Heathrow Expansion: Surface Access

John Hayes Excerpts

Tuesday 28th February 2017 Westminster Hall

[The Minister of State, Department for Transport (Mr John Hayes)]

What a delight it is to serve under your chairmanship, Sir Edward, and to respond to this short but significant debate. I congratulate the hon. Member for Richmond Park (Sarah Olney) on securing it. I know that she cares about this issue a great deal. She follows in the footsteps of a Member who, one might say, was a champion of this cause.

Other Members who have contributed—notably my hon. Friend the Member for Twickenham (Dr Mathias), but also my hon. Friend the Member for Kingston and Surbiton (James Berry) and the hon. Member for Brentford and Isleworth (Ruth Cadbury)—have raised these matters regularly and vehemently. It is right that hon. Members should do that. All those I have mentioned are tireless workers for the interests of their constituents, and they are right to press the Government in the way they have done and continue to do.

[Dr Mathias]

I greatly appreciate my right hon. Friend the Minister’s words. Does he agree that there is now cross-party unity on the need for better information in these consultations, as was so ably expressed by the hon. Member for Richmond Park (Sarah Olney)?

[Mr Hayes]

Yes. It is important, as I said, that the Government are held to account. That is the purpose of debates such as this. I take a plain view about these debates—I do not know whether all Ministers follow my lead, but would that they did, frankly—which is that they must have a purpose beyond the Minister coming with some prepared speech that he reads out, rather like reading the lesson at church, and being unaffected by the contributions made before he speaks. It is important that these debates are a proper opportunity to challenge the Government, to scrutinise what we are doing and to elicit from the Minister a meaningful response, which is what I hope to give today.

To that end, let me start by saying that there is a proper debate to be had about the character of the consultation. We have begun to speak today about whether, in the national policy statement, we should have come to a conclusion about the detailed plans for surface access, and should then have consulted on those plans, or whether one should have a consultation based on the NPS and, from that consultation, discern what is right and go into rather more detail later. That is about how one sees a consultation. One criticism often made of consultations is that they are foregone conclusions. This one clearly is not a foregone conclusion; it is a legitimate consultation exercise, designed, as I have said, to give people the opportunity to make their case, to take their argument to the Government, and the Government will then cogitate, consider and draw conclusions. Hon. Members on both sides of the House would have had every right to complain had we come to a definitive conclusion about these things prior to the consultation and then gone through the motions of a consultation without meaning to take any notice of what local people said. That is not our approach, and it is certainly not my approach.

That said, it is important that we recognise some of the arguments that have been made in this debate, so let us be clear: it is fundamentally important in relation to expansion that Heathrow provides a detailed application, built on a detailed transport assessment, including a surface access strategy. That should be part of the process as we go forward, and it will be. That detailed analysis should be based on the latest available evidence on how the requirements in the airports national policy statement will be met. It is important to appreciate that, as we move to the point at which Heathrow Airport Ltd lodges its planning application, it will be expected to provide that kind of detailed analysis as part of the planning process.

Moreover, the Government have been clear that it would be for Heathrow to meet the full costs of any surface access that was required only for airport expansion. That is set out in the draft airports national policy statement. As has been said, we are carrying out a full consultation, because we want to hear everyone’s views about the detail of that, but I repeat that we are committed to the principle that Heathrow must meet the costs of any surface access changes necessitated by its plans for expansion.

Let me go further and say that the hon. Member for Richmond Park and others are right to point out, in relation to the way people get to the airport, that although no final plans or designs have been approved for the runway and there is a series of options, those changes will require us to think about the public transport needs of those who want to get to the airport. It is certainly our view that a greater proportion of people could be encouraged to use public transport to get to the airport.

The huge investment that is already planned or under way for the provision of better public transport services will play its part. The Elizabeth line—Crossrail—will significantly improve links between Heathrow and central London destinations. From May 2018, four trains an hour will run between Paddington and Heathrow airport, replacing the existing two-train-per-hour Heathrow Connect service. From December 2019, Elizabeth line trains will run from the airport directly to central London destinations, including Bond Street, Liverpool Street and Canary Wharf.

High Speed 2, of course, will connect directly to the airport via the interchange with the Elizabeth line at Old Oak Common, providing a new express route to the midlands and the north from 2026. Transport for London plans to increase capacity and upgrade trains on the Piccadilly line. Network Rail is developing plans for a new rail link from the Great Western main line to Heathrow, which will allow passengers to travel directly to the airport from Reading and Slough, and a new southern rail link from Heathrow to south-west London and the south-west trains network is being developed. My right hon. Friend the Secretary of State for Transport has expressed his ambition to accelerate that scheme, and we are taking that into account as part of the planning process for the next funding period. There is no doubt that with the improved services to which I have referred, we will make available new means by which people can get to and from Heathrow from a range of destinations around London and well beyond it.

I emphasise that it is also true that the draft airports national policy statement recognises that expansion of the airport would have a range of potential impacts on the transport networks around it. Improvements would be needed to make Heathrow’s transport links adequate to support the increased numbers of people needing to access the expanded facility there. The proposition in the draft airports NPS for service access is to require the applicant to develop and implement a surface access strategy, which would mitigate the impact of expansion on the transport network.

