Notes on the chronology of various emails and texts between the Chief Constable of Kent Police, Alan Pughsley, and the Leader of Kent County Council, Paul Carter in relation to the potential of utilising Manston as a temporary Operation Stack relief lorry park for Dover-bound HGVs. This includes reference to joint discussions with government departments on managing a significant increase in the number of unaccompanied asylum seeking children (UASC) arriving in Kent.

8 July 2015

The Leader and the Chief Constable met at a reception on the afternoon of Wednesday 8 July 2015. Conversation led to the Leader asking the Chief Constable his views about the possibility and potential of utilising Manston as a relief lorry park for Operation Stack (bearing in mind at this time the M20 had been closed for 9 days) as a number of residents had emailed, written and contacted the Leader suggesting a “Manston solution” to avoid the closure of the M20. The Chief Constable agreed that this needed further consideration and should be investigated.

9 July 2015

The Leader took part in a live Radio Kent question and answer with the public at 9am the next morning. As was expected a significant number of questions from the public were focussed on the disruption caused by Operation Stack. The Leader let it be known that the Chief Constable would be investigating further with his team the possibility of a “Manston solution” as a temporary lorry relief park.

At 11:38 the Chief Constable sent a text to the Leader stating:

“Hi Paul. Have done some work with team re Op Stack and Manston. Having spoken with the team, the challenging logistics of this venue would probably make it a non-starter unfortunately. Catch up soon. Alan.”

The Leader having talked about the Manston potential on Radio Kent and the Chief Constable’s subsequent reply then emailed the Chief Constable at 18:51. “Dear Alan Thank you for your text about the former Manston Airport, now known as Stone Hill Park. As you are probably aware, I let it be known on Radio Kent this morning that the potential of using Stone Hill Park as an emergency lorry park was being explored in order to avoid the closure of the M20. Clearly you have now done some work with your team and you feel the logistics of Stone Hill Park are challenging and probably make it a non-starter. I would urge your team to do further work as I believe that Stone Hill Park has enormous potential for Dover-bound HGVs and good connectivity by road. The owners of Stone Hill Park are willing to co-operate as their attached statement shows. There is also the possibility of allowing local Folkestone traffic to use the

hard shoulder of the M20 with a speed restriction of 40mph, with the slow lane acting as a buffer zone. I am not expecting an immediate decision but feel if you determine it is a definite no, the detailed reasons behind your decision need to be explained to the public. We are agreed that closing the Queen’s highway should be avoided at all cost. Regards Paul”

29 July 2015

On 29 July the Home Secretary (Theresa May, MP) rang County Hall to speak to the Leader concerning two issues:

1) KCC’s request to the Home Office for assistance in physically

accommodating the substantial increase in numbers of UASC as a result of security issues at Calais; and

2) To seek the views from the Leader of the impact of Operation Stack having been in operation for 24 days. The disruption caused to Kent residents and businesses and all associated issues relating to Operation Stack.

The Home Secretary was fully appraised by the Leader. The Home Secretary assured the Leader that both issues would be taken forward by the Home Office and the Department of Transport and fed into “COBRA”.

This was followed at 6 o’clock on 29 July (the same day) by a telephone call from the Permanent Secretary from the Home Office requesting a meeting with the Leader the following day.

30 July 2105

The meeting took place at 9 o’clock on Thursday 30 July with the Permanent Secretary (Mark Sidwell) accompanied by two colleagues, the Director of Transformation (Dr Robert Arnott) and the Principal Private Secretary (Mark Williams), the Leader was accompanied by Peter Oakford, KCC’s Cabinet Member for Specialist Children’s Services. The Permanent Secretary made it clear that he was attending the meeting at the request of the Home Secretary to discuss the two issues referred to during the conversation with the Home Secretary the previous afternoon ((i) physically accommodating the rising number of UASC and young people arriving at the Port of Dover and (ii) the massive disruption in Kent caused by Operation Stack).

During discussions the Leader made clear his views of the necessity to keep the M20 open in both directions (although restricted) to avoid the intolerable disruption to Kent residents and businesses and the necessity to contain HGVs waiting to cross the Channel off the Queen’s highway.

