Open consultation

Night flight restrictions: Heathrow, Gatwick and Stansted airports from October 2025

Published 22 February 2024

Applies to England

Executive summary

Introduction

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

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

This consultation is concerned with Heathrow, Gatwick and Stansted, which are noise designated airports allowing the Government to set night flight restrictions. At other airports, the Government expects that appropriate noise controls should be set locally through the planning system.

Following our previous consultation on night flight restrictions at the designated airports, which was held in 2020 to 2021, a decision was taken in July 2021 to roll over existing night flight restrictions for a period of 3 years. This decision put in place the current night flight regime which runs from October 2022 to October 2025.

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

The ANNE study could not have been conducted earlier due to the impact the COVID-19 pandemic had on the aviation sector. In July 2021, when we announced the current 3-year regime covering 2022 to 2025, we anticipated the sector would have recovered sufficiently to allow the ANNE study to commence as planned.

However, the speed of recovery of the sector was highly uncertain and recovery has taken longer than we anticipated at the time.

We anticipate the results from the ANNE study will be used to shape future policy on night flights. The final report is expected before the end of 2025.

We intend to announce a decision on the next night flight regime at the designated airports (Heathrow, Gatwick and Stansted) by late July 2024. This will be the regime that will commence in October 2025. The decision will have due regard to the Environmental Principles policy statement, as required by the Environment Act 2021.

As part of the consideration for that next night flight regime, we consulted in 2023 on night time noise abatement objectives for the designated airports. We received a total of 424 responses.

Following analysis of consultation responses, we have reached a decision that the following night-time noise abatement objective will be in place, for the next night flight regime to commence in October 2025:

To limit, and where possible reduce, the adverse effects of aviation noise at night on health and quality of life while supporting sustainable growth and recognising the importance to the UK of commercial passenger and freight services.

Further detail on the night-time noise abatement objective is contained within the night-time noise abatement objective section.

We propose a bridging night flight regime of 3-years that will cover October 2025 to October 2028. This is because we are awaiting evidence from the ANNE study and also from the aviation noise attitudes survey. This survey is being conducted by the Civil Aviation Authority (CAA) and it is anticipated to be published in 2025 to 2026.

We believe the existing restrictions on night flights are sufficient to meet the new night-time noise abatement objective. Therefore, while we await further evidence, we now propose to keep movement limits and noise quota limits the same for the next regime, with the possible exception of Stansted. Our proposed structure of the regime is set out in table 1.

Table 1 – proposed structure of the night flight regime, October 2025 to 2028

Airport	Season	Movement limit	Noise quota limit [footnote 1]
Heathrow	Winter	2,550	2,415
Heathrow	Summer	3,250	2,735
Gatwick	Winter	3,250	1,785
Gatwick	Summer	11,200	5,150
Stansted	Winter	5,600	3,310
Stansted	Summer	8,100	4,650

We propose to use the same metrics to assess performance against the new objective. Throughout the next regime, we will undertake more work to develop metrics in order to assess performance on the benefits that result from night flights.

In the case of Stansted Airport, we recognise there has been a material change, following planning permission, granted in June 2021, for the airport to serve up to 43 million passengers per year (within the airport’s existing annual movement limit of 274,000). A planning condition has imposed a night noise limit on operations at Stansted for the 8-hour night period (23:00 to 07:00).

A draft noise action plan for Stansted Airport for 2024 to 2028, proposed to introduce a new 8-hour night quota count (QC) limit for the summer 2026 season, to meet the planning condition. This opens up a question about future night flight controls at Stansted, and whether Government night flight controls are required to sit alongside the new 8-hour night QC limit. We present 3 different options for Stansted and invite opinions on these.

Background

History of night flight restrictions

The power for the Secretary of State to set night flight restrictions at designated airports is found in section 78 of the Civil Aviation Act 1982. This allows action to be taken to avoid, limit or mitigate the effect of noise from aircraft at designated airports ^{[footnote 2]}. Heathrow, Gatwick and Stansted airports have been designated for this purpose since 1971.

Night flight restrictions of some form have been in place at Heathrow since 1962, Gatwick since 1971 and Stansted since 1978.

The underlying principle of the restrictions has been to balance the need to protect local communities from excessive aircraft noise at night – which the Government recognises is the least acceptable aspect of aircraft operations – with permitting the operation of services that provide benefits to the aviation industry and the wider economy.

Movement and noise quota limits

Since 1993, the regime has limited the number of movements that can take place between the hours of 23:30 and 06:00. There are also limits on the amount of noise quota that airports are allowed to use during this period – known as the night quota period.

The movement limit refers to the maximum amount of aircraft that can take off or land during the night quota period. The quota count limit relates to the maximum amount of noise energy that can be produced. If an airport uses all its quota count, then even if it has additional movements available, no further movements can take place, and vice versa. Any flights subject to dispensations as described below do not count towards these limits.

The movement and night quota limits are seasonal and aligned with the International Air Transport Association (IATA) summer and winter scheduling seasons. The summer season begins on the last Sunday in March and ends on the last Sunday in October.

As these seasons vary in length, airports are given flexibility to manage their allowance and may carry over movements or quota from one season to another or may over-run in one season which leads to a deduction in the following season. The rules for carrying-over or over-running are as follows:

• if required, a shortfall in use of the movement limit and/or noise quota in one season of up to 10% may be carried over to the next season

• up to 10% of an overrun in movements and/or noise quota usage in one season (not being covered by carry-over from the previous season) will be deducted from the corresponding allocation in the following season

• an overrun of more than 10% will result in a deduction of 10% plus twice the amount of the excess over 10% from the corresponding allocation in the following season

• the maximum overrun is 20% of the original limit in each case

Airports are also allowed dispensations for certain flights in the night quota period for specific reasons. There are 2 types of dispensations. First are those granted by the Government for various reasons, such as VIP flights, humanitarian flights and ad hoc flights considered in the national interest. For the avoidance of doubt, VIPs for this purpose are set out in the dispensation guidance^{[footnote 3]} and do not include business people on private jets, or showbusiness or sport ‘celebrities’. Flights considered in the national interest may be related to major unplanned events affecting air travel (for example, a computer outage affecting air traffic control systems at multiple airports) or to major planned events (for example, the EURO 2020 football tournament).

