Britain and The Channel Tunnel Government Official History Series 1st Edition T.R. Gourvish PDF Download
Britain and The Channel Tunnel Government Official History Series 1st Edition T.R. Gourvish PDF Download
https://ebookgate.com/product/britain-and-the-channel-tunnel-
government-official-history-series-1st-edition-t-r-gourvish/
Get the full ebook with Bonus Features for a Better Reading Experience on ebookgate.com
Instant digital products (PDF, ePub, MOBI) available
Download now and explore formats that suit you...
https://ebookgate.com/product/corruption-party-and-government-in-
britain-1702-1713-1st-edition-aaron-graham/
ebookgate.com
https://ebookgate.com/product/the-praxis-series-official-guide-1st-
edition-educational-testing-service/
ebookgate.com
https://ebookgate.com/product/microsoft-office-system-2007-microsoft-
official-academic-course-series-microsoft-official-academic-course/
ebookgate.com
Engineering Plastics 1st Edition Crompton T.R.
https://ebookgate.com/product/engineering-plastics-1st-edition-
crompton-t-r/
ebookgate.com
https://ebookgate.com/product/environmental-biotechnology-1st-ed-
edition-t-r-srinivas/
ebookgate.com
https://ebookgate.com/product/plastics-reinforcement-and-industrial-
applications-1st-edition-t-r-crompton-author/
ebookgate.com
https://ebookgate.com/product/tunnel-syndromes-3rd-edition-marko-m-
pecina/
ebookgate.com
THE OFFICIAL HISTORY OF BRITAIN
AND THE CHANNEL TUNNEL
This authoritative volume presents the first official history of the British
Government’s evolving relationship with the Channel Tunnel project from the
early nineteenth century to 2005.
The building of the Channel Tunnel has been one of Europe’s major projects
and a testimony to British-French and public-private sector collaboration.
However, Eurotunnel’s current financial crisis provides a sobering backcloth for
an examination of the British Government’s long-term flirtation with the project,
and in particular, the earlier Tunnel project in the 1960s and early 1970s, which
was abandoned in 1975. Commissioned by the Cabinet Office and using hitherto
untapped British Government records, this book presents an in-depth analysis of
the successful project of 1986–94. It provides a vivid portrayal of the complexities
of quadripartite decision-making (in two countries, with both public and private
sectors), revealing new insights into the role of the British and French
Governments in the process.
Written by Terry Gourvish, Britain’s leading transport historian, this book will
be essential reading for general readers and specialists with an interest in business
history, international relations, public policy and project management.
WHITEHALL HISTORIES: GOVERNMENT
OFFICIAL HISTORY SERIES
ISSN: 1474–8398
The Government Official History series began in 1919 with wartime histories,
and the peacetime series was inaugurated in 1966 by Harold Wilson. The aim of
the series is to produce major histories in their own right, compiled by historians
eminent in the field, who are afforded free access to all relevant material in the
official archives. The Histories also provide a trusted secondary source for other
historians and researchers while the official records are not in the public domain.
The main criteria for selection of topics are that the Histories should record
important episodes or themes of British history while the official records can still
be supplemented by the recollections of key players; and that they should be of
general interest, and, preferably, involve the records of more than one government
department.
SECRET FLOTILLAS
Vol. I: Clandestine Sea Operations to Brittany, 1940–1944
Vol. II: Clandestine Sea Operations in the Mediterranean, North Africa
and the Adriatic, 1940–1944
Brooks Richards
SOE IN FRANCE
M.R.D. Foot
Terry Gourvish
The author has been given full access to official documents. The data and factual information in the
report is based on these documents. The interpretation of the documents and the views expressed are
those of the author.
There was a young lady of Rye
Who said, with a smile in her eye
‘If a tunnel they bore
From France to our Shore
Goodbye, little basin goodbye’*
*Quoted in Claude Boillot–TSI, 23 December 1959, TSI Archive, Vol. 60, HBS.
CONTENTS
List of figures ix
List of cartoons x
List of tables xi
Preface xiii
Acknowledgements xvi
Abbreviations and acronyms xvii
1 Beginnings, 1802–1945 1
vii
CONTENTS
Notes 386
Index 511
viii
FIGURES
ix
CARTOONS
x
TABLES
1.1 Select list of early proposals for a fixed channel link, 1803–89 2
2.1 Channel Tunnel Study Group Report, March 1960: estimated
construction costs, and prospects for a rail-only tunnel 28
2.2 Channel Tunnel Study Group, estimate of the Channel
Tunnel’s ‘economic benefits’, July 1960 32
2.3 Tunnel v. Bridge: Joint working party’s 1963 traffic forecasts
for 1980 36
2.4 Tunnel v. Bridge: Joint working party’s 1963 assessment
of economic and financial returns 37
3.1 The 1963 and 1966 estimates of economic and financial
returns 55
3.2 Traffic forecasts: revisions of April and August 1966,
compared with Anglo-French report, 1963 57
3.3 Shortlisted consortia for Channel Tunnel, May 1967 65
3.4 Channel Tunnel terminal facilities: options, 1959–69 76
4.1 The Channel Tunnel consortium, July 1970 82
4.2 ‘Interim’ study results, 1972, compared with 1963, 1966
and 1969 96
4.3 Participation in the private consortium, October 1972 105
5.1 The 1973 studies: estimated financial return 113
5.2 Channel Tunnel, 1973: cost-benefit analysis
for the United Kingdom 113
5.3 Traffic forecasts, 1973, compared with those in 1963
and 1966 114
5.4 Suggested remuneration proposals (based on lower growth
estimate), July 1973 120
5.5 Agreed remuneration package, September 1973 126
6.1 Channel Tunnel Rail Link: analysis of increases in cost
between June 1973 and August 1974 159
7.1 Cross-channel passenger and freight traffic: actual, 1962–73,
and Cairncross Report forecast, 1980–90 180
xi
TABLES
xii
PREFACE
In 2001 I was appointed by Prime Minister Tony Blair to write a history of the
Channel Tunnel as part of the programme of official histories run by the Cabinet
Office. My broad remit was to analyse in some depth the involvement of the British
Government, its ministers, civil servants and advisers, in the project management
of this, one of the largest, if not the largest, infrastructure mega-projects in Europe.
