JLJ 0966 1

TAG FARNBOROUGH AIRPORT LIMITED

PLANNING STATEMENT

APPLICATION UNDER SECTION 73 OF THE TOWN AND COUNTRY PLANNING ACT 1990 TO VARY CONDITION 8 OF THE PLANNING PERMISSION REFERENCE APP/P1750/A/06/2024640 ISSUED BY THE SECRETARY OF STATE ON 13 MARCH 2008

TO ALLOW AN INCREASE IN THE TOTAL NUMBER OF AIRCRAFT MOVEMENTS PERMITTED AT THE AIRPORT FROM 28,000 TO A MAXIMUM 50,000 AIRCRAFT MOVEMENTS PER ANNUM, INCLUDING AN INCREASE IN THE NUMBER OF AIRCRAFT MOVEMENTS PERMITTED AT WEEKENDS AND BANK HOLIDAYS FROM 5,000 TO 8,900 PER ANNUM.

8 June 2009

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Contents

Page No

Section 1: Introduction 3

Section 2: TAG Farnborough Airport 3

Section 3: The TAG Farnborough Airport Master Plan 5

Section 4: The Proposal 6

Section 5: Planning Policy Considerations 9

Section 6: Conclusions 27

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1. Introduction

1.1 This Planning Statement has been prepared by RPS on behalf of TAG Farnborough

Airport Limited (‘TAG’) (the ‘Applicant’), to accompany the planning application to vary

its existing planning permission (issued by the Secretary of State on 13 March 2008),

reference APP/ P1750/A/06/2024640) under Section 73 of the Town and Country

Planning Act 1990. The Planning Statement provides an overview of the proposal,

and the relevant planning policy considerations. It should be read in conjunction with

the Environmental Statement (ES), which assesses the likely environmental and

other impacts associated with the proposals. Appended to the ES are a Transport

Assessment, Travel Plan and the ES Scoping Report and Scoping Opinion. In

addition to the ES, there are a number of separate documents which have been

prepared in support of the application and provide further information: Design and

Access Statement, Economic Statement; Sustainability Statement and Statement of

Community Involvement

1.2 The planning submission comprises:

• Application Covering Letter

• Application Site Plan

• Planning Application Forms

• Planning Statement

• Design and Access Statement

• Environmental Statement (appended Scoping Report and Scoping Opinion,

Transport Assessment and Travel Plan)

• Economic Statement

• Statement of Community Involvement

• Sustainability Statement

2. TAG Farnborough Airport

2.1 In 2008, TAG Farnborough Airport (the ‘Airport’) celebrated its first 100 years of

continuous operation. Since 1998, TAG has been the preferred operator of the

Airport, and in 2007 TAG became the freehold owner of the Airport. Since their

involvement began, over the last 10 years TAG has made substantial investments in

award-winning, world-class infrastructure and state-of-the-art technology.

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2.2 The Airport is now the premier Business Aviation gateway for the UK, and it is the

pre-eminent Business Aviation airport in the UK, and rivals the best in the World.

2.3 The Airport is specifically chosen by those seeking the highest quality and standards

of dedicated Business Aviation services, and with easy access and travel time

savings for in particular London and businesses in the Thames Valley and Blackwater

Valley. These businesses and individuals are responsible for substantial inward

investment in the UK, as well as the originators of overseas trade for the UK.

2.4 TAG lets premises to over fifty tenants on the site. These include major Business

Aviation manufacturing companies, such as Cessna and Bombardier, as well as

companies that manage, maintain and refurbish Business Aviation aircraft.

2.5 TAG remains committed, now and in the future, to supporting the biennial

Farnborough International Airshow, a showcase for global aviation and aerospace. In

2008, the 60th anniversary Farnborough International Airshow attracted record orders

of £44.35 billion.

2.6 The Airport is also a significant local employer. A survey in September established

that some 1,107 people were working full-time at the Airport plus a further 64 part-

time posts. In addition, there are many more local jobs created by businesses

supplying or supporting the operation of the Airport.

2.7 The use of the Airport is principally controlled by a Planning Consent dated 13th

March 2008, issued by the Secretaries of State for Transport and Communities and

Local Government. This planning consent contained a number of changes to

conditions, principally to vary the proportion of flights allowed at weekends, but is

otherwise the same as the original planning consent issued for the use of the Airport

dated 11th October 2000.

2.8 Accompanying that original Planning Consent was a legal agreement, being a Deed

dated 10th October 2000, which imposes additional restrictions on the use of the

Airport. This Deed remains in force, and together with the Consent dated 13th March

2008, provides the principal controls over the use of the Airport.

2.9 The use of the Airport is legally restricted by the Planning Consent and the Deed to

Business Aviation. Bulk freight services, scheduled passenger services and 'inclusive

tour' charter flying are specifically prohibited, and TAG has no intention to seek to

vary this position.

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2.10 The hours of operation at the Airport are also legally restricted to 07.00-22.00 hours

on weekdays and 08.00-20.00 hours on Saturdays, Sundays and Bank Holidays.

TAG is not seeking to change the hours of operation.

2.11 The Airport also operates a voluntary Quiet Flying Programme so as to ensure that

aircraft operating at Farnborough do so as quietly as possible. TAG is committed to

continuing to operate, and enhance the Quiet Flying Programme, in consultation with

the FACC (Farnborough Airport Consultative Committee).

3. The TAG Farnborough Airport Master Plan

3.1 As part of the process of preparing an Airport Master Plan, TAG undertook a

comprehensive programme of public consultation between May 2008 and February

2009. The consultation was held in two stages.

3.2 Stage 1 - The Preliminary Consultation was open for six weeks from Tuesday 20th

May to Monday 30th June and subsequently extended to Friday 4th July. The

Preliminary Consultation was used to gather views to help inform the preparation of

the Master Plan (Draft for Consultation). In total, 1,800 responses were received. Of

those, 379 were received through the online form on the website and 1,421

responded using the hard copy questionnaire and freepost address.

