AVIATION BRIEFING June 03
Introduction
This
leaflet gives a summary of key facts and issues about air transport. It is
intended as a background briefing, not as a campaigning document. Reference is
made to the airports consultation process and documents – see annexe for
further information on the consultation.
Air transport is the
fastest growing sector of transport, with an annual growth rate of about 5%. In
2000 the number of passengers using UK airports was 181 million (each arrival
or departure is counted as one passenger). There were 2.5m tonnes of freight
and a total of 2.1m flights (passenger and freight). At present some 70% of
freight is carried in the hold of passenger planes.1,2
The government is
currently forecasting an increase of passengers by 2030 to 501m, an increase of
180% or 3.5% pa (per annum). The forecasts for freight tonnage at 2030 is 13.6m
tonnes, an increase of 440% or 5.8% pa.2 The fastest growing sector
of freight is flying fruit, vegetables and flowers into the UK.
The majority of UK
flights are scheduled passenger flights with charters representing some 20%.
Only about 22% of passengers are business, the rest being mainly
tourist/holidays and other personal trips such as study. These proportions are forecast to remain
roughly the same in 2030. About 10% of trips are domestic, ie within the UK.1,2,3
Climate
change
The most important, but
least obvious, impact of aircraft is the contribution to climate change. When burnt, aircraft fuel is converted to
carbon dioxide (CO2) and water (H2O). The global warming
effects of CO2 are well recognised. However, CO2 emitted
by aircraft on international flights is excluded from national targets.
Domestic flights are included in the targets.
Unlike surface transport,
emission of water vapour by aircraft is an issue. When injected into the upper
atmosphere, water has a considerable warming effect. The impacts are less well
understood than CO2, but a particular effect is the formation of
contrails, which have a disproportionate impact. Unlike CO2, the
impacts are regional rather than global.
An additional source of
warming is nitrogen dioxide (NO2). This gas, or its precursor nitric
oxide (NO) is emitted in much smaller quantities
than CO2 and H2O
and depends very much on the design and operating conditions of the engine.
(Emissions of CO2 and H2O in contrast depend just on the
weight of fuel burned.) The global
warming impact of NO2 at high altitudes is not to be confused with
its role as a toxic pollutant at ground level.
The total effect of aircraft emissions is known as
‘radiative forcing’. The total radiative forcing by CO2, H2O
and NO2 is about 3 times that of CO2 alone. By 1990
aircraft already contributed about 3.5% to the global warming caused human
activity. By 2050 this is forecast to rise to between 4 and 15%.4 The very wide margin is due to uncertainties
in the rate of growth of air travel and rate of improvement in aircraft
engines. It also assumes a ‘business as
usual’ scenario elsewhere – if other sectors make major cuts, the proportion
due to aircraft would be higher.
Aircraft emit large
quantities of pollution on landing and take-off. The most important pollutants are
nitrogen oxides, NOx. (Nitrogen dioxide or NO2 is in fact
the toxic and damaging gas, but nitric oxide, NO, gradually converts to NO2. For this reason, emission of both gases
together, NOx, is normally quoted.) At Heathrow, aircraft are the
major contributors to NO2 pollution, but around smaller airports
other sources, especially road traffic, contribute more. Small particulate
matter, PM10 or PM2.5, is less of a problem from
aircraft, the majority around airports coming from the road traffic and fixed
sources, such as power plant.
Noise
The impact that most
concerns people who live near airports is noise. Noise is generally measured as
an average, called ‘Loudness Equivalent’ or Leq. The average is typically taken
over an 18-hour period of day and evening and then further averaged over the
summer period, which is the busiest. The level of noise is expressed in
‘decibels’, dB.
Leq has a number of
shortcomings. Being an average, it does not measure peak noise as aircraft pass
over, but it is often the peak that disturbs. Also, due to the ‘logarithmic’
way noise is defined, an increase in the number of flights increases the
average noise very little. If the number of flights is doubled, the Leq
increases by only 3dB. An increase of
3dB in a ‘noise event’ sounds only slightly louder to the human ear, whereas a
doubling of noise events is much more disturbing. The use of Leqs enables the
industry and government to claim that noise levels are not increasing when
public perception is often the reverse.
