Back-shifted conditional

"Penny said if the UK recycling system improved in the coming years, the council could review its decision to end plastic collections."

(The Guardian.)

Is if the UK recycling system improved in the coming years, the council could review its decision to end plastic collections the type 1 or type 2 conditional in the sentence above?

(I think it is a back-shifted [type 1 conditional] clause. On the other hand, maybe it doesn't matter what type of conditional it is; both type 1 and type 2 refer to the future determined by the PP in the coming years.)