Chapter 8 - The North of England

Key issues

8.1 The North of England ¹ is served by several well established airports, each of which plays an important role within the region in addition to serving its own local catchment area. Each has its own natural advantages and strengths, and some have established particular sectoral or geographical roles within the North of England air travel market. Each also has environmental impacts, which need to be monitored and managed carefully.

8.2 The consultation paper for the North of England ² set out the forecast demand at airports in the region by 2030 under a range of scenarios and identified the infrastructure that would be required if some, or all, of that demand were to be met. It also considered the potential impacts, both positive and negative, of meeting demand.

8.3 A particular issue raised by the consultation document was whether Manchester Airport could develop as a secondary UK hub serving the North of England and other parts of the UK outside the South East of England. It also examined a number of related issues such as the need to improve surface access to airports and the potential for route development.

Main conclusions

8.4 We anticipate significant growth at the North of England's airports. In many cases the impacts associated with this growth are expected to be limited and we therefore support the development of the additional terminal capacity, runway extensions and improved taxiway systems needed to cater for it.

8.5 A significant share of the increased demand is expected to arise at Manchester Airport. It is here that the greatest impacts of providing new capacity will also arise, not only in terms of noise but also potential economic benefits. Manchester Airport serves as the major international gateway for the whole of the North of England, North Wales and for some air travellers from the Midlands. With these considerations in mind, we have concluded that additional terminal capacity should be provided to ensure the full use of the existing runways in segregated mode - around 50mppa. The location and disposition of that capacity is for future determination, but would need to be accompanied by stringent measures to ensure that the number of people affected by noise is minimised, and that all local air quality standards are met.

8.6 Significant further work will also be required to develop a package of surface access improvements at Manchester to cater for the forecast level of growth. This includes a comprehensive strategy for increasing public transport mode share and for enhancing capacity on Manchester's motorway network to cater for both airport and background traffic. Surface access improvements will also be needed at a number of other North of England airports over the period of the White Paper. Airport operators will need to work with their regional and local partners and surface transport providers to bring forward proposals to cater for the anticipated increase in passenger volumes and to minimise environmental impacts, taking account of the policies on surface access set out in Chapter 4.

Manchester Airport

8.7 Manchester Airport is by far the largest airport in the UK outside the South East, with passenger numbers around 19mppa. It provides services to around 170 destinations, including a substantial network of long-haul scheduled services. As a major international gateway, it provides an important alternative to the congested airports in the South East and is the only UK airport other than Heathrow to have two full-length runways. Consequently it potentially has significant spare runway capacity, especially if new operating procedures allowing more intensive use to be made of the existing runways in segregated mode were to be introduced. This would enable Manchester to cater for demand of at least 50mppa, provided this could be delivered in an environmentally acceptable manner.

8.8 However, if the airport were to attract a major airline to establish a substantial hub operation, it is possible the existing runway system could also accommodate the higher levels of demand this would generate. This would depend on the average number of passengers carried per aircraft, the pattern of runway utilisation across the day and the potential benefits future technology developments may bring in terms of making more intensive use of the airport's runways. Although we do not anticipate major runway capacity constraints at Manchester before 2030, the position will not become clear until well into the second part of the White Paper period and so will need to be kept under review. In the interim the main focus for investment at Manchester should be on terminal capacity.

8.9 Manchester Airport has three terminals, which could be expanded within existing planning approvals to serve 30mppa, and with further approvals to 40-45mppa. Beyond that, major new terminal development would be required. This could be in the form of a satellite to Terminal 2 accommodated within existing airport land, or it could be an entirely new terminal, in which case some land outside the airport boundary may be required.

8.10 We did not consult on these options or where the best location for a new terminal might be. We have not therefore come to any conclusions on the form or location of new terminal capacity, but we do support in principle the growth of terminal capacity to make maximum use of the existing runways operated in segregated mode, subject to meeting environmental concerns.

8.11 We recognise that the location of Manchester Airport already causes large numbers of people to be exposed to aircraft noise nuisance. In 1999, around 45,000 people lived within the 57dBA noise contour. Our estimates suggest that, if capacity were increased to cater for a passenger throughput of over 50mppa by 2030, this figure could rise to around 70,000 people unless noise improvements beyond those currently assumed in our analysis can be achieved.

8.12 However, we have also taken into account the potential that the growth of Manchester Airport has to generate significant benefits for the economy of the North of England. Having regard to the policies and principles set out earlier in this White Paper, we do not believe, on balance, that these impacts are so severe that constraints should be imposed on the development of the airport to prevent it growing to the levels of demand forecast. The Government considers therefore that Manchester Airport's capacity should in principle continue to grow to accommodate additional demand up to around 50mppa by 2030. But it will be important that every effort is made to secure the maximum possible reduction in noise levels and to minimise the number of people potentially affected.

