New aircraft noise standards
The Issue
1 ICAO member states have been asked for their views on new noise standards for jet aircraft and for helicopters, with the aim that the standards should be agreed by the ICAO Council before the 33rd Assembly of the ICAO in September/October 2001. The purpose is to set a standard which new aircraft and helicopter types must meet from a future date. ICAO standards have no legal force unless enacted in legislation of member states.
2 For jet aircraft, the proposed new noise standard ("Chapter 4") would increase the stringency of the current ("Chapter 3") cumulative levels by 10 EPNdB. The sum of the certification level margins at any two of the three measurement points should be at least 2dB and no tradeoffs would be allowed. The new standard would apply to new aircraft types submitted for certification from 1 January 2006.
3 For helicopters, the new limits require them to be 3 decibels quieter at takeoff, 4 decibels quieter at flyover and 1 decibel quieter at approach. Smaller helicopters (those at masses less than 3175 kg) must be 2.5 decibels quieter overall. This new standard would apply to most new helicopter types submitted for certification after January 2002. Some helicopters used in emergency work or for agricultural purposes are excluded.
Objectives
4 The objective of adopting the ICAO standards would be consistent with the UK's longheld policy of seeking reductions in aircraft noise at source. Such reductions are a matter for international negotiation and agreement, implemented by national regulations.
Risk Assessment
5 "Risks" from aircraft noise are largely associated with annoyance rather than health or safety. Reducing noise from transport was recognised as a sustainability issue in the New Deal for Transport white paper (1998) and as a sustainable aviation issue in the consultation document on the Future of Aviation (2000).
Options
6 The options are:
1.Accept the proposed standards and implement them in national legislation by a regulation
2.Do not accept the proposed standards and file a formal difference in ICAO.
Option 1 is normal UK practice in regard to ICAO standards. Option 2 would be inconsistent both with this practice and with the policy aim of reducing noise at source. The formal purpose of ICAO standards is to ensure that the latest available technology is incorporated in aircraft design. In this respect the standards are conservative they set a "floor" rather than a "ceiling". Any alternative to the standards such as a regime of differential noise charges would be ineffective in achieving the aim of noise reductions at source, because the cost of latest technology aircraft is so very high.
Equity/fairness Issues
7 It has long been accepted that internationally agreed (ie. ICAO) standards are the appropriate approach to reducing aircraft noise. All aircraft manufacturers and operators are thus affected on an equal basis.
The Benefits
8 The benefits of the jet aircraft standard are long term but not significant, in that the standard is conservative by intent. Most current production aircraft already meet it.
9 An exhaustive assessment on a global basis of the benefits of several different options was made in the ICAO process. The standard is not expected to have significant benefits in the UK but will prevent deterioration in the noise climate in the long term.
10 There is no internationally accepted methodology for valuing noise benefits. Nor has anything definitive been agreed in the UK, although work so far, using an indirect hedonic pricing approach, suggests that the monetary valuation of noise is relatively small. Ensuring noise reductions in the longer term is important in terms of justifying the provision of more airport capacity.
The Costs
(i)Business sectors affected
11 RollsRoyce and BAe Systems (the latter as part of EADS/Airbus), and their customer airlines, are the only UK businesses directly affected by the jet aircraft standard. There may be small businesses which supply components to RollsRoyce or BAe Systems but any impact on them is expected to be negligible.
12 Westland Helicopters is the only UK business affected by the helicopter standard. They have stated that they are content with it and that it will not place any undue burdens on them.
(ii)Compliance costs for a typical business
13 There is no "typical" business since the standards affect only new aircraft type certification. There is enough time for engine and airframe manufacturers to take action, if necessary, since the standards would not come into force before 2006 and 2002 respectively. There is no requirement to modify existing aircraft.
(iii)Total compliance costs
14 ICAO calculated the global cost of the jet aircraft standard at $200 million, which is very small in relation to the scale of costs in the industry (it is comparable to the list price of 3 medium size aircraft).
Other costs
15 Airlines may seek to re-certificate their existing jet fleet. But as there is no requirement to do so, the costs would be voluntary and incurred because the airline considered they were outweighed by benefits.
Results of consultations
16 Representatives of industrial stakeholders (ICCAIA, IATA, ACI)[1] and of environmental NGOs have been involved in the ICAO process. UK manufacturers and major airlines and airport operators are members of these organisations. In addition, DTLR consulted these and other UK stakeholders (ie. airlines, airport operators and NGOs) on the jet aircraft standard at each stage. Broadly, responses were split between, on the one hand, airports, airport associations, one County Council and environmental organisations: they were keen that a more stringent standard (and an early phaseout of the noisiest "Chapter 3" aircraft) should be adopted. On the other hand airlines preferred a less stringent option (and no phaseout). Industry has, however, broadly welcomed the decision on the standard.
Monitoring and Review
17 This is an integral part of the ICAO standards process and would not require any additional action or expenditure by UK.
Securing Compliance
18 This would be achieved by incorporating the ICAO standards in appropriate UK regulations and by certification of new aircraft types under guidelines established internationally. The certification function in UK is a statutory responsibility of the Civil Aviation Authority (CAA).
Recommendation
19 It is recommended that UK accepts the proposed new standards and implements them by appropriate regulations, in accordance with normal practice regarding ICAO standards.
Regulatory Quality Declaration
I have read this Regulatory Impact Assessment and am satisfied that a correct balance has been struck.
Signed
R AINSWORTH
Date
CONTACT POINT
Mr D Ashman
Aviation Environmental Division 1
Department for Transport, Local Government and the Regions
Zone 1/33
Great Minster House
76 Marsham Street
SW1P 4DR
Tel. 020 7944 4876
[1] Internatioal Coordinating Council of Aerospace Industries Associations
International Air Transport Associaiton
Airports Council International
