3. Review
3. Review
The Scottish Government Resilience Room (SGoRR) was activated on 22 December 2009 to monitor the impact of the deteriorating weather conditions, which were forecast to continue over the Christmas and New Year period, and to keep the Scottish Ministers briefed.
It was clear at the beginning of January 2010 that salt stocks were causing concern to roads authorities and suppliers as the cold weather was forecast to continue, usage remained high and surface stocks at UK producers were depleted. Production is limited to a maximum of around 12,000 to 15,000 tonnes per day for the whole of the UK, which depending on conditions, could be used by Scotland alone in a day or two.
As a result of the deteriorating picture the Transport Scotland Resilience Room was activated on 4 January 2010 to co-ordinate the transport response to the severe weather and emerging salt shortage. The first instances of Mutual Aid between Scottish Roads Authorities took place and actual salt stock levels across Scotland were ascertained at this time.
Also at this time, the UK Government through the Department for Transport (DfT) ascertained the salt stock levels for the UK with SGoRR initially supplying the figures for Scotland. The UK Salt Cell, which was formed during the severe weather of the winter of 2008/09, was subsequently re-activated on 6 January 2010 to provide advice to producers and suppliers on the most effective distribution of available salt supplies in order to minimise the risk to public safety.
At the request of the Scottish Ministers, the Scottish Salt Group was formed on 8 January 2010 involving representatives from SOLACE, SCOTS, COSLA and Transport Scotland to monitor local authority and trunk road operating company (OC) daily salt returns, identify pressure points, arrange mutual aid, input to the UK Salt Cell, liaise with salt suppliers, provide salt conservation guidance, to identify alternative salt suppliers and to identify alternatives to sodium chloride rock salt. (Recommendation 6)
The UK Salt Cell, recommended allocations of a share of UK production to England, Wales and Scotland on a twice weekly basis. Throughout the winter the share allocated from the UK Salt Cell, although limited, was proportionate to the needs of Scotland based on existing stock levels and weather forecasts. Suppliers were then advised of the roads authorities where the most effective distribution could be achieved based on resilience levels.
Work of the Scottish Salt Group
15,000 tonnes of salt procured from outwith the UK.
At least 49 instances of mutual aid facilitated
28 Scottish Salt Group meetings held
20 UK Salt Cell meetings attended
15 Cabinet Sub-Committee meetings attended
13 SGoRR meetings attended
Scottish Local Authorities develop their own policies and operational procedures based upon the Code of Practice for Highway Maintenance Management Well Maintained Highways published by the UKRLG. OCs and DBFOs who maintain the trunk road network have policies and procedures based on Transport Scotland’s contractual requirements.
Salt is produced in anticipation of normal demand rather than in response to immediate demand. UK producers can increase production by 24/7 working, increasing the minimum particle size if acceptable, and, in the case of Cleveland Potash, changing the balance of production between potash and salt. To meet demand, such as that experienced last winter, some changes to the resilience of salt stocks and management of public expectations is required.
The resilience of the supply chain within the UK can be affected by disruption due to weather conditions, congestion or incidents on the road network. Delays at the mine itself, caused by large numbers of queuing lorries or plant failure can also delay deliveries and disrupt production. For imported supplies, ships can be disrupted due to weather, tidal conditions and mechanical failure resulting in significant quantities of salt in vessels with hold capacities of 4,000 – 25,000 tonnes being delayed as a result.
The salt stock resilience triangle demonstrates the three elements required to maintain resilient levels:
- Ensure adequate stocks at the start of the winter period to provide a good level of resilience.
- Examine areas of potential efficiencies when using salt such as covered storage, vehicle calibration, selection of de-icing material, and reviewing of the treatment matrix.
- Consider mitigation measures for difficulties arising with re-stocking during winter as increasing the pre-season stocks may only provide another day or two resilience days.
Due to the anticipated low starting level for salt stocks, both at suppliers and roads authorities, as a result of the heavy usage last winter, the potential for roads authorities re-stocking to higher target levels remains quite critical. (Recommendation 3)
The majority of roads authorities have supply contracts with one of the UK producers as single suppliers. Because of this, during winter 2009/10, there was difficulty in sourcing salt from other UK suppliers and a number of authorities bought imported salt, shared supplies or mixed salt with sand and/or grit.
In order to increase production significantly to meet a large unplanned spike in demand such as that encountered during winter 2009/10 throughout the UK, salt suppliers are required to employ and train additional operatives and purchase additional equipment. This is not achievable at short notice and although the salt industry did increase production, supply stocks were quickly exhausted and there was insufficient resupply capacity to meet the immediate demand. It is just not possible to significantly increase mining capacity to increase supply and it must also be kept in mind that the suppliers are commercial organisations. Although they did their best in assisting the situation, there was public criticism at the time of the suppliers from a number of sources which potentially soured relationships at a critical time.