At night Leq is of little
significance. Here it is the noise of individual aircraft that is most
important – whether it is loud enough to wake people up. However, the number of
flights is still important – most people can get back to sleep after being
woken by one plane, but are kept awake by a succession.
The government insists
that only areas exposed to 57dB suffer from significant noise. It draws
‘contour lines’ around the biggest airports, showing the areas and populations
exposed to more than 57dB. However, the World Health Organisation and the EU
consider that 50dB represents the onset of ‘community annoyance’. That is,
above 50dB at least some people are affected.
There are a number of
other adverse impacts on people and the environment:
The industry and
government make great play about the fact that air travel can bring investment
and jobs into the country. But they never mention the fact that it can equally
suck investment and jobs away. They also fail to point out in this context that
the great majority of air travel and the great majority of the forecast growth
is for tourism, not business (business is 22%). So the large growth being
promoted has little to do with business anyway. There is more than enough
airport capacity for business travel for the conceivable future.
Tourism takes far more
money out of the country than it brings in. In 2001 UK residents spent £18.7
billion abroad compared with £7.6bn foreigners brought into the UK.7 Yet the industry and government cite tourism
as an economic benefit of more air travel.
Cheap domestic flights
also encourage the growth in the number of second homes, which price local
people out of the housing market. This is happening in Cornwall, partly through
the effect of Newquay airport that offers cheap internal flights.
A campaign of
misinformation on the economic benefit of air travel was launched by a study
called ‘The Economic Benefits of Aviation’ in 1998 by a firm of consultants
called Oxford Economic Forecasting (OEF).8 It purported to be a
government study, one of a number of studies to underpin the government
consultation, ‘The Future of Aviation’ , and the current airports consultation.
In fact, 90% of the cost
was paid for by the aviation industry and it read like a lobbying document for
them. There were fundamental flaws in the study that were pointed out by
non-governmental organisations (NGOs) and independent economists.8,9 These flaws, which could not have been
overlooked by any competent economist, were not disputed by OEF or the
government.
Jobs
Another key plank of the
industry and government strategy is to 'hype up' the issue of employment and
use it to justify massive airport expansion.
Air transport employs
some 180,000 direct staff and about 200,000 indirectly via the supply chain.6 However, the number of people employed
in industry does not directly affect the total number of jobs in the UK. This is because money spent on air transport
is money not available to be spent on something else. If the money were spent
on goods and services other than air transport, the supply of those goods and
services would equally generate jobs.
As with the economy, the
key factor in employment is ‘substitution’. The amount of air transport and its
rate of growth therefore have no significant effect on the total number of jobs
in the UK. This conclusion is supported by economic consultancies that advise
the industry, government and NGOs.6,8
There are, of course,
major impacts on jobs locally. However, the job creation that is claimed is
highly suspect. There are no studies that compare the jobs actually generated
with those that were claimed in order to obtain planning permission. Also, the
jobs that would be created locally at airports, such as Gatwick and Heathrow,
threaten the countryside and Green Belt and the local economy. They require
more housing, roads and warehouses and will induce migration into areas that
have low unemployment and have no need of ‘regeneration’.
Air transport imposes
large costs on society because of its impacts. Many of these, such as global
warming, air pollution and noise, can be expressed in economic terms and are
called external or hidden costs. Paying such costs is a part of the ‘Polluter
Pays Principle’. The government says it supports the Polluter Pays Principle
and has stated specifically that it considers that air transport should pay its
external costs.
Calculating external
costs is difficult and imprecise. The
Green Party has estimated UK aviation’s external costs as £3.8bn, or 26% of the
EU total. Another estimate, based on an EU report, is that the external costs
are £4.8bn per year. Airport Watch estimates that the costs are between £2bn
and £4bn per year and rising.11 Even the industry now accepts that
the cost is of the order of £2bn. The
biggest component of external cost in these estimates is climate change. Air pollution and noise also figure. But other impacts, such as loss of
biodiversity and heritage, are often not included at all. This is presumably
because there is no accepted method of putting an economic value on them.