The second type of dispensation refers to those that may be granted by airports in the event of emergencies, widespread and prolonged air traffic disruption, and delays as a result of disruption leading to serious hardship and congestion at an airfield or terminal.

The Government has updated the guidance on night flight dispensations and more can be found on this in the night flight dispensation guidance section.

While the movement limits for each airport limit the total number of aircraft that can take off or land during the night quota period, the quota count limit is designed to incentivise the use of quieter aircraft to maximise the number of movements that can take place.

Aircraft are classified separately according to the QC classification system which was specially designed for the night restrictions at Heathrow, Gatwick and Stansted and introduced in 1993.

The QC classification system is based on official noise certification data derived from measurements made on actual aircraft and conducted in accordance with the conditions and standards of the International Civil Aviation Organisation (ICAO) certification process, with adjustments to take account of differences in noise measurement points.

Aircraft are classified on the basis of their noise data, as illustrated in table 2.

Table 2 – current aircraft noise classifications

Noise classification (EPNdB[footnote 4])	QC
Below 81	0
81 to 83.9	0.125
84 to 86.9	0.25
87 to 89.9	0.5
90 to 92.9	1
93 to 95.9	2
96 to 98.9	4
99 to 101.9	8
Greater than 101.9	16

The individual classification of each type of aircraft is set out in Part 2 of the Schedule to the Notice which is published each season in a supplement to the UK Aeronautical Information Publication (UKAIP) (PDF) that gives effect to night flight restrictions.

The QC system allows each night flight to be individually counted against an overall noise quota (or noise budget) for an airport according to the QC rating (for example, the noisiness) of the aircraft used. The noisier the aircraft used, the higher its QC rating and the fewer that can be operated within any given quota, thereby also providing an incentive for airlines to use less noisy aircraft.

Airlines are allowed to decide which aircraft to use according to their operational needs, but whether they use, for example, 20 times a QC 0.5 rated aircraft or 10 times a QC 1 rated aircraft, the sum of the noise energy permitted by the quota remains the same. An airport is, therefore, able to accommodate more movements, up to their movement limit, by using quieter aircraft.

The current regime

The current night noise regime at Heathrow, Gatwick and Stansted was announced in July 2021 and runs from October 2022 to October 2025.

Existing restrictions from the 2017 to 2022 regime were rolled over for a 3-year period, to allow time for the effects of the COVID-19 pandemic and the extent and speed with which aviation demand returned to be considered. The current movement and noise quota limits for Heathrow, Gatwick and Stansted are shown in table 3.

Table 3 – structure of the night flight regime, October 2022 to 2025

Airport	Season	Movement limit	Noise quota limit
Heathrow	Winter	2,550	2,415
Heathrow	Summer	3,250	2,735
Gatwick	Winter	3,250	1,785
Gatwick	Summer	11,200	5,150
Stansted	Winter	5,600	3,310
Stansted	Summer	8,100	4,650

Night-time noise abatement objective

Aircraft are becoming quieter as technology advances, and we expect this trend to continue. However, the Government recognises that noise from aircraft taking off and landing at night is often regarded by communities as the most disturbing form of airport operations.

Balanced approach

The Government’s approach to managing aircraft noise is based on the principles of the ICAO Assembly’s ‘balanced approach’ to aircraft noise management.

The balanced approach consists of identifying noise problems that exist at an airport and then assessing the cost-effectiveness of the various measures available to reduce noise through the exploration of 4 principal elements, which are:

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

The UK Government has appointed ‘competent authorities’ for England and Wales through the Airports (noise-related operating restrictions) (England and Wales) Regulations 2018. A competent authority ensures the correct process is followed when operating restrictions are considered or introduced at a major airport. The Aerodromes (Noise Restrictions) (Rules and Procedures) Regulations 2003 were revoked for England and Wales when the 2018 Regulations came into force.

See the guidance on the introduction of noise-related operating restrictions at major airports for more.

As explained in the air navigation guidance of 2017, there is no one threshold at which all individuals are considered to be significantly adversely affected by noise. It is possible to set a lowest observed adverse effect level (LOAEL) which is regarded as the point at which adverse effects begin to be seen on a community basis.

As noise exposure increases above this level, so will the likelihood of experiencing an adverse effect. In line with this increase in risk, the proportion of the population likely to be significantly affected can be expected to grow as the noise level increases over the LOAEL. For the purposes of assessing and comparing the noise impacts of airspace changes, the Government has set a LOAEL of 45dB LAeq 8-hour.

In the case of night-flight restrictions at the designated airports, the Government’s view is that a noise problem exists if there are occupied residential properties within the 45dB LAeq 8-hour contour for night-time noise.

Where there is a noise problem at an airport, UK law ^{[footnote 5]} requires it to be addressed in accordance with the balanced approach. The balanced approach requires that decisions in relation to an airport’s operations consider both health and economic factors. It also means that where there is a noise problem at an airport, it should be addressed in accordance with the balanced approach and be managed in a cost-efficient manner.

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

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

In 2023, the Government carried out a consultation on night-time noise abatement objectives for the designated airports. This consultation received a total of 424 responses.

Table 4 – chosen methods of responding to the consultation

Method of responding	Number of responses
Online Smart Survey	113
Email response	306
Post response	5
Total	424

Table 5 – breakdown of responses received via the online Smart Survey

Type of respondent	Total number
Campaign groups	9
Local authorities / Parish councils	12
Industry	1
Individuals	91
Total	113

Table 6 – breakdown of responses received via email

Type of respondent	Total number
Campaign groups	6
Local authorities / Parish councils	9
Industry	14
Airport consultative committee	2
Other organisations	2
Large number of similar responses by individuals affected by noise from Gatwick Airport	252
Other individuals	21
Total	306

The Government proposed to use the same high-level night-time noise abatement objective for each of the 3 designated airports. We want an objective which encompasses the contribution these airports play to the UK economy and recognises the importance to the UK of maintaining freight connectivity.

