Report Highlights

Concern about the climate is widespread among the UK public and a slim majority are supportive of net zero targets. The public recognise the scale of challenges surrounding net zero and there is some scepticism about the likelihood of achieving targets. There is also division about the timing of climate action in relation to economic conditions.

Knowledge, research and expertise have a key role to play in creating effective climate policy. The public particularly value the involvement of independent and governmental experts, alongside national and local political leaders, and representatives of affected communities. They support the use of diverse research evidence from natural, engineering and social sciences to build understanding of how the UK can reduce emissions.

Public engagement and building on public momentum are essential. At the individual level, members of the public do not feel they have a lot of say in developing climate policy. Yet, many are making changes to their own daily lives, helping reduce demand for high carbon activities, products and services. A public engagement campaign and supportive policies are essential to sustain and increase this momentum, and to address public concerns and impediments to change.

Citations

To cite this report: Moseley, A., Hatchard, J., Katsuyama, H., Devine-Wright, P. & Whitmarsh, L. (2025) Public Opinion on Net Zero and Climate Policy: Citizens’ Survey Report. Exeter, Devon: ACCESS.

Summary

The Economic and Social Research Council-funded ACCESS network drew together an independent task force of experts to consider the role of social science in UK net zero policy. The task force, which ran for one year between 2023-2024, reviewed a range of social science perspectives, analysed examples of government net zero plans and built understanding from case studies of societal change.

We now call upon government to make more consistent and effective use of social science in delivering UK net zero ambitions. Our work shows the huge opportunities, and wide range of benefits, that can be delivered through sustained action to reduce demand for energy. To achieve net zero we need actors from across society to be engaged. Actors that work at the mid-level, between scales, silos and sectors, are especially important. Engaging citizens in meaningful debate about change and generating positive visions of a net zero future will also be essential.

We recommend that government establish a Net Zero Social Science Advisory Committee in the Department of Energy Security and Net Zero.

Key Recommendations

1. Re-centre net zero policy attention on the role of society. This is critical to a fully socio-technical approach to net zero transformations and will bring important new opportunities for intervention around the drivers of, and roadblocks to, societal change.
2. Prioritise interventions to reduce demand for energy. Net zero will not be achieved by supply-side options alone and demand reduction offers many wider benefits. There is considerable scope for developing and mobilising demand-side knowledge, innovation and action.
3. Empower mid-level actors (e.g. local government, civil society, businesses, schools) to deliver place-sensitive, locally appropriate, net zero interventions. Enabling these actors – through funding,legislation and devolved powers – is crucial to realising their potential roles in reaching net zero.
4. Create structures and processes that engage diverse publics in conversations about the changes required – recognising not only the benefits of net zero measures but also the concernsand challenges they can raise. The purpose and scope of these engagements must be clearly laid out. Climate Commissions and Climate Citizens’ Assemblies have been successfully applied to supporting place-based climate policy. Such mechanisms can help to deliver a transition that is smoother, faster and more equal.
5. Build and communicate positive and collective visions of a net zero future that can galvanise widespread support for net zero changes, and that recognise the many benefits of action beyond reducing emissions – including better health, new jobs, technological innovation and a fairer society. These visions must also engage with the downsides of net zero policies and with sources of contestation.
6. Embed the critical, reflective and analytical skills of the social sciences in net zero institutions and policy, as exemplified by the work of the Intergovernmental Panel on Climate Change (IPCC) and the Government Office for Science Net Zero Society Report.
7. Ensure concerted and coordinated investment in social science expertise across all aspects of the next UK Net Zero Research and Innovation Framework Delivery Plan.
8. We recommend that the UK and devolved governments include more social science expertise in science advisory committees looking at net zero. We suggest establishment of a Net Zero Social Science Advisory Committee within the Department for Energy Security and Net Zero (DESNZ),with terms of reference to include diverse social science disciplines and topics of net zero expertise.

Lead author Professor Karen Bickerstaff, from the University of Exeter, says: “This research report provides a clear evidence base for fuller representation of the social sciences within the expert groups advising government on net zero.  Technology is really important but cannot, in isolation, achieve the deep decarbonisation required; social dynamics and processes must be an equal focus of government initiatives.  There is great potential to reduce energy demand, but this requires meaningful public debate about the benefits and challenges involved.”

Co-author Gordon Walker, Emeritus Professor, at the Lancaster Environment Centre, Lancaster University makes clear that, ‘Following the science on climate change has long been crucial, but on its own doesn’t make change happen. The social sciences have an enormous amount to contribute to finding effective and practical routes to net zero across society. There are key principles to follow – working closely with communities, being inclusive, reducing energy dependency, maximising co-benefits – and much insight that social scientists can contribute to diagnosing the successes and failures of policy action’.

Co-author Professor Simone Abram, Executive Director of Durham Energy Institute, Durham University adds “There is mature and extensive social science evidence on clean energy. Government and industry must understand social science insights to avoid repeating the same mistakes and ensure everyone can participate in the energy transition.”

Co-author Professor Lorraine Whitmarsh said “The report highlights that people can be agents of change in many different ways, and that governments need to provide opportunities to tap into this ‘people power’ to accelerate progress on net zero. This more people-led approach also offers wider benefits to wellbeing, inclusion, and prosperity than just focusing on energy supply or technologies alone.”

Co-author and Director of ACCESS, Professor Patrick Devine-Wright from the University of Exeter, is keen to highlight, “The report’s final recommendation is that the UK and devolved governments include more social science expertise in science advisory committees looking at net zero. One way to do this would be to establish a Net Zero Social Science Advisory Committee within the Department for Energy Security and Net Zero.

Co-Director of ACCESS, Professor Birgitta Gatersleben from the University of Surrey concludes “This team of experts clearly shows how social science is essential to guarantee the social transformation needed to achieve net zero targets.”

Professor Julie MacArthur, Canada Research Chair in Reimagining Capitalism, Royal Roads University, endorses the report, as “an important change from a business-as-usual focus in net-zero policy on technocentrism. It reflects the fact that transitions are as much socio-political – reflecting diverse values, cultures and interests – as they are technological. Two important ways this is represented in the report are: i) how contestation is framed as a necessary, important and expected part of transitions, rather than an unwelcome surprise and ii) the focus on ‘mid-level’ actors at the municipal and community level.”