions performance, with total emissions decreasing by 15.76% from the previous year. This improvement is driven by targeted interventions delivered through the Green Horizon Programme, including implementation of a corporate electricity reduction plan; improved building energy monitoring and control systems; continued fleet efficiency measures and early electrification and initial delivery of land-use carbon sequestration modelling.

1.5. Scope 3 emissions also reduced significantly by 20.30%, indicating progress in addressing indirect emissions from employee travel and operational activities. While uncertainty remains higher for Scope 3 categories, the scale and consistency of reductions suggest a genuine change in organisational behaviour rather than short-term fluctuation. Scope 3 emissions are reported separately and do not represent a complete value chain inventory

1.6. Despite operational performance improving, the Council is not yet delivering emissions reductions at the scale required to meet its 2030 target. The Council remains off track against its decarbonisation pathway. A gap of 395.38tCO2e remains between current emissions and the required trajectory (2020 modelled trajectory) to achieve net zero by 2030. Closing this gap will require sustained delivery of the Green Horizon Programme alongside further investment and organisational change.

1.7. Delivery is currently constrained by wider financial pressures facing the Council, as well as uncertainty associated with Local Government Reorganisation (LGR). These factors present challenges for long-term capital investment but also reinforce the importance of maintaining momentum in low-cost, high-impact decarbonisation measures.

1.8. In FY 2019/2020 SBC set its baseline emissions.

1.9. Figure 2: Spelthorne Borough Council Baseline emissions (FY 2019/20)

Scope	Emission Type	19/20
Scope 1	Vehicles	627.35
	Gas	228.13
	Oil	5.09
Scope 2	Purchased Electricity	334.43
Total Emissions	-	1195.02

Scope 1	Land Use	0.00
Scope 2	Green Tariff	0.00
-	Offsets	0.00
Total Net Emissions	-	1195.02

1.10. Key terms and phrases can be explained in section 19.

2. Introduction

Organisation Information

2.1. Spelthorne Borough Council is a borough authority responsible for providing a wide range of services to people who live in Spelthorne, to visitors and to businesses and other organisations in the Borough.

2.2. These services include housing, refuse and recycling collection, licensing, planning and building control, Council Tax collection, and environmental health.

2.3. According to the 2021 Census, Spelthorne has a population of 102,956. The Council is made up of 39 elected Members.

2.4. Further information about the Council can be found on the website (Homepage | Spelthorne Borough Council) and in its constitution, which sets out the roles and responsibilities of the Council, its Members and its staff.

2.5. Spelthorne BC has 450 employees, 54 buildings, 86 vehicles and 435 acres of land across 82 sites.

Reporting Period

2.6. 1^st April 2025 – 31^st March 2026

Baseline Year

2.7. Financial Year 2019/2020

2.8. Figure 3: EV Pool cars at Knowle Green

3. Methodology

Organisational Boundary

3.1. We have defined our organisational boundary according to the Financial Control framework under the Greenhouse Gas Protocol (Homepage | GHG Protocol). Further detail on which operations or activities have been included within our organisational boundary for the purposes of compiling this greenhouse gas report is provided under ‘Operational Scope’ below.

Operational Scopes

3.2. The following table details what sources of emissions are included and excluded in scope

3.3. A full screening of all 15 Scope 3 categories has been undertaken. Categories not currently reported are disclosed with justification based on materiality or data availability.