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

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

In the consultation, we proposed the following night-time noise abatement objective for the regime to commence in October 2025:

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

Based on analysis of the consultation responses, we now believe that some changes are required to the structure and the wording of the night-time noise abatement objective.

The night-time noise abatement objective for the regime to commence in October 2025 will be:

To limit, and where possible reduce, the adverse effects of aviation noise at night on health and quality of life while supporting sustainable growth and recognising the importance to the UK of commercial passenger and freight services.

Consultation responses broadly welcomed the shift in focus of the night-time noise abatement objective from the ‘number of people significantly affected by aircraft noise’ (as we have in place for the current regime 2022 to 2025), to the ‘adverse effects of aviation noise at night on health and quality of life’. This shift in focus is maintained within the new night-time noise abatement objective.

We received many similar responses submitted by members of the public affected by noise from Gatwick Airport, who while calling for a ban on night flights, also called for residents’ health to be put before the commercial gain of aviation. We have reflected on this and have restructured the night-time noise abatement objective.

Freight carriers welcomed the recognition of freight connectivity within the proposed night-time noise abatement objective, however, we also received strong calls from industry and from an airport consultative committee, for passenger operations to be specifically recognised as well. We have reflected on this argument and, on balance, accept that both passenger and freight connectivity should be treated equally.

We also received equally strong calls to provide definitions or at least clarification on what is meant by various terms, such as ‘sustainable growth’ and ‘health and quality of life’. We have now set out these definitions in a supporting statement – see Annex E.

Some industry responses called for the night-time noise abatement objective to allow for ‘quality of life’ benefits to be measured as part of the target, believing that not all impacts of night flights are negative, for example, employment benefits for local residents due to night flights.

While we note that there are the stated benefits to night flights, on balance the Government intends to continue with the original wording proposed of ‘the adverse effects of aviation noise at night on health and quality of life’ as this recognises that there is a balance to be struck between noise impacts and commercial interests sufficient to meet the industry comment noted above. This policy is about night flight restrictions, and we wish to remain aligned with the Noise policy statement for England (NPSE) – to ‘avoid significant adverse impacts on health and quality of life’, which is one of the 3 aims of the NPSE.

The consultation also asked: how should we measure success against the proposed night-time noise abatement objective?

We measure achievement against the current night-time noise abatement objective for the 2022 to 2025 regime by the following metrics:

• the area of and number of people in the 48dB LAeq 6.5 hour night ^{[footnote 6]} contour
• sleep disturbance impacts associated with night flights, assessed using transport analysis guidance (TAG)^{[footnote 7]} methodologies
• the average noise of an aircraft (as measured by the average noise QC ^{[footnote 8]} – per aircraft movement over the course of a season)

In terms of metrics regarding health impacts, for the next regime to commence in October 2025, the Government intends to continue with the same 3 metrics again. This will give consistency, which some consultation responses called for.

Additionally, consultation responses again featured calls for a ‘number above’ metric to be introduced. Number above metrics take account of the number of aircraft noise occurrences at or above a given noise level. For example, the N60 metric indicates the number of noise events exceeding 60 dBA ^{[footnote 9]} over a given period.

The Government acknowledged in the July 2021 decision document that number above metrics could be useful and committed to producing them in the future and to look at how they could be used. We have included N60 6.5 hour night contours within the data presented in Annex F, including up to winter 2021 to 2022 and summer 2022.

However, for the next regime, we do not intend to use a Number Above metric as a measure of success against the night-time noise abatement objective. We retain the area of and number of people in the 48dB LAeq 6.5 hour night contour for that purpose.

On the benefits side of the equation, on ‘supporting sustainable growth and recognising the importance to the UK of commercial passenger and freight services’ we recognise that more work is required to develop suitable metrics.

Consultation responses have given some suggestions, for example on sustainable growth we could look at the:

• number of destinations (and trade routes) served
• volume of freight carried
• value of cargo (where not commercially sensitive)
• number of UK passenger/freight movements to competitive markets

However, further engagement with stakeholders is required to take forward the development of suitable metrics, and this is something which we will look to progress further before the new regime.

A more detailed summary of responses received to the consultation on night-time noise abatement objectives is contained within Annex D.

Proposals for the next night flight regime

The impacts of the COVID-19 pandemic meant that flight and passenger numbers remained well below 2019 levels throughout most of 2020 and 2021. Numbers began to increase from March 2022 onwards. However, the aviation sector is still in recovery and we have not yet seen a complete return to pre-pandemic levels of traffic at all 3 noise-designated airports. When considering the next night-flight regime, this lends itself towards having a shorter regime.

There are also 2 important studies on aviation noise, which are now underway but will not have been reported in time to influence the next regime. Neither of these studies could have commenced any earlier, given that fieldwork would have been impacted by the pandemic and any data collection would not have been representative of normal operations.

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

The ANNE study is due to report in 2025 and will then be used to inform future night-flight policy. For example, the results from the ANNE study will be particularly important for considering the duration of future ‘night quota periods’, which currently consist of a 6.5 hour night covering 23:30 to 06:00. By filling an important gap in the evidence base on how impacts vary at different times of the night, the ANNE study will inform questions such as whether there should be a change to the 6.5 hour night quota period.

Another important study is the aviation noise attitudes survey – managed by the CAA – which will gather data about experiences of exposure to daytime aviation noise. This is anticipated to be published in 2025 to 2026.

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

We propose a bridging night flight regime of 3 years while we await evidence from both the ANNE study and the aviation noise attitudes survey. This would cover the period from October 2025 to October 2028.