3.3 Stage 2 launched the Master Plan (Draft for Consultation) and involved a more

comprehensive consultation involving a series of public exhibitions. The second stage

of consultation commenced with the launch of the Masterplan (Draft for Consultation)

on 19th December 2008. The consultation was open until 28th February 2009.

Approximately 800 local people attended twelve exhibitions in ten locations and

attendees included local residents, councillors and MPs. A total of 355 people

submitted responses. Of those, 224 were postal questionnaires and 136 were

completed online.

3.4 In response to the Master Plan (Draft for Consultation) responses, the Master Plan

was revised, and the reasons and proposed changes as set out in the Statement of

Community Involvement, included at Appendix 2 of the Masterplan, are reproduced

below:

• Noise continues to be a significant concern for local residents. TAG will take an

industry leading approach to phase out all but the most modern and quietest

categories of aircraft. Within five years, only fixed-wing aircraft meeting ICAO

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Chapter IV noise standards, the current highest accepted standard, will be

permitted.

• TAG understands that helicopter noise is of concern to the local community and

is, therefore, investigating operational methods of reducing this particular impact

of those using the Airport.

• There are a number of aircraft, including helicopters, operating in the area that do

not use TAG Farnborough Airport and therefore are not under its control. TAG will

explore with the CAA the possibility of applying for an Airspace Change Proposal.

If granted, TAG would have a greater degree of control over a larger area of

airspace around the Airport and so would be able to introduce procedures that

could result in further noise mitigation.

• The current use of the Airport is legally restricted to Business Aviation and use for

bulk freight services is specifically prohibited. TAG has no intention to seek to

vary this position.

• Scheduled passenger services and 'inclusive tour' charter flying are also

prohibited. Again, TAG has no intention to seek to vary this position.

• The hours of operation at the Airport are legally restricted to 07.00-22.00 hours

on weekdays and 08.00-20.00 hours on Saturdays, Sundays and Bank Holidays.

TAG will not seek to increase the hours of operation.

• TAG will not seek to increase the current permitted number of aircraft weighing

over 50,000 kilograms Maximum Take Off Weight.

• TAG has confirmed its commitment, now and in the future, to supporting the

biennial Farnborough International Airshow.

• TAG has committed to assess the effect of the Airport and proposed future

growth on the road network in consultation with the local highway authority.

• TAG has recognised the importance placed by the local community on restricting

weekend and Bank Holiday movements. These movements are currently

restricted to 5,000 out of a total of 28,000 movements. TAG has committed not to

seek to increase the proportion of weekend and Bank Holiday movements.

3.5 The final Master Plan was published on the 14 April 2009, and made available on the

FACC website. The proposal which is the basis of this planning application follows

directly from the Master Plan proposals, and has had regard to all of the Master Plan

consultations, and issues raised.

4. The Proposal

4.1 The only issue TAG is seeking to address with this planning application, is to vary a

condition of the existing planning consent for the Airport, to allow for an increase in

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the total number of aircraft movements permitted at the Airport from 28,000 to a

maximum 50,000 movements per annum, including an increase in the number of

aircraft movements permitted at weekends and bank holidays from 5,000 to 8,900 per

annum. For simplicity, the application to extend the existing cap on aircraft

movements is referred to as ‘the Proposal’.

4.2 No other restrictions are to be changed, and in particular as referred to above, there

will be no changes to the use of the Airport, which will remain restricted to Business

Aviation, there will be no changes to the restrictions on cargo flights, and there will be

no change to the hours of operation. Neither, despite the proposed increase in total

flights, will there be any change in the maximum number of larger ‘heavy’ aircraft that

can use the Airport.

4.3 The Applicant seeks no increases in development land or additional land take at the

Airport, and no further built works or additional infrastructure, beyond that which is

already approved.

4.4 As part of TAG’s commitment to public safety, the proposals have been designed to

ensure that the Third Party Risk Contour (the 1 in 10,000 risk contour), would be

maintained within the Airport perimeter boundary at the Farnborough end of the

runway, and no residential or commercial premises outside of the Airport will fall

within this area.

4.5 The Public Safety Zone (the 1 in 100,000 risk contour) already extends beyond the

airport boundary over residential properties. Minimal changes are expected to the

boundaries and extent of this contour as a result of the Proposal, further details of

which are set out in Chapter 4 of the ES.

4.6 The assessment of public safety was undertaken by NATS (National Air Traffic

Services), who were granted approval by the DfT to undertake Public Safety

Modelling consultancy activities outside the core contract between NATS and DfT. In

so doing, NATS uses the same methodology, rigour and tools for consultancy

activities as it does when satisfying work for DfT.

4.7 Noise considerations have also been addressed in detail, and are set out in Chapter

11 of the ES. The Proposal has been designed to ensure that:

• The area of land affected by the 55 and 60 dB L AEQ16h noise contours, being the

noise budget areas applied in the legal agreement (the Deed) which controls the

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use of the Airport, will as a result of the proposals be significantly less than the

noise budget areas set.

• Outside of the Airport boundary, there will be no properties as a result of the

proposal within the 69 or 63 dB L AEQ16h noise contours, being the noise levels

associated with high and moderate levels of annoyance from noise.

• The Government requires an Airport to offer acoustic insulation to any residential

property which suffers from both a medium to high level of noise (63 dB L AEQ16h

and more) and a large increase in noise (3 dB L AEQ16h or more).

• There are currently no properties within the 63 dB L AEQ16h noise contour, and

none would be included in the 63 dB L AEQ16h noise contour as a result of the

Proposal.

• The Proposal will result in an increase in noise for the closest properties,

compared to not having the proposals, of 2 to 3 dB L AEQ16h.

