The Parliamentary Under-Secretary of State for Transport (Jesse Norman)
I congratulate my hon. Friend the Member for Tonbridge and Malling (Tom Tugendhat) on securing this debate on the effect of the M26 road closures on local residents and businesses. I, and of course colleagues and officials, appreciate that this is an issue of great concern to him, on behalf of his constituents. I have met him and my right hon. Friend the Member for Sevenoaks (Sir Michael Fallon). Knowing the very strong feelings that my right hon. Friend has expressed in public, it is a pity that he could not join us for this important debate and share directly with us the issues that my hon. Friend has raised.
I know that my hon. Friend has raised this with the Secretary of State, and he and I have of course separately discussed it. Let me be clear: the Secretary of State has apologised to my hon. Friend, and I would like to take this opportunity to apologise to him as well—and not just to him, but to his constituents and other affected parties—for the communication failures that have occurred in this case.
Before I respond to the specific points raised by my hon. Friend, it may assist if I set out some of the circumstances that led to the M26 road closures. The work on the M26 that my hon. Friend has mentioned is, as he knows, related to our wider efforts to improve arrangements for traffic management in Kent in the event of disruption at the short channel crossings. In that work, we have been very conscious of the need to do more to mitigate the impact of such disruption on his constituents and Kent residents more generally. The Government are seeking to avoid any repeat of the scenes in 2015 that he referred to and which all colleagues from that area will recall, when Operation Stack was deployed to address disruption—nothing to do with Brexit of course—at the border. This saw long-term traffic problems on the M20 and other Kent roads, especially local roads. It is precisely the point of the work being done now to avoid this kind of disruption.
Since 2015, there have already been increases in lorry-holding capacity at the port of Dover and at Eurotunnel. Highways England has also made improvements to the Dover traffic assessment protocol—known as the Dover TAP—on the A20. This protocol is used to manage any mild disruption to the flow of traffic to the Dover port area and has proved effective in reducing the risk of Operation Stack requiring to be activated. The Department for Transport, Highways England and other partners are currently working closely together and with local bodies, particularly the Kent Resilience Forum, to develop contingency plans for the complete replacement of Operation Stack.
It is important to be clear that Operation Stack has been superseded by Operation Brock. This new approach has been designed to ensure that, unlike under Operation Stack, the M20 will be kept open and traffic will continue to flow in both directions at times of cross-channel disruption. Operation Brock consists of three phases, involving a contraflow queuing system on the M20 and holding areas at Manston airport and, if necessary, on the M26. The contraflow system on the M20 will allow lorries to queue between junctions 8 and 9 of the coast- bound M20. At the same time, other traffic will be able to proceed in both directions on one side of the motorway, with access to junctions.
This represents a significant improvement on previous deployments of Operation Stack, when junctions were closed and traffic diverted off the M20 on to local roads, adversely affecting local communities and businesses in Kent. It is estimated that the Brock contraflow will be capable of holding at least 2,000 HGVs, in addition to the 2,000-plus capacity that the additional spaces at Eurotunnel, the port of Dover and the Dover TAP provide between them. We will therefore have substantial truck-holding capacity while maintaining flow of traffic on the M20 at all times.
We are highly conscious, however, of the need to have even deeper resilience plans in case of levels of disruption that exceed even this capacity. The Government need to plan for all eventualities. In the event of this kind of disruption, which would only occur in exceptional circumstances, we have two further options at our disposal. First, the currently disused Manston airport stands ready to be put into service if needed. It has an enormous runway that can hold up to 4,000 lorries. Then, of course, on the specific subject of today’s debate, plans have been in development for some months now to utilise the M26 to hold lorries should even further capacity be required. To be clear, neither Manston nor the M26 option would ever be deployed if the initial suite of measures had been successful.
These measures can be deployed discretely in response to a specific incident or in sequence as part of an escalation plan. The exact approach to this phasing is in the final stages of development with the Department’s delivery partners. Our preference is for Manston to precede the M26 option, but of course if an emergency is called, any operational decision will be made by the gold command on the day. All measures will be available, with full operational plans developed, by March next year.
The specific points raised by my hon. Friend fall into a number of broad areas. The first is his point about engagement and consultation with affected parties and communities. He focused on consultation. As he is aware, we are already undertaking work on a longer term solution for a lorry-holding scheme. In June and July 2018, Highways England ran a series of public information events on the proposed way forward, and it is currently assessing the responses.
It is becoming apparent that a range of on-road and off-road solutions have received strong support, and those could offer maximum benefit for future network resilience. There will be further public discussion on more detailed proposals when they have been fully worked out, and our aim is for the improved arrangements to be in place by 2023.