It is important at the outset to explain what this book deals with and what it does
not. While I was asked to cover events from the beginning, that is, from the early
nineteenth century, the initial efforts to build a Channel crossing have naturally
attracted the attention of generations of historians. Furthermore, when the Tunnel
became a reality in the late 1980s, it stimulated a mini-boom in publications. Some
of the books were written by those who, like Michael Bonavia, Donald Hunt and
Colin Kirkland, had been actively involved in its history; others dealt at length with
the construction phase, again from the perspective of the expert. With no previously
unexploited archives to trawl, there was little point in going over much of the same
ground in detail. I therefore decided to concentrate upon the periods which had not
been covered in depth before, that is, the full story of the 1970s Tunnel and its aban-
donment in 1975, and of course, the successful promotion of the mid-1980s. The
book does not attempt to provide a rounded Anglo-French analysis of this great
joint venture, nor does it attempt to write from the perspective of the numerous
private sector corporations which were engaged in lobbying, promoting, construct-
ing and operating the Tunnel. This is not to say that the role of French ministers,
officials and companies is neglected, nor indeed that of bodies such as Eurotunnel,
TML (Transmanche-Link), and the numerous financial institutions involved in the
capital investment in the Tunnel. Rather it is concerned with the complexity of
project management, where more than one country is involved, and a multiplicity
of actors is involved. The security aspects relating to defence, terrorism and
immigration were not examined in depth in the contemporary period.
The book therefore reflects the privileges I enjoyed in being permitted to
consult the archives of the British Government, before the complexities
introduced by the Freedom of Information Act (my contract with the Cabinet
Office terminated in January 2005). Although there were some exceptions, in
general this privileged access was not extended elsewhere. However, I must
xiii
PREFACE
xiv
PREFACE
Henry Gillett, Edwin Green, John Jenkins, John Kelsey, Alex Kemp, James King,
Pierre Longuemar, Fiona Maccoll, Alan Milward, Mary Morgan, John Orbell,
Leslie and Sheila Pressnell, Lesley Richmond and Peter Trewin.
I was assisted in my work by the support offered by a Project Board chaired by
Tessa Stirling, Head of the Histories, Openness and Records Unit at the Cabinet
Office. Most of its members had had direct experience of the Tunnel in their
professional lives. I was therefore extremely grateful for the wisdom of Peter
Thomas, John Henes and Deborah Phelan (DTp), Irene Ripley (Treasury), Richard
Edgley (ex-BRB, EPS), Rosemary Jeffreys (Treasury Solicitor), and Heather
Yasamee (FCO). I should also like to thank the staff at the Cabinet Office, and in
particular, Tessa, for her unfailing support, Richard Ponman, whose birthday
proved to be a critical element in the project’s administration, and Sally Falk.
Valuable assistance was provided at the Cabinet Office by Deb Neal, Joan Davies,
Norman Rainnie, Chris Grindall, Naomi Tobi, at the DTp by John Sheard, and at
the DTI by David Tookey. The figures were drawn most professionally by Mark
Lacey of Picture This. The search for cartoons was once again aided by Jane
Newton and the Centre for the Study of Cartoons and Caricature at the University
of Kent, and the British Library at Colindale.
In preparing the book my greatest debt was to my researcher on the project,
Mike Anson. Mike not only showed an unflagging and seemingly limitless appetite
for processing the voluminous and often challenging files of government, but
exhibited a strong sense of the contemporary period and its political economy, and
was able to steer me away from some (but not all) of my well-known idiosyn-
crasies. Our working relationship was also influenced by the fact that the fortunes
of his football teams – Exeter City and Stafford Rangers – invited comparisons
with Eurotunnel’s at several points. Mike’s wife Jo, crossword puzzler par
excellence, was, as ever, a wonderful proof-reader. Last, and certainly not least, my
family were supportive whenever I retreated into the world of tunnels and
tunnelling. Sue made valuable comments on the last chapter and was sufficiently
inspired to travel on Eurostar for the first time, thereby taking actual numbers a
little bit closer to the optimistic forecasts. Like the Tunnel itself, this book has been
a collaborative effort and I thank all who helped me to produce it. Responsibility
for the text is of course, mine alone.
TRG
London, June 2005
xv
ACKNOWLEDGEMENTS
The author and the publishers wish to thank the following for kind permission to
reproduce material.
Cartoons
Jane Newton and the Centre for the Study of Cartoons and Caricature, University
of Kent for locating and providing prints for Cartoons 1–3 and 6; Derek Alder and
News International for Cartoon 4; Steve Bell and the Guardian for Cartoon 12;
Peter Brookes and News International for Cartoon 8; Daily Mirror for Cartoon 1;
Evening Standard for Cartoon 2; Nicholas Garland and the Daily Telegraph for
Cartoon 6; News International for Cartoon 3; Plantu and Le Monde for Cartoon 10;
Private Eye Magazine for its cover, reproduced as Cartoon 9;. Varney and
Building for Cartoon 5; Kipper Williams and the Guardian for Cartoon 11; and
Richard Wilson and News International for Cartoon 7.