3.4. Figure 4: Table of Operational Scope of Emissions

Scope	Source category	Included	Rationale
1	Gas Consumption: Owned Buildings	Yes	This includes our office buildings, community centres, sheltered and temporary housing
1	Gas Consumption: Buildings we own and lease to others	Partially	We have only included emissions arising from energy used and paid for by the Council in the communal areas of some of the buildings that we lease out.
1	Gas Consumption: in buildings we lease from others	Yes	Currently no buildings fulfil this criterion
1	Other Fuel Consumption	Yes	Includes Waste Fleet, Operational vehicles, oil generator
1	Fugitive Emissions (from A/C units)	Yes	Consistent monitoring of all air conditioning units
2	Purchased Electricity: Owned buildings	Yes	This includes our office buildings, community centres, car parks, sheltered and temporary housing.
2	Purchased Electricity: Buildings we own and lease to others	Partially	We have only included emissions arising from energy used and paid for by the Council in the communal areas of some of the buildings that we lease out.
2	Purchased Electricity: Buildings we lease from others	Yes	Currently no buildings fulfil this criterion
3	Purchased Goods & Services	No	No robust methodology for consistent data collection and reporting
3	Business Mileage	Yes	All recorded emissions from business travel (car, train)
3	Spelthorne Direct Services (SDS)	Yes	SDS retains autonomy for purchases and fuel procurement and therefore, does not fall under the control of SBC.
3	Well to Tank	Yes	Emissions involved in distribution of fuel
3	Employee Commuting	Yes	Captures indirect emissions from employee travel to work
3	Working from Home	Yes	Accounts for home energy use during remote work
3	Outsourced activities	No	No robust methodology for consistent data collection and reporting
3	Waste Disposal	No	No robust methodology for consistent data collection and reporting
3	Leased Assets	No	No robust methodology for consistent data collection and reporting
3	Transmission & Distribution Losses	Yes	Emissions attributed to losses across national electricity system
Reduction	Land Use Emissions	Partially	Measuring emissions sequestered from our surveyed trees. No further spatial assumption modelling completed

Data Sources & Quality

3.5. Using the GHG Protocol framework, we have followed the guidance provided in Environmental Reporting Guidelines published by Defra (Department for Environment, Food and Rural Affairs) on how to measure and report greenhouse gas emissions and the guidance in the greenhouse gas Accounting Tool developed for councils by Local Partnerships, working with the LGA.

3.6. The emissions factors used to calculate the emissions in this Greenhouse Gas Report are those provided by Defra (Department for Environment Food & Rural Affairs) titled: ‘UK Government GHG Conversion Factors 2025’ which is available at: Greenhouse gas reporting: conversion factors 2025 - GOV.UK

3.7. Data quality is determined by its consistency, accuracy and methodology. To improve transparency and consistency, data quality has been assessed using a simple quantitative scoring framework. Each data source is scored across three criteria.

3.8. Figure 5: Data Quality Scoring Framework

Criterion	5 (High Confidence)	3 (Moderate Confidence)	1 (Low Confidence)
Accuracy	Directly measured data (e.g. supplier or metered data)	Partially estimated with some assumptions	Fully modelled or based on assumptions
Completeness	Dataset coverage >95% of relevant sources	Dataset coverage between 50–95%	Dataset coverage <50%
Consistency	Data collected consistently using same methodology annually	Minor changes in methodology or gaps	One-off dataset or inconsistent methodology

3.9. Each data source is scored against the three criteria shown in Figure 5 (Accuracy, Completeness, Consistency), with a maximum possible score of 15 (i.e. three criteria each scoring up to 5). The total score is then used to determine the overall data quality rating (High = 15-11, Medium = 10-6, Low = 5-1) reported in Figure 6, as follows:

3.10. Figure 6: Data Quality of Source Category

Source category	Data Quality	Method/data source
Gas Consumption: Owned Buildings	High	Energy Supplier Reports
Gas Consumption: Buildings we own and lease out	High	Energy Supplier Reports
Gas Consumption: in buildings we lease from others	High	Energy Supplier Reports
Other Fuel Consumption	High	Neighbourhood Services Report
Fugitive Emissions (from A/C units)	Medium	Assets Reports
Purchased Electricity: Owned buildings	High	Energy Supplier Reports
Purchased Electricity: Buildings we own and lease to others	High	Energy Supplier Reports
Purchased Electricity: Buildings we lease from others	High	Energy Supplier Reports
Land Use Emissions	Medium	Calculations from Tree Surveys
Business Mileage	High	HR Annual Reporting
Employee Commuting	Medium	Staff Survey 26
Working from Home	Low	Staff Survey 26
Transmission & Distribution Losses	Medium	% of Electricity from Energy Supplier Reports
Spelthorne Direct Services (SDS)	High	Fuel reports
Well to Tank	Medium	Fuel Reports

Methodology Changes

3.11. During the 2025/2026 reporting period, several updates were made to the Council’s greenhouse gas accounting approach to improve accuracy, transparency and alignment with best practice.