Although there has not been a formal consultation on immediate contingency plans to replace Operation Stack, over the past year there has been extensive and more or less continuous engagement. That included the meeting that the Secretary of State and I held in March 2018 with Members for Kent constituencies—as my hon. Friend said, he was unable to attend, but he referred to it in a letter that followed. At that meeting, the Secretary of State outlined his vision for the M26 being used in extreme circumstances as an extra resource. After my hon. Friend wrote to the Secretary of State on 4 April, I invited him to attend a tea surgery on 30 April 2018, and again on 21 May, to discuss our contingency plans. It is therefore not fair to say that no meeting was forthcoming—on the contrary, the normal procedure, which is to have a tea surgery to understand the problem and then to go deeper into it with officials, was available and offered at the time. My officials have also had numerous meetings—more than 40—with local stakeholders and Kent Resilience Forum groups over the past year. Other opportunities to discuss the plans have been available, and used by other Members in correspondence and parliamentary questions.
My hon. Friend refers to comments made by the PCC and Highways England, and there is clearly always the risk of miscommunication or misunderstanding. Highways England has been clear about the need to work on the M26 and its potential role as an option of last resort, and the Secretary of State has held conversations with key local stakeholders. I understand there is agreement on the work to be undertaken and the options that should be explored, but it is important to be clear that no one—certainly no one in my Department, or in Kent or any of the organisations involved—wants to put restrictions on the M20, to have to park lorries at Manston or potentially to close the M26. These are contingency plans. If there is major traffic disruption as the result of action by EU states, we need the best plan possible to mitigate the effects of that, and a plan that works for the whole of Kent and the wider UK economy.
Detailed plans on the system are being developed. My hon. Friend mentioned the wider impact of these measures, and work is being carried out to attempt to understand the nature of the flow of HGVs into Kent, to see whether that can be mitigated in the event of disruption. As part of that, officials are considering the impact on the local network, as well as on the M25. I recognise and share my hon. Friend’s concern about this issue, but we must also consider what the counterfactual would be, and what would happen if lorries were not managed in a planned, co-ordinated and effective way. In the event that we had to close the M26, I appreciate my hon. Friend’s concerns about the impact on Wrotham. However, it would at least benefit from keeping the M20 open, and we know that that is a much more important strategic road, with high traffic flows, including for local traffic.
My hon. Friend raised a question about air quality, and that is inevitably a facet of any congestion on the local network and will be considered as part of the broad assessment. Again, however, the counterfactual applies, and it is important to understand what the impact on air quality would be if we had major traffic disruption without these contingency plans. My hon. Friend asked questions about the involvement of district councils, and all district councils in Kent, including Tonbridge and Malling Borough Council and Sevenoaks District Council, are members of the Kent Resilience Forum and have had the opportunity to get involved in the development of those contingency plans.
The M26 closures are the specific reason for this debate, and under advice, they were deemed to be necessary for the undertaking of survey work that, in this case, was not formally subject to prior notification and, as my hon. Friend noted, ended earlier than the stipulated date. However, I absolutely accept that, given the sensitivity of this particular issue at that particular time, a more proactive and tailored approach to advance communication should have been adopted. That is why I have issued an apology and why we are so clear on that. My right hon. Friend the Secretary of State feels the same way. The closures should have been notified more widely.
The survey work undertaken included taking core samples from the central reservation area, checking structure heights, assessing the condition of the existing M26 Otford emergency access, taking measurements, assessing 4G signal strength and undertaking drainage surveys. Highways England has confirmed that further overnight closures on the M26 are also planned in November and December. They follow site surveys carried out on the M26 in October. During those closure periods, work will be undertaken to install crossover points in the central reservation, which can be used to direct traffic on to the opposite carriageway. Such crossover points are commonplace on motorways and major A roads across the country. Their purpose is to help Highways England to manage traffic flow during incidents.
The Government are determined to keep the road network moving at times of potential cross-channel disruption for local people, businesses and visitors. That is why we continue to work closely with Highways England and other partners on developing both short- term and longer-term solutions to Operation Stack. On 5 November, I will host a further roundtable with Members of Parliament for Kent constituencies. At that meeting I expect to update Members on current plans and will be happy, as always, to discuss longer-term issues and proposals. It will be another opportunity to help to shape our proposals as they go forward, and I hope that as many Kent constituency Members as possible will attend.
To conclude, we doubt that these contingency measures will be needed, but if they are, then we are doing the necessary planning. If we did have significant disruption at the border resulting in traffic disruption in Kent, then let us be clear there is no panacea and no cure-all, but we want to ensure that we can manage disruption while keeping Kent moving. It is important that we do that in partnership with the key stakeholders working through the existing Kent resilience arrangements. I look forward to continuing to work with colleagues and partners to ensure we are well placed to cope with any outcomes.
Question put and agreed to.