Air Traffic Management and Unmanned Aircraft Bill [Lords]

Richard Fuller Excerpts

2nd reading & 2nd reading: House of Commons
Tuesday 2nd February 2021 Commons Chamber

[Richard Fuller (North East Bedfordshire) (Con) [V]]

It is a pleasure to take part in this debate and to follow the hon. Member for Richmond Park (Sarah Olney). This is a good Bill, and I commend the Minister and his team for its drafting and for bringing it forward at this time. It is a very relevant Bill for Bedfordshire, because, as my hon. Friend the Member for South West Bedfordshire (Andrew Selous) said, many people in Bedfordshire work at London Luton airport and in its associated supply chain. Owing to protocol, as a Minister, my hon. Friend the Member for Mid Bedfordshire (Ms Dorries) is not contributing in this debate, but I am sure that she would want to commend to the House the work of Cranfield University. I believe it is the only university with its own airport, and it plays a leading role in our understanding of aircraft, airport and airspace management.

This is also a timely Bill, because although, as the Minister said, most have paused their consultation work on airspace changes, there is an ongoing consultation on airspace at Luton airport, in combination with Stansted. I wish to draw attention to certain features of that as they relate to this Bill. The Bill rightly recognises that in the allocation and sharing of the limited resource of airspace above the United Kingdom there is a considerable public interest. The Bill focuses, correctly, on making sure that in that process overall public interest is achieved to the best extent as quickly and efficiently as possible. In doing so, it brings to the Civil Aviation Authority and to the Department certain additional ways of compelling airports to make changes that will achieve a speedier resolution of airspace allocations, which will in turn achieve some of our other goals.

One of the most important of those goals is achieving air quality standards and making sure that our aviation industry is sustainable as we seek to achieve our climate change goals. Although the right hon. Member for Hayes and Harlington (John McDonnell) was right to say that this Bill is just a part of that and that there is a large whole that we need to consider, I hope he would recognise that the Government are right to bring forward this part of the puzzle; it is a crucial part of our achieving that overall ambition.

The third area of public interest is in the issue of externalities. Although many people work in and use airports, a great number of people are also affected by airports and their use. Airports, by their very nature, can create noise pollution, and they create air pollution and congestion. Those points come to the fore when consultations about airspace changes take place, as is the case currently with the Luton and Stansted airspace changes consultation.

That process is under way and the Minister’s comments in this debate may therefore be curtailed, but I point out to him that many of my constituents feel that their ability as members of the public to participate in that consultation has been curtailed, not just because of covid restrictions, but by the very framework by which the public can voice their opinions about those changes. In trying to move pieces around and achieve an overall picture that works for the country as a whole, our national airspace control is perhaps intrinsically limited in what it can offer as suggestions to the public for their consultation. In the London Luton airport consultation, the public in Bedfordshire have been left with a limited choice of options to be consulted on. They therefore feel that their democratic voice is not being heard. What consideration has the Minister given to ensuring that, as we achieve greater speed in the process, the public truly have a voice in the resolution of deciding on flightpaths?

That takes us on to the sharing of benefits. We are having a consultation in Bedfordshire because Luton airport wishes to expand, which will be very much to the financial benefit of the operator of Luton airport and also of the landlords—that is, one of the local authorities in Bedfordshire, Luton Borough Council. Both the airport operator and Luton Borough Council should anticipate considerable increases in their revenues from that expansion, yet it is the residents of Bedfordshire, Cambridgeshire and Hertfordshire who will incur the costs of those externalities, whether that is in air quality, noise pollution or their ability to get around and about because of road congestion. That is not addressed in the Bill and, again, I would be interested in the Minister’s view of whether it is appropriate, as part of the allocation of airspace, to start to see in this Bill consideration of how those affected by the changes can receive compensation from those who benefit from them.

The parts of the Bill that refer to drones are welcome additional legislation. This is a good move for the Government, providing some order in how the criminal uses of drones can be controlled. I was reassured in my conversations with the Minister that the additional burdens and responsibilities on police forces should not be considerable. This is a particular issue in Bedfordshire, again, where police resources are spread so thinly. As other Members have said, it is particularly around airports that the misuse of drones becomes of such great concern to the public. I would be grateful if the Minister could comment further about his expectations of the burden on police time, in order to give additional reassurance to the police.

