I spent several hours perusing the Draft Framework document yesterday.
The draft document is just to elicit comment and influence government thinking towards an actual policy on aviation expected in 2013 .
This will almost certainly form part of the Tory manifesto come the next schedule election (May 2015)
In regards to pre-clearance my understanding is that they want to consult further and identify what legal implications there may be.
Also tied with relaxed 5th freedoms consideration is being made to entice BACK some of the lost transit traffic such as Air India and perhaps Jet Airways .
However further reading indicates that the want these carriers to use Gatwick/Stansted or Manchester or even Birmingham (they reference Luton however that may be for business jet traffic reasons)
With pre-clearnace at THESE facilities rather than LHR
In the case of Manchester this would certainly help PIA as the JFK
bound flights already make a security stop going west and it would also help Biman Bangladesh with their soon to be restarted US services.
I think this is about increasing use of those facilities rather than furthering LHR
That said it is far from clear as is anything in that document.
Plenty of waffle and NO SUBSTANCE.