• The Proposal would, if there were no changes to the current aircraft type, result

in a small number of properties being included within the 60 dB L AEQ16h noise

contour. In the event that any properties would fall within the 60 dB L AEQ16h noise

contour as a result of annual modelling predictions, they would under the terms of

the legal agreement (the Deed) for the Airport, qualify for payments from TAG

towards acoustic insulation.

4.8 There are also a number of associated proposals and commitments that accompany

the planning application, including:

• Restrictions to be introduced for the type of aircraft using the Airport, to phase out

all but the most modern and quietest aircraft types. Within five years, only fixed-

wing aircraft meeting ICAO Chapter IV noise standards, the current highest

accepted standard, will be permitted.

• A Travel Plan for the Airport has been prepared, to encourage the use of

sustainable modes of transport by staff, tenants and users of the Airport.

• To work with Rushmoor Borough Council (RBC) to investigate Airport related

odour issues

• To investigate the potential for a fuel efficiency / NOx emissions charging scheme

• To develop an Environmental Management System and sustainability

implementation strategies pursuant to the Sustainability and Climate Change

Charter as set out in the Airport Master Plan.

• To explore with the Civil Aviation Authority (CAA) the possibility of applying for an

Airspace Change Proposal.

4.9 These proposals are set out in more detail in the ES and appended documents.

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5. Planning Policy Considerations

5.1 The planning policy context for the Proposal is currently provided by:

National Planning Policy Guidance:

a) Government White Papers – The Future of Air Transport 2003 and the Future of

Transport 2004

b) National Planning Policy Statements (PPSs), National Planning Policy Guidance

(PPGs) and Government Circulars

Regional and Local Development Plans:

a) The South East Plan 2009

b) The Rushmoor Local Plan 2000 (saved policies only)

Statements of the Secretaries of State for Communities and Local Government and

Transport:

a) Appeal decisions

b) Ministerial statements

5.2 Each of these policy matters are considered below:

National Planning Policy Guidance:

“The Future of Air Transport” White Paper (December 2003)

5.3 The White Paper states that aviation is nationally and locally significant (paragraph

1.5):

“provision of adequate infrastructure and capacity is important for national

competitiveness, for regional development, and for people’s ability to travel quickly,

easily and affordably to where they want to go”

5.4 The White Paper recognises the important contribution that airports make to the

surrounding economy, as well as the national economy (paragraphs 4.24 and 4.25):

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“They attract business and generate employment and open up wider markets. They

can provide an important impetus to regeneration and a focus for new commercial

and industrial development.”

“Many airports increasingly act as a focal point for 'clusters' of business

development. By offering the potential for the rapid delivery of products by air freight

and convenient access to international markets through the availability of flights for

business travel, they can attract inward investment to a region”

5.5 The White Paper states that the priority is to make the best possible use of existing

runways at the major south east airports before additional built development is

required whilst providing much needed capacity (paragraph 11.7):

“Making best use of existing runways in the South East will provide some much-

needed additional capacity. But on its own it would fall a long way short of providing a

lasting solution. Facilitating the growth of airports in other regions will also reduce the

pressure on the major South East airports, but this will not substantially reduce the

long-term pressure on London airports.”

5.6 The White Paper says that at the local level, decisions on the amount and location of

future airport capacity should properly reflect environmental concerns. This includes

ensuring that airport developments are consistent with existing arrangements for the

control of noise and other environmental impacts of aviation. The White Paper states

(paragraph 11.95):

“To help the small airports in the South East achieve their development aims, regional

and local planning frameworks should take account of the benefits that development

at the smaller airports could provide , and consider policies which facilitate the

delivery of growth at these airports. The specific details of development at any airport

should remain a matter of local determination through the planning system.”

5.7 The White Paper recognises the important contribution made by small airports in the

South East, including Farnborough, stating that (paragraph 11.101) :

“The ability of Business Aviation to gain access to the main airports in South East will

continue to be problematic as capacity constraints cause airports to focus on more

valuable commercial traffic. The Government recognises the important contribution

made by small airports in the South East in providing capacity for Business Aviation.

We support the adoption of policies which encourage the continued provision of these

services. We sought views in consultation on six existing Business Aviation

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aerodromes which we felt had potential to provide additional capacity to cater for

Business Aviation demand: Farnborough, Biggin Hill, Blackbushe, Fairoaks,

Farnborough (sic), Northolt and Southend…"

5.8 The White Paper acknowledges that while the benefits of aviation and air travel are

spread evenly across society, the adverse impacts can be distributed unevenly and

those living closest to airports have to live with the immediate environmental effects

associated with air travel, which should be managed as best as possible. Its states

that (paragraph 3.5):

“Adverse impacts should be controlled, mitigated and, where relevant, made the

subject of suitable compensation.”

5.9 The White Paper explains the Governments’ approach to noise mitigation and

compensation, and states in paragraph 3.15;

“0ur approach to noise impacts is first, to seek to control the scale of impacts;

second, to mitigate remaining impacts; and third, to compensate for those impacts

which cannot be mitigated …”.

5.10 The White Paper also contained advice on the actions the Government expected

airport operators (airports with more than 50,000 movements per year) to take,

(paragraph 3.2.4:

“To address the impacts of future airport growth we expect the relevant airport

operators to:

Offer to purchase those properties suffering from both a high level of noise (69 dBA

Leq or more) and a large increase in noise (3 dBA Leq or more); and

Offer acoustic insulation to any residential property which suffers from both a medium

to high level of noise (63 dBA Leq or more) and a large increase in noise (3 dBA Leq

or more).”

5.11 These levels of noise do not occur now at the Airport and will not occur in the future

with regard to noise sensitive areas

“The Future of Transport” White Paper (July 2004)

5.12 The Future of Transport White Paper mirrors the aims of the Air Transport White

Paper on making the best possible use of existing runways (paragraph 7.13):

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“The Air Transport White Paper concludes that the first priority is to make best

possible use of the existing runways. It also supports the provision of two new

runways in the South East in the period to 2030 - the first at Stansted (2011-12) and

the second at Heathrow (2015-20) provided strict environmental limits can be met.

