Evaluation of the Balanced Approach Regulation
Strengthen International Standards, Ensure Consistent Implementation
February 26, 2026
Background
The International Civil Aviation Organization (ICAO) has established a global framework for managing aircraft noise at airports through the Balanced Approach. The EU implements this framework through Regulation (EU) No 598/2014. The Balanced Approach provides the foundation for the harmonised, evidence-based management of aircraft noise at a global and European level. In practice, however, an imbalance to the detriment of economic interests can be observed.
Status quo: Balanced Approach in Disbalance
The Balanced Approach is a clearly sequenced, four-step concept for addressing aircraft noise. The priority is reducing noise at source, particularly by using quieter aircraft and technological innovation. The second pillar is effective, forward-looking land use planning that avoids noise-sensitive development near airports. Thirdly, optimised flight procedures can be implemented to mitigate operational noise as far as possible. As a last resort, operating restrictions – such as night flight bans or capacity limits – may be imposed if a specific noise problem has been identified and all other instruments have been exhausted. This sequence is essential to ensure a fair balance between the interests of the population and the performance and connectivity of European air transport.
In practice, however, a clear imbalance can be observed in some regions of Europe. While the aviation sector, as well as aircraft and engine manufacturers, are actively driving noise reduction at source through technological advance, progress in other areas – particularly land-use planning – has been lacking. The prescribed sequence of the Balanced Approach is not being consistently followed. Rather than fully exhausting the available measures, some authorities prematurely resort to operating restrictions. Authorities often react to residential developments that have evolved historically or have been established more recently in the vicinity of airports, even though such planning misjudgements do not fall within the responsibility of the aviation sector. Examples can be found at airports in Amsterdam, Brussels, Paris and Dublin.
The inconsistent application of the Regulation in certain regions leads to legal uncertainty for the aviation industry. It also impairs the functioning of the European internal aviation market and regional
economic connectivity and disrupts the logistics processes of shippers. The insufficient coordination between spatial planning, airport development and noise protection is particularly problematic. Additional residential development in noise-sensitive areas exacerbates the potential for conflict, regardless of operational improvements, and hinders the development of sustainable long-term solutions.
Recommendations for the Evaluation
From the perspective of the BDI, there is no fundamental need to amend the substantive provisions of the regulation. The Balanced Approach is appropriate and well-balanced. The challenges lie in its practical implementation. The evaluation should therefore aim for a uniform and balanced application that creates legal certainty across Europe
A Europe-wide, consistent, strictly sequential application of all four pillars is required, as well as forward-looking land-use planning that considers the operational requirements of air transport more effectively. Rigorous monitoring of compliance with the rules by the European Commission is essential for the internal market and the safeguarding of European connectivity. All operating restrictions introduced under the Balanced Approach should be subject to continuous monitoring and regular review. As soon as updated findings from pillars 1 to 3 demonstrate that an operational restriction is no longer necessary, it must be eased or lifted immediately. Operating restrictions must never become permanent. In this way, the Balanced Approach can contribute to developing a reliable framework that effectively protects the population while preserving the long-term performance of the European air transport system for passengers and freight.
Imprint
Bundesverband der Deutschen Industrie e.V. (BDI)
Breite Straße 29, 10178 Berlin www.bdi.eu
T: +49 30 2028-0
German Lobbyregister Number: R000534
EU Transparency Register: 1771817758-48
Editorial Marco Kutscher
Expert Energy, Transport and Environment
T: +49 30 2028-1751
m.kutscher@bdi.eu
BDI Document number: D 2244