That isn't quite how I read it.
I think the Davies Commission interim report is the first hurdle that Heathrow have to jump over and their extensive "Additional Report" is a plea to Sir Howard to get a recommendation to pursue it (in the face of little conclusive evidence after the better part of three years of planning and trials).
If the Commission is persuaded - and the argument is supposed to go that Heathrow will be doing all kinds of innovative things that will make the situation better, so the Operational Freedoms won't be needed for long !! - then the Government will consider the proposal and, if minded to, will undergo the consultation process. That may be an uphill struggle given the local opposition, the weakness of the evidence, the rest of the long-term Davies proposals and the background of the approaching 2015 General Election.