National Policy Statement: Airports

Debate between Lilian Greenwood and Justine Greening

Monday 25th June 2018 Commons Chamber

[Lilian Greenwood (Nottingham South) (Lab)]

Fast, reliable and affordable transport has the power to make a real difference to people’s lives. That is why I am a passionate believer in the transformative power of improving transport. If Britain is to have any chance of succeeding in a post-Brexit world, improved connectivity, both outside our islands and around them, is key. Among the most pressing of the challenges facing our transport system is the need for additional airport capacity in the south-east of England. Failure to address that challenge will mean less choice, more disruption and higher air fares for UK passengers. Along with the other members of the Transport Committee, I agree that building an additional runway at Heathrow is, in principle, the right answer to our aviation capacity challenge, provided there are safeguards and mitigations to protect passengers and affected communities.

The Secretary of State has already set out the economic benefits that could be achieved with expansion. The case is compelling, but have the Government been as candid with MPs and the public as this decision deserves, acknowledging not just the benefits but the costs and risks? Ensuring that the NPS properly reflects the weight of evidence in the supporting documents was the first objective of the Transport Committee’s report. Our Committee’s detailed analysis of the Department for Transport’s forecasts revealed that future passenger growth, and the destination and route offering at the UK level, are broadly similar over the longer term to those of the other schemes. That is not reflected in the final NPS.

At the current costs anticipated for the north-west runway scheme, there is a very real possibility that domestic routes from Heathrow will not be commercially viable. Ministers have told us that they intend to use public service obligations to guarantee regional connections, yet their own 2013 guidance on the use of PSOs states:

“Government considers it unlikely that PSOs would be appropriate for new routes from the regions to London.”

What has changed since 2013 to make a policy that was ruled out then viable today? Even if PSOs could be used, it is not clear what level of subsidy would be needed and whether those subsidies would be provided in perpetuity.

[Justine Greening]

That is an important point, and it has not yet been raised—PSOs will require subsidies. For example, in Cornwall, Cornish taxpayers are subsidising the PSO, but those flights are to Gatwick. If Heathrow has a PSO, it will be way more expensive for taxpayers, and they are unaware of that.

[Lilian Greenwood]

I hope the Minister addresses the issues around PSOs in his closing remarks.

The analysis supporting the decision is extensive; what is lacking is a fair and transparent representation of the information in the NPS to the House. For example, the Committee’s scrutiny revealed that the Department’s methods of presentation hid compelling noise modelling showing that more than 300,000 people are estimated to be newly affected by significant noise annoyance due to an expanded Heathrow. The total number of people in the noise annoyance footprint is estimated to be more than 1.15 million. Our investigations also indicated that those estimates are likely to be toward the lower end of the scale of potential impacts.

Airports National Policy Statement

Debate between Lilian Greenwood and Justine Greening

Thursday 7th June 2018 Westminster Hall

[Lilian Greenwood (Nottingham South) (Lab)]

I beg to move,

That this House has considered the Third Report of the Transport Committee, Airports National Policy Statement, HC 548.

It is always a pleasure to serve under your chairmanship, Sir David. I begin by thanking the other members of the Select Committee on Transport for their work in quite a long and involved inquiry. I am very pleased to see my hon. Friends the Members for Plymouth, Sutton and Devonport (Luke Pollard) and for Cambridge (Daniel Zeichner) here today.

If deciding to build an additional runway at Heathrow airport was easy, it would have been done long before now. It is not, which is why successive Governments, over decades, have dodged and deferred the decision. One reason why the issue is so difficult is that it will affect the lives of many thousands of people—those living in the communities close to the airport, those who work at the airport, and passengers and businesses that rely on the connections that it provides. Our report and much of the debate about the decision focus on the big picture, the economic growth that a new runway will facilitate, the billions of pounds of investment required to build it, the jobs and apprenticeships created and the number of households affected by new noise or air pollution. It is right that we recognise the importance of the decision for the whole of the UK. For Britain to succeed, improved connectivity, both outside our islands and around them, is key.

However, we should also recognise that this is about individuals, be they the family whose house would be demolished to make way for the new runway, the passenger who wants an affordable flight to visit their family abroad or the small business owner who needs to get their goods to markets around the globe. Our decision will change their lives. We must be mindful of the consequences and, where there are adverse impacts, as we know there will be, we must do all we can to mitigate or compensate for them.

Let me explain the process and the Select Committee’s approach to our role in it. The airports national policy statement is Parliament’s opportunity to vote on the Government’s policy to provide additional runway capacity in south-east England through the construction of a north-west runway at Heathrow airport. If approved, the final airports NPS provides the framework and criteria against which a development consent application will be judged.