We considered various options around the length of a ‘bridging regime’, including a 1-year, 3-year and 5-year regime. One year was felt to be too short and did not offer sufficient time for the evidence base to develop, while 5 years was considered too long as we wish to be able to review the night flight regime again – once we have the evidence from the ANNE study and the aviation noise attitudes survey.

We continue to consider the QC system to be the best tool for categorising aircraft for noise purposes.

We also believe the existing controls of a movement limit and QC quota will be sufficient to deliver the night-time noise abatement objective. Furthermore, we do not believe at this point that we have the evidence to support amending the current controls.

We propose using the same metrics to assess performance against the objective.

We acknowledged in our July 2021 decision document that number above metrics could be useful, and we agreed to produce these going forward. We will continue to do so. However, we intend to review evidence from the ANNE study on the relationship between some events and sleep disturbance before considering the introduction of number above metrics as a measurement against the objective.

As we set out in the decision document, we recognise some individuals who are outside the 48 dB LAeq 6.5 hour contour will be disturbed by aircraft noise at night. However, it is not possible to accurately produce noise contours for night-time noise below this level. For the purposes of modelling, there is greater uncertainty about where precisely an aircraft will be at these further distances from airports so it is much harder to predict what the sound from an aircraft will be at an exact location.

The CAA’s model used to create noise contours requires validation from real aircraft noise events, which below these levels are hard to distinguish from other noise sources. We have commissioned the CAA to carry out further work to examine the feasibility of modelling at lower noise levels.

The 48 dB LAeq 6.5 hour contour is therefore used to measure progress over time and assess the impacts of different options for the night flight regime. As required in the air navigation guidance, our assessment of the health impacts associated with different airspace change options does measure impacts below this – down to 45dB LAeq 8 hour, which is consistent with the WHO’s methodological guidance for estimating the burden of disease from environmental noise. The level of accuracy is less critical for this purpose as it is about modelling future options rather than assessing past performance.

Meanwhile, we will continue to develop suitable metrics to capture the benefits of night flights.

Heathrow Airport

We propose a bridging regime of 3 years, covering October 2025 to October 2028, while we await further evidence that could support change in the future.

For the next regime, we are proposing that movement and QC limits for Heathrow Airport would remain the same as they are now.

Table 7: Heathrow Airport current movement and QC limits

Airport	Season	Movement limit	Noise quota limit
Heathrow	Winter	2,550	2,415
Heathrow	Summer	3,250	2,735

Question 1

1. To what extent do you agree, or disagree, with our proposals for the next night flight regime at Heathrow Airport? Provide evidence to support your view.

Gatwick Airport

Gatwick Airport has applied for development consent to bring the airport’s existing northern runway into routine use alongside its main runway. The application has been accepted for detailed examination by the planning inspectorate (PINS).

Depending on the outcome of the examination and the Secretary of State for Transport’s decision on the application, the airport anticipates that the project could be completed and ready for operational use by the end of the decade. The submission to PINS includes a commitment that the northern runway will not be used routinely – in conjunction with the main runway – between 23:00 to 06:00 each day.

Regarding the need to await the outcome of 2 important studies on aviation noise, we propose a bridging regime of 3 years, covering October 2025 to October 2028.

For the next regime, we are proposing that movement and QC limits for Gatwick Airport would remain the same as they are now.

Table 8: Gatwick Airport’s current movement and QC limits

Airport	Season	Movement limit	Noise quota limit
Gatwick	Winter	3,250	1,785
Gatwick	Summer	11,200	5,150

Question 2

2. To what extent do you agree, or disagree, with our proposals for the next night flight regime at Gatwick Airport? Provide evidence to support your view.

Stansted Airport

We recognise there has been a material change in circumstances at Stansted Airport following a planning permission, granted in June 2021, for the airport to serve up to 43 million passengers per year (within the airport’s existing annual movement limit of 274,000). A planning condition has imposed a night noise limit on operations at Stansted for the 8-hour night period (23:00 to 07:00).

The additional night noise limit is expressed as a night noise contour. It requires that the area enclosed by the night noise contour (48dB LAeq 8-hour) be no more than 74 km2. The new limit will be legally binding once the airport reaches a passenger throughput of 35 million passengers per annum.

A draft noise action plan for Stansted Airport for 2024 to 2028, proposed to introduce a new 8 hour night QC limit for the summer 2026 season to meet the planning condition. The draft noise action plan also stated that if it were helpful to deliver a streamlined but comprehensive system of controls, the airport would be content to extend the QC limit to cover the winter season too. This is important as the existing Government controls on night flights at Stansted run to October 2025.

This opens up a question about future night flight controls at Stansted, and whether Government night flight controls are required to work alongside the airport’s new 8 hour night QC limit.

We invite opinions on 3 different options for Stansted.

Option 1

Place reliance on the planning condition and Stansted’s introduction of an 8 hour night QC limit for the summer season of 2026. At this point, Government night controls would then be removed.

Option 2

The same as option 1, but with Stansted also introducing an 8 hour night QC limit for the winter season 2025 to 2026. At the start of the winter 2025 to 2026 season, Government night controls would then be removed: when the current night flight regime comes to an end.

Option 3

Government controls for the night quota period remain, to run alongside Stansted’s new QC limit for summer 2026. Government night controls would continue.

Our opinion on Stansted Airport options

We believe option 1 and option 2 both have merit, as they fit with the Government’s expectation that appropriate noise controls are usually best set locally through the planning system. This is the case at all other airports currently, except the noise-designated airports: Heathrow, Gatwick and Stansted. There are airports which impact more people with night noise than Stansted, where the Government is content for local controls to be in place.

There is also an argument in favour of QC limits as opposed to movement limits, as QC limits target total noise. Movement limits on their own do not enable control of noise in the same way and have been described by the industry as blunt instruments which offer no incentive to accelerate the introduction of new technology.

At the same time, we recognise the complete removal of movement limits could cause concern for local communities who value the certainty about the total number of movements over any given night flying year.