While I am on the issue of the police, I was interested in the comments made by the hon. Member for Richmond Park about the police use of drones. That is not in the Bill, but I would point out to the Minister that there is considerable advantage in the police being able to use drones in everyday policing. As a Member of Parliament for a largely rural constituency, I know that drones offer an opportunity for response times that other modes of transportation would be unable to accomplish. As part of this overall review of airspace, what consultations has the Minister been having with the Home Office to ensure that any future required use of drones by the police will be adequately covered by the regulations that we are looking at today?

I close by joining colleagues in paying tribute to Captain Sir Tom Moore, a national hero and an adopted son of Bedfordshire, with these words, which he used to encourage us last April, when we were perhaps at the darkest of times. He said:

“To all those…finding it difficult…the sun will shine on you again, and the clouds will go away”.

[Madam Deputy Speaker (Dame Eleanor Laing)]

That is a very good tribute to Captain Sir Tom Moore, and one in which I think we would all happily participate.

Air Traffic Management and Unmanned Aircraft Bill [Lords]

Richard Fuller Excerpts

Report stage & 3rd reading
Monday 22nd March 2021 Commons Chamber

[John McDonnell]

I wish to speak to new clauses 1 and 2 and amendment 1, standing in my name. I will seek to be as brief as possible, Mr Deputy Speaker; with your permission, I will aim to speak for no more than 10 minutes. Over the years, I have tried to use every legislative or policy debate opportunity to place the issues of noise and emissions at the heart of every discussion in this House on the future of aviation policy. These amendments seek once again to do just that.

I think I am the only Member of the Commons who can claim to have attended every major planning public inquiry and court case relating to the expansion of Heathrow airport over the last nearly 50 years. Over the years, I have attended as an interested local resident, then as the local Greater London Council councillor, then as the Member of Parliament for the Heathrow area. In addition to the deeply felt worries of local residents about the demolition of their homes and villages, two issues have been the consistent basis of challenge in these inquiries and legal contests. They are the impact of noise, and the impact of emissions on the community in the immediate area, as well as across large areas of London and now more widely.

At the terminal 4 inquiry, there was general support for limited expansion of the airport, as long as there were conditions attached to any permission to expand in relation to noise. By the time of the terminal 5 inquiry, a great deal of that support had turned to opposition, as the noise agreements had proved so ineffective in guaranteeing people’s quiet enjoyment of their homes, gardens and open spaces. By that time, much more evidence had emerged about the effect of noise on health, and about air pollution as the cause of severe respiratory conditions, vascular problems and cancers. It was because of the environmental impact that the planning inspector recommended that there be no further expansion at Heathrow after terminal 5. Heathrow Airport wrote to me and my constituents saying that if it was granted terminal 5, it would not need or seek a third runway. Of course that was a lie, and within six months it was publicly lobbying for a third runway.

Subsequently, we have also grown aware of the role that emissions play in climate change. I find it hard to comprehend why, despite our facing the existential threat of a climate emergency; despite knowing that 40,000 people a year die from air pollution; and despite all that we now know about the health implications of noise and sleep impairment, consideration is still being given in Government to airport expansion. We need to ensure that all the aviation legislation we consider addresses the critical issues of noise and emissions, which is what these new clauses and amendments seek to do.

I am grateful to the Minister for writing to me explaining the Government’s attitude to my amendments. On a positive note, I see from this correspondence that although the Minister does not support my new clauses or amendments, he does not disagree with the intention behind them. I welcome his commitment to ensuring that the issues raised by them are addressed in any future review of air navigation guidance and noise policy.

Let me briefly run through the new clauses and amendments, and some questions in response to the Minister’s position. New clause 1 would place a statutory duty on the Civil Aviation Authority to reduce, minimise or mitigate significant adverse noise impacts of aviation. The Minister has argued in correspondence that applying a new general duty to all the CAA’s functions is not desirable because safety must remain the primary duty in the context of section 70(1) of the Transport Act 2000. The intention of the new clause is not to reduce safety as a priority, but rather to raise noise and emissions reductions up the priority order. It should be the duty of all public bodies to ensure that we are safe from noise, air pollution and climate change.

The Minister states that the CAA must take account of any guidance on environmental objectives given to it by the Secretary of State, and that is true. However, the effect of the legislation is to subordinate all the environmental matters to section 70(2)(a) and the duty

“to secure the most efficient use of airspace consistent with the safe operation of aircraft and the expeditious flow of air traffic”.