The airports NPS is different from other transport-related national policy statements considered by our predecessors. It not only identifies a specific site but details a specific scheme. It applies only to a north-west runway at Heathrow airport; it is not applicable to any other scheme to build an additional runway. If for any reason that scheme fails, through legal or financial difficulties, no other scheme—not even an alternative design on the site at Heathrow airport—can easily fill the void under this NPS.

Under the Planning Act 2008, our Committee was designated to carry out parliamentary scrutiny of the Government’s proposal. We did not try to put ourselves in the Government’s shoes and consider whether we would have chosen the same option; rather, we scrutinised the decision that they had made. It could be said that we marked their homework. In conducting our inquiry, we had four overarching objectives: to ensure that the Government had adequately explained their case for runway expansion and for choosing the north-west runway scheme at Heathrow; to ensure that the evidence supporting the NPS was robust and was accurately reflected in the final document; to ensure that the conditions of approval in the NPS provided enough safeguards for affected communities and passengers; and to ensure that any risks of a successful legal challenge were minimised.

The Government outlined their case for additional runway capacity in south-east England in chapter 2 of the NPS, and we broadly agreed with the Government’s position. Heathrow airport is already full, and other London airports are operating at capacity during peak times. All major airports in south-east England are expected to be full by the mid-2030s, with four out of five full by the mid-2020s. Doing nothing has consequences. If we fail to tackle the demand for extra runway capacity, that will result in less choice, more disruption and higher airfares for passengers. The UK’s competitiveness may already have been damaged as other European hub airports have expanded their global networks. Capacity constraints do not impact just on passengers; trade opportunities through air freight may be forgone, and inward investment may be diverted to other European countries with better connectivity.

The Government outlined their case for additional runway capacity at Heathrow through a north-west runway in chapter 3 of the NPS. Maintaining the UK’s hub status in Europe is the Government’s overriding objective in developing their preference. Heathrow is the UK’s only hub airport and it is one of Europe’s leading hubs. Some 78 million passengers travelled through Heathrow last year. It is unrivalled in the UK for density of airlines, connections and transfer passengers. That makes it possible to sustain routes that would simply not be viable as point-to-point links. The clear preference of the airlines is to expand at Heathrow, although not at any cost. The connectivity benefits would be greater and realised sooner from the north-west runway scheme than from the other schemes considered—the one involving Gatwick airport and the one for an extended northern runway at Heathrow—although it should be noted that the extent and timing of the benefits of the north-west runway scheme are contingent on its being delivered on time, on budget and to the capacity assumed.

Air freight is also critical to the UK economy. Freight capacity is the other major comparative advantage that the north-west runway scheme offers, compared with the alternatives. Heathrow is already the UK’s busiest port by value, handling £360 million-worth of goods each day and accounting for 30% of the UK’s non-EU exports.

Those are the arguments that have persuaded many businesses and many of our constituents across the country that Heathrow expansion is needed, and that have led our Committee both to conclude that the Government are right to pursue development at Heathrow and to accept the arguments that they have made in favour of their preferred scheme.

We recommended that the planning process moved to the next stage by approving the airports NPS, provided—this is important—that the concerns identified in our report were addressed by the Government in the final NPS that they laid before Parliament. Our conclusion could be described as “Yes, but”. My contribution today will spend more time on the “but” than the “yes”, primarily because I am conscious that few colleagues will have escaped Heathrow’s very effective campaign setting out the benefits of expansion. Anyone who walked through the tube station here at Westminster will have seen posters showing some of the arguments.

[Justine Greening (Putney) (Con)]

The hon. Lady is making an important point. Of course, all those Heathrow teams will be getting massive bonuses personally if they are able to persuade this place to vote for the NPS.

[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.

--- Later in debate ---

[Lilian Greenwood]

My hon. Friend made a fantastic contribution to the work of the Committee in developing this report. He is right. There are two issues in relation to his point. First, the NPS is scheme-specific, so if for any reason it does not go ahead, that limits the Government’s options. Having said that, even if it does go ahead in the best possible scenario, it would not be open until 2026. That is why one of our recommendations —I will come to this later—is about the better use we make of all our regional airports and what needs to be put in place.

We welcome the overall tone of the Government’s response to our report, which was published on Tuesday. It is clear that they have, in principle, taken on board much of our report and clearly acknowledged what we were trying to achieve. The Committee still needs to do more detailed analysis of the Government’s response—we want to be sure that the substance matches the rhetoric. I do not believe that accepting our recommendations in principle is enough. Hon. Members need to decide whether we can just rely on the planning process to provide these necessary safeguards and guarantees, to protect communities and passengers. The parliamentary approval stage of the planning process is designed specifically to set the criteria for approval. It should then be up to Heathrow to meet those requirements.

