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The Airports Commission Report Follow-Up: Carbon Emissions, Air Quality and Noise

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The Airports Commission Report Follow-Up: Carbon Emissions, Air Quality and Noise House of Commons Environmental Audit Committee The Airports Commission Report Follow-up: Carbon Emissions, Air Quality and Noise Seventh Report of Session 2016–17 Report, together with formal minutes relating to the report Ordered by the House of Commons to be printed 7 February 2017 HC 840 Published on 23 February 2017 by authority of the House of Commons Environmental Audit Committee The Environmental Audit Committee is appointed by the House of Commons to consider to what extent the policies and programmes of government departments and non- departmental public bodies contribute to environmental protection and sustainable development; to audit their performance against such targets as may be set for them by Her Majesty’s Ministers; and to report thereon to the House. Current membership Mary Creagh MP (Labour, Wakefield) (Chair) Peter Aldous MP (Conservative, Waveney) Caroline Ansell MP (Conservative, Eastbourne) Dr Thérèse Coffey MP (Conservative, Suffolk Coastal) Geraint Davies MP (Labour (Co-op), Swansea West) Glyn Davies MP (Conservative, Montgomeryshire) Luke Hall MP (Conservative, Thornbury and Yate) Peter Heaton-Jones MP (Conservative, North Devon) Peter Lilley MP (Conservative, Hitchin and Harpenden) Caroline Lucas MP (Green Party, Brighton Pavilion) John Mc Nally MP (Scottish National Party, Falkirk) Kerry McCarthey MP (Labour, Bristol East) Scott Mann MP (Conservative, North Cornwall) Dr Mathew Offord MP (Conservative, Hendon) Joan Ryan MP (Labour, Enfield North) Mr Gavin Shuker MP (Labour (Co-op), Luton South) The following Member was also a member of the Committee during the inquiry Margaret Greewood MP (Labour, Wirral West) Powers The constitution and powers are set out in House of Commons Standing Orders, principally in SO No. 152A. These are available on the internet via www.parliament.uk. Publication Committee reports are published on the Committee’s website at www.parliament.uk/eacom and in print by Order of the House. Evidence relating to this report is published on the inquiry publications page of the Committee’s website. Committee staff The current staff of the Committee are David Slater (Clerk), Lauren Boyer (Second Clerk), Tom Leveridge (Senior Committee Specialist), Tom Glithero (Committee Specialist), Emily Purssell (Committee Researcher), Ameet Chudasama (Senior Committee Assistant), Baris Tufekci (Committe Assistant), and Nicholas Davies (Media Officer) Contacts All correspondence should be addressed to the Clerk of the Environmental Audit Committee, House of Commons, London SW1A 0AA. The telephone number for general enquiries is 020 7219 5776; the Committee’s email address is [email protected]. The Airports Commission Report Follow-up: Carbon Emissions, Air Quality and Noise 1 Contents Summary 3 1 Introduction 5 2 Air Quality 6 Introduction 6 EU Limit Values 6 Vehicle Emissions Modelling and Future Testing 7 High Court Ruling 8 Appraisal of Sustainability 9 Interpretation of Compliance 10 Health Costs 11 Low Emission Technology 12 Conclusion 12 Surface Access 13 Requirements 13 Accountability and Capacity 15 Conclusion 15 3 Carbon Emissions 17 Background 17 International Aviation and the Climate Change Act 2008 18 Non-CO2 Emissions 20 Conclusions 21 4 Noise 23 Introduction 23 Mitigating Measures 23 Respite 23 Night Flights 24 Like-for-Like Comparisons 25 Fewer People Affected than Today 25 Conclusion 28 Independent Aviation Noise Authority 28 Noise Attitudes Survey 30 Engagement 31 Conclusion 32 Conclusions and recommendations 33 Formal Minutes 37 Witnesses 38 Published written evidence 38 List of Reports from the Committee during the current Parliament 39 The Airports Commission Report Follow-up: Carbon Emissions, Air Quality and Noise 3 Summary In November 2015 we published an interim report on the Airports Commission’s recommendation for airport expansion in the South East of England. In October last year the Government announced its support for a third runway at Heathrow Airport, in line with the Commission’s recommendation. The Government has since published a draft Airports National Policy Statement. This report is a follow-up to our first report. We have seen little evidence so far of the “step change” in the Government’s approach to environmental mitigation which we called for in our interim report. To inform the National Policy Statement process, the Government needs to set out new modelling on air quality following the High Court’s latest ruling and a new approach to air quality post 2019; an emissions reduction strategy that will allow the UK’s carbon budgets to be met and effective noise mitigation measures enforced by an Independent Aviation Noise Authority. The Government must not allow our air quality standards to be watered down as a result of leaving the EU. On air quality, the Government must produce a new air quality strategy, following the latest High Court judgement, to determine whether Heathrow Airport expansion can be delivered within legal air quality