Figures
Cabinet Office for Figure 9.1. Figures 1.1 and 1.2 were drawn from original
material in the Cabinet Office, Figures 2.1, 3.1, 5.1, 6.1 and 11.2 from material
provided by the Department for Transport and its predecessors, Figure 11.1 from
a British Railways Board Report, and Figure 12.1 from a Eurotunnel original.
xvi
ABBREVIATIONS AND ACRONYMS
xvii
ABBREVIATIONS AND ACRONYMS
xviii
ABBREVIATIONS AND ACRONYMS
xix
ABBREVIATIONS AND ACRONYMS
xx
ABBREVIATIONS AND ACRONYMS
xxi
1
BEGINNINGS, 1802–1945
1
BEGINNINGS, 1802–1945
Table 1.1 Select list of early proposals for a fixed channel link, 1803–89
Lord Richard Grosvenor, MP for Flintshire, and Michel Chevalier, the Inspector-
General of Mines in France, to take the project forward in a more commercial
sense.4
While the technical feasibility of such a tunnel may have seemed somewhat
remote at first, it is clear that by the early nineteenth century enthusiasts could
point to the success of a number of striking engineering feats, particularly in
British canal-building. Some of the tunnelling extended for over a mile, notably
James Brindley’s Harecastle Tunnel on the Trent & Mersey Canal in 1777,
2
13miles long, and the two-mile Sapperton Tunnel on the Thames & Severn of
1789. The biggest of all was the Standedge Tunnel traversing the Pennines on the
Huddersfield Canal, completed in 1811 and over three miles long.5 These were all
land-based projects, of course. The first under-river tunnel for public use was Marc
Isambard Brunel’s crossing of the Thames in London. His Thames Tunnel, from
Wapping to Rotherhithe, took 18 years to complete (1825–43) and encountered
2
BEGINNINGS, 1802–1945
serious problems of safety and financing as construction costs rose (the final
cost was £468,250). However, this was a major achievement in the science of
tunnelling, in demonstrating the feasibility of under-water tunnelling, and the
successful use of Brunel’s invention, the tunnelling shield.6
The introduction of railways provided further impetus to the art of the possible.
This revolutionary technology, the most important of the century, embraced
significant advances in civil engineering, and in difficult terrain bridges and
tunnels were critical elements of the new infrastructure. Thus, as early as 1832
officials of the newly opened Leicester & Swannington Railway invited discon-
certed passengers to enter Robert Stephenson’s impressive, even frightening
Glenfield Tunnel near Leicester, then Britain’s longest at just over a mile. Six
years later, the London & Greenwich Railway – London’s first – was operating
trains over nearly four miles of continuous viaduct.7 The Sheffield, Ashton-under-
Lyne & Manchester Railway’s Woodhead Tunnel was one of the wonders of the
world on its opening in 1845, though at 3 miles 22 yards its length was merely a
tenth of what was required for the crossing of the channel. The major railway tun-
nel of the late nineteenth century in Britain, Sir John Hawkshaw’s Severn Tunnel
of 1886, was over a mile longer at 4 miles 628 yards, and on the continent of
Europe the Mont Cenis (1871) and St. Gotthard (1882) tunnels were respectively,
8 miles 868 yards and 9 miles 562 yards long. These larger works were also
significant in engineering terms. They offered more instructive precedents for a
channel tunnel since they could not be constructed by traditional methods, that is
by connecting a series of ventilation shafts sunk from the surface, a method
adopted by most of the canal and railway tunnels. Instead they made use of
compressed air boring machines, a new technology.8 However, it was not until the
building of London’s underground railways that something approaching the
length of tunnel was actually attempted. In 1884 the Inner Circle line extended to
13 miles, though it was barely below ground, having been constructed on the ‘cut
and cover’ principle.9 The small-bore, ‘tube’ lines built in the early twentieth
century offered a closer approximation to the engineering challenge of a channel
crossing. When the Piccadilly line was opened in 1906 its tunnel length was
3
7 4 miles; by 1926, however, the City & South London/Hampstead (Northern)
line’s extensions had produced an unbroken tunnel from Morden to Highgate
(Archway) of over 16 miles in length.10 Building to the appropriate length was not
enough, of course. Cost and safety considerations were also critical, and here dif-
ficulties were experienced in all developed countries. Sceptics were able to point
to several examples of faulty forecasting, major cost over-runs, and, on some
occasions, to failures and disasters. The loss of life in constructing the Great
Western Railway’s Box Hill Tunnel between Chippenham and Bath in the late
1830s was particularly distressing. Half a century later the Severn Tunnel project
encountered numerous engineering problems and cost £1.8 million to build, about
£150 million in 2005 prices. The most spectacular disaster was, of course, the
collapse during a gale of the Tay Bridge in December 1879.11
3
BEGINNINGS, 1802–1945
4
BEGINNINGS, 1802–1945
in 1875, though in the British case the Act enabled it merely to purchase land at
St. Margaret’s Bay, in order to conduct experimental boring operations. However,
despite enjoying the blessing of the joint commission, the company was prevented
from proceeding by a lack of resources. An attempt to raise £80,000 with the help
of its bankers, the English house of Rothschilds,18 failed. No financial support was
provided by the two principal railway companies, the London Chatham & Dover,
led by James Staats Forbes, and the South Eastern, led by Sir Edward Watkin.
Their companies were not only short of cash but also locked in bitter rivalry. The
French promoters had hoped that their English counterparts would match their
investment of £80,000, and the Nord Railway hoped that the two British railway
companies would match its investment of £40,000. The South Eastern had agreed
to put up £20,000 if the London Chatham & Dover did the same, but there was
little prospect of the two companies agreeing, and the South Eastern refused to
co-operate while the Channel Tunnel Co. insisted on St. Margaret’s Bay as its
preferred site on the English side. A prospectus issued by the Channel Tunnel Co.