Regarding the need to await the outcome of 2 important studies on aviation noise, we propose a bridging regime of 3 years, covering October 2025 to October 2028. This proposal to keep current night flight restrictions the same in a bridging regime at Stansted is option 3 of the options outlined above.

For the next regime, we are proposing that the movement and QC limits for Stansted Airport would remain the same as they are now.

Table 9: Stansted Airport current movement and QC limits

Airport	Season	Movement limit	Noise quota limit
Stansted	Winter	5,600	3,310
Stansted	Summer	8,100	4,650

An additional reason why we propose keeping the regime the same under a bridging regime (option 3) is that the planning inquiry did consider the existing Government night noise restrictions when determining that further restrictions were needed. The decision specifically noted in paragraph 135 of the PINS appeal decision, (PDF) that:

There are currently no noise restrictions imposed by planning condition for night flights and Stansted, as a designated airport, is controlled by separate night flight operating restrictions imposed by the DfT. These operate on a QC system over a 6.5 hour night-time period, meaning that there is a 1.5 hour period that remains uncontrolled, beyond the 16 hour daytime period imposed by condition 7. In order to ensure certainty that the noise impacts of the development will be as anticipated in the ES/ESA, and to avoid harm to the living conditions of local residents, it is considered necessary to impose a night-time restriction by condition in this case, alongside the daytime restrictions and notwithstanding some existing DfT control.

It is our view that the planning inquiry saw the 2 sets of controls – the planning condition and Government set night flight restrictions – working together. The current night noise regime covers a movement limit as well as a quota count limit. The conditions imposed through planning place a limit on the area enclosed by a night noise contour (48 dB LAeq 8-hr night), and Stansted’s draft noise action plan for 2024 to 2028 has proposed to meet this condition by introducing a QC limit for the 8 hour night period from summer 2026.

A QC limit alone, without a corresponding movement limit, could see an increase in night-time movements – this is yet to be tested. A QC limit across the 8 hour night period could allow noise to be spread across the whole night if the movement limit currently imposed by Government on the period 23:30 to 06:00 were to be removed. We are still awaiting the impacts of the ANNE study to tell us which particular periods, or if there are any, during the night cause more sleep disturbance than others.

Therefore, we consider it premature to remove existing Government controls on movement limits. We also recognise that there is an alternative way of proceeding and therefore seek views on this.

Question 3

3. To what extent do you agree, or disagree, with option 1 for the next night flight regime at Stansted Airport? Provide evidence to support your view.

Question 4

4.To what extent do you agree, or disagree, with option 2 for the next night flight regime at Stansted Airport? Provide evidence to support your view.

Question 5

5. To what extent do you agree, or disagree, with option 3 (our preferred option) for the next night flight regime at Stansted Airport? Provide evidence to support your view.

Night flight dispensation guidance

In the previous night-flight regime consultation, we asked a series of questions relating to night flight dispensations.

Responses to this part of the consultation tended to be quite polarised. Local communities expressed general distrust in the process around dispensations, describing the system where airport managers can grant dispensations as open to abuse. Responses from industry stressed the importance of the dispensation process from an aviation resilience point of view.

We have published updated night flight dispensation guidance. This will take effect from the start of the winter 2024 to 2025 season with the exception of a requirement for the designated airports to write a letter to the Secretary of State regarding dispensations, which will take effect for the summer 2024 season.

It also includes a number of updates, designed to provide further clarity to airlines and airports on what should and should not qualify for a night flight dispensation. While it is not possible to cover every possible eventuality within the guidance, it is hoped that this further clarity will be beneficial to all stakeholders.

We have also provided a requirement for designated airports to be more transparent around:

• dispensation data
• information they regularly share with their noise engagement and track-keeping groups and, therefore, with their local communities

We have added a requirement for the designated airports to write a letter to the Secretary of State within one month of a season-ending. This letter should set out details on dispensations, including why those dispensations have been approved and why they have reasons which are considered to be ‘extraordinary’. The letter should also offer consideration of whether similar reasons should be classed as ‘extraordinary’ if they occurred again the following year. These letters are to be published by the airport with the first letter outlining the summer 2024 season.

Pre-emptive dispensations have been used at Heathrow Airport to land flights early on poor weather days. This is to reduce the risk of delays during the airport’s early morning busy hours, which could then have knock-on effects throughout the day, and possibly into the night period. While recognising the practice has been employed sparingly and in a controlled fashion at Heathrow, we do not feel this practice should continue. We feel the increase in early morning arrivals because of this practice should not occur.

The number of pre-emptive dispensations over recent seasons at Heathrow Airport (excluding the years impacted by COVID-19) is shown in table 10.

Table 10: number of pre-emptive dispensations at Heathrow Airport in recent seasons

Seasons	Pre-emptive dispensations
Winter 2018 to 2019	65
Summer 2019	10
Winter 2019 to 2020	128
Summer 2022	20
Winter 2022 to 2023	32
Summer 2023	3

Clarification concerning what constitutes a delay for a night flight dispensation is also given in our updated guidance. Some airlines choose to schedule operations very close to the start of the night quota period, which commences at 23:30. It is not uncommon for example, to see a scheduled arrival or departure time of 23:20.

It is widely recognised within the aviation sector that providing an arrival or departure is within 15 minutes of its scheduled time, the flight is still considered to be technically ‘on-time’. In such circumstances, the Government does not believe a dispensation should be granted for an arrival or departure that takes place just into the night quota period when the movement is less than 15 minutes late.

We do not feel we have sufficient evidence to date to justify further changes to the dispensation guidance – on which we previously asked consultation questions – other than those changes which we have now enacted. The Government needs to achieve a fair balance between the positive and negative impacts of night flights and does recognise and value the importance of the resilience of the 3 designated airports. The current dispensation system offers an important tool in facilitating schedule recovery after extenuating circumstances have disrupted operations.