Land at Gatwick will be safeguarded for a new runway in case conditions attached to

a new Heathrow runway cannot be met.”

5.13 The White Paper also recognises the merit of economic incentives to offset the costs

of environmental effects of aviation (paragraphs 7.16 and 7.17):

“We will work to ensure that aviation meets its external costs, including its

environmental and health costs. The aviation industry has a responsibility to reduce

its impacts under the 'polluter pays' principle. The biggest impact in monetary terms is

aviation's contribution to climate change and a solution to that end is set out in the Air

Transport White Paper. We expect the aviation industry and international bodies to

address the problem seriously, responding creatively to the common challenge of

global warming”

“Well-designed economic incentives are an important mechanism for delivering the

Government's environmental objectives, including those for aviation. Potential

economic instruments include environmental charges, taxes and trading schemes.

These measures use price signals to drive improvements, and can help to encourage

the development and use of environmentally beneficial technology. Economic

instruments can help ensure that aviation bears the external costs it imposes on

society. Any such instruments must be legally robust and deliver real environmental

improvements”

The Future of Air Transport Progress Report (2006)

5.14 This report fulfils the commitment made in The Future of Air Transport White Paper

2003. It sets out the areas that have been delivered on from the original document

and the continued progress the industry is looking to make.

5.15 The report strongly reinforces the policy set out in the 2003 White Paper (paragraph

1.1):

“Rejected proposals for new capacity at several airports and at new greenfield

locations, and instead promoted making much better use of existing airport capacity.”

5.16 The report identifies the continued economic benefits of aviation to the UK economy

through direct economic contributions through investment and employment. Air

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transport continues to play an important role in the future of the UK economy and is

seen as being very important in its continued development and growth (paragraph

1.10):

“The aviation industry makes an important contribution to the UK economy,

supporting around 200,000 jobs directly and more indirectly. The importance of

aviation to the economy is rising as a result of broader economic trends”

5.17 The report identifies the continued economic benefits of aviation to the UK economy

through direct economic contributions through investment and employment that

(paragraph 1.14):

"aviation has an important role to play in the future, in developing the UK economy,

supporting leisure, and in further enhancing our global connectivity" (paragraph 1.14).

The report reaffirms that “There is a strong demand for air travel, but this must be

delivered in a way that balances the need to manage aviation’s environmental

obligations. “

5.18 The report emphasises the importance of aviation and climate change. This

emphasis ranges from an international level with regards to the Kyoto Agreement and

the concept of an effective approach at EU level with regards to emissions trading,

down to a local level with regards to individual airports through clearer national

framework policy (paragraph 2.10):

“The Government continues to believe that this can be done by emissions trading.

This mechanism – which already operates across the EU in other sectors – should be

extended to the aviation sector at the earliest opportunity. Inclusion of aviation in the

emissions trading scheme is the most efficient and cost-effective way to ensure that

the sector plays its part in tackling climate change. This approach was endorsed by

Sir Nicholas Stern’s recent report on the economics of climate change, which strongly

supports carbon pricing to ensure that economic decisions fully reflect social and

environmental costs.”

Planning Policy Statement 1: Delivering Sustainable Development (PPS1, February

2004)

5.19 PPS1 advises that where the development plan contains relevant policies planning

applications should be determined in line with the plan, unless material

considerations indicate otherwise. In this instance national policy considerations

include the more recent Government White papers and national planning policy

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guidance. As the Local Development Framework documents are at the very earliest

stages of preparation, they are of very limited weight, and refer to the Farnborough

Airport policies as “saved policies”. There is therefore no issue of prematurity in these

circumstances.

Planning Policy Statement 1: Delivering Sustainable Development (January 2005)

5.20 PPS1 sets out the Government’s overarching planning policies on the delivery of

sustainable development through the planning system. Sustainable development is

considered to be the core principle underpinning planning, and in relation to this

Proposal, can be achieved through promoting more efficient use of land. Paragraph

20 states that Local Authority Development Plan policies should take account of

environmental issues such as mitigating the effects of climate change and adapting to

climate change.

5.21 In December 2007, the Government published a supplement to PPS1 titled “Planning

and Climate Change”. Paragraph 7 of the supplement states that spatial planning

has a key role in helping to tackle climate change through securing progress against

the UK’s emissions targets, and helping delivery of the Government’s ambition of

zero carbon development.

Planning Policy Guidance 13: Transport (April 2001)

5.22 Annex B of PPG13 deals with planning for airports. This acknowledges the role of

smaller airports in meeting the demand for Business Aviation as larger airports are

required to meet the needs of commercial air transport. PPG13 recommends that in

preparing plans and determining planning applications, local authorities should take

account of the economic, environmental, and social impacts of general aviation

(including Business Aviation) on local and regional economies as well as consider the

extent to which development is related to the operation of the Airport and whether this

is sustainable given prevailing and planned levels of public transport to the Airport.

5.23 The Annex also recognises that in considering the environmental impacts of

proposals, existing sites with established aviation uses, including redundant military

airfields, will often provide the best opportunities for aviation facilities. It is understood

that development of neighbouring sites should be compatible with aviation use.

Conditions may be necessary to limit the environmental impacts of aviation, and this

should be made clear in the development plan where possible.

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5.24 Paragraph 8 states that surface access needs should be planned as part of the wider

transport strategy for the local area. This may involve for example, parking restraint

and the development of a travel plan for the airport, covering journeys by employees

and users of the airport.