in 1876 stated that the London Chatham & Dover and N.M. Rothschild had each
agreed to put up £20,000, but the remaining £40,000 did not come from the
market. Progress was thus limited, and no Anglo-French treaty emerged.19
Watkin, a buccaneering entrepreneur, was determined to pursue his own ambi-
tions, a Manchester to Paris railroad created from the railway companies he con-
trolled, viz. the Manchester Sheffield & Lincolnshire (from 1897 the Great
Central), the Metropolitan in London, and the South Eastern.20 In 1874 he was
elected Liberal MP for Hythe in Kent and encouraged the South Eastern to include
in its Act for that year powers to undertake experimental works.21 First he sounded
out the leading members of the French company, Chevalier, his successor, Léon
Say, the President of the French Senate, the engineer Alexandre Lavalley, and
Fernand Raoul-Duval. Then, by 1880 he was ready to press for a tunnel route more
favourable to his own railway, that is starting from Abbot’s Cliff and Shakespeare
Cliff, between Dover and Folkestone. Under the direction of the South Eastern’s
engineer, Francis Brady, the South Eastern engaged Col. Frederick Beaumont and
others to employ the newly-patented Beaumont-English compressed-air boring
machine to drive pilot tunnels in the area. Work began in 1881, thanks to further
powers obtained in that year. After discussions with the French company, the
Submarine Continental Railway Co. was formed in December 1881 with a capital
of £250,000 to take over the South Eastern’s works. Initial shareholders included
the South Eastern Railway, and William Low, who had left Grosvenor’s group after
bitter arguments with Hawkshaw.22 By July 1883 the company had spent £56,000
in driving three tunnels through the lower chalk stratum, including 2,026 yards of
tunnel (diameter: 7ft.) out to sea from Shakespeare Cliff.23
There were limits to Watkin’s promotional zeal, however. It is clear that while he
accepted that the railway companies would build the connecting lines, neither the
South Eastern nor the London Chatham & Dover had the resources to finance half
a tunnel. In the 1870s he argued that given the project’s long gestation period the
private sector would be unwilling to take on the risk, and the two governments
5
BEGINNINGS, 1802–1945
6
BEGINNINGS, 1802–1945
7
u e
rq
n ke
Du
Tunnel alignment
Ramsgate
Calais
Tunnel approaches
Lille
Existing railways
St Margaret
England
Sangatte
Canterbury France
L. C. & D. rai Mouth of tunnel
lway Dover Viaduct
Mouth of tunnel
Shakespeare Cliff Wissant
Marquise
Sangatte
y Folkestone
railw a Cap Gris-Nez
S. E.
d on
Lon
Escalles
Mouth of tunnel
Viaduct Boulogne
Wissant
Figure 1.1 Sartiaux-Fox Channel Tunnel scheme with strategic viaduct, 1906.
BEGINNINGS, 1802–1945
Cartoon 1 Channel Tunnel phobia: military fears about the Tunnel, W.K. Haselden, Daily
Mirror, 18 February 1907 [Centre for the Study of Cartoons and Caricature].
9
BEGINNINGS, 1802–1945
confined the debate to the narrow military aspects, helping to ensure that, given
the opposition of the Admiralty and General Staff, the proposal was rejected.39
In 1913–14 pressure exerted by Arthur Fell, Conservative MP for Great
Yarmouth and Chairman of the newly-formed House of Commons Channel Tunnel
Committee, led to a re-examination of the issue. Fell’s committee, which had the
backing of a large number of MPs, formed a deputation which met the Prime
Minister, Herbert Asquith, in August 1913, and extracted a promise that the
Committee of Imperial Defence would conduct another review. Here the military
interest was seriously split for the first time. Within the army Sir John French, the
Chief of the Imperial General Staff, and General Sir Henry Wilson, Director of
Military Operations, were now stressing the value of a tunnel to assist Britain in
operations on the continent in alliance with France, though critics pointed to the
associated and self-serving emphasis on the need for a larger standing army. French
went so far as to argue that submarines and aircraft had subverted the defence
offered by the sea, and that a tunnel would be militarily advantageous in the event
of a war with Germany. The First Lord of the Admiralty, Winston Churchill, was
also in favour of a tunnel. However, views like these were resisted, with the help of
Maurice Hankey, now secretary of the Committee of Imperial Defence, who
exploited the various differences of opinion, notably the inconsistent stance of the
Admiralty, and the position of Asquith, who was characteristically equivocal.40
Thus, in 1914, as in 1907, military and naval objections, fed by a sentimental appeal
to insularity pervasive among opinion formers, proved dominant.41
10
BEGINNINGS, 1802–1945
evaporated.47 On the latter occasion a deputation led by Sir William Bull, Fell’s
successor as Chairman of the Channel Tunnel Committee, met the Prime Minister,
Ramsay MacDonald, who again referred the proposal, a twin-bore tunnel costed at
£29 million, to the Committee of Imperial Defence.48 On this occasion, thanks to
Hankey, the committee’s membership was strengthened by the presence of four
former Prime Ministers (Balfour, Asquith, Lloyd George and Baldwin). Its advice,
apparently arrived at after only forty minutes of deliberation, was accepted by the
Government. It was argued that the commercial advantages of a tunnel were
outweighed by the disadvantages in terms of security. Although some of the more
extreme fears of invasion had eased somewhat, the majority opinion was that a
tunnel would lead to significant demands for additional defence spending to protect
it.49 There was dismay among supporters. In a trenchant article for the Weekly
Dispatch Winston Churchill asked: ‘Should Strategists Veto the Tunnel?’ He went
on: ‘In forty minutes five ex- or future-ex Prime Ministers dismissed with an
imperial gesture the important and complicated scheme for a Channel Tunnel . . .
One spasm of mental concentration enables these five super-men, who have spent
their lives in proving each other incapable and misguided on every other object, to
arrive at a unanimous conclusion’.50
Further lobbying by enthusiasts, including Gordon Selfridge, the department
store magnate,51 accompanied by supportive noises from the French,52 built up to
such an extent that Stanley Baldwin’s Conservative Government was moved in
April 1929 to appoint a Channel Tunnel Committee to examine the ‘economic
aspects of proposals for the construction of a Channel Tunnel or other new form
of cross-Channel communication’. The Committee, chaired by Edward Peacock,
a Director of the Bank of England, concluded, in its report in March 1930, that
notwithstanding the need to verify the feasibility of construction through the
lower chalk, a tunnel, which should be built by the private sector without subsidy,
would be economically beneficial. Two serious proposals had been examined: the
first presented by the d’Erlangers’ Channel Tunnel Co.; the second advanced by
another erstwhile campaigner, William Collard, of the woollen merchants Collard
Parsons & Co. Collard, Chairman of London and Paris Railway Promoters Ltd,
dusted off an ambitious and expensive scheme first conceived in 1895. He
proposed to build the tunnel together with a new, broad-gauge (7ft) railway from
London to Paris, and sought legitimacy by engaging the services of the noted
railway manager Philip Burtt, former Deputy General Manager of the North
Eastern Railway and lecturer in railway economics at the London School of
Economics. Construction costs were estimated at £189 million.53 The Channel
Tunnel Co. developed a more realistic and much cheaper scheme in association
with the Southern Railway (a company created in 1923 with the merger of the
South Eastern & Chatham, London & South Western and London Brighton & South
Coast railways). Its 36 miles of twin tunnel (diameter: 18.5 ft) would take eight
years to build and cost about £30.45 million. Additional infrastructure would be
required at each end of the tunnel, but there would be no new, high-speed railway
(Figure 1.2).54 The Committee favoured the latter scheme but was not unanimous
11
Tunnel alignment
Calais
Tunnel approaches
Existing railways
England
Roads
Martin Mill
Canterbury
Sangatte
Pumping shaft
Shepherds Well
7'0" dia. drainage heading
France
Experimental
heading 7'0" dia. Dover Pihen
Canterbury Hervelinghen
Existing shaft
Elham
Lyminge Marquise
Folkestone Mouth of Rinxent
Cap Gris-Nez
tunnel
don Westenhanger
Lon
The Varne
Boulogne
in its enthusiasm for the project. A minute of dissent recorded by Lord Ebbisham,
a recently-appointed director of the Southern Railway and former Conservative
MP for Epsom, opposed the tunnel on economic grounds. Ebbisham considered
the traffic projections to be inflated, and argued that the most predictable effects
were likely to be an adverse impact on British shipping and agriculture.55
It was evident that opposition within Whitehall was still entrenched. A state-
ment by the Government, now a Labour administration led by Ramsay
MacDonald, in June 1930, poured cold water on the Committee’s Report.