The Permanent Secretary let it be known that a number of off-road sites were being investigated by the DfT namely Ebbsfleet, Folkestone Race Course, Detling and Manston. With regard to the UASC issue the Leader explained the necessity for a national dispersal programme outside of Kent (as Kent was at its limit in finding appropriate placements and accommodation). To enable and encourage other local authorities to participate in taking on UASC national government needed to reassure all authorities that full reasonable costs would be reimbursed by the Home Office. The duration of the meeting was approximately an hour and ten minutes and it is understood that the Permanent Secretary and his team were en route to meet the Chief Constable at Police Headquarters, thence to the Port of Dover, thence the Port of Calais and thence to Paris to meet with his counterpart.

On 30 July the Leader received a letter from the Chief Constable, attached as Appendix 1 which notes “that Kent Police are not the lead agency in scoping a long term solution to the motorway. Highways England has ownership of the Strategic Road Network and, with KCC Highways, is responsible for traffic measures and diversion routes”. Specifically on Manston, now referred to as Stone Hill Park, the Chief Constable states that “I am aware that Highways England has already reviewed other potential locations around the county, and has discussed some of these options with my staff. In reviewing the possibility of Stone Hill Park, they have already identified several issues from their initial assessment. These include the following points: - The current road network is not sufficient to deal with the increase in freight

traffic via the A28/A253 or A256; - Stone Hill Park is approximately 23 miles from the nearest A2 junction and

the A256 is single carriageway, via rural villages, and not suitable for heavy HGV use;

- The proposal is likely to compound congestion in rural villages from the A2 to the site;

- The site is not strategically places for access to either the Port of Dover or the Channel Tunnel;

- The current facilities at the site are unsuitable for large scale parking of freight e.g. insufficient hard-standing (currently will only hold approximately 450 pieces of freight as opposed to the 2,100 held between junctions 8-9 of the M20 alone) and toilet/wash facilities;

- Proposals will require planning and local authority consent, which is likely to be opposed by the community.

These points indicate that Stone Hill Park would not be a viable solution, but the decision to progress any further work would sit with Highways England as the primary agency.”

The Leader received a letter from the Chief Executive of Highways England dated 30 July, attached as Appendix 2, which in effect maintains the status quo, i.e. closing the coastbound (east) carriageway between junctions 8 and 9 and on occasion closing the London-bound (west) carriageway.

31 July 2015

Following a number of discussions between the Leader and Secretary of State for Local Government (Greg Clarke MP) on Friday 31 July the following statement was issued by government: “My department will stand side by side with all local authorities across the UK facing increased pressures as a result of the situation in Calais, including those helping out by taking on responsibility for unaccompanied children in order to reduce pressure on Kent. The Government will do everything necessary to support local authorities, with all reasonable additional costs met to ensure they get the assistance needed."

4 August 2015

On Tuesday 4 August 2015, following discussions between the Leader and the Roads Minister (Andrew Jones) the following statement was released by the Department of Transport (DfT): NEW MEASURES TO RELIEVE PRESSURE ON OPERATION STACK Manston Airfield to be temporarily used to provide additional capacity for

cross-Channel freight when Operation Stack is in place. New arrangements to prioritise certain goods across the Channel,

including quick to market goods. Manston Airfield will be temporarily used as an alternative for freight traffic while there are ongoing issues with disruption to cross-Channel services, the Government has announced today. An agreement has been reached with the owners of Manston Airfield in East Kent to enable Kent County Council, Highways England and Kent Police to temporarily use the airfield to help reduce pressure on the M20 during Operation Stack. Operation Stack is currently lifted (Tuesday) and there has been less disruption in Kent over the weekend, but the introduction of Manston Airfield into Operation Stack when required will provide short term additional capacity to help manage freight traffic on its way to Dover Port. It will work alongside the existing Operation Stack to help reduce disruption on the M20. The priority is to keep traffic and goods moving and ensure people on both sides of the Channel can go about their lives as normally as possible. Freight will be directed when the diversion is in place. Holiday-makers will be able to follow clearly signed routes to their destinations. Transport Minister Lord Ahmad said: “Working together we have found a viable short-term solution to the disruption residents and industry in the M20 corridor from Dover to Maidstone have been experiencing in recent weeks as a result of Operation Stack.

