Conclusions de la commission du dialogue - English version

Transfer of Nantes-Atlantique Airport

Report of the Dialogue Commission

by Claude Chéreau, Claude Brévan and Rouchdy Kbaier

9 April 2013

Original: French

Original Address: http://www.developpement-durable.gouv.fr/IMG/pdf/SC600413040916180-1.pdf
Move to : http://www.developpement-durable.gouv.fr/IMG/pdf/Le_rapport_de_la_commission_de_dialogue.pdf on 12th of April.

Full report: 64 pages

pages 58 to 64: Conclusions and Recommendations

Conclusions and Recommendations

1.  Air traffic growth at Nantes seems set to continue, albeit at a slower rate than over the past few years. Forecasts to 2030 are realistic, judging by growth over the past years, which has been faster than was only recently considered optimistic. The hypothesis of nine million passengers by 2050 is however more in the nature of an aim put forward for the purposes of calibrating a development project rather than a forecast, given the economic and social uncertainties over such a span of time.  If in the long run the project were ever to reach that number of passengers, an international airport in the West of France would not relieve air traffic at Charles-de-Gaulle Roissy, as some have stated, but would rather allow the « Grand Ouest » area to do away with the need to go through Paris to gain access to European as well as major French cities. This airport would represent the implementation of a decentralisation policy.

2.   The current airport could only accomodate significant growth in passenger numbers if large-scale and disruptive work were to be undertaken. Air traffic forecasts estimate a number of four million passengers by 2018-2020, which is equivalent to the saturation level estimated at the time of the public debate held for the existing terminal. Sucessive retrofits and extensions have not led to an improvement of its operations and have taken up a substantial amount of space while requiring an increased number of pathways and security areas. This possibility of a re-design was however one of the main arguments put forward by those opposing the transfer of the airport to a new location.

The commission recommends that Government services undertake a more in-depth evaluation of the Nantes-Atlantique retrofitting costs both with the current runway and with the runway orientation changed crosswise. This assessment would present the advantage of putting an end to sterile polemics, as it would be based on concrete and verifiable facts.  It could be carried out with the involvement of those opponents who would be prepared to have their data compared to such an estimation.

Moreover, beyond 55000 aircraft movements, the airport nuisance to the residents of Nantes would be excessive. The redesigning of Nantes-Atlantique does not therefore appear to the Comission to be a viable long-term solution.  Technically difficult and highly disruptive to local residents, this option would amount to a voluntary limitation of airport capacity, thereby preventing the amortization of the refurbishment costs which would be incurred for even a limited capacity increase. This option would be detrimental to the economic development of the region.

3.   Many questions remain as to the future development of the Nantes-Atlantique site.  It is essential to clarify the issue of its planning once the commercial airport is transfered away.

The Commission recommends the following:

-     Reach a decision quickly as to whether or not to preserve the runway for Airbus, and define the company's needs for expansion.

-    Specify the actual surface area that would made available by the airport transfer, as well as the use to which that area would be put. Theoretical figures have varied, from 252 hectares including 70 hectares to be integrated into an urban forest in the city, after clearing of the airport site, to a more reduced figure of 80 hectares more recently put forward.

-  In general terms, provide for public consultations on a comprehensive development project for these districts located in the South of the Nantes conurbation.

4.   The noise exposure maps for Nantes-Atlantique and Notre-Dame-des-Landes were established on assumptions that should be updated to take into account new aircraft movement forecasts as well as technical advances in aircraft design.

A draft noise exposure map has been developed for Nantes-Atlantique at the request of the Commission. Such a map should be developed for Notre-Dame-des-Landes as well. The Commission morevoer recommends that sound insulation grant schemes be liberally applied in proximity to the Notre-Dame-des-Landes airport, as noise is more sharply perceived in a quiet environment than in an urban setting which is already noisy.  The Commission moreover recommends that recreational aviation and sightseeing flights, which are very noisy, be entirely barred from the projected airport.

5.  The medium-term change of scale of the transfered airport, with a greater number of point-to-point connections to destinations with economic potential may represent an advantage for the competitiveness of the Loire and Bretagne regions by opening them up to areas outside France and attracting international business and tourism. Even though international traffic represents 50% of the total volume at Nantes-Atlantique, this airport lags behind in this respect, as it only offers 25 European destinations (not all of which are cities with economic potential), while Lyon offers 40. The Commission nevertheless emphasizes that while rapid and high-performance access without transit through Paris is a need for businesses, especially as regards the option of making return journeys in the same day, such access is nevertheless not sufficient.  Such an advantage would remain merely potential until such time as it could be realized within the framework of an export-oriented economy and with the establishment of international businesses in the region. Similar statements apply to the development of tourism or business travel originating outside the region.  Such travel could be boosted if direct connections were established to the capitals and major cities of Europe. These are not however the destinations currently being served by Nantes-Atlantique, as the focus is primarily on  purely holiday destinations.  Developing demand would also require active measures to promote the potential for tourism in the « Grand Ouest » region of France, knowledge of which is still quite limited abroad.

6.  The proliferation of airports in the Pays de la Loire and Bretagne regions was referred to on several occasions and attributed to poor air transport policies.  It would seem necessary to give some thought to the airport network in Western France in order to rationalize the high number of airports, many of which do not have the critical mass needed to operate financially independently or to provide regular services to a range of destinations. The future of Rennes St-Jacques airport was brought up several times, some believing it would eventually be closed, while others considered that it might be used for business travel and freight.  Amongst the many airports in the region, only Brest's future stands unchallenged, as that town is remote and therefore has its own catchment area for travel. The argument that airlines choose their own airports is a limited one: such freedom of choice should not prevent regions from possessing an airport with a sufficiently large number of potential users to provide a full offer of destinations.