The Government recognises the number of dispensations due to events which are outside of the control of airports and airlines – such as Air Traffic Control disruption and weather-related delays – have been high in the last 2 summer seasons, but also accepts that late running flights are sometimes unavoidable.

If the current night-flight dispensation process were not in place, there would be more cancelled and re-scheduled flights. This would result in hardship to passengers who may have to be accommodated in airport hotels at short notice or may face being diverted to airports where they had not expected to arrive, with the knock-on effects of that aircraft then being out of position.

There could be significant additional costs to airlines and considerable ramifications for the carrying of time-sensitive freight. In the case of deciding that a long-haul flight cannot depart, it may not be possible for the flight to leave until 24 hours later due to consideration of the operating hours of the crew, and consideration of any arrival restrictions that may be in place at the destination.

A summary of the responses received to the consultation questions asked about dispensations is provided in Annex B.

Long-term policy reform

In the previous night flight regime consultation, we sought views and evidence on options for future night flight policy at the designated airports and nationally.

For the next regime – to commence in October 2025 – we are not in a position to propose any significant change. At the time of launching our previous night flight regime consultation, it was with the expectation that we could further consider long-term policy reform in this consultation. However, the speed of recovery of the aviation sector from the impact of the COVID-19 pandemic was always uncertain. We await evidence from the ANNE study and the aviation noise attitudes survey before considering future policy reform.

However, we have considered the responses received to the previous consultation and can give an update on current thinking around various options.

A summary of the responses received to the questions asked in the 2020 to 2021 consultation is contained within Annex C. A high-level summary is also given below, under each of the questions which were asked.

Length of regime

Historically, night flight regimes have been for periods of 5 years or shorter. We were aware some stakeholders have indicated that this does not allow for long-term planning. We, therefore, sought views and evidence on how long the night-flight regime should be, including whether there would be benefits of a much longer regime (more than 10 years).

We said we did not propose a regime of less than 3 years as consultation and notification requirements would mean the need to consult on the subsequent regime soon after the new regime came into effect.

The Government position, as proposed in this consultation, is for the next night flight regime to cover a period of 3 years from October 2025 to October 2028. We recognise the industry’s need for certainty around a night flight regime, which a longer regime would tend to support. However, to enable earlier consideration of the evidence from the ANNE study and the aviation noise attidues survey currently underway, we favour a shorter regime of 3 years.

We also recognise some individuals and community groups favoured a shorter regime, which would allow for more frequent reviews. Industry responses tended to support a longer regime, with some suggesting it to be at least 5 years and others suggesting up to 10 years to provide certainty for planning and investment decisions. See Annex C for more details about the previous consultation responses we received.

The QC system

The Government’s QC system for the designated airports has been in place since 1993 with the principles of the system being used at other UK airports to restrict night noise. We believe it continues to be the best system for limiting noise at the designated airports. However, we welcomed views and evidence on how it works in practice.

While we remain open to future consideration of changes, we believe the current QC system is overall the best we have available and it should continue. 

See the responses we received in our previous consultation about the QC system in Annex C.

A new QC category

Currently, the lowest QC categories are QC0.125 for aircraft with a noise classification of between 81 to 83.9 effective perceived noise decibels (EPNdB) and QC0 for aircraft with a noise classification of below 81 EPNdB.

If a new category was introduced for the quietest aircraft, this could mean an introduction of a QC0.0625 band for aircraft between 78 EPNdB and 80.9 EPNdB, with QC0 becoming aircraft 77.9 EPNdB and below.

While we remain open to future consideration of a new QC category, we did not receive a level of response that suggested there is a need to proceed with this change. 

See Annex C for more details about the responses we received in our previous consultation.

Reintroduce an exempt category

As part of the Government’s 2017 night flights decision, the Government removed an exempt category for the quietest aircraft, to provide more transparency. This meant all aircraft movements were included in an airport’s movement limit.

However, we are aware the business general aviation sector has stated there have been times when they could not obtain, on short notice, sufficient night slots to deliver services which were previously able to operate at night as exempt flights.

An exempt category could be based on a QC category for example, QC 0 (aircraft with a noise certification value of less than 81), the size and weight of an aircraft, passenger loading, variations of these options or other criteria. We sought views and evidence on whether the economic benefit of these movements outweigh the adverse health impacts, and whether an exempt category should be reintroduced for the quietest aircraft.

We will not proceed with the reintroduction of an exempt category for the next regime. 

See Annex C for a summary of responses we received about the reintroduction of an exempt category in our previous consultation.

Re-baseline the noise quota system

In recent years, there have been progressive introductions of new QC categories to account for new quieter aircraft that were not in operation when the system was introduced in 1993. This has resulted in a system where QC values have needed to be decimalised (for example, using QC0.125 due to new aircraft being brought into service that are quieter than aircraft classified at QC1).

This has made the system appear more complicated. The higher QC categories of QC8 and QC16 only apply to aircraft that are no longer in regular service.

While we believe the methodology behind the QC system is sound, we said we were open to re-baselining the noise quota system. This could involve ensuring we do not have a classification of less than 1 in the new system. For example, we move the current noisiest aircraft into the categories QC8 and QC16, as aircraft currently in these categories are obsolete, while current QC0.125, QC0.25, and QC0.5 would then be moved to QC1 to QC4.

We said that we could also future proof the system by creating QC categories for aircraft that do not yet exist.

We will not proceed with re-baselining the noise quota system at this stage, given the varying opinions expressed in consultation responses – see Annex C for more information. This will be given further consideration in the future.

Night quota period

Currently, the Government’s movement and QC limits cover the period 23:30 to 06:00, with this being referred to as the night quota period (NQP). However, as the night period is 23:00 to 07:00, we said we are open to broadening the NQP to cover this period.

Movement and QC type limits would need to reflect movements that already exist in the shoulder periods (23:00 to 23:30, 06:00 to 07:00). A mechanism may also need to be developed if evidence shows certain periods of the night are more sensitive for communities than others.

