Chapter 1 - Purpose

1.1 This White Paper sets out a strategic framework for the development of airport capacity in the United Kingdom over the next 30 years, against the background of wider developments in air transport.

1.2 Airports are different from other parts of our strategic transport infrastructure. The Government is not the primary provider of civil airport capacity in this country. The UK's major airports are in the main operated by private sector companies or, in some cases, under local authority ownership.

1.3 The Government's role is primarily one of enabler and regulator, operating through the planning system in particular, to take a strategic view of where airport development may be needed. It must also ensure an appropriate balance both between competing land uses and between benefits and their impacts, when proposals for new development are under consideration.

1.4 It is for airport owners and operators to bring forward such proposals, which will need to be considered through the planning system in the normal way. This White Paper does not itself authorise (or preclude) any particular development, nor does it preclude any particular development, but sets out policies which will inform and guide the consideration of specific planning applications.

1.5 At the same time, airport development is a matter of great significance at both national and local levels. The provision of adequate infrastructure and capacity is important for national competitiveness, for regional development, and for people's ability to travel quickly, easily and affordably to where they want to go. Airports have environmental impacts now and increasing capacity may worsen those impacts at both local and global levels unless remedial action is taken.

1.6 The Government therefore believes that a national strategic framework for the future development of airport capacity, looking forward over a thirty-year time horizon, is needed in order to:

  • provide a clear policy framework against which airport operators, airlines, regional bodies and local authorities can plan ahead. The lack of such a framework has been a serious hindrance to the efficient development of airports in this country, resulting in over-lengthy planning inquiries and unnecessary delay;
  • give greater certainty wherever possible to those living close to airports and their flight paths. Again, the lack of a clear long-term strategy and the slow progress of decision-making has helped create unnecessary blight, uncertainty and distress for many people;
  • take a view of the long-term demand for air travel and airport capacity, both for the country as a whole and across regions, and of the best long-term strategy to respond to that demand, rather than addressing each separate proposal in a piecemeal and uncoordinated fashion;
  • set out a strategic and sustainable approach to balancing the economic benefits of airport development, the social benefits of easier and more affordable air travel, and the environmental impacts that air travel generates; and
  • ensure that airport development is properly linked in to our wider transport strategy and to our other transport networks.

1.7 The strategic framework set out in this White Paper will need to be reviewed periodically given the uncertainties involved in looking ahead over the next thirty years - both in the aviation sector, and more generally. Policies may also need to evolve over time to reflect changing market conditions and expectations. We will carry out such reviews as and when the circumstances require. And we will continue to consult on issues of significance which may affect the policies set out above.

1.8 In preparing this White Paper the Government undertook an extensive consultation exercise, involving people and organisations with an interest around the country (see box). The results of that consultation have closely informed our conclusions.

The Consultation Process

The consultation exercise included:

  • a wide-ranging national consultation document 'The Future of Aviation', published in December 2000, which covered many aspects of aviation policy. Over 550 responses were received and a summary of the responses can be found on the DfT web-site. Three supporting papers were published alongside the consultation document - on air freight, the potential impact of changes in aviation technology and valuing the external costs of aviation;
  • seven regional consultation documents, published in July/August 2002 and February 2003, based on regional air services studies commissioned by the Government. The consultation documents sought views on the economic, environmental, social and airspace appraisals of options for future airport development and surface access improvements in each region. Over 125,000 copies of the main documents and 190,000 summary documents were issued. In total, around 500,000 responses were received by the end of June 2003, including completed questionnaires. Reports are available on the DfT web-site;
  • a series of public exhibitions held around the main airports, enabling local people to obtain information and ask questions of Government officials and technical advisers;
  • seminars, briefings, presentations and conferences for stakeholders across the UK;
  • discussions with stakeholders at workshops held in Spring 2003 based on a joint DfT/Treasury document published in March on 'Aviation and the Environment - Using Economic Instruments'. This invited views on the desirability and effectiveness of a variety of possible economic instruments to address the environmental impacts of aviation. The document, and a summary of the key points made by stakeholders at the workshops, is also available on the DfT web-site.

We are grateful to everyone who took part in these events or responded to the documents.

1.9 Our conclusions are set out in the following chapters. In reaching them we have been conscious of the Government's responsibility to balance the economic, environmental and social costs and benefits; whilst protecting the rights and interests of individuals. The studies and consultations we have undertaken in preparing this White Paper have been designed to help us reach decisions which strike a fair balance for all, and in all parts of the UK; difficult decisions, but ones which should provide a sound and sustainable basis on which to plan the future of aviation in this country.