8.13 We have therefore concluded that growth of Manchester Airport should be subject to stringent limits on the area affected by aircraft noise, with the objective of incentivising airlines to introduce the quietest suitable aircraft as quickly as is reasonably practicable. The limits should look at least ten years ahead, and will need to be reviewed at intervals between now and 2030 to take account of emerging developments in aircraft noise performance. It is also essential that airport growth does not jeopardise legal air quality standards, notably in respect of NO2. This will require thorough monitoring and evaluation.

8.14 Manchester Airport has recently completed a new ground transport interchange, is contributing £19 million to the cost of junction improvements and motorway widening on the M56, and is potentially a significant contributor to a proposed Metrolink connection to the airport. The airport operators have also developed an outline strategy which would increase the share of passengers arriving at the airport by public transport to well beyond their target of 25 per cent by 2005. The strategy, which has a long-term public transport mode share target of 40 per cent, includes enhanced rail services, the Metrolink connection, better bus and coach access and a number of satellite park and ride schemes.

8.15 Improvements in the public transport mode share at Manchester Airport will be important in supporting its long-term growth. As part of its strategy the airport operator will need to work closely with local and regional partners to develop measures to limit the growth in road traffic. These could include better traffic management and, potentially, charging for road access to the airport, in order to restrain traffic volumes.

8.16 The motorway network in the vicinity of the airport is nevertheless likely to require some capacity enhancements over the period of the White Paper. The airport will need to contribute to work by the Highways Agency examining the form, timing and location of improvements to the motorway network in South Manchester, in order to develop a comprehensive set of proposals that address both airport and other traffic needs, in harmony with environmental goals.

Liverpool John Lennon Airport

8.17 Liverpool John Lennon Airport has seen rapid recent growth, providing a welcome boost to the local economy. Passenger numbers have quadrupled in the last five years, mainly as a result of expansion by 'no-frills' airlines, and are now approaching 3.5mppa. Forecasts suggest that by 2030 throughput could be two or three times current levels, and the airport's master plan caters for up to 12mppa.

8.18 Noise levels at the airport are rising because of the very large increase in operations from a low base, and will continue to do so as traffic volumes increase. However, the number of people affected is, and should remain, relatively low.

8.19 The Government therefore considers that the airport's capacity should continue to grow to accommodate increased demand. This growth will require further terminal capacity, but there is land available for this within the existing site.

8.20 There may in the future be a case for extending the runway to around 2,700 metres, if required for long-haul charter and freight operations. This would be acceptable provided there is no encroachment on the River Mersey Site of Special Scientific Interest, Ramsar site and Special Protection Area.

8.21 The airport will also need to continue to work with regional and local partners and surface transport providers to bring forward surface access enhancements that will be needed to cater for increased passenger volumes. These should include improved public transport links.

Blackpool Airport

8.22 Until recently, Blackpool Airport has been a small-scale operation focused on serving the Isle of Man, Belfast and winter sun charter destinations. However, the introduction of 'no-frills' services to Stansted and Dublin has altered this position and the traffic levels are expected to have more than doubled by the end of 2003, to around 0.2mppa.

8.23 The airport should be capable of developing the additional capacity it needs in order to handle the levels of traffic it might attract (including terminal and apron capacity, and possibly a short runway extension) within its existing boundaries and land ownership. We consider, therefore, that any proposals that come forward to cater for future expansion should be determined locally.

Carlisle Airport

8.24 Although Carlisle is not currently a significant commercial airport, it has had commercial services in the past, and plans have been put forward to invest in the airport with a view to providing new commercial flights serving Cumbria and the southern parts of Dumfries and Galloway and the Scottish Borders. There are no major local physical or environmental constraints, and there is support from a range of stakeholders for these proposals, with little opposition.

8.25 Cumbria is more remote from access to air services than any other part of the UK with a comparable population. Services from Carlisle Airport would assist economic growth in the areas within its potential catchment, and in particular could improve access for high spending inbound tourists to the Lake District and the South West of Scotland. We therefore encourage the airport operator to bring forward proposals for the development of the airport, to be considered through the normal regional and local planning processes.

Newcastle Airport

8.26 Newcastle is the largest airport in the North East, with passenger traffic now approaching 4mppa as a result of the introduction of new 'no-frills' services. Continued interest from a combination of full scheduled, 'no-frills' and charter carriers suggests passenger throughput will continue to grow rapidly over the next few years. As a result, it is now estimated that traffic levels could rise to around 10mppa by 2030.