We need to have robust evidence to make an informed decision. The ANNE study, which examines the relationship between aviation noise on sleep disturbance and annoyance – and how this varies by different times of the night – should help with this. We are not making any changes in this respect for the next regime. 

See Annex C for more details on the responses we received in our last consultation.

Banning the noisiest aircraft

Following the consultation conducted in 2020 to 2021, Government announced it would proceed with the implementation of a ban on QC4 rated aircraft movements, at the designated airports, during the night quota period. This ban came into force in October 2022.

In the consultation of 2020 to 2021, the Government also said it was open to extending the operational ban on QC4 rated aircraft movements to the full night period 23:00 to 07:00 beyond 2024. (At the time of writing the consultation material, a 2-year roll-over of the existing regime was proposed. This subsequently became a 3-year roll-over, covering the period 2022 to 2025).

We also acknowledged there are relatively few QC2 rated aircraft currently operating at night at the designated airports. We were interested in exploring whether there is potential to introduce a scheduling ban on QC2 rated aircraft movements between 23:30 and 06:00 and eventually 23:00 to 07:00 during the period covered by the regime after 2024.

A scheduling ban would still allow these aircraft to take off or land from a designated airport if delayed. We said we would be interested to understand the impact of the COVID-19 pandemic on airlines’ fleet replacement plans and the future role of QC2 rated aircraft in airlines’ operations.

The Government position is that we need to have robust evidence to make an informed decision. As the aviation sector continues to recover from the effects of the COVID-19 pandemic, now does not seem the appropriate time to take forward any further bans on aircraft type for the next regime.

This is an area which can be revisited for further consideration in the future. We intend to conduct further analysis during the next regime (2025 to 2028) to: 

• say more about proposals for the extension of the operational ban on QC4 rated aircraft movements to cover the full night period at the designated airports 
• give further consideration to proposals for a future scheduling ban on QC2 rated aircraft movements during the night quota period at the designated airports 

Annex C provides details of the range of responses we received to the questions asked about banning the noisiest aircraft.

Future movement and noise quotas: managing night noise through QC limits only

In previous changes to the night flight regime, the Government has aimed to maintain movement allowances but reduce the QC limit. This has ensured the designated airports have been able to maintain the economic benefits while reducing noise impacts for communities.

Future regimes could include an increase or decrease in an airport’s movement limit and QC limit or, alternatively, maintain the existing limits. Subject to changing relevant primary legislation, it would be possible to have a regime based on QC limits only in the future. This could be used to incentivise the use of quieter aircraft.

As noted in the consultation, moving to manage night noise through QC limits only requires changes to primary legislation. The Government’s position is to maintain the status quo, continuing with a night flight regime which sets both movement and QC limits.  

For the next night flight regime, we propose to maintain the current limits. 

See Annex C for a summary of responses we received in our previous consultation about future movement and noise quotas, and the managing of night noise through QC limits only.

Ring-fencing

Currently, each designated airport’s movement and QC limits are split by each airport’s scheduling committee into separate pools:

• scheduled services
• ad-hoc movements
• contingency

These pools are weighted towards scheduled services, and this may not provide sufficient night slot availability for ad-hoc services or for airport resilience.

We are aware the way decisions have been implemented has caused concerns for some airport users. For example, business general aviation and freight operators have found that there are limited or no night slots available to deliver their ad-hoc flight requirements, especially when the requirement is at short notice.

In the consultation of 2020 to 2021, we said we do not have sufficient evidence of the extent of this problem or whether a more formalised ring-fencing mechanism that ensures each sector is provided with a fair share of slots is a proportionate response.

We said ring-fencing, if introduced, could include guidance to airports and/or the scheduling committees, or a legal mechanism that is supported by the Government’s night flight regime. Ring-fencing an allocation for the quietest aircraft (QC0) could be an alternative to reintroducing an exempt category.

The Government’s position, given the polarised nature of the responses received, is to keep this issue open for further consideration. Additional evidence may be gathered from the consultation on airport slot allocation reform which covers the issue of ring-fencing. 

The differing responses we received about ring-fencing from our previous consultation are outlined in Annex C.

Unused allocation during seasons

Each designated airport’s movement and QC limits are split into separate quota pools by the respective airports’ scheduling committees. Within the scheduled service pool, each airline that has service during the NQP is allocated a proportion of the pool, and they report to the airport when they use any allocated movements and QC.

This means if an airline has a service that was scheduled to depart in the NQP but departs in the day, it can ‘bank’ the movement and QC for use later in the season. A consideration was that Government could be more specific in the aeronautical information publication (AIP) supplement saying how unused allocation should be used.

While we await further robust evidence from the ANNE study and the aviation noise attitudes survey, the current position of unused allocations during seasons will remain as it is. 

See Annex C for more information about the responses we received about unused allocations during seasons.

Carry-over of limits between seasons

The night flight regime allows airport operators to carry over limits between seasons and borrow from future seasons. This is to allow airport operators to manage their movements during the peak Easter period, which can fall in either season.

Often, this results in airports using the process to effectively increase either their summer or winter limit regularly and this, therefore, calls into question whether the current process remains appropriate and proportional.

A different approach could involve decreasing the carry-over limit, introducing an annual allowance or removing the carry-over process.

The Government position recognises the flexibility afforded to industry by the current system. As the aviation sector continues to recover from the impacts of the COVID-19 pandemic, it does not intend to propose any changes at this stage.

For more information about feedback on carrying-over of limits between seasons, see Annex C.

Health impacts and economic value of night flights

We recognise noise from aircraft at night is often regarded by communities as the most disturbing form of airport operations.

There is evidence of adverse health impacts from these operations. Governments have historically sought to balance these adverse health implications against the economic benefit night flights bring to the UK economy.

The Government recognises the differing opinions on health impacts and night flights. We need to have evidence to make an informed decision and await the outcome of the ANNE study and the aviation noise attitudes survey.  

Government also recognises the need to develop our analysis around the economic benefits of night flights, and we will be working to further update this analysis during the next night flight regime. 