That is a clear statement that we recognise the arguments of the hon. Member for Richmond Park about understanding that surface access is a critical part of the development and that its success will depend on getting surface access right. I entirely accept that. That does not seem to be an argument against expanding the airport, but it is an argument in favour of doing so in a way that is sustainable and that links the airport and growth there with the developments that will take place in and around its vicinity, and beyond.

[Sarah Olney]

Could you answer the point I made about freight, because so far your answer has focused specifically on passenger transport—

[Sarah Olney]

Could the Minister respond on the point about freight?

[Mr Hayes]

I will come to the issue of freight, but before I do I want to make a couple more points on passengers and then say something about air quality, which the hon. Lady also mentioned.

As part of the regulatory process, the Civil Aviation Authority is expected to decide how the costs of any capacity-related surface access schemes would be treated as part of the regulatory settlement, including which of the costs would be recoverable from airport users. That is an important additional point that was not specifically dealt with in the hon. Lady’s initial remarks, but she will be reassured that it is a further element in the package of proposals that the Government are bringing forward.

I know that many others have views and estimates of what they believe the surface access costs might be. We do not accept some of the estimates. Some people have said—others might say surprisingly, but I will go so far as to say amazingly—that they might cost £18 billion. We do not accept some of the more extravagant estimates, because no final plans or designs have been approved for the runway. While there is a range of potential options for surface access improvements, it is for the developers to produce the detailed plan, as I said earlier, as part of the development consent order, which will be properly considered through the normal statutory planning processes. In a sense, we cannot prejudge exactly what the needs will be, nor what will be necessary to meet them, but we are clear that, in principle, surface access has to be part of the process that will now take place.

[Ruth Cadbury]

Does the Minister agree that with the known 47% increase in flights that a third runway will bring, it is actually not that difficult to predict the expected increase in passengers, staff movements, freight and air surfacing? Will he consider in a little more depth whether those calculations could be done now within reasonable tolerances?

[Mr Hayes]

Yes, it is true that we could model some of the anticipated increase. I accept that, with the caveat that it is dependent on some of the other things I have already mentioned: the exact design, the balance between access by car and access by public transport, the additional investment we are making in rail, and the whole range of other variables that will affect the character of demand. It is important as we come to the end of the consultation process and listen to what people have to say, and as the application moves forward, that we get greater clarity about some of that modelling. However, at this juncture I would not want to be prescriptive about the character, the shape or, less still, the substance of that. I take the hon. Lady’s point, which was well made, but there are still a lot of variables that prohibit us from being too definitive about some of the modelling at this stage.

I am conscious of time, but I want to say a word about the Environmental Audit Committee’s report on air quality, to which the hon. Member for Richmond Park referred. I recognise the points made about both air quality and surface access following the publication of the Committee’s most recent report last week. To contextualise that, the hon. Lady will know that the Government are considering their air quality plan. We intend to bring a draft plan forward in the spring, with a final plan by the end of July in the summer. It will clearly take into account the recommendations of the Select Committee. All kinds of possibilities are being considered and there has been some speculation on what the shape and character of that air quality plan might be.

Let me be crystal clear, Sir Edward, as I know you would expect me to be: it is very important that we grasp the challenge associated with the relationship between air quality and wellbeing. I discussed exactly that with the British Lung Foundation this morning. The relationship between poor air quality and poor health is well established, and it persuasively argued the case that a range of pulmonary conditions are exacerbated and worsened by poor air quality. We take that very seriously indeed. This is not some high-flown theory about what might happen in centuries’ time; this is about the health and wellbeing of our children, in particular, and of older people and ill people who are especially affected by poor air quality.

We have been clear that as the application for the expansion of Heathrow proceeds, air quality will be salient in all we do. We have been clear that it is important that Heathrow will not proceed unless it meets legal air quality requirements. The Secretary of State made that clear on 25 October in his statement to the House, and I affirmed it in this place in an earlier debate on precisely such matters.

[Sarah Olney]

We were not specifically talking about air quality, but since the Minister has raised it, will the air quality plan include details of any penalties for Heathrow should the third runway go ahead and it is then found to breach the air quality targets that have been set?

[Mr Hayes]

The hon. Lady is eager—eagerness is often a feature of new Members and I congratulate her on it—but she must wait to see what the plan looks like. Then we will be able to debate it at great, but not inordinate, length. She will not expect me to say more about it and what it will include now.

The hon. Lady asked about freight, and it is important to be clear that freight traffic will play a key part in the development of Heathrow—I have no doubt of that. It is absolutely right that a plan anticipating changes in freight movements is made and is subject to scrutiny and debate. We will inspect that plan, and the Government will expect the developers at Heathrow to deliver a cogent, well argued, proper assessment of the impact of any changes in the volume or character of freight traffic and how they might affect congestion, road safety, air quality and all those other matters that are dear to my heart and of concern to this Chamber and the whole House.

I see that I have only a moment or two before we conclude. In summary, I will write to hon. Members about any other matters raised that I have not dealt with. Let me be crystal clear: we will proceed with the expansion of Heathrow only on the basis that it is conducted in a diligent, thorough and sustainable way; for that is the responsible position taken by this Government on all such matters.

Motion lapsed (Standing Order No. 10(6)).