I want to take this opportunity to explain why the Committee made our recommendations. First, we wanted to ensure that the supporting evidence was robust and accurately reflected in the NPS. We wanted to ensure that MPs are well informed. It is impossible to know with absolute certainty what the exact impacts of this scheme will be but, given the political gravity of the issue, we wanted to ensure that MPs were fully informed of the potential scale of costs and benefits.

Although we accepted the Government’s high-level arguments in favour of their preferred scheme, our investigations revealed that the north-west runway’s advantage over the other schemes considered was not perhaps as wide as was set out. In some cases, the comparative advantage to not expanding at all was small. The strategic case for the north-west runway rests primarily on it delivering more routes to a greater number of destinations, and at greater frequencies, than the other schemes. Our detailed analysis of the Department for Transport’s forecasts revealed that the future passenger growth, destination and route offering at the UK level is broadly similar over the longer term, compared with the other schemes. Most of the passenger growth generated from the north-west runway scheme will be accounted for by outbound leisure passengers and transfer passengers, who offer fewer direct economic benefits to the UK economy. The Government’s own forecasts show that business passenger growth is negligible compared with no expansion.

The anticipated growth in connections to Heathrow is a key reason why the north-west runway scheme has garnered considerable support from regions away from London and the south-east, but there is a concern that the Government do not have the policy levers to guarantee that a proportion of the new slots created will be allocated to domestic routes into Heathrow. Given the costs currently anticipated for the north-west runway scheme, there is a possibility that domestic routes from Heathrow would not be commercially viable. It should also be acknowledged that an expanded Heathrow would abstract growth from non-London regions, with over 160,000 fewer direct international flights each year compared with a no-expansion scenario. This is a nationally significant infrastructure project. It must work for the whole nation and not just for London.

[Justine Greening]

Is the hon. Lady’s point that allowing Heathrow to expand will mean fewer flights for airports outside of the south-east?

[Lilian Greenwood]

Our analysis shows that there would be fewer direct international flights from other airports if Heathrow expansion goes ahead, because there is a clear demand from airlines for slots at Heathrow—a demand that cannot be met because it is currently operating at capacity.

The benefits and costs in the economic case for the north-west runway are finely balanced, and we uncovered some shortcomings in the way the Department for Transport had completed its analysis. Although there are wider economic benefits that are not captured as part of the case, there are also environmental and social costs that are not monetised.

More significantly, the case rests on the scheme being delivered by 2026, and at capacity by 2028. We heard evidence of factors that might prevent delivery of the scheme. We also heard that the Department’s assumption that capacity would be filled within two years of opening was implausible and inconsistent with Heathrow’s own plans. In the Minister’s reply, I would be grateful if he confirmed whether the Government updated the airport’s NPS to reflect the relatively small difference in strategic and economic benefits of the schemes considered, and whether they have fully corrected the shortcomings we identified in how they completed their appraisal.

According to the Government’s analysis, the financial and delivery risks of the north-west runway are the highest of the schemes considered. One of the main delivery risks that our inquiry identified was airspace change. The airspace change required to facilitate the north-west runway is significant, and although it may be deliverable from a technical or safety point of view, the reality is that such change has proved extremely difficult to implement because of its impact on populations beneath routes.

The Civil Aviation Authority is of the view that more substantive reform is required if the change needed to accompany the north-west runway can be delivered in full. We therefore recommended that the Government outline their intended policy approach to delivering airspace change for their preferred scheme as a priority. Is the Minister confident that the airspace change required for the scheme can be delivered in full? What specific reforms do the Government intend to implement to ensure that occurs?

The environmental and community impacts of the north-west runway are by far the greatest of the schemes considered. Our Committee was concerned that the numbers presented by the Government in the draft NPS and the supporting documents did not present the full picture of those possible impacts. Arguably, the future noise impacts present the greatest area of uncertainty for the scheme. Although modern planes are undoubtedly quieter, noise is a key concern for communities, and high exposure to noise can have a serious impact on people’s health.

The Department’s approach to presenting noise exposure nets out the winners and losers from noise changes, but the reality is that community acceptability is more often shaped by the losers who experience new or increased noise. The evidence shows that more than 300,000 people could be newly affected by significant noise annoyance from an expanded Heathrow.

