Consultation outcome

Night-time noise abatement objectives for the designated airports from October 2025

Published 27 March 2023

This was published under the 2022 to 2024 Sunak Conservative government

About this consultation

The government sets night-time operating restrictions at Heathrow, Gatwick and Stansted as these airports are designated for the purposes of noise regulation under the Civil Aviation Act 1982. Operating restrictions limit or reduce access of civil subsonic jet aeroplanes to an airport.

We last consulted on these controls in December 2020. The decision, published in July 2021, rolled over the existing restrictions for a period of 3 years, putting in place the current regime covering the period from October 2022 to October 2025.

There was a second part to the consultation, which remained open until September 2021, and which asked questions about long-term policy reform. Responses to that part of the consultation will be used to shape proposals for the next night flight regime due to commence in October 2025.

Consultation on this next regime can be expected to launch in late 2023. Ahead of this, the government has now confirmed a decision on its overarching aviation noise policy statement.

The Secretary of State, as competent authority for the noise designated airports (Heathrow, Gatwick and Stansted) is required to define a noise abatement objective for airports where a noise problem has been identified.

The government recognises that noise from aircraft taking off and landing at night is often regarded by communities as the most disturbing form of airport operations. In addition, there is growing evidence of the relationship between aviation night noise and impacts on health and sleep disturbance. Therefore, this consultation seeks views and evidence on what night-time noise abatement objectives should be. These night-time noise abatement objectives sit underneath our national aviation noise policy statement.

Once night-time noise abatement objectives for the designated airports have been decided upon, this will then enable the most cost-effective measures for achieving the desired outcomes to be identified.

This consultation process

This consultation seeks views on night-time noise abatement objectives at the designated airports (Heathrow, Gatwick and Stansted) beyond October 2025. The consultation is for a period of 6 weeks.

This consultation process will be of interest to communities that live near airports or underneath flightpaths, local authorities, airlines, airport operators, and businesses or consumers that depend on the aviation sector.

How to respond

The consultation period began on 27 March 2023 and will run until 9 May 2023.

See the Ways to respond section of the GOV.UK home page for this consultation for an online response form and other ways to respond.

Please ensure that your response reaches us before the closing date.

Background

Government is responsible for the overarching policy on noise and has now published a new national aviation noise policy statement.

The government’s overall policy on aviation noise is to balance the economic and consumer benefits of aviation against their social and health implications in line with the International Civil Aviation Organisation’s Balanced Approach to Aircraft Noise Management.

This should take into account the local and national context of both passenger and freight operations, and recognise the additional health impacts of night flights.

The impact of aviation noise must be mitigated as much as is practicable and realistic to do so, limiting, and where possible reducing, the total adverse impacts on health and quality of life from aviation noise.

The Secretary of State as competent authority for the noise designated airports (Heathrow, Gatwick and Stansted) is required to define a noise abatement objective for airports where a noise problem has been identified.

Aircraft are becoming quieter as technology advances, and we expect this trend to continue. However, the government recognises that noise from aircraft taking off and landing at night is often regarded by communities as the most disturbing form of airport operations. Therefore, this consultation seeks views and evidence on what night-time noise abatement objectives should be. These night-time noise abatement objectives sit underneath our national aviation noise policy statement.

The government’s approach to managing aircraft noise is based on the principles of the International Civil Aviation Organisation (ICAO) Assembly’s “Balanced Approach” to aircraft noise management. The Balanced Approach is guidance developed by ICAO to address aircraft noise problems at individual airports in an environmentally responsive and economically responsible way. The Balanced Approach consists of identifying noise problems that exist at an airport and then assessing the cost-effectiveness of the various measures available to reduce noise through the exploration of four principal elements, which are:

• reduction of noise at source (quieter aircraft)
• land-use planning and management
• noise abatement operational procedures (optimising how aircraft are flown and the routes they follow to limit the noise impacts)
• operating restrictions (including night flight restrictions brought about via this process)

The Balanced Approach requires that decisions in relation to an airport’s operations take into account both health and economic factors. It also means that where there is a noise problem at an airport, it should be addressed in accordance with the Balanced Approach and be managed in a cost-efficient manner.

The Balanced Approach requires that measures to address a noise problem at an airport should be no more restrictive than are needed to meet the noise objectives. Operating restrictions should only be introduced at airports if there are no other ways of achieving the desired effect.

The Secretary of State is the competent authority to ensure the correct process is followed when operating restrictions are considered. More information on the Balanced Approach can be found in Annex B.

Why is a noise abatement objective needed?

Having identified a noise problem at an airport, the purpose of a noise abatement objective is to act as the enabling statement that provides the focus for any necessary noise measures. A noise abatement objective can be used to set the level of ambition for a noise management regime.

The intention of the government is to have a night-noise noise abatement objective which is aligned with our national aviation noise policy statement, which includes measurable and achievable outcomes against which progress can be assessed and which can achieve a balance between the needs of different stakeholder groups.

