Airports National Policy Statement

Andy Slaughter Excerpts

Thursday 7th June 2018 Westminster Hall

[Lilian Greenwood]

I cannot comment on the pay and benefits for staff who work at Heathrow. Undoubtedly, both Heathrow and Gatwick airport have sought to influence the decision made by hon. Members here today. The Select Committee’s role is important in ensuring that people have independent and objective information that enables them to make a decision.

[Andy Slaughter (Hammersmith) (Lab)]

My hon. Friend is making a good case, and I look forward to hearing the “buts”. It is correct that for a brief moment Gatwick was in the frame, but for many years before that, Gatwick was simply a satellite of Heathrow and controlled and silenced by it. Now that the Government have been so partial and so partisan, again the only name in the frame is Heathrow, so my hon. Friend is making exactly the right point, which is that Heathrow is the dominant voice, but does she agree that it is perhaps much more so than she has said so far?

[Lilian Greenwood]

I think Heathrow is the dominant voice, but in part that is because it is our only hub airport. Many of the arguments that the Government have put forward are predicated on the importance of that hub status, although I will address some of the other points, which I am sure my hon. Friend will want to hear.

Right hon. and hon. Members will have seen the Department for Transport’s latest summary, which rehearses some of these arguments with some very nice graphics, so I need not say more about it than that. Our inquiry sought to get into the detail of the scheme and how valid concerns about the Government’s approach might be addressed in a final NPS before Parliament was asked to approve it. I confess that when we sought this debate, we did not anticipate that the Government would have already laid their final version of the airports NPS, which happened two days ago. I commend them for their speedy actions. I welcome the Secretary of State’s remarks in the Chamber on Tuesday in which he thanked the Committee for the scrutiny we completed. I also recognised the shadow Secretary of State’s acknowledgement that we “left no stone unturned” in our report.

Conducting detailed scrutiny is absolutely critical, and I am immensely proud of the detailed work that our Committee completed within the time available. The Heathrow plans have been more than 20 years in the making. The implications of Parliament’s decision will last even longer. It is important that we get this right.

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[Lilian Greenwood]

The hon. Gentleman is of course concerned about the impact on his constituents. I think that he is right, and the Committee identified that only one set of flightpaths was used in the NPS. Of course it is important that people understand who might be affected and how they might be affected before we reach a decision. That was precisely why we asked for more evidence to be presented on the scale of noise impacts.

On surface access, we recommended that a condition be included in the NPS that ensures approval can be granted only if the target for no more airport-related traffic can be met. Heathrow has ambitious targets for modal shift, as it aims to increase the proportion of passengers and staff travelling to the airport by public transport. While there is a plan for significant investment in London’s transport network, whether that will be sufficient to cope with the extra demand remains uncertain. Without the condition recommended by our Committee, what incentive or enforcement mechanism will be in place to ensure that Heathrow meets its pledge?

[Andy Slaughter]

Unlike the Government, Transport for London has done a lot of work on this issue. The substantial improvements to public transport—Crossrail and the upgrade of the Piccadilly line—will be made to deal with additional pressures in London that are already priced in. Not only is there this huge bill for £10 billion to £15 billion that ultimately the public will have to pick up, but London is losing out by losing that additional capacity, and neither of those absolutely vital factors appear to have been taken into account by the Government; I hope that they have been by the Committee.

[Lilian Greenwood]

My hon. Friend is right that the Committee will look closely at what the surface access needs are. It is fair to say that in the evidence we have heard there was considerable disagreement between the Government and Heathrow Ltd, and Transport for London. However, it is clear that if additional investment is needed the airport would be required to make a contribution to cover the costs of those improvements that would impact on their passengers and workers.

Our support was premised on suitable mitigations being in place to offset impacts on local communities affected by noise, health and social impacts. Now is the time to set the criteria and the limits of environmental impacts that Parliament deems necessary for the scheme to go ahead. That will enable the planning directorate to do its job and ensure that Heathrow’s detailed plans can be judged against the criteria set by Parliament.

Our Committee also wanted to ensure that the conditions of approval in the NPS provided enough safeguards for passengers. People will rightly say that this is a privately funded scheme, but investors expect a return on their capital. It is airlines and their passengers who will pay for that return and ultimately bear the financial risk of this scheme. The CAA has done some preliminary work on the scheme’s ability to be financed, but questions remain over whether it can be paid for without increasing charges for passengers. Heathrow is already the most expensive airport in the world, and the evidence we received suggests that if airport charges were to increase significantly the benefits of expansion would be diluted. Fewer passengers would use the airport and Heathrow’s competitiveness as a hub, particularly in comparison with its European counterparts, would be undermined.