8.27 The airport has published its long-term master plan, which is designed to cater for this level of traffic, including expansion of terminal facilities and a 360m runway extension. There is likely to be an increase in the number of people within the 57dBA noise contour as a result of these developments, but the population affected will still be quite small. There has been little opposition and significant support locally for the proposed development of the airport, and we therefore support these plans. However, potential environmental impacts will need to be assessed carefully.

8.28 The airport already has planning approval for the development of maintenance facilities at the 'South Side' Development, and has opened an Aviation Training Academy as an initial phase of this strategic long-term development scheme.

8.29 With the exception of proposals to improve access into the airport from the A696, there are no significant airport-related road access problems that should constrain development of the airport. However, congestion on the wider strategic road network could ultimately begin to affect access to the airport from some parts of the airport's catchment. The airport is already served by the Tyne and Wear Metro system and a range of bus and coach links. Proposals have also been put forward, and are currently being examined at the regional level, for a possible rail link to the airport to improve access from across the airport's potential catchment area.

Teesside International Airport

8.30 Teesside Airport has a distinct catchment within the North East focused on the Tees Valley and the south of County Durham. It also serves passengers in some parts of North Yorkshire and Cumbria.

8.31 The airport currently handles 0.7mppa, but overall traffic has fallen in recent years with materially less domestic traffic. However, that is likely to change in the near future when new 'no-frills' services come on line. By 2030 forecasts suggest that passenger traffic could be double current levels, and perhaps more.

8.32 Freight operations grew rapidly between 1998 and 2000 but have since declined, though this remains an important target sector for the airport. There are also plans for a major business park next to the airport, which is likely to develop as an important strategic investment site serving the southern part of the region.

8.33 Teesside Airport has the important advantage that very low numbers of people are affected by noise. The airport will also benefit from a new access road from the A66, and from proposals to provide good quality bus links from Darlington station and Middlesborough.

8.34 Extensions to both terminal facilities and runway length, and enhancements to the existing taxiway system, could be provided within existing airport land. We consider therefore that there are no major impediments to the future expansion of Teesside, and we support this.

Leeds Bradford International Airport

8.35 The core catchment area of Leeds Bradford International Airport encompasses the most densely populated parts of West Yorkshire, although it also draws passengers from further afield, particularly North Yorkshire. The addition of new 'no-frills' international services to the airport's existing full scheduled and charter network has brought rapid growth in 2002-2003. The airport will handle around 2mppa in 2003 and is forecast to grow to around 7mppa by 2030.

8.36 Additional terminal capacity would be required to accommodate this level of growth. A runway extension of some 300 metres may also be desirable in the future to facilitate medium and long-haul operations, and to allow a wider range of aircraft to operate non-stop services with full payloads to an extended range of destinations.

8.37 This level of growth could lead to a small increase in the number of people affected by noise, and every effort should be made to mitigate and minimise these impacts. Improvements to both public transport and road access to the airport may also be required in the medium term as passenger volumes continue to grow.

8.38 Subject to these points, we would support the further development of the airport as set out above, and we invite the local planning authority to safeguard for the runway extension should the airport operators bring forward such proposals through their airport master plan.

Humberside International Airport

8.39 Humberside International Airport handles some 0.5mppa. It also has an important role in serving the offshore oil and gas industry. It had been forecast to grow to around 1.6mppa by 2030 with additional runways in the South East, but this took no account of Finningley. Humberside is likely to be affected by competition from Finningley and that level of passenger throughput could be difficult to achieve.

8.40 It is not expected that any people will fall within the 57dBA noise contour and there are no significant physical constraints on future expansion. We therefore agree that the airport should seek to attract as much traffic as it can.

Doncaster - Finningley Airport

8.41 Planning permission for the development of a civil airport at the former RAF Finningley, near Doncaster, was granted in April 2003. The issues were considered at the public inquiry, and were therefore not considered in the Government's consultation. Finningley will be able to develop within the conditions set as part of the planning permission, including a limit of 57,000 air transport movements a year.

8.42 The long-term development of Finningley will need to be considered in any future review of this White Paper or, if required sooner, through normal regional and local planning processes.

Sheffield City Airport

8.43 Scheduled commercial passenger services no longer operate from Sheffield City Airport. The current airport operator has been reviewing the airport's prospects and is expected to set out proposals for the future of the airport around the time of the publication of this White Paper. These will need to be determined through the normal regional and local planning processes.

¹ For the purposes of the White Paper this comprises the Government Office Regions for the North East, North West and Yorkshire and the Humber.

² See Bibliography.