We will continue to review evidence underpinning WHO guidelines together with more recent evidence. This review is being undertaken by the Interdepartmental Group on costs and benefits (noise) to consider whether there are any necessary updates to relevant Government guidance.  

We also await evidence from the ANNE study and the aviation noise attitudes survey and will use the outputs from them to help shape future policy. We did acknowledge in the 2021 decision document that number above metrics could be useful, and we are committed to producing them in the future and to look at how they could be used. We have now included a number above metric within the data included in Annex F. 

The Government fully recognises the impacts of the COVID-19 pandemic on the aviation sector.  

See Annex C for the responses received to the questions we asked about health impacts and the economic value of night flights in our previous consultation.

Future technology

The consultation of 2020 to 2021 set out that the Government is keen to explore how future technology will benefit communities, consumers and the industry. In recent decades, there have been significant advances in airframe and engine technology that have helped reduce noise at source.

Studies have shown that new-generation aircraft such as the Airbus A350 and Boeing 787 are significantly quieter than the aircraft they are replacing. Historically, these advances in technology have benefited both noise and carbon reduction aims. However, we said it is unclear what the future technological advances will be, and whether there will continue to be reductions in both forms of environmental emission.

The Government recognises aircraft are becoming quieter as technology advances. We expect this trend to continue. However, the Government also recognises noise from aircraft taking off and landing at night is often regarded by communities as the most disturbing form of airport operations.  

We await evidence from the ANNE study and the aviation noise attitudes survey and will use the outputs from them to help shape future policy. 

See Annex C for more information about the responses received to the question asked on future technology in our previous consultation.

Airport designation

In our previous consultation, we explained that Heathrow, Gatwick, and Stansted airports have been designated to avoid, limit or mitigate the effect of noise from aircraft since 1971. The Secretary of State’s powers to designate airports in England and Wales and to set noise controls, which include the current night flight restrictions, are contained in the Civil Aviation Act 1982. These powers are devolved in Scotland and Northern Ireland.

The Government recognised there are no criteria for deciding if an airport should be designated in England and Wales. There could be several factors that could be used when assessing the need for Government involvement by way of designation. These could include the:

• population affected
• number of night flights
• strategic importance of any airport

The Government did not propose to designate or remove designation from any airport as part of this consultation process. However, we said we were open to considering criteria for designation that could in future be used as the framework for the designation of an airport in England and Wales.

If criteria are developed, we would assess airports that are currently designated against those criteria. If a designated airport does not meet the criteria, this could result in the eventual removal of the airport’s designation status.

The Government’s position on airport designation remains unchanged. There is also a mid-way course where designation status is retained but the Government chooses not to set night flight restrictions. We are exploring future night flight controls at Stansted Airport.

See Annex C for the responses we received about airport designation in our previous consultation.

Full consultation questions

These questions are included here so you can read them in the context of this document. See the Ways to respond section of the GOV.UK home page for this consultation for an online response form and other ways to respond.

1. To what extent do you agree, or disagree, with our proposals for the next night flight regime at Heathrow Airport? Please provide evidence to support your view.

2. To what extent do you agree, or disagree, with our proposals for the next night flight regime at Gatwick Airport? Provide evidence to support your view.

3. To what extent do you agree, or disagree, with option 1 for the next night flight regime at Stansted Airport? Provide evidence to support your view.

4.To what extent do you agree, or disagree, with option 2 for the next night flight regime at Stansted Airport? Provide evidence to support your views.

5. To what extent do you agree, or disagree, with option 3 (our preferred option) for the next night flight regime at Stansted Airport? Provide evidence to support your view.

How to respond

See the Ways to respond section of the consultation page on GOV.UK to find out how you can respond to this consultation.

What will happen next

A summary of responses, including the next steps, will be published within 3 months of the consultation closing. Paper copies will be available on request.

If you have questions about this consultation please contact:

Night Flights consultation
Airport Policy – 4th Floor
Great Minster House
33 Horseferry Road
London SW1P 4DR

Alternatively, you can email: night.flights@dft.gov.uk.

Further information

Freedom of Information

Information provided in response to this consultation, including personal information, may be subject to publication or disclosure in accordance with the Freedom of Information Act 2000 (FOIA) or the Environmental Information Regulations 2004.

If you want information that you provide to be treated as confidential, please be aware that, under the FOIA, there is a statutory code of practice with which public authorities must comply and which deals, amongst other things, with obligations of confidence.

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

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

Data protection

Where personal data is being collected as part of the consultation - for example, names and contact details - you will need to include a privacy statement.

There is guidance on the DfT intranet about how to write a privacy notice.

Consultation principles

This consultation is being conducted in line with the Government’s consultation principles.

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

Consultation Co-ordinator
Department for Transport
Zone 1/29 Great Minster House
London SW1P 4DR

Email consultation@dft.gsi.gov.uk.

1. Quota count (QC) is a weighting attributed to the arrival or departure of a specified aircraft type by reference to its certificated noise performance. The designated airports are given a noise quota which is an aggregation of QC for individual aircraft, used to define a seasonal limit or usage by comparison with the applicable limit. ↩

2. See section 80 of the Civil Aviation Act 1982. ↩

3. See Annex F: guidelines on dispensations (PDF). ↩

4. Effective Perceived Noise Decibels. A specialised noise unit used for aircraft noise certification tests. ↩

5. Regulation 598/2014 assimilated law – which is domestic law previously known as retained EU law. ↩

6. LAeq 6.5hr night refers to the noise levels in the period of the night 23:30 to 06:00. ↩

7. TAG is DfT’s suite of guidance on how to assess the expected impacts of transport policy proposals and projects. ↩

8. The weighting attributed to the arrival or departure of a specified aircraft type by reference to its certified noise performance. ↩

9. Decibel units of sound level on the A-weighted scale, which incorporates a frequency weighting approximating the characteristics of human hearing. ↩