The Secretary of State expressed his desire to keep charges flat, but desire is not enough; we recommend that it be translated into a firm condition of approval in the NPS. Every single airline that we heard from reiterated this view. The Government are relying on the CAA to meet their ambition to keep charges flat, but can the Minister give us confidence that that ambition will be achieved, given that history suggests that Heathrow’s charges have increased each time it has made a significant investment in infrastructure?

Our support was also premised on suitable measures being in place to guarantee benefits for regional passengers. There is a risk that domestic routes will be priced out of an expanded Heathrow and that the non-London regions and Scotland, Wales and Northern Ireland will be left with fewer direct connections from their own airports and potentially no new domestic slots into Heathrow. We recommended that the Government outline more clearly how they intend to secure 15% of new slots for domestic connections, including the policy levers they will use to achieve that target.

The Government have said that they believe most routes will be commercially viable and that public service obligations will be their main policy lever to secure domestic routes. Can the Minister explain how PSOs can be used to secure domestic slots, because I believe that they could be used only on a city-to-city basis, provided there is an overriding social need? What other mechanisms are available to secure slots for the regions and nations?

The final objective of our scrutiny was to ensure that any risks of a successful legal challenge were minimised. The north-west runway scheme can be legally challenged at two stages of the approvals process, the first of which is the immediate period after the NPS is designated by Parliament. A legal challenge can be mounted, not on the contents of the NPS document but on the way in which the consultation was conducted. We recommended that the evidence base be comprehensively updated and that its robustness be improved, to ensure that the consultation has been completed in a comprehensive manner and to avoid a successful legal challenge at the first hurdle. Is the Minister confident that he has done enough to address our concerns?

The scale of this project and the grounds upon which a legal challenge can be mounted suggest that there are still more hurdles for this scheme to overcome if it obtains Parliamentary approval. Even in a best-case scenario, a scheme is not going to be delivered until 2026. It is therefore essential that we make best use of the UK’s existing airport capacity in the interim, and our Committee has recommended that the Government develop a strategy to do so. Can the Minister tell us whether the Government intend to develop and implement such a strategy, so that aviation growth can continue across the country while the Heathrow scheme is being developed?

In conclusion, the Committee’s support for the north-west runway was conditional on the concerns that we identified in our report being addressed by the Government in the final NPS laid before Parliament. The Committee has not yet had the opportunity to discuss whether we believe our conditions have been met. Ultimately, it is for every Member to form their own judgment on the Government’s proposal. I hope that our report has provided Members with a strong foundation upon which to make that judgment.

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[Andy Slaughter (Hammersmith) (Lab)]

It is real pleasure to see you in the Chair, Mr Hanson. It has been an enjoyable debate so far—it has cheered me up, as did the report from the Select Committee, ably chaired by my hon. Friend the Member for Nottingham South (Lilian Greenwood). It also cheers me up that, with each document we have collected from the Vote Office over the past week, we are further away from having this ridiculous third runway built than we were a week ago.

I share the incredulity of hon. Members on both sides of the House about this Government and successive Governments, but not the Committee, save in respect of its clinging to the conclusion despite its own evidence. I scratch my head and puzzle about why a private company that clearly does not have the interests of the population or the economy of this country at heart is constantly taking in Government after Government, despite the evidence presented to them again and again.

We have another Minister here who will get up and gamely defend the conclusions, which look increasingly threadbare. The Government have not just been an unfair referee biased towards one side; they have joined one team. They have closed their ears to the glaring anomalies, to anything inconvenient and to the negligence in many of these documents.

The right hon. Member for Putney (Justine Greening) mentioned in her urgent question this morning the probity issue of giving indemnities to such a company. Sooner or later that will come to light and people will come to their senses. I hope that will happen in the next two weeks in the course of the vote. I will be interested to hear the comments from the Scottish National party and from colleagues from other regions of the country—not just London and the south-east—that are increasingly waking up to the problem. If we do not win the vote, I suspect we will come to our senses during the course of the very substantial legal proceedings over the next few years.