Noise and emissions are always reduced to being second-class citizens in this ranking order.

The Secretary of State has powers under section 78 of the Civil Aviation Act 1982 to limit numbers and types of craft active during the night period at Heathrow and the other airports designated under the Act, so one question that needs to be addressed now is whether this section should be amended to include limits on numbers and types of aircraft during the day as well.

The Minister referred in correspondence with me to the consultation on noise caps in the aviation strategy Green Paper, and said that noise reduction would be looked at again as we come through the pandemic. I welcome that, but the Green Paper applied to all airports other than Heathrow, and so does not provide communities under Heathrow flight paths with any certainty for the future. I would welcome it if the Minister considered amending the aviation national policy statement to ensure that a noise cap was considered in relation to Heathrow and potential expansion there.

The Minister has stated that noise restrictions should be placed on airports, and not, as in new clause 1, on the airspace around the airport. He argues that the latter would—I quote—“create a significant burden on the airspace change process and add great complexity to the day-to-day management of airspace.” That response unfortunately highlights my concern that enhancing capacity is prioritised over reducing the harm to overflown communities and the environment. In my view, airspace and airport capacity should be increased only subject to strict noise and emission reduction conditions. That is a role that the CAA should have a hand in playing. Giving permission to expand capacity on the basis of asserted benefits that cannot be translated into conditions, and whose delivery the regulator cannot monitor and enforce, is not consistent with the Government’s stated policy on noise or climate change.

New clause 2 would amend the CAA’s duties, as set out in the Transport Act 2000, to require it to achieve net zero emissions and reduce noise impacts. The Minister has asserted that the Government cannot support this amendment because the word “ensure” would make it difficult for the Civil Aviation Authority to accept any proposal that did not reduce emissions and aircraft noise, regardless of the overall benefits of the proposal. However, section 70(2) of the 2000 Act is intended to list all the factors that the Civil Aviation Authority must consider. None is supposed to have a greater weight than the others, and a variety of language is used for the different objectives—everything from “secure” to “satisfy” and “take account of”. Some hierarchy of responsibility seems to be emerging in the discussions about the role of the Civil Aviation Authority and what should be taken into account. I do not see why “ensure” would be any more problematic than, for example, “secure”. We need clarity about the role that the CAA can play in ensuring that we can move towards net zero emissions, because it plays an important role in tackling climate change by developing an environmental aviation strategy.

Amendment 1 would place a transparency duty on the Civil Aviation Authority to publish emissions, noise and health impact information. The Minister has said that assessments covering noise, health, local air quality and greenhouse gas impacts must be submitted by proposers along with any formal airspace change proposal, and he argues that they are subsequently published on the CAA website. My amendment would simply require this information to be published more clearly, alongside the proposed changes. That would help deepen community understanding of the proposals and the alternative options.

Last week, the Government announced kickstart funding for the airspace modernisation strategy. The Minister must ensure that local communities have a genuine voice in this process. It is vital that the redesign of airspace delivers mutually balanced outcomes for the industry and local communities alike. The Government should commit to publishing assessments of the noise and health impacts of concentrated flightpaths before any final strategy is signed off.

I thank the Minister for the courteous way in which he has responded to my amendments to the Bill in correspondence. He offered a meeting, which unfortunately, due to last-minute business in the House to which I was committed, did not take place. However, the issues we are addressing today go well beyond this legislation, so I hope he will agree to meet me and a few colleagues to take the discussion further, as this is so important to communities living close to airports—and, given the concerns we all have about climate change, all our constituents.

[Richard Fuller (North East Bedfordshire) (Con)]

It is a pleasure to follow the right hon. Member for Hayes and Harlington (John McDonnell), who speaks with great authority on this particular topic. I am also grateful, as he was, to the Minister for his kind consideration of the issues I have raised about the Bill as it has proceeded to this point.

I would like to speak to my amendments: new clause 4, which would seek to halt, or essentially cancel, and then start new consultations on airspace changes that are currently under way; and amendments 3 and 4, which speak to the requirement for the Minister and the reviews he proposes to take into account a financial assessment, and within that particularly to take account of the externalities comprising part of that financial assessment. With your leave, Mr Deputy Speaker, and that of the House, I would like to talk through each of those.