7.  Access to the airport by public transportation is a topic that gave rise to many questions and much scepticism, and would warrant clarification.  While road access is established and provided for in the Déclaration d'utilité publique, uncertainties remain as regards access by public transportation.  The Nantes-to-Chateaubriand tram-train will begin operations in 2014, but there is no prospect or certainty whatsoever that the tram-train line to Notre-Dame-des-Landes will be built. This project was « associated » with the airport project when the public enquiry was held, and the Commission of Inquiry had emphasized the need to take resolute steps towards its implementation.  It would currently appear that assessments of the profitability of such an infrastructure have led to its being shelved altogether. Very firm committments on replacement options should be made and widely publicized. As to the Rennes-Nantes high-speed train connection, it is included in the National Transport Infrastructure Plan (SNIT) currently undergoing revision. If this project is indeed approved, it will nevertheless clearly only be built in a more distant future, given the scarceness of financial resources.  The impact of such a lengthy delay on the airport's prospects for growth should be assessed.

8.  The elected representatives of the Erdre et Gèvres municipalities (CCEG) informed the Commission that they were encountering difficulties with a projet which extended beyond the boundaries of their localities and seemed to enjoy a de facto status of extraterritoriality. The Commission deems it necessary for the conditions of establishment of the airport on the territory of Erdre et Gèvres and of the Pays de Blain to be determined without delay and to be subjected to a joint local development approach led by the local authorities directly concerned, in association with the large municipalities. It is the Commission's view that a dual approach should be adopted: the large municipalities along with the localities should be mobilized, and both should be involved upstream in the process, as early on as the preparation of the financial instruments to be mobilized within the framework of the future planning for the State/Region projects and the operational programs FEDER, FEADER, LEADER (2014 to 2020), amongst others.

9. The Commission furthermore believes that national and European financing should be leveraged for farmer-led projects, whose involvement should be sought as of the preparatory phase relating to the above financial instruments.

10. The sensitive nature of the environmental issues relating to the impact of the projected airport and of the accompanying road scheme on agricultural land as well as on the natural environment, wetlands, and protected species was emphasized by elected representatives, agricultural unions and nature protection organisations, all of whom communicated their concerns relating to the design and implementation of the compensatory measures proposed by the two project owners. The Commission recommends that the reports of the Task Force of Independent Scientific Experts and of the Agricultural Commission be carefully analysed before any decision is taken, and that the reasons guiding such a decision be explained to the public as clearly as possible. 

Whatever the outcome of this decision, the Commission is of the view that three elements must be significantly strengthened:

-     information of and exchanges with the public in an approach based on transparency.

-   beyond the existing or planned follow-up structures, clearly expressed objectives for compensation should be established and accompanied by easily verifiable committments on the part of the projet owner and the State.

-  determination of the mechanism for public participation in implementing these measures.

11.  A Peri-urban Agricultural and Natural Protection Perimeter (PPEANP or PEAN) covering 19300 hectares was established and now constitutes a green belt which must be preserved exlusively for agricultural purposes for several decades. However, the Commission, having heard the concerns expressed by the farmers, questions this provision, which should not represent an excessive constraint to farmers, and recommends that it be made the subject of a plan of action.

12.  The Grand-Ouest airport [Notre-Dame-des-Landes] aims to be exemplary in environmenal terms.  While this aim seems to be met as regards the design of the building and of the airport facilities, it is not achieved in the very large scale consumption of nature areas and agricultural land. Given the importance of these two aspects, we believe a better balance should be struck between the interests of the project and the agricultural and environmental dimensions, even though this may slightly diminish the landscaping of the airport area.

To this end, it is essential to reduce as much as possible the area of surfaces to be sealed or otherwise removed from agricultural use.

Reduce the surface area of car parks by diminishing the average size of each parking slot and by increasing the proportion of parking spaces in vertical parking garages once requirements reach 7500 slots.

Set aside at a minimum 250 hectares of the land currently designated as « available for development » for a sufficient length of time to allow for the verification of the effectiveness of  compensatory measures established for the construction of the first phase of the project.

Reduce the surface area of land designated as « available for future development », as a 200-hectare business park is planned near the site and the Grand-Ouest airport [Notre-Dame-des-Landes] is not designed to process any major volume of freight.

Seek to leverage the value of any residual land of over one hectare in area.

Examine the option of moving the Eastern section of the road scheme as close as possible to the occupied sections of the concession area, including the possibility of abandoning the traffic calming road design.

Proposals of a more general nature:

13.  The matter of the disconnection of a main project from its ancillary projects is a problem which extends beyond the Grand-Ouest [Notre-Dame-des-Landes] airport project. It is the view of the Commission that comprehensive public debates should be held on the project as a whole, i.e. on the main project, its transportation access and any other ancillary projects, and that the respective project owners should, following these debates, state their intention either to implement, to amend, or to abandon these projects.

14.  With a view to informing the public as fully as possible, and in order to integrate the surface areas required for environmental compensation into the project at an early stage, i.e. as of the Déclaration d'utilité publique, it appears essential for the project owner to be able to evaluate these requirements so as to include them into the overall project cost/benefit analysis.

Signed:

Claude Brévan

Claude Chéreau

Rouchdy Kbaier

Thanks to @takammmo  for the translation