Tax breaks
As well as not paying its
external costs, the air transport industry does not pay certain taxes. There is
no tax on fuel, no VAT, and duty-free sales continue except for trips entirely
within the EU. It is estimated that if aircraft fuel were taxed at the same
rate as unleaded petrol, if VAT were levied at the standard rate and if
duty-free were abolished, the tax raised would be an astonishing £9.2bn a year
(and rising).12 This is after the current Airport Departure Tax
(APD) of £0.9bn has been netted off.
It may be considered
unreasonable for the industry to pay both external costs of £2-4bn pa plus tax
equalisation of £9.2bn. In the case of cars, the high tax on fuel is intended
to include external costs as well as pure revenue collection to pay for public
services. The same principle should probably apply to air transport; thus tax
at £9.2bn pa could be deemed to pay for the external costs.
There
are problems in charging certain taxes, particularly a tax on aircraft fuel. A
direct tax on fuel is presently prevented by international agreement, but the
UK government is doing nothing to initiate changes to these agreements. The EU
has proposed a charge on emissions within the UK, but it is not clear whether
this will happen and what will be the effect. In the absence of these, it would
be possible for the government to increase APD or to charge a levy on ‘landing
slots’. The Green Party has suggested an air traffic congestion charge, an idea
that is being pursued by Greens on the Greater London Assembly. However, the
government has shown little interest in these options.
Internationally
there is considerable interest in the use of ‘emissions trading’. In this
system, permits to emit greenhouse gases are purchased by airlines from other
companies who are able to reduce their emissions. While there are theoretical
advantages to emissions trading over taxes and charges, there are considerable
doubts as to whether emissions trading would be effective in reducing
emissions. Indeed, the main reason why emissions trading commands support
appears to be that it would allow the industry to increase emissions while
paying little for the privilege.
When everyone else -
other industries and citizens - have to pay tax on fuel, VAT and excise duty,
exemption for the air transport industry is, in effect, a subsidy by the
taxpayer. It means that the amount of
air travel is greater than the economic optimum. This tax-free regime favours frequent
fliers, ie the better-off, at the expense of the poor.
The over-riding problem
with air travel are its huge current and projected rates of growth.
Technological improvements are expected to improve fuel efficiency by 1-2% pa,
but the benefits that this will give will be swallowed up if growth is allowed
to continue at up to 5% pa. To move towards sustainability, the growth rate
needs to be cut to a maximum of 1% pa. To achieve greater aims, such as
bringing UK CO2 emissions down to a sustainable level, actual
reductions in air travel would probably be needed.
For shorter trips, within
the UK and around NW Europe, high-speed rail is a viable alternative to
air. The emissions per passenger km are
3 to 5 times less than those of air travel13,14 and the differential
in radiative forcing is greater still.
As a result of pressure
from the NGOs and the Green Party, the government has re-calculated the effect
on demand if taxes at the suggested level of £9.2bn pa were levied. The results
show that instead of 500m passengers pa in 2030, the demand would be 315m. This
level of demand would mean that no new runways and no new airports would be
needed in the SE of England or the whole of the UK.12
If air travel were
properly taxed, the spectre of a third runway at Heathrow, extra runways at
Stansted, Gatwick and Manchester, or a new airport at Cliffe or in Warwickshire
would be vanquished and environmental devastation avoided. Crucially, there
would be no economic cost to this scaling down of growth, because air travel
would then be close to its optimal economic level.
Green Party www.greenparty.org.uk/campaigns
[aviation]
Aviation Environment Federation
www.aef.org.uk
Airport Watch www.airportwatch.org.uk
Friends of the Earth www.westlondonfoe.org
[aviation]
ANNEX - AIRPORTS CONSULTATION
In Dec 2000 the
government issued a consultation paper ‘The Future of Aviation’. This was the
first major document following the government’s commitment to “prepare a new
airports policy and to bring forward new policies on civil aviation.”
The paper covered the
general and strategic issues, but not individual airports. The section on economic impacts was brief
and biased; it quoted, without qualification, a report paid for largely by the
industry.