Planning Policy Guidance 24: Planning and Noise (PPG24, September 1994)

5.25 The Planning Policy Guidance Note refers to noise from aircraft and sets out

guidance for using noise contours as a means of controlling the development of

aerodromes. Annex 4 describes the formation of planning conditions within the

context of Circular 1/85 (now superseded). Annex 5 of the guidance note offers

guidance on specifying noise limits.

5.26 In PPG 24 paragraph 12 indicates that:

“… When determining planning applications for development which will be exposed to

an existing noise source, local planning authorities should consider both the likely

level of noise exposure at the time of the application and any increase that may

reasonably be expected in the foreseeable future, for example at an airport”.

5.27 A summary of the PPG 24 guidance regarding daytime noise is given in Table 9.2:

Table 9.2: PPG 24 Guidance With Regard to Airborne Aircraft Noise (Daytime)

LAeq,16h dB Guidance/Experience with regard to airborne aircraft noise (daytime)

< 57 Noise need not be considered as a determining factor in granting

planning permission, although the noise level at the high end of the

category should not be regarded as a desirable level.

PPG 24 Category A

57 – 66 Noise should be taken into account when determining planning

applications and, where appropriate, conditions imposed to ensure an

adequate level of protection against noise.

PPG 24 Category B

66 – 72 Planning permission for housing should not normally be granted.

Where it is considered that planning permission should be given, for

example because there are no alternative quieter sites available,

conditions should be imposed to ensure a commensurate level of

protection against noise.

PPG 24 Category C

> 72 Planning permission for housing should normally be refused.

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PPG 24 Category D

5.28 Annex 2 of PPG 24, in paragraph 4 states that:

“… In respect of air traffic noise a considerable amount of research has been carried

out. 57 dB(A) LAeq (previously 35 NNI) relates to the onset of annoyance as

established by noise measurements and social surveys”.

5.29 In addition, PPG24 outlines the considerations to be taken into account in

determining planning applications for those activities which will generate noise, and

advises on the use of conditions to minimise the impact of noise. Paragraph 18

states:

“There will also be circumstances when it is acceptable - or even desirable in order to

meet other planning objectives - to allow noise generating activities on land near or

adjoining a noise-sensitive development. In such cases, local planning authorities

should consider the use of conditions or planning obligations to safeguard local

amenity.”

Draft Planning Policy Statement 4: Planning for Prosperous Economies (May 2009)

5.30 The Draft PPS4 will supersede PPG4 (Economic Development) and PPG6 (Town

Centres) and outlines the evolving thinking in terms of planning policy for economic

growth. In the first paragraph of the Foreword, Margaret Beckett (Minister for

Housing and Planning) states that the PPS:

“sends a clear signal that we are determined to ensure the long term economic

success of our communities with a coherent and modern set of policies designed to

meet the challenges of global competition for jobs and investment and rapid

advances in technology and working patterns.”

5.31 In the introduction, those categories of development to which the guidance is

applicable are outlined at paragraph 3 as follows:

“For the purposes of the policies in this PPS, economic development includes

development within the B Use Classes, town centre uses and other development

which achieves at least one of the following objectives whether in urban or rural

areas:

1. provides employment opportunities

2. generates wealth or

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3. produces or generates an economic output or product”

5.32 Paragraph 6 sets out a series of eight objectives that the Government has for

prosperous economies. The most relevant are cited below:

“The Government’s objectives are to:

• achieve sustainable economic growth

• raise the productivity growth rate of the UK economy – by promoting investment,

innovation, competition, skills and enterprise and providing job opportunities for all…

• deliver more sustainable patterns of development, and respond to climate

Change…”

5.33 Policy EC2 (Regional Planning for Prosperous Economies) states that regional spatial

strategies should inter alia:

“support existing business sectors, taking account of whether they are expanding or

contracting and make provision, as necessary, for the location, expansion and

promotion of clusters or networks of knowledge driven industry”

“recognise, and positively plan for, the benefits that can accrue when certain types of

businesses locate within proximity of each other or with other compatible land uses,

such as universities and hospitals and other high technology industries”

“plan for the delivery of the sustainable transport and other infrastructure needed to

support their planned economic development and, where necessary, provide advice

on phasing and programming of development for local planning authorities”

5.34 Policy EC4 (Local Planning Approach to Economic Development) states that local

development frameworks should inter alia:

“support existing business sectors, taking account of whether they are expanding or

contracting and make provision, as necessary, for the location, expansion and

promotion of clusters or networks of knowledge driven industry”

“set out evidence based policies for the delivery of the sustainable transport and other

infrastructure needed to support their planned economic development and, where

necessary, provide advice on phasing and programming”

5.35 Policy EC12 (Planning Applications for Economic Development) states:

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“In determining applications for economic development other than main town centre

uses, local planning authorities should:

1. consider proposals for economic development other than town centre uses,

favourably unless there is good reason to believe that the social, economic and/or

environmental costs of development are likely to outweigh the benefits;…

3. adopt an evidence-based approach in determining applications for proposals other

than for town centre uses which do not have the specific support of plan policies by:

a) weighing market and other economic information alongside environmental and

social information

b) taking full account of any longer term benefits, as well as the costs, of

development, such as job creation or improved productivity including any wider

benefits to national, regional or local economies; and

c) considering whether those proposals help to meet the wider objectives of the local

development framework”

Regional and Local Development Plans

The South East Plan 2009

5.36 The South East Plan (SEP) Regional Spatial Strategy for the South East of England

was published by the Government Office for the South East on 6th May 2009.