MacDonald’s stance was assisted on the one hand by Hankey’s continuing machi-
nations and on the other by the scepticism of Philip Snowden, the Chancellor, and
the Treasury.56 The latter’s views were given additional force by the recommen-
dations of a special policy committee which included Sir Andrew Duncan
(chairman), John Maynard Keynes and Ernest Bevin among its members.57 This
committee was briefed by a single Treasury paper heavily critical of the presented
case for a tunnel. Unsurprisingly, then, its principal recommendation was that
should the private sector fail to produce the required financial support, the advan-
tages of a tunnel as presented appeared insufficient to justify either construction
by the public sector or financial assistance from the Government. The committee
also cocked a snook at the Channel Tunnel Committee for failing to bring forth
the necessary information on expected revenue and traffic generation. However,
in a parting shot the committee gave some comfort to tunnel supporters. Should
the tunnel be shown to be in the national interest, it argued, there was a ‘strong
case’ for government participation, either in whole or in part.58 The Government’s
statement saw no promise of gains in the national interest, however. It emphasised
the engineering and economic risks, encouraged by equivocal reactions from the
Board of Trade, which challenged the freight traffic benefits, noted the ‘luke-
warm’ response from British industry and agriculture, and contended that defence
costs would rise substantially, a view which continued to be expressed by the
Committee of Imperial Defence.59 Some Foreign Office officials were more
enthusiastic, but their views were not shared by either their Minister, Austen
Chamberlain, or their Permanent Under-Secretary, Sir Ronald Lindsay.60 There
was no consensus in railway circles either. The cause was scarcely helped by the
somewhat detached evidence presented to the Committee of Sir Herbert Walker,
General Manager of the Southern Railway (see below). And the railway press
included expressions of scepticism about the traffic forecasts supplied by the
promoters, notably a paper given by E. Godfrey, to the Great Western Railway
(London) Lecture and Debating Society in January 1930.61 Supporters were
therefore unable to reverse a half-century of opposition to the tunnel. A Commons
motion in support was presented by Ernest Thurtle as a private member on
30 June 1930. In the event the free vote was very close, the motion being defeated
by just seven votes (179–172).62
Three times a Channel Tunnel project had emerged – in 1883, 1913 and 1930,
and three times it failed to obtain the support of government. Throughout
the period from 1880 to 1945 military objections of various kinds remained
13
BEGINNINGS, 1802–1945
a sticking point, reinforced by the opinions of those who preferred the status quo
to radical change. The tunnel was thought unlikely to offer an expeditionary force
an advantage over sea transport, while the commercial tunnel operations would
have an adverse effect on channel steamer services at ports such as Folkestone and
Newhaven, which the military might wish to use in the event of war.63 Furthermore,
the railway companies had invested in alternatives, operating a large fleet of
steamships and developing the train-ferry. The ferry concept was first employed
by the London & North Eastern Railway’s freight-only Harwich-Zeebrugge
service in 1924. In 1936 the Southern Railway introduced a train-ferry service
from Dover to Dunkerque for both freight and passengers, the latter travelling by
the much-vaunted ‘Night Ferry’.64
In fact, the attitude of the Southern was not entirely helpful in the inter-war
years. Committed to an ambitious electrification programme, but strapped for
cash, as all the ‘Big Four’ companies were, it could only emphasise the financial
burden it would face in providing railway works should the tunnel be built. When
representatives of the Channel Tunnel Co. met with those of the Southern in April
1929, it was agreed that a large station would have to be built near the tunnel
entrance at Sandling Jnc., and that the continental or ‘Berne’ loading gauge
should be adopted for the line to London. The total cost was put at a challenging
£10–12 million, and on top of this, the Southern wanted compensation for the loss
of shipping revenue (about £0.5 million a year) and for liabilities relating to cap-
ital expenditure at the channel ports.65 It is true that the costs were scaled down
when the General Manager, Walker, first appeared before the Committee in July.
In the intervening three months he had been informed by the Nord Railway Co.
that the continental railways would be prepared to receive (and even build)
rolling stock to the smaller, English loading gauge. This concession would
reduce the capital burden facing the Southern to something nearer £3 million.66
Nevertheless, Walker’s overall lack of enthusiasm did not go unnoticed. He
maintained that the Southern would incur a net loss of £450,000 in the first year
of the tunnel’s operation, and there was a lively debate with one of the Committee
members, the banker Sir Henry Strakosch, about the traffic forecasts which the
railway manager favoured. Strakosch observed rather pointedly that while a
survey of trends since 1850 suggested that cross-channel traffic had been grow-
ing by over 4 per cent, Walker’s more limited projections suggested a growth of
under 2 per cent.67 The promoters’ cause was scarcely helped by such joustings.
