Barriers to tree planting for net zero in the UK: A policy perspective

Tree planting is a central strategy for the UK to achieve net-zero emissions, but efforts to expand treescapes face persistent barriers. This paper uses a policy stages model to explore why key barriers occur and how they are connected to the wider policymaking process. We specifically examine different stages of policy development, agenda setting, formulation, and implementation, to understand where and why challenges arise. We conducted a content analysis of grey literature in England and Wales from 2009 to 2025. Treescape policy is shaped by multiple overlapping agendas, including agricultural reform, biodiversity protection, and ecosystem restoration. This creates tensions between objectives, which can slow implementation. Our analysis shows that the implementation gap begins early, as problem definitions are often contested and policy priorities unclear. Treescape policy is caught in a “complexity trap,” inheriting past challenges in forestry while interacting with current land-use pressures. Organisational arrangements in both England and Wales are insufficient to manage these complexities, and trade-offs between objectives are rarely prioritised. These findings highlight that effective treescape expansion requires integrated governance that recognises trade-offs and aligns policy objectives. Understanding these barriers can help design interventions that improve policy delivery and support net-zero goals and thus policy recommendations are provided from the paper’s findings.