Night-time noise abatement objectives for the 2022 to 2025 period

The government’s 2021 night flight decision document confirmed the noise abatement objective for the designated airports for the period 2022-2025.

The noise abatement objective for the current regime (2022-2025) is as follows:

Limit or reduce the number of people significantly affected by aircraft noise at night, including through encouraging the use of quieter aircraft, while maintaining the existing benefits of night flights.

For the next regime, the government again intends to use one high-level noise abatement objective for each of the 3 designated airports. We want a noise abatement objective which encompasses the contribution these airports play to the UK economy, recognising the importance to the UK of maintaining freight connectivity.

Night flights are an important part of operations at airports around the world. The time differences in an inter-connected global transport system mean that it is difficult to avoid flights at night and early in the morning.

We are undertaking a review of previous research on the benefits of night flights and are also continuing to work with the Civil Aviation Authority (CAA) to monitor air passenger travel via the departing passenger survey, which includes questions for passengers on the purpose of their travel and which will help understand how preferences may have changed as a result of the COVID-19 pandemic. We are also continuing to review new studies on the benefits of night flights.

At the same time, the government recognises that noise from aircraft at night brings negative impacts to local communities around airports. Exposure to aviation noise at night can impact on physical and mental well-being.

We have commissioned an aviation night noise effects (ANNE) study, to examine the relationship between aviation noise on sleep disturbance and annoyance, and how this varies by different times of the night.

We are also supporting the ongoing review of the evidence underpinning the World Health Organisation (WHO) guidelines on noise, together with more recent evidence. This review is being undertaken by the Interdepartmental Group on Costs and Benefits (Noise) to consider whether there are any necessary updates to relevant government guidance. 

We are also continuing to review new literature and research on the costs of night flights, being supported by the CAA who also monitor new literature on the health impacts of exposure to aviation noise.

The government needs to strike a fair balance between these positive and negative impacts of night flights, and wants a night-time noise abatement objective which aims to minimise the adverse effects of aviation noise on health and quality of life.

For the purpose of the regime to commence in October 2025, we now seek views on using the following night-time noise abatement objective:

Whilst supporting sustainable growth and recognising the importance to the UK of maintaining freight connectivity, to limit and where possible reduce, the adverse effects of aviation noise at night on health and quality of life.

This night-time noise abatement objective would apply to all 3 of the designated airports (Heathrow, Gatwick and Stansted) and would apply to the night period (11:00pm to 7:00am). This objective sits under our national aviation noise policy statement.

In recognition that each airport and its environs has different characteristics, consideration was given to setting different objectives for each designated airport. However, on balance, we believe that the core night-time noise abatement aim remains the same at each airport.

As suggested below, the different characteristics of each airport and its environs could be addressed by the use of different metrics to measure achievement against the objective, rather than within the objective itself.

Therefore we believe that it is right that the airports should have uniform night-time noise abatement objectives.

In developing the wording for the above objective, we have considered responses to our last night flight consultation, as well as our new national aviation policy statement. We wanted to be explicit within the objective that the government supports the operation of night flights where they support sustainable growth, but recognises the need to limit and where possible reduce the impact of those flights.

The wording reflects our movement away from an objective focusing on the number of people affected by noise, to a greater focus on the adverse effects on health and quality of life. Although number of people could obviously remain an indicator used to measure success against the objective.

For the current night flight regime, we measure our achievement against the night-time noise abatement objective by:

• the area of and number of people in the 48dB LAeq 6.5hr night contour - this refers to the noise levels at night between 11:30pm and 6am
• sleep disturbance impacts associated with night flights, assessed using transport analysis guidance (TAG) methodologies – the suite of guidance on how to assess the expected impacts of transport policy proposals and projects
• the average noise of an aircraft (as measured by the average noise quota count per aircraft movement over the course of a season - quota count means the weighting attributed to the arrival or departure of a specified aircraft type by reference to its certified noise performance)

For the next night flight regime, we are seeking comment on which metrics could be used to measure performance against the new night-time noise abatement objective.

It is possible that different metrics could be appropriate for each of the 3 designated airports, to reflect that the 3 airports have different business models and environments. We welcome views on this.

We could use some or all of the same metrics again, while there is also the possibility to consider new ones.

On the benefits side, we will need to have a metric to measure sustainable growth and freight connectivity. Equally, we will need to have metrics to measure progress against minimising the adverse effects of aviation noise on health and quality of life. These could again feature an average noise contour. A noise contour is an aircraft noise map that shows lines joining points of equal noise to illustrate the impact of aircraft noise around airports. We also acknowledge that number above metrics could be useful in the future and the next night flight regime could be the time to introduce such a metric.

We invite responses on how best to measure progress against a new night-time noise abatement objective. These responses will be used to help shape what metrics are put forward for consideration in the main night flight regime consultation, which is expected to launch in late 2023.

Annex A: Questions

These questions are listed here to give you an overview of what we are asking.

See the Ways to respond section of the GOV.UK home page for this consultation for an online response form and other ways to respond.

Personal details

Q1. Your (used for contact purposes only):

name?

email?