Not for the first (nor the last) time, the railways’ attitude to the tunnel scheme
played a part in its rejection.68
However, it is clear that the appeal to military risks dominated the arguments
against a tunnel. And the backcloth to the debate was a widely-held view that
Britain derived advantages, social and otherwise, from its physical separation
from the rest of Europe. Ebbisham hinted at this in his dissenting minute,
referring to the advisability, ‘in the case of an island people such as ourselves’, of
keeping ‘open all possible channels of communication’. Hostility to the idea was
often cloaked in emotional reactions to perceived social dangers. Many within
14
BEGINNINGS, 1802–1945
15
2
NEW ASPIRATIONS
The Channel Tunnel project, 1945–64
16
NEW ASPIRATIONS, 1945–64
strong political and economic arguments for or against the project, always
provided adequate means of putting the tunnel out of action are incorporated in its
construction’. There were glimmers of opposition. In July 1954 Lance Mallalieu,
joint chairman of the Channel Tunnel Parliamentary Committee, pressed Alan
Lennox-Boyd, the Minister of Transport and Civil Aviation, about the long-standing
objections. The Minister replied: ‘I could not say that the old objections have been
all removed’. At the same time wartime sceptics, such as Lord Montgomery,
continued to echo Wolseley with their references to the benefits of ‘our island
home’. However, such arguments enjoyed less support in the late 1940s and 1950s
than they had in the 1880s and 1920s.5 In the post-NATO world, the western
military establishment seemed to be more positive than negative. For example, in
1952 Supreme Headquarters Allied Powers Europe [SHAPE] had spent some
time evaluating the advantages of André Basdevant’s scheme for a large road-rail
tunnel.6 In the following year a report by the Ministry of Defence’s Joint
Administrative Planning Staff concluded that a tunnel might offer ‘logistic
advantages’ in maintaining the line of command from Britain to the continent,
though it would be vulnerable to attack in wartime, and its cost, together with the
length of time it would take to build, scarcely made it an attractive proposition.7
In the more public arena, most commentators agree that 16 February 1955 was a
defining moment. In the Commons Mallalieu asked the Minister of Defence,
Harold Macmillan, ‘to what extent strategical objections still prevent the
construction of a road-rail tunnel under the Channel from England to France’.
Macmillan’s pithy response was: ‘Scarcely at all’.8 By 1959 the British Chief of
the Defence Staff was able to brief his Minister that ‘the military advantages of a
Channel tunnel now slightly outweigh the disadvantages . . . Subject to the incor-
poration of means of putting the tunnel out of action in an emergency, there are
no valid military objections to the project’.9
The major stumbling blocks now were political and economic. The major
change in post-war Britain was the Labour Government’s nationalisation of the
basic industrial infrastructure. Britain’s private sector railway companies now
joined their French counterparts (nationalised in 1937) in the public sector, with
the establishment of the British Transport Commission in 1947. This meant that
from the standpoint of central government the consideration of the project moved
from that of sanctioning and regulating a private sector venture to that of having
to fund it within what later became known as the ‘public sector borrowing
requirement’. With Britain’s railways nationalised, Whitehall assumed initially
that the tunnel would have to be undertaken by the British Transport Commission,
in partnership with the Société Nationale des Chemins de Fer Français [SNCF].
As the MP Christopher Shawcross, founder of the revived Channel Tunnel
Parliamentary Committee (see below), put it in a note to Churchill in 1949: ‘It is
agreed by all parties that the ownership and maintenance of the Tunnel could
not now be, as originally proposed, in the hands of private enterprise’.10 And in
the climate of post-war austerity this was a remote prospect in 1945, or even in the
early 1950s. The departmental memoranda circulated inside the Cabinet in 1949
17
NEW ASPIRATIONS, 1945–64
make this clear. Both the Treasury and Board of Trade felt that such a large public
investment – put at £90–100 million – would have a ‘crowding-out’ effect at a time
when the post-war economic crisis was producing severe constraints upon capital
investment in transport.11 The latter found the economic case fragile. The tunnel
was unlikely to either produce a significant reduction in transport costs – ‘There
is no sense in spending a fortune to save a bagatelle’ – or, given the development
of air transport, attract large amounts of additional traffic. The Ministry of
Transport’s view was that there were many transport schemes ‘which would make
a far higher economic return . . . The maintenance of the present shipping routes
and particularly the improvement and development of the train ferry services (at
an infinitely less cost than a tunnel) are probably the right policy for us to
pursue’.12 In this way, economic considerations replaced military objections as
the principal obstacle.
Negative views persisted within the Ministry of Transport into the 1950s. After
lobbying from the French at a conference of European ministers of transport in
October 1954, the department re-examined the idea, but saw no reason to change
its mind as a letter to the Foreign Office in February 1955 made clear. Its con-
clusion was that: ‘having regard to the present facilities already provided by rail-
ferries, ships and air services across the Channel and to the future development
of air transport, there is no place for the Channel Tunnel in our transport system.
Moreover, whatever economic grounds may at one time have been advanced,
these are progressively disappearing. The project could only be undertaken at
great capital expense and would be unremunerative’.13 Eighteen months later,
support for closer co-operation with the French inside the Foreign Office pro-
duced a memorandum in September 1956 suggesting that the tunnel be revived as
part of the possibilities. However, there was no enthusiasm for this at Cabinet
level and therefore no minuted discussion.14
18
NEW ASPIRATIONS, 1945–64
in 1939, and the loss of the shareholders’ registers, along with other key
documentation, in the blitz in 1941. However, rescue came from within the
controlling interest, the d’Erlangers, with about 24 per cent of the capital, and
the Southern Railway, with 26 per cent. In 1940 Leo d’Erlanger and Sir Herbert
Walker, now a Southern director, were co-opted onto the Board, and Walker took
the chair in 1941. On his death in 1949 he was succeeded by Leo d’Erlanger. The
latter’s enthusiasm for the tunnel, notwithstanding his interest in airlines, and
Walker’s change of heart were critical to the survival of the company. Walker’s
conversion at the age of 72, prompted in part by a seat on the board of United
Steel, echoed that of Prime Minister Gladstone in the nineteenth century – and
others who opposed in youth, but supported in old age. Under this new leadership
the Channel Tunnel Co. took a decisive step in encouraging the revival of the
Channel Tunnel Parliamentary Committee and the creation of a Channel Tunnel
Study Group.17
In January 1947, at a dinner attended by members of both houses of parlia-
ment, Sir Herbert Walker, Gerard d’Erlanger, Harold Carvalho (Manager of the
Channel Tunnel Co. since 1929) and others, Christopher Shawcross, the Labour
MP for Widnes, revived the Channel Tunnel Parliamentary Committee.