I hope that it does not take the actual fulfilment of the scheme, or the attempt to fulfil it, to show how misplaced it has been, because then we will have wasted not only huge sums of public money, but a huge opportunity, because there is a need for airport expansion, but in a way that is balanced throughout the UK and, as the right hon. Member for Putney says, is a national airport strategy. I cannot understand, with all the resources that the Department and the Government have, why they are settling for such a scheme.

I shall go back a few years to show how the arguments have changed. Those of us who represent constituencies affected by Heathrow used to be classified as nimbys. I do not think we mind being nimbys when we stand up for our constituents on a significant issue for which there is no justification on the other side. We are talking not about a small inconvenience, but about villages and hundreds of people’s homes being destroyed. My hon. Friend the Member for Plymouth, Sutton and Devonport (Luke Pollard) talked about how air quality has real effects on people’s quality of life and actual survival. We must not put additional pressure on an area that already has some of the worst air quality in the country, and additional congestion in one of the most congested parts of the UK.

The M4-M25 junction is constantly the busiest part of the motorway network in the area, risking safety and health. Leaving even terrorism and the airline industry’s safety record aside, we will be attempting to fly over the most crowded and densely populated area that any airport serves. With three runways, there will be little opportunity to avoid a cataclysmic disaster in the event of a crash.

On the issue of noise, I sometimes wonder why we do not stop this farce at a time when the 28% figure is used: 28% of all serious noise caused to people living around airports in Europe is caused to people living around Heathrow, and the Government want to make that significantly worse. According to Transport for London and the Mayor of London, an additional 200,000 people will be seriously affected. I am not sure that would be countenanced in many other civilised countries, but we quite blithely seem to go forward with it. Those are the nimby arguments, and I do not apologise for such important arguments. On balance, they should have meant that we never considered Heathrow because there were alternatives. The obvious alternative, with none of those consequences, would be the expansion of Gatwick, but the argument has moved on, which is why we should be particularly grateful to the Select Committee

Most of the evidence that the Select Committee considered was more about the national situation and the economic case. Heathrow used to be trumpeted as being streets ahead in terms of the economic benefit, but shortly after the Committee reported it turned out that it was barely ahead and now appears to be some way behind Gatwick. That is a significant change. If I were an aviation Minister, I think I might stop and think about that and decide whether I was doing what was in the best interests of the economy of this country.

If we look at the increasing passenger numbers, taking out transfer passengers, the figures are finely balanced, perhaps in favour of Gatwick. If we look at destinations, it is the same thing. I will not repeat the points ably made by the hon. Member for Windsor (Adam Afriyie) about the effect on regional airports and the fact that not only is there no guarantee that there will not be a loss of direct flights, as the Chair of the Committee has said, but that they will be competing for access into Heathrow with more lucrative flights, and we know the way Heathrow sells those flights. That is a disaster for the regions.

I think the Minister was in the House earlier in the week when the statement was made to hear Birmingham MPs asking why, when Birmingham Airport is going to be 30 minutes away from London and is the UK’s second city with one runway, do we want to put a third runway into Heathrow, particularly when most of the Members around that third runway are saying, “We do not want it. It is a ridiculous idea. Do not bring it here.” For all those reasons, I entirely endorse the conclusions that the Select Committee came to.

The right hon. Member for Putney raised the issue of risk in the main Chamber this morning. I am sure that the Minister will explain whether Heathrow was given beneficial treatment in that regard, relative to Gatwick, because I understand that is what he said in the main Chamber this morning. He perhaps needs to clarify that point.

I am increasingly annoyed by the way in which, without any evidence at all, the Government dismiss the evidence put forward by the Mayor and Transport for London. They know what they are talking about in relation to London’s transport network. They know how much pressure it is under and what the additional costs are likely to be. I have seen nothing to indicate that the Government have prepared their own robust figures on that. If they accept the TfL figures, or even part of those figures, will the Minister repeat the assurance that I think he gave to me this morning, which is that every single penny of additional cost and opportunity cost arising from the construction of a third runway, and indeed every aspect of risk, will be borne by the private developer and not by the Government? I do not know whether he can give such assurances.

I do not want to take up a huge amount of time, but I do think that the way Heathrow has conducted its case has been misleading. I have seen that for 30 years. We have seen that with the justifications for building additional terminals, the mitigation that does not happen and the promises that are constantly broken, and now we hear that those promises should never have been made in the first place. Well, that is a great comfort to my constituents, as I am sure the Minister can imagine.