Q2. Are you responding:

a. as an individual

b. as an organisation

Organisational details

Q3. Your organisation is:

a. a business or firm

b. a trade body

c. an academic organisation

d. a research organisation

e. a community group

f. another type of organisation (please specify)

Q4. Your organisation name is?

Q5. What is the main activity of the organisation?

Q6. What is the number of people your organisation employs?

a. 1-50

b. 51-100

c. above 100

For which airport do you wish to provide your views (you may provide views on more than one airport)?

a. Heathrow Airport

b. Gatwick Airport

c. Stansted Airport

Consultation questions

Heathrow

Q7. To what extent do you agree, or disagree, with our night-time noise abatement objective for Heathrow Airport?

Q8. Provide a reasoning for your answer.

Q9. Would alternative wording be preferable for the night-time noise abatement objective? If yes, provide a reasoning for your answer.

Q10. Provide alternative wording on a night-time noise abatement objective.

Q11. How should the proposed night-time noise abatement objective for Heathrow airport be assessed to ensure it is successful?

Gatwick

Q12. To what extent do you agree, or disagree, with our night-time noise abatement objective for Gatwick airport?

Q13. Provide a reasoning for your answer.

Q14. Would alternative wording be preferable for the night-time noise abatement objective? If yes, provide a reasoning for your answer.

Q15. Provide alternative wording on a night-time noise abatement objective.

Q16. How should the proposed night-time noise abatement objective for Gatwick airport be assessed to ensure it is successful?

Stansted

Q17. To what extent do you agree, or disagree, with our night-time noise abatement objective for Stansted airport?

Q18. Provide a reasoning for your answer.

Q19. Would alternative wording be preferable for the night-time noise abatement objective? If yes, provide a reasoning for your answer.

Q20. Provide alternative wording on a night-time noise abatement objective.

Q21. How should the proposed night-time noise abatement objective for Stansted airport be assessed to ensure it is successful?

Final comments

Q22. Any other comments?

Annex B: The Balanced Approach

Background

The government recognises the International Civil Aviation Organisation (ICAO) Assembly’s “Balanced Approach” to aircraft noise management. The Balanced Approach consists of identifying noise problems that exist at an airport and then assessing the cost-effectiveness of the various measures available to reduce noise through the exploration of four principal elements, which are:

• reduction of noise at source (quieter aircraft);
• land-use planning and management;
• noise abatement operational procedures (optimising how aircraft are flown and the routes they follow to limit the noise impacts); and
• operating restrictions (including night flight restrictions brought about via this process).

The UK government has appointed “competent authorities” for England and Wales through the Airports (Noise-related Operating Restrictions) (England and Wales) Regulations 2018 (“the England and Wales Regulations 2018”).

The role of a competent authority is to ensure the correct process is followed when operating restrictions are considered or introduced at a major airport. Upon the England and Wales Regulations 2018 coming into force, the Aerodromes (Noise Restrictions) (Rules and Procedures) Regulations 2003 were revoked for England and Wales.

Consultation principles

The consultation is being conducted in line with the government’s key consultation principles.

If you have any comments about the consultation process please contact:

Consultation coordinator

Department for Transport

Zone 1/29 Great Minster House

London
SW1P 4DR

Email: [email protected]

Freedom of Information

Information provided in response to this consultation may be subject to publication or disclosure in accordance with the Freedom of Information Act 2000 (FOIA) or the Environmental Information Regulations 2004. If you want information that you provide to be treated as confidential, please be aware that, under the FOIA, there is a statutory code of practice with which public authorities must comply and which deals, amongst other things, with obligations of confidence.

In view of this it would be helpful if you could explain to us why you regard the information you have provided as confidential. If we receive a request for disclosure of the information, we will take full account of your explanation, but we cannot give an assurance that confidentiality can be maintained in all circumstances. An automatic confidentiality disclaimer generated by your IT system will not, of itself, be regarded as binding on the Department for Transport.

The department will process your personal data in accordance with the Data Protection Act (DPA) and in the majority of circumstances this will mean that your personal data will not be disclosed to third parties.

Confidentiality and data protection

The Department for Transport (DfT) is carrying out this consultation to gather evidence on night-time noise abatement objectives for the designated airports (Heathrow, Gatwick and Stansted). This consultation and the processing of personal data that it entails is necessary for the exercise of our functions as a government department. If your answers contain any information that allows you to be identified, DfT will, under data protection law, be the controller for this information.

As part of this consultation we’re asking for your name and email address. This is in case we need to ask you follow-up questions about any of your responses. You do not have to give us this personal information. If you do provide it, we will use it only for the purpose of asking follow-up questions.

DfT’s privacy policy has more information about your rights in relation to your personal data, how to complain and how to contact the Data Protection Officer.

To receive this information by telephone or post, contact us on 0300 330 3000 or write to:

Data Protection Officer
Department for Transport
One Priory Square
Priory Street
Hastings
TN34 1EA

Your information will be kept securely and destroyed within 12 months from the date of publication of the summary of consultation responses.