Source · Select Committees · Environmental Audit Committee
5th Report - Airport expansion and climate and nature targets
Environmental Audit Committee
HC 831
Published 24 October 2025
Recommendations
2
Accepted
Commission detailed research and set out expected economic growth from airport expansion.
Recommendation
Before formally agreeing any airport expansion plans, the Government should: (Recommendation, Paragraph 14) 1) Commission more detailed and serious research into the net economic benefits. (Recommendation, Paragraph 15) 2) Clearly set out what level of growth to the UK economy …
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Government Response Summary
The government refers to its commitment to develop updated analysis on the economic impacts of Heathrow expansion as part of the ANPS review. It also states that any promoter must demonstrate compliance with ANPS requirements and that the Making Best Use policy for other airports will be reviewed for fitness for purpose.
7
Accepted
Current airport planning approach lacks strategic UK-wide consideration and scrutiny.
Recommendation
The Government should be taking a more strategic approach that should consider wider growth and planning across the whole of the UK. Finally, we are very disappointed that this approach does not allow proper consideration and scrutiny of airport expansion …
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Government Response Summary
The government accepts the recommendation by detailing an ongoing review of the Airports National Policy Statement (ANPS), which began in October. This review will consider changes in legislation and policy, assess cumulative environmental impacts, include updated aviation forecasts for various airports, and ensure parliamentary scrutiny, thereby adopting a more strategic approach.
15
Accepted
Airports National Policy Statement unfit for purpose, lacking integrated environmental limits
Recommendation
The Airports National Policy Statement (ANPS) is not fit for purpose and requires updating to reflect Government policy. The ANPS specifically fails to: • Provide an integrated view on the role of the aviation and airport system across the country …
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Government Response Summary
The government confirmed that a review of the ANPS commenced in October and will consider legislative changes, environmental tests (including cumulative impacts), and update associated assessments, with DfT expecting to consult on a revised ANPS by July 2026 if amendments are needed.
18
Accepted
Legislate to formally include international aviation emissions within Carbon Budgets and Net Zero targets
Recommendation
We reiterate the recommendation made by the Climate Change Committee, our predecessor Committee and others that the Government makes Parliamentary time available to introduce the necessary legislation to formally include international aviation emissions within Carbon Budgets and its Net Zero …
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Government Response Summary
The government accepts the recommendation, stating they intend to lay the necessary legislation to formally include international aviation emissions within Carbon Budgets by summer 2026, subject to parliamentary time.
25
Accepted
Ensure aviation sector pays fair share and include Sustainable Aviation Fuels in ETS.
Recommendation
The Government should ensure that the aviation sector pays its fair share towards mitigating its carbon emissions and the benefits it receives in comparison to other sectors. Aviation should be included in Emissions Trading Schemes and the government should include …
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Government Response Summary
The government states that aviation is already included in the UK Emissions Trading Scheme for certain flights, and the scheme already supports the use of Sustainable Aviation Fuels. It notes the UK ETS Authority will review SAF treatment and consult on options in due course.
26
Accepted
Conduct wider review of aviation taxation to ensure 'polluter pays' principle is upheld.
Recommendation
Government should also conduct a wider review of aviation taxation to ensure that the ‘polluter pays’ principle is upheld, and the aviation industry does not receive benefits which are denied to other important industries. The aviation industry will then be …
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Government Response Summary
The government stated that Air Passenger Duty and carbon markets like the UK ETS and CORSIA already incorporate the ‘polluter pays’ principle and drive decarbonisation, without committing to a wider review of aviation taxation.
28
Accepted
Undertake detailed review of airport expansion's impact on climate, environment, and biodiversity targets.
Recommendation
The Government must undertake a detailed review on whether significant airport expansion will realistically allow it to deliver on its legally binding climate, environment and biodiversity targets. This should include a detailed examination of the measures that need to be …
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Government Response Summary
The government accepts the recommendation, stating that a review of the Airports National Policy Statement (ANPS) commenced in October to consider changes in legislation, policy, and data. This review will assess compliance with climate and environmental commitments, update assessments, and engage the Climate Change Committee.
29
Accepted
Publish detailed review findings on airport expansion before refreshed ANPS or new projects.
Recommendation
The results of this review should be published before or alongside the refreshed ANPS and before any further substantial airport expansion projects are underway. This is crucial to enable proper scrutiny. Failure to do so could put the Government and …
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Government Response Summary
The government committed that any amendments to the ANPS and its associated assessments, reflecting the review's findings, will be subject to consultation by summer 2026 as part of the parliamentary scrutiny process.
Conclusions (4)
1
Conclusion
Accepted
While airport expansion is likely to provide some economic growth through growth of the aviation sector, the level of growth to the UK economy provided by airport expansion is unclear and the Government has so far failed to provide substantial supporting evidence. (Conclusion, Paragraph 13)
Government Response Summary
The government states that airport expansion proposals must demonstrate economic growth and commits to developing and publishing updated analysis on Heathrow's economic impacts by summer 2026 as part of the ANPS review.
17
Conclusion
Accepted
Whilst the Committee understands the Government position that it includes international aviation emissions within its carbon calculations, the UK is yet to formally legislate to include international aviation emissions within the Carbon Budgets, despite it agreeing to do so previously. (Conclusion, Paragraph 79) 45
Government Response Summary
The government accepted the committee's observation, stating it is already acting on the basis that international aviation emissions are formally included from 2033 and intends to lay the relevant legislation by summer 2026.
19
Conclusion
Accepted
Whilst a reduction in aviation emissions is necessary to deliver a net zero aviation sector, an important contribution to the UK’s efforts is the reduction of non-CO2 effects, such as contrails. (Conclusion, Paragraph 81)
Government Response Summary
The government acknowledges the importance of addressing non-CO2 aviation impacts like contrails, highlighting existing initiatives such as the £29 million Non-CO2 Research and Development Programme and the Contrails Impact Mitigation Task and Finish Group.
24
Conclusion
Accepted
The aviation sector does not fully pay for its carbon emissions, whether this is through the lack of a direct carbon tax, VAT on its fuel, or the greater benefits it receives through the Emissions Trading Scheme compared to other high emitting sectors. This makes aviation artificially cheap and provides …
Government Response Summary
The government stated that it drives decarbonisation through existing carbon pricing schemes like the UK ETS and CORSIA, which align with the ‘polluter pays’ principle, and committed to reviewing the treatment of Sustainable Aviation Fuel under the UK ETS.