5.37 Paragraph 8.27 refers to the transportation hierarchy of settlements, and as shown on

Diagram T1, which identifies Farnborough as a Regional Transport Interchange:

“In some instances a high level of public transport accessibility does not in itself

warrant identification of the location as a regional hub, but a high level of accessibility

and interchange is of regional significance. The role of these transport interchanges

should be protected and enhanced where possible. The pattern of gateways, hubs

and interchanges are set out in Diagram T1”

5.38 The Air Transport White Paper is referred to at paragraph 8.30:

“The Air Transport White Paper highlighted the important role that small airports can

play in providing access to air services that reduce the pressure on the main airports,

particularly in the period before a new runway in the South East is built. In addition to

the potential previously identified for Southampton Airport, the potential of Kent

International Airport to fulfil an enhanced role as a regional airport is also

acknowledged. Other smaller airports could play a valuable role in meeting local

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demand and contributing to regional economic development. Subject to relevant

environmental considerations, their development should be supported, and regional

and local planning frameworks should consider policies which facilitate growth at

these airports”

5.39 Airport Masterplans are referred to at paragraph 8.31:

“The White Paper supported the production or updating of masterplans by Airport

operators to set out the development of airports up to 2015. The appropriate planning

and transport bodies will need to take account of these new or revised airport

masterplans”

5.40 Paragraph 8.43 addresses sustainability:

“Specific transport infrastructure projects will be developed through a balanced

appreciation of economic, environmental, and social considerations, in line with the

principles of sustainable development.”

5.41 Policy T9, Airports states:

“Relevant regional strategies will include policies and proposals that:

…iv. take account of airport operator masterplans produced in accordance with the

Air Transport White Paper.”

Priority should be given in the Airport Surface Access Strategies for each airport to

achieve:

i To reduce the environmental impact of surface access

ii To increase modal share in favour of public transport and sustainable modes”

Rushmoor Local Plan 2000

5.42 The Rushmoor Local Plan was adopted in August 2000 and, with the exception of

four policies, all policies within the Plan have been saved by the Secretary of State.

RBC has commenced preparation of its Local Development Framework (LDF) which,

once approved, will replace the Local Plan.

5.43 The Rushmoor Local Development Scheme (LDS), published in November 2008,

sets out RBC’s programme for preparing the LDF documents. RBC has decided to

prioritize preparation of the Core Strategy and the Farnborough Airport Area Action

Plan (FAAAP).

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5.44 An initial Core Strategy was prepared, consulted on and subsequently submitted for

examination in December 2006. This was subsequently withdrawn. Preparation of a

revised Core Strategy is underway and, according to the LDS, the options report and

sustainability appraisal are due to be published in for public consultation in

September 2009. Adoption and publication of the final version of the Core Strategy

and Proposals Map is scheduled for October 2011.

5.45 With regard to the FAAAP, an initial consultation document and questionnaire called

‘Have Your Say on Farnborough Airport Area’ was published in January 2009. In

April, RBC published a report on the consultation responses. According to the LDS,

the options report and sustainability appraisal are due to be published in for public

consultation in September 2009. Adoption and publication of the final version of the

FAAAP is scheduled for February 2012.

5.46 Given the early stages of the LDF process, with the first stages not due to commence

until September 2009, and with an anticipated adoption date of late 2011 for the Core

Strategy and early 2012 for the FAAAP, there are no issues of prematurity in relation

to this planning application, which can be determined in accordance with the current

Development Plans and National planning policy guidance.

5.47 The Aerodrome, as the Airport was previously referred to, is identified within the

Rushmoor Borough Council Local Plan (Adopted 2000). Policy FA2 of the Rushmoor

Local Plan, states:

“Policy FA2

"To retain the capacity for business aviation and the Farnborough Airshow, a

business aerodrome operational area will be safeguarded for continued aerodrome

use. The Council will not permit development unrelated to aviation within the

business aerodrome operational area".

"Business aviation, for the purposes of the policy, includes corporate aircraft,

corporate air charter, air taxis, planned maintenance and refitting, medical flights and

air work (such as law enforcement and aerial photography)".

5.48 Policy FA2.2(A) deals specifically with the number of movements allowed at the

Airport, and other restrictions:

"The Council will permit proposals for flying or engine testing in connection with

business aviation requiring planning permission, subject to the following restrictions:

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the number of aircraft movements shall not result in levels of noise exceeding those

that would be generated by 20,000 movements per annum of a mix of aircraft similar

to the mix of civil aircraft movements to and from Farnborough Aerodrome in 1997;

(i) no more than 28,000 aircraft movements of which no more than 2,500

movements shall be at weekends or bank holidays. No aircraft exceeding

50,000 Kg maximum take-off weight, or helicopters exceeding 10,000kg;

(ii) No more than 700 movements by chapter 2 aircraft per annum;

(iii) No flying by aircraft with an average EPNdb greater than 98.9 at maximum

takeoff weight;

(iv) Civil aircraft movements shall take place only between 07:00 hours and 22:00

hours on weekdays and between 08:00 and 22:00 hours on Saturdays,

Sundays and Bank Holidays except in an emergency. There shall be no civil

aircraft movements at any other times and at no times on Christmas Day or

Boxing Day. The Council will require agreements with the Aerodrome

operator limiting the type of aircraft permitted to take off and /land between

21:00 and 22:00 hours on weekdays.

5.49 The supporting paragraphs of policy FA2 (paragraphs 11.71 – 11.73) states the

following:

“The Council recognises that the Aerodrome provides an ‘added value’ to the

economy of the area, but the economic advantages of an aerodrome must be

considered against the environmental implications”.

