Consultation launched on Heathrow expansion framework
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UK Secretary of State for Transport Heidi Alexander has confirmed that the government has completed its review of the Airports National Policy Statement (ANPS) and is launching a public consultation on a draft revised National Policy Statement: now renamed the Heathrow Expansion National Policy Statement (HENPS) to clarify that it applies only to Heathrow expansion and its associated infrastructure.
This marks another key milestone in delivering a final planning decision in 2029, making sure it meets key tests on noise, air quality, climate and economic growth.
Expansion at Heathrow is set to attract international investment, boost Britain’s connectivity to new markets and could deliver over £40 billion of benefits to the UK. Up to 40% of the growth benefits of expansion, once fully operational, is expected to be in areas outside of London and the South East. Passengers are expected to see benefits through direct improvements when they travel, such as fewer delays, better value fares and more choice.
Heathrow handles more flights than any other two-runway airport in the world, with a record 84 million passengers using the airport last year, underlining how necessary boosting its capacity is.
Businesses, communities, and the wider aviation sector will now have a chance to have their say on plans for a third runway, including how the project can manage the four key areas of air quality, noise, climate change and economic growth.
The consultation proposes that any scheme must have a clear strategy to create jobs and realise the economic benefits of expansion, be compatible with the UK’s legally binding climate targets, not breach legal air quality limits and ensure noise emissions do not worsen for local residents.
Planning proposals from developers looking to build a third runway will be strictly assessed against these key tests – ensuring expansion meets the needs of local people and serves the UK economy by driving growth. This consultation will also strengthen the decision-making process and keep the government on track to take a final planning decision on the project by 2029.
This follows the Transport Secretary committing to complete the process three years faster than production of the previous policy statement in 2018.
Transport Secretary, Heidi Alexander said: "Consultation is a positive step towards realising the benefits of a third runway, by giving businesses, communities and the public the chance to help shape this key project at one of the world’s most successful hub airports.
"We are determined to move quickly and responsibly to set a framework for future expansion at Heathrow that will meet the needs of local people and the country on the key issues of noise, air quality, climate change and economic growth.
Chancellor of the Exchequer Rachel Reeves said: "An expanded Heathrow would support over 60,000 good local jobs and deliver up to £42 billion in benefits to the UK – strengthening vital links and improving connectivity across the country.
"This consultation is a key milestone in delivering the infrastructure our country needs. Getting here took 18 months from when we announced our support for expansion last January – the fastest ever review of a national policy statement."
The independent Climate Change Committee is being formally consulted to advise on how expansion can be consistent with the net zero framework.
Airspace across the UK is also being modernised to deliver quicker, quieter and more efficient flights with lower emissions, reducing the sector’s climate change impacts.
In November, the government officially selected the scheme proposed by Heathrow Airport Limited (HAL) to inform the National Policy Statement review. The draft HENPS provides the planning policy framework against which any future application for expansion at Heathrow Airport would be considered. It:
- sets out the government’s assessment of the need for additional airport capacity at Heathrow
- explains why the Northwest Runway scheme has informed the review
- establishes the requirements that any future proposal would need to satisfy
This document does not grant development consent, nor does it approve any specific expansion scheme. Any application would remain subject to the statutory development consent order process, including independent examination by the Planning Inspectorate. Yet, it is an important milestone and step forward.
The review has considered developments since the ANPS was designated in 2018, including updated aviation forecasts, changes in legislation and wider government policy. It has also considered how the government’s four tests for Heathrow expansion should be applied.
- on economic growth: expansion must deliver a credible and meaningful contribution to UK-wide economic growth, supported by a clear plan for how benefits (e.g. jobs, productivity and connectivity) will be realised
- on carbon: the scheme must be compatible with the UK’s legally binding climate targets, including carbon budgets and net zero
- on air quality: expansion must not cause new breaches of legal air quality limits, taking account of appropriate mitigation
- on noise: impacts must be limited so that noise is no worse than current levels (2024 baseline), with reductions where possible, supported by effective mitigation
As set out in the draft HENPS, the government considers that the development covered by the Heathrow Expansion NPS is critical to national growth and therefore plans to designate expansion at Heathrow as Critical National Growth Infrastructure (CNGI). This is a signal of the importance the government places on the need for expansion and will be an important additional factor in the planning balance.