3.12. Inclusion of Land Use Sequestration: For the first time, the Council has incorporated emissions sequestration associated with council-owned land in line with GHG Land Sector and Removals standards.

3.13. Only surveyed trees have been included in this assessment to ensure the use of high-quality, verifiable data. Trees and open spaces without survey data were excluded to avoid introducing uncertainty through broad modelling assumptions. This results in a smaller but more robust dataset (1,172 trees across 12 sites), which will be expanded as further surveys are completed. This has resulted in a carbon sequestration value of –58.24tCO₂e. While this represents an initial estimate, the Council will continue to refine this methodology to include a broader range of land assets.

3.14. Reclassification of Spelthorne Direct Services (SDS): Emissions associated with Spelthorne Direct Services have been reclassified from Scope 1 and 2 into Scope 3. This better reflects organisational and financial control boundaries, as SDS operates as a separate entity with distinct financial arrangements. This change has improved alignment with GHG Protocol guidance but reduces direct comparability with previous years. Under SDS governance they retain autonomy over purchase power and fuel procurement and therefore, must be classified as Scope 3.

3.15. Improved Scope 3 Coverage: Scope 3 reporting has been expanded and refined, particularly in relation to employee commuting and working-from-home emissions. These figures are based on staff survey data and improved estimation techniques.

3.16. Ongoing Limitations: Certain Scope 3 categories (e.g. purchased goods and services, waste, leased assets) remain excluded due to data and resource limitations. Developing robust methodologies for these areas remains a priority.

4. Emissions Results

Scope 1&2 Emissions

4.1. The following table details the summary of emissions by Scopes from financial year 2020/2021 to 2025/2026.

4.2. Figure 7: Summary of emission Scope 1&2&3 from Financial Year 2020/2021 to 2025/2026

Scope	20/21	21/22	22/23	23/24	24/25	25/26
Scope 1	819.11	951.70	972.23	1047.09	1098.30	991.24
Scope 2	208.72	205.62	277.04	289.96	335.80	234.62
Scope 3	-	-	-	-	1038.55	827.69
Total Emissions	1027.83	1157.32	1249.27	1337.05	2472.65	2053.55

4.3. Figure 8: Summary of emission source by Scope 1&2 from Financial Year 2020/2021 to 2025/2026

Scope	Emission Type	20/21	21/22	22/23	23/24	24/25	25/26
Scope 1	Vehicles	593.44	659.66	675.78	688.23	635.88	576.40
	Gas	220.58	286.51	291.36	353.77	407.72	350.32
	Oil	5.09	5.53	5.09	5.09	5.09	4.91
	Fugitive Emissions	0	0	0	0	0	0
Scope 2	Purchased Electricity (location-based factor)	208.72	205.62	277.04	289.96	335.80	234.62
Total Scope 1&2 Emissions	-	1027.83	1157.32	1249.27	1337.05	1384.49	1166.25

Reduction	Land Use	0	0	0	0	0	-58.24
Reduction	Green Tariff (Market-Based Electricity Factor)	0	-205.62	-277.04	-289.96	-335.80	-234.62
Reduction	Offsets	0	0	0	0	0	0
Total Reductions	-	0.00	-205.62	-277.04	-289.96	-335.80	-292.86

Total Net Emissions		1027.83	951.70	972.23	1047.09	1048.69	873.39

Scope 3 Emissions

4.4. The following table details the summary of emissions by Scope 3 source emission from financial year 2024/2025 to 2025/2026.