5.50 Policy FA2.2(B) states that:

“FA2.2(B) The Council will not permit bulk freight services, scheduled passenger

services, “inclusive tour” charter flying, any significant increase in training or

recreational flying or a transition to an airport with a full range of flying amenities”

5.51 Policy FA 2.2(C) in respect of proposals for flying states that:

“FA2.2(C) Proposals for flying or the ground testing of engines, requiring planning

permission, will be permitted only if they:-

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(i) cause no demonstrable harm to the natural environment and amenities of the

surrounding area;

(ii) can be served adequately by local transport infrastructure; and

(iii) do not adversely affect ambient air quality”

5.52 Policy FA 2.2(D) in respect of public safety states that:

“Proposals for flying which would result in the 1 in 10,000 pa risk contour at either

end of runway 07/25 extending to areas where people live, work or congregate or

beyond the area at the eastern end of the runway where Policy FA1 applies will not

be permitted. Proposals for flying which would result in the 1 in 100,000 risk contour

extending beyond the operational aerodrome will only be permitted where the

adverse effects on the safety of the surrounding area are outweighed by reasons of

overriding public interest, including any economic and employment benefits of the

proposals. A thorough assessment of benefits would need to accompany any

planning application for use of the airfield for business aviation”

Decisions of the Secretaries of State for Communities and Local Government and

Transport

TAG Farnborough Airport – ‘Weekend Movements’ Appeal

5.53 The airport received Planning Consent on the 13 March 2008, granted jointly on a

recovered decision by the Secretary of State for Communities and Local Government

and the Secretary of State for Transport.

5.54 Although the Appeal only dealt with an application to increase the weekend

movements from 2,500 to 5,000, (but staying within the total limit for the Airport of

28,000 movements per annum), many issues were addressed in evidence at the

Public Inquiry, including the economic case, and environmental issues, particularly

noise and public safety. The decision made by the joint Secretaries of State does

therefore provide a context for the consideration of those issues.

5.55 Key issues and conclusions of the Secretaries of State of more general relevance

were as follows:

• ‘The Secretaries of State have had regard to the fact that the AWP [Future of Air

Transport White Paper] emphasises the need to make the best use of the

existing capacity of the UK’s airports before supporting the provision of additional

capacity, the important role of the smaller airports in the South East in helping to

JLJ 0966 23

relieve pressure on the main airports before a new runway in the South East is

built, and the importance of Farnborough Airport as a business aviation facility in

the South East, albeit that the specific details of development at any airport

should remain a mater of local determination through the planning system. They

agree with the Inspector that the AWP lends support, in principle, to the appeal

proposal’

• ‘The Secretaries of State agree with the Inspector’s reasoning at IR7.24-7.27 and

like him, they conclude that Farnborough Airport is of very substantial economic

benefit to the Farnborough area and to Rushmoor’

• ‘The Secretaries of State agree with the Inspector that the impacts of the growing

shortage of weekend slots at Farnborough Airport include: harm to the image of

the airport and the area; business aviation flights not taking place at times when

businesses require; restricted growth at Farnborough Airport; knock-on effects for

the economy and for employment; the diversion of flights elsewhere, leading to

re-positioning movements later and associated staff and transport costs; reduced

journey-time savings; and effect on investment decisions’

• ‘The Secretaries of State agree with the Inspector that there are no equivalent

alternatives for operators of aircraft types currently using Farnborough Airport;

that all of the potential alternatives suffer from considerable constraints in terms

of operating characteristics; and that, leaving aside the other fully equipped

airports that have slot constraints, none has airfield and terminal facilities that can

match those of Farnborough’

• ‘For the reasons given below, and taking account of conditions including those

restricting the weight of aircraft taking off and landing at Farnborough Airport, the

Secretaries of State agree with the Inspector that the appeal proposal would have

a very large measure of compliance with Government guidance as to the onset of

significant community annoyance. They have, however, to the public opposition

which exists’

• ‘The Secretaries of State agree with the Inspector that, when measured and

assessed using noise contours, the impact of Farnborough Airport is significantly

less now than the impacts found acceptable at the Local Plan procedure stage

and at the planning application stage in 2000, and they will remain significantly

less whether or not this appeal is allowed’

JLJ 0966 24

• ‘For the reasons set out in IR7.62, the Secretaries of State, like the Inspector, do

not find the evidence about visual impact or odour persuasive’

• ‘In the context of the appeal proposal, they consider this conflict with a specific

policy on the number of weekend movements at Farnborough Airport to be

significant to the Appeal proposal. For this reason, the Secretaries of State, whilst

acknowledging that there are general policies in the development plan which

support the proposal, disagree with the Inspector’s overall conclusion that the

appeal proposal would not be in conflict with the development plan’

• ‘The Secretaries of State conclude that the appeal proposal would be in overall

conflict with the development plan. However, they consider that the appeal

proposal would not result in demonstrable harm to the amenities of the

surrounding area, and they attach significant weight to the absence of harm.

They also consider that Farnborough Airport is of very substantial economic

benefit to the Farnborough area, and to Rushmoor, that there is a need for

additional weekend movements, and that there is no realistic alternative to the

appeal proposal if this need is to be met. The Secretaries of State consider that

these are material considerations which are sufficient to lead them to determine

the proposal other than in accordance with the development plan’

London Stansted Airport ‘G1’ Appeal

5.56 On 9 October 2008, the Secretary of States (SoS) for Communities and Local

Government and Transport issued their joint decision letter on proposals by BAA Plc

and Stansted Airport Limited to permit additional flights at Stansted. Known as

‘Generation 1’ the application sought to vary planning conditions on a 2003

permission in order to increase the number of Air Transport Movements at Stansted

from 25 million passengers per annum (MPPA) to 35 MPPA and from 241,000 Air

Transport Movements (ATMS) to 264,000 ATMS.