On the issue of flight paths, how can the 2 million people who live around the Heathrow catchment area in west London possibly know what to expect? They are being sold a pig in a poke. One thing the Government could do is put pressure on NATS and on Heathrow to produce at least provisional flightpaths to show what the effect will be. Otherwise, the assumption is that things are being done deliberately so that people do not realise until it is too late what the consequences will be.

I entirely agree with what the hon. Member for Windsor said about the energy from waste plants: 450,000 tonnes a year of non-recyclable household and commercial waste, mostly serving NHS trusts. That is an essential facility and there is no provision for its replacement. Such inconveniences are simply ignored.

We got a letter today from the former chair of the Commission, which purported to look at the arguments against Heathrow, about why it dismissed them, but it did not. The arguments are perfectly right. The obsolete nature of a hub model that has been the only possible model for a city such as London, given the changes in aircraft and aviation practice, is not dealt with. The issue of detriment to regional airports is not dealt with, and the issue of carbon emissions is not dealt with. We know what the arguments are and what the evidence is. We are constantly amazed by how the Government will not properly address those issues. I know that the Minister will have another go today, but we will see where we get to on that.

I will end by repeating what other Members have said. The Select Committee has done us a real favour, because it can be seen, particularly in the light of its conclusions, to be independent and rigorous and to have put forward many caveats. Rather than the inadequate response we have had so far, we would like to see, before we are called on to vote on this in a few days’ time, robust responses to the points that have been made. If not, it is difficult to see how any Member—I hope the Government will allow its own Members a free vote—could in conscience vote for a proposal that, however much they might see the advantages, has not satisfied any of the points of mitigation that were put forward and has not dealt with the evidence that there are better and less damaging alternatives.

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[Andy Slaughter]

While we have been here, a constituent sent me a letter that had been sent to The Scotsman, the end of which reads:

“Scottish airports not pursuing a more independent approach will fail to break a dependency that could be vital for an independent nation. Surely a better approach to accepting Heathrow offering breadcrumbs is to build vibrant international capacity…By using modern point-to-point aircraft this will create air passenger-friendly economic activity independently of the mores of the south-east and the outdated hub-and-spoke.”

Does he not regard that as a call to arms?

[Alan Brown]

I agree with the call for independence, and it was great to hear the right hon. Member for Putney (Justine Greening) giving advice on what an independent Scotland would look like. However, even if Scotland becomes independent, we can still have the same connectivity, as that is separate from being independent. We want to be an independent country with connectivity all over the world. However, the truth of the matter is that, with regard to the expansion of Scottish airports, many of the chief executives of Scottish airports I have spoken to want Heathrow expansion. Truth be told, they would accept Gatwick expansion, but they all say that they need that extra connectivity into the main London airport. That is the reality; it is not a factor of independence. In an ideal world we would have a major international hub in Scotland, but we do not have the critical mass.

People either support Heathrow expansion, support it with a “but”, or outright oppose it. Those who oppose it are more likely to be here on a Thursday afternoon to make their contributions heard. It has been a really good debate. Every Member, no matter their viewpoint, has complimented the excellent work done by the Transport Committee. It has published an excellent report, and I must pay tribute to the Committee’s Chair for the thorough way in which she presented it.

I am pleased that a briefing was provided for MPs. Unfortunately, I was unable to attend, but the briefing notes were excellent, giving a concise summary of some of the issues that still need to be teased out. It will be good to hear the Minister’s response. Like others, I pay tribute to the work the Clerks have done. Although I have not been involved, I know how the Clerks work, and it is great to see the report and information presented concisely.

The Committee Chair highlighted fairly that this issue is not just about connectivity; it is also about the individual people who will be affected. I am conscious that I am a Scottish MP who will be asked to vote on a decision that affects people who are not my constituents. I accept that and understand that some local people affected might be a wee bit angry about that, but unfortunately the reality of a major infrastructure project is that some people will be affected. We must look at the pros and cons, and these people should be adequately compensated and looked after. That is the flipside of a dynamic—other MPs are now advising me as a SNP and Scottish MP on what view I should take—so it works both ways.

The Committee Chair also importantly outlined the risks of inaction—decisions not taken and no further expansion of a hub airport—in terms of the potential loss of business to other European airports. She and others highlighted the risk of the project not being delivered in Heathrow’s timescale by 2026. A pertinent point is that it could be built by 2026 and operating at full capacity by 2028—it seems counter-intuitive that it could be at full capacity just two years after its projected opening. That suggests that it is not a forward-thinking business plan. It would be good to hear comments on that.