4.5. Figure 9: Summary of emission source by Scope 3 for Financial Year 2024/2025 and 2025/2026

Scope	Emission Type	24/25	25/26
Scope 3	Business Mileage	19.32	12.92
	Well to Tank	189.17	186.97
	Employee Commuting	354.39	249.47
	Working from Home	399.20	295.26
	Spelthorne Direct Services (SDS)	49.61	64.30
	Transmission & Distribution Losses	26.86	18.77
Total Emissions	-	1038.55	827.69

4.6. Figure 10: Solar Panels at Sunbury Leisure Centre installed March 2026

5. Emissions Analysis

5.1. Total greenhouse gas emissions decreased from 1384.49tCO2e in FY 2024/2025 to 1166.25tCO2e in FY 2025/2026, representing a reduction of 15.76%. This marks a reversal of the post-pandemic upward trend in emissions and reflects the increasing impact of targeted interventions delivered through the Green Horizon Programme. Net emissions also reduced over the same period, driven by both direct emissions reductions and the continued application of renewable electricity procurement strategy and land-use sequestration.

5.2. Scope 1 emissions from gas consumption reduced to 350.32tCO2e, representing a 14.08% decrease from the previous year. While gas emissions remain elevated compared to the baseline, this reduction is attributable to a series of targeted interventions aimed at improving the efficiency and control of heating systems across the Council’s estate. These include the implementation of enhanced Building Management Systems, which have improved monitoring and operational control, and the application of Hydromx to optimise system efficiency. Together, these measures represent a shift toward improving the performance of existing assets rather than relying solely on capital replacement.

5.3. Emissions from the Council’s fleet decreased to 576.40tCO2e, a reduction of 9.35% compared to FY 2024/2025. This reflects a combination of improved operational efficiency and the early transition to electric vehicles under the Green Horizon Programme. The reduction is also partially influenced by a methodological change, with emissions from Spelthorne Direct Services now reported within Scope 3. Although the methodology changed has been retro-actively applied to the FY24/25 framework. This improves alignment with reporting standards but affects comparability with previous years beyond FY24/25.

5.4. Scope 2 emissions from purchased location-based electricity decreased significantly to 234.62tCO2e, representing a 30.1% reduction. This reduction has been driven by the implementation of a targeted electricity reduction plan, improvements in energy monitoring and consumption management and a change in the operational boundary associated with the removal of the Eclipse Leisure Centre from billing. The billing transferred back to Scope 3 because it returned to the Leisure Centre operator ‘Places for People’ upon completion of the leisure centre works. ‘Places for People’ do not provide detailed information on energy consumption so it can’t be accounted for under our Scope 3 methodology. Continued procurement of renewable electricity through a REGO-backed tariff has also contributed to reductions in net emissions, reinforcing the impact of both demand reduction and supply-side interventions.

5.5. Scope 3 emissions decreased from 1,038.55 tCO2e to 827.69 tCO2e, representing a 20.3% reduction. This reduction is largely driven by decreases in employee commuting emissions, homeworking emissions and business mileage. Suggesting a shift in working practices and improved management of travel-related emissions. Other categories, such as well-to-tank emissions, remained relatively stable, reflecting their dependence on underlying fuel consumption trends. Overall, the reduction in Scope 3 emissions indicates progress in addressing indirect emissions sources, although these remain subject to greater uncertainty and variability due to their reliance on estimated data and behavioural factors.

5.6. Collectively, the reduction in emissions observed in FY 2025/2026 demonstrates the growing effectiveness of targeted, programme-led interventions, particularly those focused on energy management, system optimisation, and operational efficiency. However, sustaining and accelerating this trend will require further expansion of these measures alongside the delivery of more substantial structural changes to assets, infrastructure, and service delivery.

5.7. Figure 11: Solar Panels at White House Depot

6. Target & Progress

6.1. Spelthorne Borough Council has committed to achieving net zero Scope 1 and Scope 2 greenhouse gas emissions by 2030, supported by a defined decarbonisation pathway which requires a consistent and accelerating reduction in emissions over time. In FY 2025/2026, net emissions were recorded at 873.39tCO2e, compared to a pathway requirement of 478.01tCO2e. This results in a current delivery gap of 395.38tCO2e, indicating that while emissions have reduced in the short term, the Council is not yet reducing emissions at the rate required to meet its long-term target.