Karen Dee, chief executive of AirportsUK, the trade body for UK airports, said: “A global Britain requires connectivity to both established and emerging markets across the globe and thus needs both world-class, competitive hub and point-to-point capacity.
“This is vital to drive inward investment, develop new trading opportunities, bring tourists to the UK and create jobs and economic growth in all our regions.
“Airports across the country will be interested in what the framework being proposed in the draft Heathrow Expansion NPS says about this, and how policy will support delivery of new capacity that can be used to increase connectivity.
“We will work with our members and with ministers to ensure it provides the right conditions to ensure the country can deliver in a timely and sustainable fashion, the capacity and connectivity it requires in the future, linking our communities and businesses with domestic and international markets.”
On surface access – how passengers and staff travel to and from the airport – the draft HENPS requires promoters to demonstrate how increased passenger demand would be accommodated on the transport network and how any necessary road and rail improvements would be delivered.
Surinder Arora, Founder & Chairman of the Arora Group said: “We welcome the Government progressing Heathrow expansion. We specifically welcome them leaving the door open to competitive tenders to ensure the best proposals can be advanced. This is in addition to making allowances for a runway of up to 3,500 metres which makes the scheme more flexible in order to deliver benefits in timescale and affordability.
“Competition is the route to lower fares for passengers - Heathrow does not need to be a monopoly and we believe we can deliver better than Heathrow Airport Limited itself. We will look at the full detail of this consultation in due course but know our plans to phase the runway construction and open new capacity sooner without initially any need to build over the M25 will be best for the country.”
Alongside the draft HENPS, the government also published an updated Appraisal of Sustainability, Habitats Regulations Assessment yesterday and other supporting documents.
Draft HENPS consultation
The government says it is committed to ensuring that decisions are informed by robust evidence and meaningful public engagement. The consultation on the draft HENPS will run for over 10 weeks, closing on 1st September 2026. Alongside the consultation, a nominated Parliamentary Select Committee will undertake Parliamentary Scrutiny on the draft HENPS.
This consultation provides an important opportunity for local communities, businesses, local authorities, environmental organisations and other interested parties to provide their views before any final decision is taken.
Following the consultation, the government will carefully consider all responses and the Parliamentary Select Committee’s report before deciding whether to designate an amended National Policy Statement. Any amended HENPS will be published and laid in Parliament and will be subject to a vote in this House prior to having legal effect.
Broader programme progress
The consultation on the draft HENPS forms part of a wider programme of work to support a modern, resilient and sustainable aviation sector.
The Civil Aviation Authority (CAA) continues to develop the regulatory framework that would apply to any future expansion proposal, with a focus on affordability, financeability, cost efficiency and consumer protection. The government will continue to work closely with the regulator as it develops its approach, while respecting the regulator’s independence. The CAA anticipates publishing its final decision on recovery of early costs and direction of travel on preferred regulatory model this summer.
The government is also progressing its airspace modernisation programme and will shortly publish updated air navigation directions and guidance to support a more efficient, cleaner and quieter aviation system. Airspace modernisation is needed irrespective of the planned runway expansion. Its purpose is to make UK airspace more efficient, resilient, quieter and cleaner – not to provide a shortcut to airport expansion.
Alongside this consultation, the government is announcing a review of the Jet Zero Strategy, with an updated strategy to be published in early 2027. This review will consider the latest evidence on aviation decarbonisation and assess progress in delivering existing commitments.
To read the draft: www.gov.uk/government/publications/draft-heathrow-expansion-national-policy-statement
To have your say: www.gov.uk/government/consultations/draft-heathrow-expansion-national-policy-statement-proposed-amendments
To read more on Heathrow Airport expansion: www.gov.uk/government/collections/heathrow-airport-expansion