The Chair and other Members highlighted surface access issues, particularly road traffic, the required air quality updates and the fact that there are openings for legal challenges. Again, the Minister’s response must cover that in detail. The Chair concluded by saying that the Committee’s support is conditional. It clearly has yet to meet to discuss further the Government’s response, but it is a fair comment that the report must surely have helped other Members decide how they will vote when the time comes to make this big decision. I again pay tribute to the Committee for the work it has done.

I congratulate the hon. Member for North Thanet (Sir Roger Gale) on his 35 years in Parliament. He highlighted the success of and threats from competing airports. He touched on the personal aspect of understanding how Heathrow can affect constituents but still laid out his support for the plan. I commend him for shoehorning in a connection to Manston airport and for suggesting that it could be used as a stopgap for freight transport.

We then heard from the hon. Member for Brentford and Isleworth (Ruth Cadbury), who has been campaigning against Heathrow expansion for a long time. I respect her view. She correctly highlighted flightpath concerns, and I agree that there should be more transparency on flightpaths so that people fully understand the implications. She also highlighted issues about other traffic movements.

The right hon. Member for Putney has been dogged on this issue. I commend her for securing an urgent question today. She highlighted what she sees as the financial considerations and risk to the Government in having to underwrite the project. We need further clarity. I am well aware that the Government say that there is no financial risk involved because it will be fully by the private sector, but we need absolute clarity on that. She touched on massive concerns for Scotland relating to infrastructure and growth. I welcome her conversion to Scottish independence. I appreciate what she said about Transport for London’s commitments to surface expansion potentially drawing away further investment, but the reality is that Transport for London has a different borrowing model, so that will not directly affect infrastructure spend in Scotland. That is a bit of a red herring, to be honest.

The hon. Member for Plymouth, Sutton and Devonport (Luke Pollard), having analysed this and being a member of the Transport Committee, was another “Yes, but.” He highlighted the real importance of western rail access not just for Heathrow, but for wider western connectivity. It seems that that project should have gone ahead sooner rather than later.

The hon. Member for Windsor (Adam Afriyie) came at this from the national interest approach. He made the argument that it is not in the national interests, and as a Tory he argued about the financial implications. Interestingly—this is almost a conspiracy theory—he believes that Heathrow is not going to develop and that this is just a mechanism to control competition. Depending on what happens with the vote and how we go forward, we will see whether those chickens come home to roost, but I suggest that Heathrow seems to have spent a lot of money and effort so far, and to do so for a scheme it does not intend to progress with would be quite surprising.

[Alan Brown]

I take the hon. Gentleman’s point that there is a financial benefit to spending the money if it eliminates the competition, but clearly if Heathrow stymies routes and development going forward, it opens up some of the other opportunities that at the moment we are saying do not exist. I am not sure it would be in its long-term interests to be able to do that.

The hon. Member for Hammersmith (Andy Slaughter) said that this debate has cheered him up. I presume that is because quite a few people spoke in opposition—I am not sure that I will cheer him up as I continue. He highlighted concerns about flightpath and cost. As a flippant aside, I must commend him for the coherent speech he has made from the scribbles he makes on his paper. I do not know how he manages to do that, and I commend him for it.

[Andy Slaughter]

It is not me; it is Hansard.

[Alan Brown]

We all have to thank Hansard for making us seem more coherent.

The hon. Member for Keighley (John Grogan) gave us a Yorkshire perspective. To cheer him up, one of my grandparents was from Yorkshire, so I am one quarter Yorkshire—maybe I am an honorary Yorkshireman. He suggested that there should be a three-line Labour Whip against this. It will be interesting to see what the shadow Minister says about that recommendation; maybe he can give us some guidance in his summing-up speech. The hon. Member for Keighley was another one giving advice to the other SNP MPs and me on what is in Scotland’s interests. I take his point about the possible risk to direct, point-to-point, long-haul connections and some of the threats predicted for regional airports. I also have concerns and would want some protection. I want to hear what the Minister says about that.

The final Back-Bench speech was from the hon. Member for Ealing Central and Acton (Dr Huq), who again highlighted the environmental and social impacts and how traffic can affect air quality. I was trying to follow her logic. It seems that she wants the Tories to U-turn on their decision not to overturn the previous Labour decision. That seems to highlight how long this has been kicking around, how much prevarication there has been and, if nothing else, why we need to get to a decision.