6.2. Progress to date reflects the early impact of the Green Horizon Programme, which has provided a structured and coordinated approach to emissions reduction across buildings, fleet, and land use. This programme has enabled the delivery of targeted interventions focused on improving operational efficiency; energy management; and low-carbon transition activities contributing to reductions observed in the current reporting year. However, the scale and pace of emissions reduction required to meet the 2030 target will necessitate a significant acceleration in delivery, including the implementation of more capital-intensive decarbonisation measures alongside continued optimisation of existing assets.

6.3. The Council’s ability to deliver this accelerated reduction is constrained by a combination of external and internal factors. Ongoing financial pressures limit the availability of capital funding required to deliver large-scale infrastructure projects, such as deep retrofits or full fleet electrification. At the same time, the proposed Local Government Reorganisation and transition toward a West Surrey authority introduces uncertainty in long-term governance, decision-making structures and investment priorities. These factors will influence both the pace and scale at which decarbonisation measures can be deployed.

6.4. The reduction in emissions in FY 2025/2026 represents a positive shift from previous trends. However, achieving the 2030 net zero target will require sustained, coordinated effort and a step change in delivery over the coming years.

6.5. Figure 12: Bar chart demonstrating the decarbonisation pathway against the net emissions by financial year

7. Additional Reporting

7.1. In addition to our core greenhouse gas inventory, which reports all Scope 1 and Scope 2 emissions from our buildings and fleet, Spelthorne Borough Council also consider 2 further metrics and reports one further supplementary metric:
(a) Considers: carbon offsetting

(b) Considers: carbon sequestration from council-owned land
(c) Reports: market-based emissions from our renewable electricity tariff (REGO-backed).

7.2. These items are reported under our net emissions reporting framework

Offsetting

7.3. Spelthorne Borough Council currently has no commitments to funding offsetting initiatives. The Council does not have an offsetting policy.

Land Use

7.4. Spelthorne BC owns and manages a substantial area of parks, woodlands and green spaces that naturally remove carbon from the atmosphere. Because we already measure the emissions from our buildings and fleet, it is reasonable and consistent under the WLGA framework and ‘Land Sector Removals Standard’ GHG Protocol guidance to also acknowledge the carbon removals that occur on land we directly control.

7.5. Although a full report into Spelthorne Borough Council’s carbon sequestration from its land use has not been completed; however, a targeted modelling assessment tree survey data has been used to measure sequestration from 1172 trees across 12 open spaces.

7.6. Figure 13: Wildflower meadow at Lammas Park

7.7. Moving forward the Council hopes to build on this methodology to measure more trees and begin to formulate an appropriate methodology for measuring open spaces and woodland.

Renewable Electricity (REGO)

7.8. Renewable Energy Tariff (REGO): The Council has successfully secured a renewable electricity tariff backed by Renewable Energy Guarantees of Origin (REGOs) for the current reporting year. The REGO tariff covers 100% of the consumed electricity by SBC for this reporting period.

7.9. Renewable Energy Tariff (REGO): In line with GHG Protocol best practice, we will report both:

a) Location-based emissions (reflecting the grid average emissions factor) (total emissions), and

b) Market-based emissions (reflecting our procurement of renewable electricity through REGOs) (net emissions).

7.10. Renewable Energy Tariff (REGO): This dual reporting approach ensures transparency and comparability across reporting periods while highlighting the additional impact of our renewable electricity procurement.

7.11. Renewable Energy Tariff (REGO): Certificates confirming our REGO-backed tariff are provided in Appendix A and Appendix B.

8. External Assurance

8.1. This report has been checked by Association for Public Sector Excellence (APSE) Energy. Proof of the ‘independent technical review’ can be found in Appendix C.

8.2. APSE can be trusted to accredit our GHG report due to their established expertise in local government performance benchmarking and their independent, sector-recognised reputation for rigorous and transparent validation.

8.3. The work involved: Undertaking a sense check of the data used in the calculations to check it is robust. Identifying any gaps or errors in the data. Carry out a sense check of the approach, type of calculations, correct conversion factors used, correct scopes, etc. Act as a critical friend of the process and make relevant recommendations.

