First Minister John Swinney has indicated that proposed future greening requirements for permanent grassland have been paused, following pressure from Orkney farmers concerned about the impact on grass-based livestock systems.
In a March letter to Orkney farmer Douglas Paterson, following a visit to his farm, Mr Swinney said the key concern raised was ‘the potential of Future Conditionality on Permanent Grassland (PGRS)’.
He said officials had been looking at ways to recognise production activities that deliver biodiversity and climate benefits and align with regenerative farming, but confirmed the work was “currently paused” and that there was “no decision” on whether it would be progressed.
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The update comes as the Scottish Government’s separate 2026 Enhanced Greening changes continue to move ahead. From 2026, BPS claimants with more than 15 hectares of arable land, including temporary grassland, must manage an area equivalent to 5% of that land as an Ecological Focus Area to receive their full Enhanced Greening payment. The Scottish Government has also said the intention is to increase the arable EFA requirement to 7% from 2027.
The more contentious issue for many Orkney farmers has been whether similar EFA-style requirements could later be extended to land claimed as permanent grassland. Scottish Government guidance describes 2026 as the start of a transition period for permanent grassland, but says businesses ‘may be mandated’ in future years to carry out management activities in an equivalent way to arable EFA.
Farmers in Orkney have been fighting for any PGRS requirement to be delayed, arguing that changes could have a disproportionate impact on the islands’ livestock sector.
Research commissioned by Orkney Islands Council found that Orkney has one of the highest shares of temporary grass within arable land, at around 60%. The Rural Exchange summary of the work said future conditionality on PGRS could, depending on thresholds, bring between 50% and 80% of Orkney’s 645 PGRS-claiming businesses into scope, potentially affecting more than 2,800 hectares.
In his letter, Mr Swinney sought to reassure Mr Paterson that the 2026 Enhanced Greening changes were ‘modest’ and designed to fit within productive livestock systems. He highlighted options including herb and legume rich pastures, under-sowing cereal crops with grassland as a catch crop, and low-input grassland using slurry or farmyard manure without artificial fertiliser.
He added that, if the PGRS option is revisited, farmers’ feedback and lived experience would form part of future consideration, and that wider impact assessments, including a dedicated island impact assessment, would be carried out.
Paul Ross Scottish Beef Association chairman who was part of the meeting with John Swinney, said: “There are also farms on AECS contracts that have environmentally managed land added to the area for greening, which is causing complications in meeting EFA in 2026. This will get worse if requirement increases to 7% and in future includes PGRS. The short growing season in Orkney makes some of the options pointless and in certain circumstances impossible. Sadly the proposed greening if introduced has the potential to reduce the islands beef herd further. The SBA and Orkney farmers will continue corresponding with government against PGRS greening.”
Asked by The Scottish Farmer for a specific comment, a Scottish Government spokesperson said: “We will work with the industry to ensure conditions are right before any final decision is made.”
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