Navigating Residual Emissions in a Local Authority context

Introduction

Carbon offsetting is emerging as a potential, but unregulated tool, with no consistent offsetting standards regarding ethics, transparency, credibility, and value. In partnership with LGA’s Sustainability Action Network, Hertfordshire Climate Change and Sustainability Partnership (HCCSP) facilitated an Offsetting Roundtable which confirmed that many other authorities are finding the landscape similarly challenging. In response, HCCSP initiated research into defining a robust offsetting framework for local authorities.

This case study outlines the approach taken, lessons learned, and recommendations for other councils considering carbon offsetting. The University of Hertfordshire, in collaboration with HCCSP, has also published research in exploring the legal definition of ‘additionality’ in the local authority context.

Background

HCCSP was formed to coordinate climate action across Hertfordshire’s ten district councils and the county council. Recognising the challenge of residual emissions, HCCSP sought to define how local authorities could engage in credible carbon offsetting while avoiding greenwashing.

Research confirmed that offsetting is currently unregulated, with councils lacking clear guidance on best practices. With no national framework in place, HCCSP sought to define principles that would ensure offsetting investments were transparent, science-based, and financially responsible.

Objectives

Establish a clear framework for local authority-led carbon offsetting.
Identify best practices that align with public sector responsibilities and financial scrutiny.
Prevent greenwashing by advocating for robust and additional carbon removal initiatives.
Develop boilerplate or template offsetting policy for Hertfordshire (and wider) authorities to use to ensure consistency and quality of response to the challenge of residual emission.

Project implementation

HCCSP engaged with key stakeholders, including:

LGA’s Sustainability Action Network: Hosting an Offsetting Roundtable with over 70 attendees.
Regional Climate Change Forum & Greater South East Net Zero Hub: Exploring policy gaps.
University of Hertfordshire: Collaborating on offsetting research since September 2024.

The Offsetting Roundtable confirmed that local authorities face significant uncertainty about the credibility of offsetting schemes. At the heart of the issue is the question of what constitutes a "high-quality" carbon offset. In the absence of a formal regulatory framework, local authorities must establish their own criteria. To establish our own framework for a high-quality offset, HCCSP assessed the key standards or principles that should guide local authority activities.

The principles that are used to constitute good practice for local authorities are ordinarily considered to be the Nolan Principles (1995), Local Government Act (2000), Localism Act (2011), the Green Book (2020) and potentially best practice on local government procurement also.

Using these principles, HCCSP established key principles for robust offsetting:

Offsetting should be a last resort, after all mitigation efforts have been exhausted.
Projects must be transparent and provide co-benefits for communities. Further exploration through University of Hertfordshire is needed to understand how the principle of ‘additionality’ applies within the context of statutory or regulatory duties.
Local offsetting is preferred to ensure accountability and economic benefits.
Carbon removal projects are favoured over avoidance schemes.

Impact and outcomes

Informed Policy Development: Findings from the research and roundtable discussions are shaping a more defined approach to offsetting within Hertfordshire, leading to the development of a boilerplate Offsetting Policy for Hertfordshire authorities to consider.
Capacity Building: The engagement process has improved understanding of carbon offsetting challenges among council officers and decision-makers.
Sector-Wide Influence: Insights from the HCCSP study are being shared with other councils nationwide through LGA networks.

Lessons learned

Offsetting is complex: In the absence of regulation, councils must set their own rigorous criteria. There is great potential to collectively agree an industry standard to save resource and ensure consistency.
Transparency is crucial: Public trust depends on clear, evidence-based decision-making.
Collaboration is key: Working with networks like LGA’s Sustainability Action Network fosters shared learning and consistency.

Recommendations for other councils

Engage with LGA and regional climate networks to align approaches.
Prioritise local offsetting projects that deliver verifiable environmental and social benefits.
Develop clear, science-based criteria for offsetting investments.
Ensure robust financial scrutiny to prevent greenwashing and inefficiency.

Future considerations

HCCSP will publish further research findings in 2025, aiming to provide a replicable framework for local authorities. With increasing urgency around climate targets, councils must lead the way in establishing best practices for offsetting while prioritising emissions reduction efforts first.

Contact information

Helen Burridge
HCCSP Manager
[email protected]