“By using Manston Airfield we have secured an interim solution while we work to find a longer term resolution, which meets the needs of the whole of Kent and of course the interests of British Industry. “I would also like to thank the maritime sector and Eurotunnel which have been supportive in working to maintain cross channel operations.” The use of Manston will be kept under review and impacts will be monitored on local routes and at the Port of Dover. This short term measure will provide immediate relief to those living around the M20 but the government continues to work with Kent County Council, Highways England and Kent Police on a range of short to long term solutions. In addition quick to market products will be identified as part of the filter procedure on entry to Operation Stack. Such loads will at present be limited to fresh produce which need to be at market within a matter of hours, but will not include other products with a longer life span. The following loads will therefore not enter Operation Stack but be routed directly to the Channel Tunnel or Port of Dover: • Livestock and other live loads, which includes live shellfish • “Quick to market” fresh produce, including fish and meat • Hazardous goods – explosive (class 1) and radioactive materials (class 7) • Freight/ cargo for critical care – emergency medicines, equipment for critical

care and any other material required to preserve life • Items critical for humanitarian need and welfare of the nation Highways England Director of Network Delivery and Development David Brewer said: “We are committed to working with our partners to keep traffic moving as well as possible on the M20 and to minimise any disruption on surrounding roads in Kent. “We advise road users affected by Operation Stack to plan ahead and check traffic conditions and advice from travel operators before setting out; to leave plenty of time for journeys and while on the road to listen to travel news bulletins for latest information. We would ask all travellers to particularly look out for local signs and electronic message boards that will guide them to their destinations.” Kent Police’s Deputy Chief Constable Paul Brandon said: “We are pleased to support any measures that will ease the pressure on the M20 and those communities and businesses who have been adversely affected by Operation Stack in recent weeks. We have been in a critical situation in Kent since the middle of June and, in that time the situation in Kent has been acknowledged as a very real, national issue. “Following work by the Department for Transport and Highways England, the option to divert freight bound for Europe to Manston Airfield, whilst very

challenging, has become more feasible in terms of resourcing and logistics. Working with more resources than ever, including mutual aid from other police forces, Highways England and other agencies we are all committed to making the plan from the Department for Transport work, to ease the situation caused by the current Stack operation on the M20. “We will continue to work closely with those agencies and Kent County Council to monitor and review the use of Manston as an alternative interim measure.” Kent County Council Leader Paul Carter said: “We welcome the decisive action taken by the Government on this issue in trialling the new initiative. “Our principal concern throughout this difficult period has been that we need to keep Kent moving for local residents and businesses. “It is particularly important we endeavour to keep the M20 open in both directions as far as is possible, and we will continue to impress upon our partner agencies the need to help make this new initiative a success.”

Registered office Bridge House, 1 Walnut Tree Close, Guildford GU1 4LZ Highways England Company Limited registered in England and Wales number 09346363

Paul Carter Leader, Kent County Council Kent County Council Sessions House County Hall Maidstone Kent ME14 1XQ

Jim O’Sullivan Chief Executive Bridge House 1 Walnut Tree Close Guildford GU1 4LZ Direct Line: 0300 470 1079 30 July 2015

