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Lord Davies of Oldham moved Amendment No. 3:
On Question, amendment agreed to.
Baroness Hanham moved Amendment No. 4:
"( ) The Secretary of State shall review the maximum noise limits on aircraft taking off from designated airports and shall take account of the target of reducing the perceived external noise of new aircraft by 50 per cent by 2020 compared to 2000, and shall report to Parliament in such manner as he thinks fit at regular intervals."
The noble Baroness said: My Lords, this amendment is designed to give statutory force to the voluntary targets set by the United Kingdom aviation industry published in its commendable sustainable aviation policy. It would ensure that the aviation industry was held to its self-professed targets. If it is not held to them, the sustainable policy will be perceived as nothing more than a public relations stunt. The amendment is also designed to ensure that those companies that have pledged to take these important steps to achieving a substantial reduction of external aircraft noise are not disadvantaged by competition from those foreign-owned airline operators that have not made such commitments.
When we tabled these amendments in Grand Committee, the burden of the Minister's reply was that the character of air travel meant that the Government's hands were effectively tied by international laws and conventions. Until recently, all civil aviation operating in the EU had to meet
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Chapter 3 standards, which were agreed as far back as 1977. From this year all new aircraft must comply with Chapter 4 standards, representing a reduction of 10 decibels on Chapter 3 aircraft. Crucially, however, there is no agreed date for phasing out Chapter 3 aircraft. The benefits that can be enjoyed with the introduction of newer, significantly quieter technologies are therefore being lost because of a lack of legislative compulsion to phase out the ageing fleet.
Since aircraft are replaced on average every 20 to 35 years, we risk squandering the benefits new technology can offer to those communities adversely affected by aircraft noise because of our reluctance to insist that aircraft are subject to truly progressive targets. It is important to note that in Europe the aircraft are replaced on average only every eight years, allowing greater uptake of improved technology. That is a big difference.
The timescales provided by the International Civil Aviation Organisation do not reflect the current advance of technology. To have nearly 30 years between the start of Chapter 3 and the introduction of its successor is, frankly, ridiculous. It suggests that international standards for aircraft noise follow technological developments rather than drive them, a situation reflected in the fact that the new chapter targets are already outstripped by current improvements in aircraft technology, which are already achieving a reduction in external noise of 20 decibels. In fact, Rolls-Royce reports that modern aircraft can achieve a reduction of 18 to 24 decibels below the Chapter 3 standard. Chapter 4 requires only a 10-decibel reduction. These technological improvements demonstrate that there is a capacity to reduce noise further.
Targets should be driving the industry forward, not chasing to catch it up. Imagine what the aviation industry could achieve with real legislative compulsion. The introduction of long-term target-setting will complement what the Government are trying to achieve by sanctioning the use of noise- and emissions-related landing charges, and will drive forward technological advance in the industry. The sustainable aviation document produced by the UK aviation industry demonstrates a willingness to take on such technology, and the Government need to hold it to those standards.
To date, the industry has focused on the reduction of engine noise. That is sufficiently low that attacking noise from the airframe, which may be more challenging to reduce, is becoming as important. Current technology suggests that that target is achievable, but there is agreement that it will not be possible without radical changes to aircraft design. Further improvements in technology will therefore be harder to achieve, and will require a much stronger lead.
Without putting words into his mouth, I realise the Minister will be reluctant to accept this amendment, but I urge him to recognise its purpose. The ICAO is unlikely to introduce standards that are not already achievable, yet, without the imposition of searching
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targets at some level, we will not provide sufficient drive for the type of technological innovation the industry requires. I beg to move.
4.30 pm
Lord Davies of Oldham : My Lords, the noble Baroness avoided the temptation to put words into my mouth but she predicted fairly accurately what I would say.
Both with the previous amendment and with this one, I hope that noble Lords opposite are squaring these unfortunate attempts to increase regulation with the general drive to get rid of red tape and reduce regulation that we hear about so constantly from the Opposition Benches when they are on a free rein. However, when it comes to a specific area, they seek to gain support for their position by increasing regulation by the Secretary of State and government in a way we have never done and do not intend to do on this occasion.
The Government use their powers under Section 78 of the Civil Aviation Act 1982 to set departure noise limits on aircraft taking off from the designated airports, Heathrow, Gatwick and Stansted—as I mentioned in the previous debate—and those limits are already kept under review. It is our obligation to keep under review the impact of the number of flights on the ground and to bear in mind exactly what the noble Baroness says—that we need to keep up with modern technology and drive it towards providing quieter aircraft.
Changes to those limits were last announced in December 2000—just over five years ago. A further review of departure noise limits was then carried out by the Environmental Research and Consultancy Department of the Civil Aviation Authority, overseen by the Department for Transport's Aircraft Noise Monitoring Advisory Committee, which includes representatives from the designated airports' independent consultative committees. This review was published in March 2003. I do not therefore believe that this amendment would make any difference to the Government's current practice in respect of keeping the departure noise limits under constant review, as, indeed, is the Secretary of State's duty.
Amendment No. 4 also refers to the UK aviation industry's target, stated in its sustainable aviation strategy launched earlier this year, to reduce the perceived external noise of new aircraft by 50 per cent by 2020, as compared to 2000. The Government welcomed the release of the strategy, and very much hope that the industry will manage to meet it. But I do not believe that it is appropriate to make the Secretary of State responsible for policing a target adopted voluntarily by the industry, nor to give that target statutory force.
The Government continue to press for improvements in aviation technology; reduction of noise at its source is one of the four strands of the ICAO "balanced approach" to dealing with aircraft noise. As aviation technology has improved, aircraft have become quieter. The noble Baroness referred to
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the improvements that Rolls-Royce is effecting. But older aircraft, though their environmental performance may not be as good as the most modern aircraft, meet ICAO technical standards, and remain part of airlines' fleets. The UK is obliged under its international agreements to allow these aircraft to continue to operate in the UK.
There is a danger that the opposition amendments, which supposedly can be effected by unilateral action by the United Kingdom, are not mindful that air travel is bound by significant international obligations.
Previous administrations and the present Government have accepted that it would not be compatible with the UK's international obligations to set a daytime noise limit so low that most of the large long-haul aircraft, certificated to ICAO standards and legally entitled to operate in the UK, would not be able to operate. Similarly, the night-time and shoulder period departure noise limits must be broadly compatible with the night-flying restrictions that we set under Section 78(3).
Lord Clinton-Davis: My Lords, is my noble friend aware that apart from the local authorities around Heathrow and other airports, no one supports this amendment?
Lord Davies of Oldham: My Lords, my noble friend strengthens my argument in his usual astute and informed way, and I am grateful for that comment, although I was hoping to let the Opposition down a little more gently. He has made an absolutely critical point.
Any new departure noise limit that limits or reduces access of aircraft to airports would be subject to directive 2002/30 on noise-related operating restrictions, which we have incorporated into UK legislation by the Aerodromes (Noise Restrictions) (Rules and Procedures) Regulations 2003. The phasing-out of older aircraft needs to take place as part of an international approach to dealing with aircraft noise. In fact, I fail to see how we can carry out these strategies without reference to international obligations. I share with the noble Baroness the objective of reducing aircraft noise. I delight with her in examples of British industry making good progress in this area. We all want to see aircraft becoming quieter. So does the industry; it is all too well aware of the pressures from localities around airports, and it is in the industry's interests to reduce aircraft noise. We are working with the grain without seeking to impose regulation, which would be a regulation too far. I hope that the noble Baroness will agree.
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