5.57 The Secretaries of State decision letter, paragraph 18 states that:

“In terms of national policy, the Secretaries of State agree with the Inspector that the Air Transport White Paper (ATWP) and the Future of air Transport Progress Report (TARP) are material considerations and agree with the Inspector’s summary of relevant aspects of these as set out in IR3.34-3.41. Like the Inspector (IR14.60), they agree that the ATWP should be accorded considerable weight as a material consideration in this appeal. They also note that it is agreed between the appellants and the Council that significant weight can be attached to the policies in the ATWP (IR3.43)”

JLJ 0966 25

5.58 Paragraph 28 of the Secretaries of State decision letter, in respect of the Air

Transport White Paper, states that:

“The Secretaries of State agree with the Inspector’s reasoning and conclusions on

Government policy on climate change as set out in IR14.46-14.71. They agree that

while the ATWP is not part of the statutory development plan, it should be accorded

considerable weight as a material consideration in this appeal (IR14.60). They also

agree that the policy in the ATWP establishes an urgent need to provide additional

runway capacity in the south east, with priority being given to making best use of

existing runways and in particular it supports making full use of the existing runway at

Stansted (IR14.71). They further agree that this is, nevertheless, subject to all normal

planning considerations (IR14.71)”

5.59 Paragraph 29 of the Secretaries of State decision letter continues as follows:

“The Secretaries of State agree with the Inspector’s reasoning and conclusions on

Government policy on climate change as set out in IR14.72-14.80. They share the

Inspector’s view that Government policy seeks to reconcile growth in aviation to meet

the needs identified in the ATWP with action to address climate change (IR14.77).

They also agree with the Inspector’s conclusion that questions of appropriateness

and effectiveness of Government policies on aviation and climate change, and their

compatibility, are matters for debate in Parliament and elsewhere, rather than through

this appeal (IR14.80). The Secretaries of State have addressed the matter of

material considerations relating to climate change published after the close of the

inquiry in paragraph 22 above”

5.60 The Secretaries of State decision letter paragraph 21 refers to noise issues:

“In the case of the Attitudes to Noise from Aviation Sources in England Study

(ANASE), published on 2 November 2007, the Aviation Minister, Jim Fitzpatrick,

made a statement on the findings on this document. This statement is clear in setting

out the policy context stating “it does not give us the robust figures on which it would

be safe to change policy”. It further states that the “approach to a sustainable

aviation industry remains the one set out in the ATWP and the ATPR”. In view of this,

the Secretaries of State do not consider that the ANASE raises any new issues

relevant to this application that either affect their decision or require them to refer

back to the parties for further representations prior to reaching their decision on the

application”

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5.61 With regards economic benefits and employment, the Secretaries of State decision

letter at paragraph 29, states:

“The Secretaries of State agree with the Inspector’s reasoning and conclusions on

the adequacy of the economic (including employment) benefits of the proposal as set

out in IR14.225-14.264. They agree that there is evidence that the proposal would

deliver large direct economic benefits, although they accept that the evidence does

not reliably quantify this (IR14.262). They also agree that the proposal would

generate some employment growth of relatively modest scale, although in line with

the East of England Plan projections (IR14.262). Overall, they agree with the

Inspector that the proposal would give rise to economic benefits that carry weight in

favour of the proposal, as well as according with ESSP policy BIW9 (IR14.264)”

5.62 The Inspector’s Report paragraph 14.59 confirms that whilst the Planning White

Paper envisages a full review of the ATWP in 3-5 years:

“it is reasonable to take this as an indication that the Government do not see the need

for an earlier review and in the meantime remains committed to it as a statement of

policy”

5.63 Paragraph 14.77 of the Inspector’s Report states that:

“ I am in no doubt that Government Policy seeks to reconcile growth in aviation to

meet the needs identified in the ATWP with action to address climate change, and

states that the debate about … I do not question or seek to curtail the legitimacy of

the debate on the matter, but I maintain my view that such debate lies outside the

scope of the current appeal.”

5.64 Paragraph 14.228 of the Inspector’s Report notes that the following benefits of

aviation on the UK Economy were not challenged:

• The Importance of transport investment to the national economy

• The contribution of international linkages to the global role of London

• The benefits of consumers from a growth in foreign travel

• The economic importance of tourism to the economy

• The significance of aviation as an industry

• The key role of airports in the supply and distribution of goods.

JLJ 0966 27

6. CONCLUSIONS

6.1 The principal planning policy context for the Proposal is provided by the relevant

policies of the South East Plan and the Rushmoor Local Plan, as the starting point,

and then the material considerations which carry the greatest weight are the

Government White Papers on Aviation and Transport, together with national planning

policy guidance.

6.2 With regard to the White Papers, which represent the Government’s policy on

Aviation and Transport, it is clear that the principal objective is to make the best

possible use of existing infrastructure and runways, and this was re-affirmed in the

Future of Air Transport Progress Report (December 2006).

6.3 The ATWP paragraph 11.101 makes specific reference to Farnborough as one of six

airports “which we felt had potential to provide additional capacity to cater for

Business Aviation demand”.

6.4 As Europe’s leading all-Business Aviation airport, and the only one in the UK, TAG

Farnborough Airport is ideally suited to meet the growing demands of Business

Aviation because of its location and the high quality of its facilities. It provides a

gateway for prominent business decision makers and investors travelling to and from

the UK, of a quality equal to the best in Europe and the world.

6.5 The levels of projected demand for Business Aviation in the South East are such that

even at full potential capacity, Farnborough could only satisfy a proportion of that

demand, which will significantly out pace the constrained capacity of the South East’s

airports.

6.6 Farnborough Airport hosts the biennial Farnborough International Airshow, a

showcase for global aviation and aerospace. In 2008, the 60th anniversary

Farnborough International Airshow attracted record orders of £44.35bn, and the

Airshow itself contributed more than £17m to the local and South East regional

economy.

6.7 The Airport is a major contributor to the local and South East regional economy, and

a significant local employer. The Proposal will result in a significant additional level of

job creation.

6.8 With its state of the art facilities and iconic design, and the highest levels of privacy

and security, the Airport will play an increasing role in transporting the very highest

JLJ 0966 28

level of business decision makers and investors, and this Proposal is designed to

make best use of existing infrastructure, in order to provide sufficient capacity for that

growth to occur.

6.9 As set out in the Environmental Statement, there are no overriding significant adverse

environmental impacts, and a number of beneficial measures are to be brought

forward to accompany this planning application.