Dear Paul Operation Stack and Kent’s roads I am writing to you to you set out the measures that Highways England is deploying in support of Operation Stack. Our primary focus is to minimise disruption for road users, as well as the people and businesses of Kent, and help ensure the safe flow of traffic to the Channel ports. This is clearly a complex situation in challenging conditions, and we are working extremely hard to do the best for the public. We were recently asked to look into the feasibility of setting up, at short notice, a contraflow on the M20 London-bound carriageway to allow some two-way traffic flow on the M20 when Operation Stack is in place on the coast-bound carriageway. This would be an emergency measure to reduce the need to divert some traffic off the M20 while Operation Stack is implemented. After serious examination, and considering our experience of setting up a cone-based contraflow here in 2005, we concluded a contraflow here on top of Operation Stack, would not create a safe environment for road users. It would need to be in place 24/7 even when Operation Stack was not in place and we believe it would create even more disruption in the area. A fuller briefing on this is attached. Please note this is an internal briefing. If you have any questions please contact David Brewer, Network Delivery and Development Director on 0121 678 8416. We are continuing to work with the task force led by Kent County Council to urgently review what other measures could be put in place to minimise disruption to local communities and allow safe, prompt and orderly movement of freight to the Port of Dover or Channel Tunnel. We are committed to:

Registered office Bridge House, 1 Walnut Tree Close, Guildford GU1 4LZ Highways England Company Limited registered in England and Wales number 09346363

• improving our signage about Operation Stack to give people more information while they are driving

• offering increased operational support to the Police and other responders.

• providing road users with more accurate journey times, and better information to tell them when Operation Stack is being implemented or removed – this is particularly important for hauliers and other long-distance travellers

• supporting Kent County Council to provide more information about journey times on local roads.

• clearing incidents more quickly on the M2/A2 tourist route

• supporting Kent County Council to ensure the resilience of the A20 diversion route.

We appreciate there are no easy answers to this complex situation and we remain determined to work with our partners to look in depth at medium and long term measures to help keep Kent’s roads free from disruption. Yours sincerely

Jim O’Sullivan Chief Executive

Highways England Operation Stack and potential contra-flow alternative Internal briefing

1. Background

• A combination of factors mean that demand for cross channel services is outstripping supply on a regular basis. These include;

• 13% increase in freight traffic over the last 2 years as the economy has recovered • Reduced ferry capacity from Port of Dover due to industrial dispute • Disruption to Eurotunnel services at Folkestone due to issues in Calais • Seasonal peak in holiday makers heading to mainland Europe which may be increased by

travel warnings to other countries and poor weather in the UK

As a result we can experience queues of up to 8,000 HGVs waiting to use the ports. Due to operational patterns of HGV operators, the demand for HGVs tends to peak on Wednesday / Thursday each week.

• Operation Stack is an emergency contingency measure which has been developed to

mitigate the issues which would otherwise arise from an unmanaged queue of 8,000 lorries descending upon the M20 heading for Dover or Folkestone. With full compliance, it allows us to ensure that;

• Hazardous goods vehicles are separated from queuing trucks • Car drivers, including holiday makers are separated from the queuing trucks and are given

prioritised access to ports with greatly reduced delays – diverted via M2 / A2 • The queuing trucks are kept off local roads avoiding what would otherwise be complete

gridlock • Trucks are queued in an orderly manner, contained within the M20, with access for welfare

and emergency services. They are processed in order of arrival in the M20 queue when they reach the required terminal

Stack is a complex operation requiring close co-ordination and intense resourcing from Police, Highways England and Kent County Council among others. There is an active and effective Strategic Gold Command in place.

Whilst Operation Stack itself reduces the safety issues and traffic disruption which these HGVs would otherwise cause, there is still a very significant impact on local residents and businesses. All parties would like to find alternatives and are actively considering any option identified but the scale and the nature of the issue means that better alternatives which can be implemented in the short term have not been found.

2. Proposed contra-flow

Highways England has reviewed a suggestion that a contra-flow be introduced between junctions 8-9 of the M20. We have concluded that this is un-safe and un-workable and this decision is fully supported by Kent Police and all operators on the ground.