The analysis presented also uses a higher threshold for noise annoyance than is consistent with the Department’s guidance. Using the lower threshold takes the total number of people in the noise annoyance footprint to more than 1.15 million. Our investigation found that the Department’s estimates are likely to be towards the lower end of the scale of potential impacts, and called for greater clarity in presentation.

Noise has real effects on people’s daily lives. It is essential that MPs are fully informed about the scale of the impacts from the scheme when reaching their decisions. I would be grateful if the Minister could explain why the Department has not included those numbers in the latest iteration of its sustainability appraisal.

During our inquiry, a great deal of attention focused on the surface access needs of the airport now and in the future. We commend the Government for expressing policy support for the southern and western rail access, as per recommendation seven in our report. Those schemes are important to achieve modal shift for the two-runway airport and are critical if the north-west runway scheme is to be delivered without having a perverse knock-on effect on other parts of the surface access network.

However, the eventual impact of a north-west runway on road congestion and rail capacity is still highly uncertain, because no comprehensive surface access assessment was published alongside the draft NPS to understand what it would be. We welcome the Government’s publication of figures on the impact that an expanded Heathrow would have in terms of the number of cars on the road, although they have still not published a full assessment. Those figures show that by 2030, if unmitigated, there will be a 33% increase in the number of vehicles on the road with a new runway. Can the Minister explain what surface access schemes are included when modelling those figures, and whether the Department has assessed the surface access schemes that are required to ensure that there will be no more cars on the road, as pledged by Heathrow airport?

Higher Education (England) Regulations

Debate between Lilian Greenwood and Justine Greening

Wednesday 13th September 2017 Commons Chamber

[Justine Greening]

I give way to the hon. Member for Nottingham South (Lilian Greenwood).

[Lilian Greenwood (Nottingham South) (Lab)]

We already know that 75% of students will not pay back their loans, or will not be able to do so. How can the Secretary of State say that the system is sustainable? And what about the young people from disadvantaged backgrounds who increasingly drop out of university because they cannot afford to stay? Is not the removal of maintenance grants part of what is disadvantaging those young people, and they cannot maintain their places at university even if they are fortunate enough to win one?

[Justine Greening]

The facts simply do not support the point that the hon. Lady has made. The facts are that more disadvantaged young people are making the decision to go to university, which I think is hugely welcomed and hugely important.

If Labour is able to pursue its catastrophic policy, our higher education system will be much more broadly at risk. It will not be just a case of students missing out. We have universities that are among the best in the world, but being the best in the world requires continued investment, and a no-fees policy would undo all that success. Funds for universities would dry up, and within a few years there would be a big funding crisis all over again.

Oral Answers to Questions

Debate between Lilian Greenwood and Justine Greening

Monday 11th September 2017 Commons Chamber

[Lilian Greenwood (Nottingham South) (Lab)]

T6. Nottingham faces at least a decade of growing demand for secondary school places. Although the local authority has a duty to provide places, it has no power to direct the city’s 16 secondary schools, all of which will soon be academies, to expand provision or even to admit to their full capacity. Will she act now and require all publicly funded providers to engage and work with their local authority on place planning, or is she simply determined to put her ideological faith in free schools before the needs of our city’s young people?

[Justine Greening]

It is important to see local authorities working with schools effectively and working with them to expand if they are popular. The bottom line is that through the free schools programme we have brought forward thousands of badly needed school places and extra choice for parents, and overwhelmingly these schools are doing a great job at educating our children.

Oral Answers to Questions

Debate between Lilian Greenwood and Justine Greening

Thursday 6th July 2017 Commons Chamber

[Justine Greening]

We heard a question about STEM subjects earlier. That is one of the most important areas where we can really start to level up girls and women in the workplace. More generally, it is important that all girls going through school understand that there is a career ahead of them that they can aim for. That is not just about the subjects they do; it is about ensuring that their attitudes and expectations are suitably high.

[Lilian Greenwood (Nottingham South) (Lab)]

T7. Nottingham Women’s Centre recently launched its “Help through Crisis” report—Big Lottery-funded research that indicates that women often experience multiple disadvantage and have complex needs that are not currently being met. May I invite the Minister to visit Nottingham Women’s Centre, meet some of the women who took part in that research and discuss how she will ensure the provision of appropriate holistic services for women with multiple and complex needs?

[Justine Greening]

I am grateful for that very kind offer. The Under-Secretary of State for Justice, my hon. Friend the Member for Bracknell (Dr Lee), will also have heard that request for a visit. From my personal experience as a local MP, I know the amazing work that many such centres do, so I thank the hon. Lady for her invite and I will ensure that somebody responds. I would love to visit.