9. Further information

9.1. For further information please contact: netzero@spelthorne.gov.uk

10. Figures

10.1. Figure 1: Passivhaus ‘Eclipse Leisure Centre’

10.2. Figure 2: Spelthorne Borough Council Baseline emissions

10.3. Figure 3: EV Pool cars at Knowle Green

10.4. Figure 4: Table of Operational Scope of Emissions

10.5. Figure 5: Data Quality Scoring Framework

10.6. Figure 6: Data Quality of Source Category

10.7. Figure 7: Summary of emission Scope 1&2&3 from Financial Year 2020/2021 to 2025/2026

10.8. Figure 8: Summary of emission source by Scope 1&2 for Financial Year 2025/2026

10.9. Figure 9: Summary of emission source by Scope 3 for Financial Year 2025/2026

10.10. Figure 10: Solar Panels at Sunbury Leisure Centre installed March 2026

10.11. Figure 11: Solar Panels at White House Depot

10.12. Figure 12: Bar chart demonstrating the decarbonisation pathway against the net emissions by financial year

10.13. Figure 13: Wildflower meadow at Lammas Park

10.14. Figure 14: Carbon Literacy Training

10.15. Figure 15: Caucasian Elm in Halliford Park

Figure 14: Carbon Literacy Training

11. Glossary

Glossary
*Term*	Definition
*Adaptation*	Steps people, communities, or nature take to cope with the effects of climate change, such as building flood defences or planting trees that can handle hotter weather.
*Benefits*	The good results that come from taking climate action, like cleaner air, healthier communities, or saving money on energy.
*Biodiversity*	The variety of plants, animals, and other living things in an area. Healthy biodiversity helps nature stay strong in the face of climate change.
*Carbon*	In climate discussions, this usually means carbon dioxide and other gases released when we burn fossil fuels. These gases are a major cause of global warming.
*Carbon Neutral*	When the amount of carbon released by an activity is balanced by removing the same amount from the air, so the overall impact is zero.
*Climate Change*	The long-term warming of the planet and the changes in weather patterns caused mainly by human activities, especially the burning of coal, oil, and gas.
*Community Climate Action Plans*	Plans created by local people to decide how their area will reduce pollution, prepare for climate impacts, and protect nature.
*Consultation*	A process where organisations ask the public for their views before finalising climate-related plans or decisions.
*Culture*	The shared ideas, values, traditions, and ways of living that influence how people understand and respond to climate issues.
*Declaration*	A public statement that shows a commitment or intention, such as a council declaring a climate emergency.
*Ecology / Ecological*	How living things interact with each other and with their surroundings. Climate change affects these relationships in many ways.
*Emissions*	Gases released into the air, especially greenhouse gases like carbon dioxide and methane, which contribute to global warming.
*Enable*	To give people or organisations the support or resources they need to take climate action.
*Environment*	The natural world around us, including air, water, soil, plants, animals, and the places where people live and work.
*Fugitive Emissions*	Greenhouse gases that escape into the air unintentionally during the production, processing, or transport of fuels and industrial materials. This includes leaks from pipes, tanks, valves, and equipment, as well as gases released during mining or drilling.
*Greenhouse Gases*	Gases that trap heat in the atmosphere and warm the planet. Key examples include carbon dioxide, methane, and nitrous oxide.
*Just Transition*	Making the shift to a greener economy in a way that is fair and supportive of workers, communities, and people who may be more affected by the changes.
*Net Zero*	When the amount of greenhouse gases we put into the atmosphere is equal to the amount taken out.
*Pesticides*	Chemicals used to control pests in farming and gardening. Their use connects to climate issues because they affect soil health and ecosystems.
*Principles*	Core ideas or values that guide how climate work should be carried out, such as fairness, openness, and long-term thinking.
Resilience	The ability of people, communities, or natural systems to cope with the impacts of climate change, recover quickly after extreme events, and continue to function and thrive even as conditions change.
Scopes	Categories used to measure greenhouse gas emissions: Scope 1 (direct emissions), Scope 2 (energy-related indirect emissions), and Scope 3 (all other indirect emissions).
Solar Panels	Devices that turn sunlight into electricity and help reduce the need for fossil fuels.
Values	The beliefs that shape what a person or community cares about and how they choose to act on climate issues.