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2.1 Description of proposed contra-flow

• At Junction 8, trucks with hazardous good and live animals would be extracted and diverted via M2/A20 (as present)

• Dover trucks would be sorted to split Eurotunnel and Port of Dover (as present) • A new operation to separate out cars and route them into the contraflow section would be

introduced • M20 Junction 8-9 southbound would continue to be used for Stacked trucks with Eurotunnel

queue on the hard shoulder, Dover trucks in lane 3 and lanes 1 and 2 used for welfare / police access and extracting vehicles from the queues

• M20 Junction 9-8 (normally the northbound carriageway) would be set up with 2 lanes of southbound traffic and one lane of northbound traffic (which would run on the hard shoulder)

• This means that the M20 Junctions 9-8 could no longer be used for Stack (at present this section provides around 2,100 truck capacity)

• A 40 mph speed restriction strictly enforced with average speed cameras would be required at all times when the contra-flow was in operation

• Southbound traffic from within the contra-flow would need to be extracted at Junction 9, crossing the queues of trucks and 2-way traffic within the Stack operation on the M20 southbound carriageway. This would require a manned access point which would be frequently disrupted as groups of trucks are brought across

• These arrangements would be in place 24/7 until no longer required 2.2 Safety implications We would not normally operate a contra-flow with lanes separated by cones for an extended period or for this length of road. It is theoretically possible from a safety perspective to operate contra-flows with lanes separated by cones with a strict 40 mph limit, although it does increase risks to road users and to road workers who have to keep the contra-flow set up running. The risks in this scenario are increased further because;

• Only one lane would be available northbound and the levels of congestion within the contra-flow in both directions (due to the other operational restrictions and the scale of the lost road capacity) would be extreme. This means that;

Access for emergency services in the event of accident, ill health or fire would be severely compromised

Disruption caused by any incident in the roadworks would be extreme and recovery delayed

Northbound traffic would have to run on the hard shoulder – this is not strong enough to withstand this load and there would be collapse of the carriageway shoulders and drains / man-holes

The site constraints would prevent safe access to maintain cones which would therefore require periodic closures in both directions

The extent of the congestion within the contra-flow increases the risk that drivers who become trapped within it would behave unsafely – particularly given the proximity of the neighbouring Stack Queue

There are significant safety issues surrounding the management of the cross flow between Stack traffic and traffic exiting the contra-flow at Junction 9

• A contra-flow has been tried before in 2005 and a number of the issues identified above were experienced and it was removed within less than 48 hrs for safety and operational reasons

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2.3 Operation implications The operational implications of a contra-flow would be;

• Reduced capacity and speed restrictions 24/7 rather than current on /off arrangements

(Wed to Friday / Saturday) • Reduction in Northbound M20 capacity from current 3 lanes to 1 lane with extra traffic

pushed onto local roads • Increased likelihood of incidents on M20 North (due to running on unsuitable surface) and

intense disruption and delayed recovery associated with any incidents which occur – even relatively minor incidents could require extended closures in both directions to access and clear

• Risk of vehicles using the contraflow in an attempt to bypass Stack - particularly if the ports are not fully complying with the ticket system.

• Regular periods when all Southbound traffic is held to allow trucks to cross at Junction 9 • Severe congestion upstream of Junction 8 and overspill onto local roads as traffic is sorted

into the contra-flow • Reduced Stack storage capacity meaning later phases of Stack (which extend beyond

Junction 9-11 and increase issue on local roads) would need to be used more often • Insufficient storage within Stack boundaries for all trucks increasing overspill onto local

roads and upstream • Periodic closures to allow access to maintain roadworks / cones in safe condition

3. Other opportunities to reduce disruption

All parties continue to work together to optimise the performance of the Stack Operation itself and whilst this does offer potential to improve the situation it will not be the step change which we would all like to see;

• Time to implement Stack has reduced to around 2 hours • Signage has been improved at Junction 8 (following investment of £12k in additional signs) • Further signage improvements are being identified including potential improvements along

the diversion routes • Incident response along alternative routes, such as A2/M2 has been enhanced • We are looking at options to improve resilience of A20 with Kent County Council including

potential to support them with loan of mobile Variable Message Signs • We are attempting to identify additional operational support to Police, County Council and

other responders Other areas which require continuing efforts are, in our view;

• Ensuring that all available freight and non-freight capacity at Eurotunnel and Port of Dover is utilised – through appropriate boarding and call forward / queue management

• Improving consistency of communications messages

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