limits. It should set out how it will avoid an increase in the number of serious breaches of EU air quality limits. Surface access is widely considered the main contributor to airport related pollution. There is no agreement about the costs of required access improvements between the Government, Transport for London and local authorities. The Government must produce a fair assessment of the costs of expected transport improvements needed. We foresee legal and commercial risks if monitoring and responsibility for delivering measures such as Heathrow’s “no more cars on the road” pledge are not clearly set out. Such measures will only have credibility if they are legally enforceable. In our report, ‘The Future of the Natural Environment after the EU Referendum’, we called on the Government to ensure that the UK has an equivalent or better level of environmental protection after we leave the EU. Our air quality standards, which derive from EU legislation, are no exception, and the Government should set out in response to this report, and during the National Policy Statement process, how it plans to maintain or improve upon current air quality standards. There has been no clarity from the Government on carbon emissions. The Government’s headline cost-benefit analysis for Heathrow expansion is based on a hypothetical international framework to reduce emissions which would leave international aviation emissions 15% higher than the level assumed in the Fifth Carbon Budget (2028–2033). The Government has said Heathrow “can” be delivered within emissions limits but it hasn’t decided or stated what these limits are. It is considering rejecting the Committee on Climate Change’s advice on the limits that should be adhered to and the level of passenger demand which is compatible with those limits. The Government’s revised aviation strategy must set out its approach to reducing emissions, the target it will work to and the measures it will take to close the policy gap between where we currently are and where we will need to be in each carbon budget period to 2050. If the Government does reject the Committee on Climate Change’s advice on aviation emissions it should 4 The Airports Commission Report Follow-up: Carbon Emissions, Air Quality and Noise set out clearly the resulting additional emissions reduction requirements on other sectors of the economy and the resulting costs to those sectors. These assumptions should be tested with industry and subjected to independent scrutiny by the Committee on Climate Change. On noise, in order to minimise the impacts for local communities, the Government must follow the Airports Commission’s recommendations on providing predictable respite and the timing of a night flight ban. The Government’s noise targets should be more ambitious and be assessed against the projected impact of a two-runway airport as well as the position today. The need for an authoritative Independent Aviation Noise Authority remains clear. The Airports Commission Report Follow-up: Carbon Emissions, Air Quality and Noise 5 1 Introduction 1. In 2015, we carried out an inquiry into the environmental aspects of the Airports Commission’s recommendation for airport expansion in the South East of England. We set out the key environmental issues that the Government would need to address in respect of carbon emissions, air quality and noise when making its decision. We published an interim report and said we would invite the Secretary of State for Transport to appear before the Committee, should the Government proceed with expansion in line with the Commission’s recommendation.1 2. On 25th October 2016 the Government announced its support for a new north-west runway at Heathrow Airport as its preferred option to deliver airport expansion in the South East. On the same day we announced our intention to call the Secretary of State for Transport, Rt Hon. Chris Grayling MP to scrutinise how environmental concerns would be addressed. 3. We contacted those who provided oral evidence during our previous inquiry, inviting them to submit further evidence in light of recent developments for this one-off evidence session. We are grateful to those who submitted written evidence for taking the time to do so. 4. The aim of this hearing was to focus on the action that Government has taken since our previous report. The purpose of this report is to build on our interim report and identify areas that require more consideration and action by the Government if it is to deliver the “step change” in approach to environmental mitigation that we called for in our previous report.2 5. The Secretary of State for Transport published a draft National Policy Statement (NPS) for airports expansion on 2 February 2017. This will be consulted on, examined by a departmental Select Committee (or Members of several such Select Committees meeting together) and a final National Policy Statement is likely to be debated on and voted on by the House.3 If it is approved, then a detailed planning application will follow. Due to the timing of publication, the Committee has not had time to analyse the draft National Policy Statement or the accompanying documentation in great detail.
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