In July 2002, the
airports consultation ‘The Future Development of Air Transport in the UK” was
issued2. A consultation
document (CD) was issued for each of the regions. The CDs are based on a
massive forecast increase in traffic, from 181m passengers pa at 2000 to 500m
at 2030. The CDs are based on a premise of ‘predict and provide’ – there is
very little about managing demand.
External costs are
considered in these CDs and an estimate of the economic cost of climate change
is made. But by sleight of hand, the Department for Transport (DfT) has
effectively ignored any effects on demand As with ‘The Future of Aviation’,
there was much ‘hyping up’ of economic and employment benefits. The sections on
these subjects were biased and misleading; anything that might lead to an
alternative conclusion being suppressed.
There is a chapter on
each existing airport with a range of options for expansion. Expansion is
considered in terms of new runways. Associated developments such as terminals
are only mentioned in passing. There are also options for new airports, notably
in Warwickshire and Cliffe (north Kent).
For each region, a series
of ‘packages’ was devised. Each package consists of a combination of options at
each airport. In the SE, for instance, one package is a Heathrow option with
one short runway and a Stansted option with two extra full-length runways.
The
consultation raised great community concerns and sparked off massive public
protest. Local councils and MPs joined in the protests. Two significant
objectors where quasi-governmental bodies - the Royal Commission on
Environmental Pollution and the Sustainable Development Commission.
A number of NGOs,
including Friends of the Earth, the Aviation Environment Federation, Council
for the Protection of Rural England, Royal Society for the Protection of Birds
and the National Society for Clean Air set up a coalition called Airport Watch.
The object of Airport Watch is to resist the environmental devastation that is
being threatened and to coordinate and assist local groups in putting their
case.
A key concern for Airport
Watch is that local groups should not be ‘nimby’. That is, they should not just
oppose expansion at their local airport and say ‘put it somewhere else’. The local groups were urged to challenge the
‘need’ for enormous expansion, the concept of ‘predict and provide’, and the
continuance of tax breaks. To their great credit, most local groups have done
just that.
2nd Round Airports Consultation
During
the consultation, a legal challenge was made by a group of local authorities.
They argued that Gatwick options for expansion should have been included. As a
result, the government had to re-work its packages to include Gatwick. The SE
consultation document was re-issued in Feb 2003 and the new consultation period
runs until 30 June 2003.
Further
runs of the DfT’s computer model had been carried out before the second
consultation. These confirmed what the NGOs and the Green Party had been
claiming, namely that if the industry were to pay its external costs and full
taxes, much of the demand would evaporate and no new runways would be needed.
This vital new data has been omitted from the revised CDs.
White Paper
Following
‘The Future of Aviation’ and the airports consultations, a White Paper on a new
UK airports policy will be published. This is expected at the end
of 2003 or early in 2004.
REFERENCES
1 CAA : UK airports statistics (annual)
2 Airports consultation documents : www.airconsult.gov.uk
3 SE airport studies paper : ‘Where are the
passengers’
4 Aviation
and the Global Atmosphere.1999
A Special Report of Intergovernmental
Panel on Climate Change Working Groups I and III in collaboration with the
Scientific Assessment Panel to the Montreal Protocol on Substances that
Deplete the Ozone Layer. J.E.Penner,
D.H.Lister, D.J.Griggs, D.J.Dokken, M.McFarland (Eds.) Cambridge University
Press, UK.
5 Office of
National Statistics : www.statistics.gov.uk
6 Berkeley
Hanover Consulting report : ‘The Impacts of Future - Aviation Growth in the
UK’, Dec 2000.
7 HACAN
note : ‘Air transport and the economy’, 2002
8 Oxford
Economic Forecasting report : ‘The Economic Benefits of Aviation’, 1998.
9 www.wlfoet5.demon.co.uk/archive/oxstudy.htm
10 Green
Party report : ‘Aviation’s Economic Downside’
11 Airport
Watch : www.airportwatch.org.uk [
briefings]
12 Aviation
Environment Federation report : ‘The Hidden Cost of Flying’, Feb 2003
13 Centre
for Energy Conservation and Energy Conservation, Delft : ‘A European Aviation
Charge : Feasibility Study’, 1998.
14
Commission for Integrated Transport : ‘A comparative study of the environmental effects of rail and
short-haul air travel’, Sep 2001.
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