Shawcross made the suggestion that it should take the form of a small study
group which would draw up a considered case for the tunnel. A group of 34 MPs
was then established, with Shawcross as chairman, Capt. Malcolm Bullock and
George Hicks as joint vice-chairmen, the inter-war campaigner Ernest Thurtle as
treasurer, and other notables as members, among them Ernest Davies, Arthur
Lewis and Francis Noel-Baker.18 Its initial report, produced in July 1947,
repeated the case for a twin-bore rail tunnel and put the cost at £45–65 million,
depending on the choice of lining material.19 Advice was then taken from
consulting engineers, and liaison was made with a similar group established in
France. Walker provided revised estimates of revenues, costs and returns in 1948,
and the Basdevant road-rail alternative was dismissed, with the help of George
Ellson, who had succeeded Sir Percy Tempest as engineer to the Channel Tunnel
Co. in 1927.20
Revival in Britain was matched in France, where a parliamentary group was
also set up and, notwithstanding the disappointments of the previous 70 years, a
fresh wave of enthusiasm emerged. However, it was to be almost a decade after
the initial expression of support in the two countries in 1947–8 before anything
very tangible emerged. By this time there were a number of supportive and
dynamic individuals in prominent positions in France. They included Réné
Mayer, President of the Council and a former Vice-President of the Nord Railway,
Louis Armand, Director-General of the SNCF, Jacques Chaban-Delmas, Minister
of Transport, Paul Leroy-Beaulieu, economic adviser at the French embassy in
London, and Joseph Laniel, related to the Fougerolles, developers in the 1920s of
an innovative, slurrying method of waste extraction. In England, too, there was a
change of personnel. Shawcross left the Commons in 1950 and the chairmanship
of the Parliamentary Committee passed to William (later Sir William) Teeling,
19
NEW ASPIRATIONS, 1945–64
Conservative MP for Brighton (Pavilion). The two sides then came together. In
1955–6 Leroy-Beaulieu, a director of the Chemin de Fer Sous-marin and grandson
of its first chairman, Michel Chevalier, met Leo d’Erlanger, grandson of
Frederick d’Erlanger, a chairman of the British company. They agreed that a more
concerted effort should be made to progress the project by enlisting the support of
the Suez Canal Company (Compagnie Universelle du Canal Maritime de Suez),
whose concession was due to run out in 1968.21 In fact, Colonel Nasser’s seizure
of the Canal in July 1956 encouraged the Suez Co., then led by Jacques Georges-
Picot as Director-General, to contemplate new opportunities more rapidly than had
been expected, though direct participation was hindered initially by the existence
of a disputed claim for compensation from the Egyptian Government.22
At the same time, there was a promise of support from the United States, the
result of an apparent case of contingency theory. A New York lawyer, Frank
P. Davidson, and his French wife, Izaline, made a trip to Europe in 1956 and
encountered bad weather on the channel crossing. They then got together with a
number of influential members of their family and friends to ‘do something’
about a tunnel. The most important were Mrs Davidson’s brother-in-law, Comte
Arnaud de Vitry d’Avaucourt, a senior executive with Socony Mobil Oil;
Professor Cyril J. Means, Jr., former arbitration director of the New York Stock
Exchange; William Buchan, a well-connected British public relations consultant;
Claude Arnal, an engineer; and Davidson’s brothers, Alfred and John.23 In
December 1956 Davidson wrote to the British and French tunnel companies to
offer them the prospect of ‘dollar funds’.24 Then in February Means was sent to
Europe to make contact with the tunnel and Suez companies and offer American
backing. This was the first of a number of visits. Later on, accompanied by
Buchan, he spoke to officials in the Foreign Office, the British Embassy in Paris,
and the French Ministry of Public Works. Additional lobbying was conducted in
Britain by the consulting engineer, Brian Colquhoun.25 The outcome was that
Davidson and de Vitry established Technical Studies Inc., with backing from
Dillon Read, J.P. Morgan and Morgan Stanley, to provide American finance for a
full technical investigation.26 The move was followed, in July, by the creation of a
more substantial Channel Tunnel Study Group (CTSG). The new Group was oper-
ated as a financial syndicate, putting up an initial sum of £100,000, later raised to
£255,000. Stakes were held by the old British and French tunnel companies
(30 per cent each), the Suez Co. (30 per cent), and Technical Studies (10 per cent).
The Group was administered by a supervisory board led by René Massigli,
former French Ambassador in London, as chairman, and subsequently by
Sir Ivone Kirkpatrick, former Permanent Under-Secretary at the Foreign Office,
as co-chairman.27 This was able to draw upon the services of some particularly
influential managers, including: Louis Armand of the SNCF, which was a major
shareholder in the French Channel Tunnel Co.; Baron Charles de Wouters
d’Oplinter, President of the International Road Federation (Paris), a minority
shareholder in the French group; and Alec Valentine, representing the British
Transport Commission, which had acquired the Southern Railway’s stake in the
20
NEW ASPIRATIONS, 1945–64
British Co. in 1947.28 The new Group was no less assertive than Watkin and his
colleagues had been three-quarters of a century before; and, like its predecessors, it
was to experience a long and frustrating period of ‘stop-go’ in its relations with
government – in this instance for some 18 years.29
Blissfully unaware of the way history was about to repeat itself, the Channel
Tunnel Study Group lost no time in undertaking work of its own. A preliminary
report from Brian Colquhoun & Partners, commissioned by Technical Studies Inc.
and the Channel Tunnel Parliamentary Committee, was produced in April 1957. It
provided an historical resumé and made numerous recommendations as to how the
promoters might pursue the necessary investigations. Although Colquhoun noted
that existing knowledge of the strata between the coasts was ‘almost entirely
conjectural’, he reaffirmed the opinion of the Victorian engineers that the lower
chalk offered the best prospects for tunnelling, and followed the position adopted
by William Low, and later by Sir Francis Fox, that the Folkestone-Sangatte route
was to be preferred.30 The Colquhoun report acted as the basis for further research,
presided over by the engineering consultants René Malcor, Ingénieur en Chef des
Ponts et Chaussées, and Harold Harding, Vice-president of the Institution of Civil
Engineers. Work was commissioned on five fronts: traffic forecasting; geological;
civil engineering; finance; and legal. It gave every impression of being a most
thorough exercise. Preliminary technical advice was provided by a small commit-
tee led by Léon Migaux, President of the Compagnie Générale de Geophysique in
Paris. Evaluations of the economic prospects were made using the firms Société
d’Etudes Techniques et Economiques [SETEC], the Economist Intelligence Unit
and de Leuw, Cather & Co. of Chicago. Geological work was progressed by two
advisers, Professor J.M. Bruckshaw of Imperial College, London, and Professor
Jean Goguel, Ingénieur Général des Mines, together with Dr William Smith,
seconded to CTSG from the United States Geological Survey,31 and a number of
specialist firms, including Richard Costain and George Wimpey.32 Civil engineer-
ing was commissioned from four consulting firms: Société Générale
d’Exploitations Industrielles [SOGEI]; Sir William Halcrow & Partners; Livesey
& Henderson; and Rendel Palmer & Tritton.33 Financial advice was provided by
an impressive array of banking associates, including de Rothschild Frères, Banque
de l’Union Parisienne, Erlangers, and Morgan Grenfell.34 In all, the Group and its
constituent companies spent over £500,000 in preparing what was in effect a
preliminary prospectus.35 The culmination of its efforts was the publication on
28 March 1960 of a 30-page report, which was presented to both the British and
French Governments. It was followed on 25 July by a more considered statement of
the economic benefits. The Group’s work was the most comprehensive evaluation
of the prospects for a tunnel yet produced.36
21
NEW ASPIRATIONS, 1945–64
one of the promoters. Its public corporation for transport, the British Transport
Commission, held a 26 per cent stake in the British Channel Tunnel Co., and it
retained a substantial (44 per cent) shareholding in the Suez Co. (though without
commensurate control).37 Second, its attitude to the tunnel was shaped by the
changing political and economic environment that emerged with the post-war
recovery of France and West Germany, and the establishment of a ‘Common
Market’ bloc following the Treaty of Rome. Thus, while the promoters’ height-
ened activity in 1956–7 obviously attracted the attention of Whitehall, it was
Britain’s decision to participate in a European free trade area, and support for
closer economic ties with France, which encouraged the Cabinet to re-examine
the issue in May 1957. By this time the Foreign Office had become more bullish,
in marked contrast with its stance over the previous 70 years. In January the
British Minister in Paris, Sir George Young, had suggested that a positive
announcement about the Tunnel might be made at the time of the Queen’s visit to
Paris in April. Once again, a rough sea crossing served to concentrate the mind:
‘In the course of a recent hellish crossing on the Night Ferry’, he remarked, ‘my
thoughts inevitably turned, as so often before, to the Channel Tunnel’.38 Inside the
Foreign Office, civil servants did not regard the Ministry of Transport’s sceptical
position as unassailable. The participation of American financial interests from
1956 raised the possibility that private sector financing might be feasible. As a
percipient minute by C.M. Anderson, Assistant to the Head of the Western
Department, noted: ‘The project would clearly be very costly, but there is no
evidence that full consideration has ever been given to (a) raising the capital
privately and/or recovering the cost by means of tolls; (b) distributing the cost in
such a way that the British share of it was small . . . ; (c) relating the cost of the
project itself to the likely increase in revenue to the economy as a whole from an
increased tourist trade and other possible benefits’.39 Furthermore, the potential
participation of the Americans was an attraction to some inside the Treasury. Lord
Harcourt of Morgan Grenfell, who was in Washington as head of the Treasury
delegation, had formed the opinion that about two-thirds of the $300 million
required might be raised in the United States and Canada. Such an investment
would be a welcome relief to dollar-starved Britain and France, and the episode
was reported by Sir Herbert Brittain, Second Secretary to the Treasury, in a letter
canvassing departmental opinion in April 1957.40
On the other hand, for others the prospect of American participation was prob-
lematic. There was a case for excluding American finance in order to retain the
‘essentially European’ character of the project. Concern about the bona fides of
some of the promoters was also evident.41 More importantly, there was a fair
amount of scepticism inside Whitehall about the economic case for a tunnel, and
the voices of the doubters became louder the closer one got to the departments
with a more direct interest in it, viz. the Ministry of Transport and the Board of
Trade. The Minister of Transport and Civil Aviation, Harold Watkinson, raised the
matter both in the Cabinet’s Economic Policy Committee and in the full Cabinet,
but his initial proposals, to highlight the issue by announcing a re-evaluation in
22
Random documents with unrelated
content Scribd suggests to you:
The Project Gutenberg eBook of Le thé chez
Miranda
This ebook is for the use of anyone anywhere in the United States
and most other parts of the world at no cost and with almost no
restrictions whatsoever. You may copy it, give it away or re-use it
under the terms of the Project Gutenberg License included with this
ebook or online at www.gutenberg.org. If you are not located in the
United States, you will have to check the laws of the country where
you are located before using this eBook.
Language: French
LE THÉ
CHEZ
MIRANDA
PARIS
TRESSE ET STOCK, LIBRAIRES-ÉDITEURS
8, 9, 10, 11, Galerie du Théâtre-Français
PALAIS-ROYAL
1886
Tous droits réservés
LES SYRTES.
LES CANTILÈNES.
OUVRAGES DE PAUL ADAM:
CHAIR MOLLE.
SOI.
II
III
ebookgate.com