For 2010/11 some Councils are arranging the procurement of salt through a Scotland Excel arranged contact dedicated to securing best value for all Councils and related organisations across Scotland. The contract has now been awarded (in July 2010). Concerns have been expressed that this will potentially delay restocking. The introduction of this new contract should not be an excuse for early and sufficient restocking before the next winter.
During ‘normal’ winters, any sudden increase in salt restocking requirements caused by adverse weather in areas of Scotland, England and Wales can generally be met by increased UK production, running down supplier stocks and from additional imports. However when demand is UK wide and not regional, as experienced during winter 2009/10, the suppliers do not have the capacity to cope. (Recommendation 3)
Salt production is generally a continuous operation, but demand is highly seasonal. Roads authorities replenish stocks before winter and restock during the winter season to maintain adequate supplies. Pre-season and in-season restocking levels are generally based upon historical usage. Some Roads Authorities maintain high salt reserves, but stock reductions have been encouraged by unrealistic expectations that the introduction of ‘just in time’ restocking arrangements with suppliers would assure supplies even in severe and prolonged winter conditions.
It is probably correct to state that Scottish authorities had more resilience in their stock levels compared with the UK as a whole. This is due to several factors. These include a generally more severe winter, more difficult logistics and longer transport distances.
All the Operating Companies and Design Build Finance and Operate Companies and approximately 47% of local Roads Authorities have salt stock in covered storage. Of the remaining local Roads Authorities, 15% keep salt under temporary coverage and 38% in uncovered salt piles. If not covered, salt can be lost due to leaching.
To conserve supplies last winter, recommended salt spread rates were either reduced or salt was mixed with sand and grit. These measures did not appear to significantly increase the number of road accident claims, but they did result in additional costs in the clearing up of sand and grit from footways, road channels and gullies afterwards. Because of this a permanent treatment level reduction from current recommended spread rates and the use of sand/salt mixes is being considered but will require further research and publication of guidance. (Recommendations 8 and 10)
Salt usage has evolved and changed in recent years due to the introduction of improved technology, improved salt management and salt additives. The majority of Scottish local authorities currently use dry salt alone but salt additives can improve target spreading and there is some evidence that they also improve road surface retention. It appears that after initially expressing concern the environmental agencies are satisfied that salt additives are safe to use. Salt additives are currently in use by some Scottish local roads authorities and are being trialled by others. The four OCs and DBFOs use pre-wetted salt which involves mixing the salt with saturated brine before it is spread on the road surface. This method reduces salt usage by around 70% as it minimises losses through wind drift and vehicle draught and better controls spread distribution.
From the 31 December 2009 until early March 2010 around 50 instances of mutual aid were recorded involving transferring salt between local authorities, trunk road operating companies and NHS Boards. In most cases the amount of salt was relatively low involving 200 or 300 tonnes however in one case 1,700 tonnes of salt was transferred from Orkney to the mainland in mid January. This highlighted some of the logistical difficulties in transporting salt around Scotland particularly to the islands where finding an appropriate vessel and chartering it was necessary.
Mutual Aid & Emergency Salt - Facts and Figures
In the region of:
- 16 instances of mutual aid between Trunk Road Operators and Local Authorities – total 1,800 tonnes
- 31 instances of mutual aid between Local Authorities - total 7,850 tonnes.
- 200 tonnes provided to NHS Boards.
- 85 tonnes mutual aid from MOD.
- 12,000 Tonnes of Salt Procured from INEOS Enterprises and 15,000 Tonnes of Salt Procured from Egypt, Morocco and Tunisia.
Although mutual aid was successful it is considered that the system may be improved if arrangements are explored and scoped in advance. This will ensure that delays are minimised in future. (Recommendations 11).
In addition to making the best use of available stock through mutual aid, salt stocks were strengthened by Transport Scotland procuring 15,000 tonnes from Tunisia, Morocco and Egypt through its operating companies. Decisions were made swiftly as the lead in time to secure a ship load of salt, unload and transport it to the end user from overseas is at least four weeks from, in this case, the east Mediterranean. A residual stock of this salt is currently being stored on behalf of Transport Scotland although the cost of procurement and storage need to be considered when using this emergency salt supply in future periods severe weather.
Stocks were also strengthened by Transport Scotland procuring 12,000 tonnes from INEOS Enterprises, Runcorn, Cheshire. INEOS are the UK's largest manufacturer of vacuum salt products for industrial and domestic applications. During the winter some of their output was re-directed to road de-icing. The manufactured salt is not usable directly in spreaders but can spread by hand and can be mixed with grit sand. As with the imported salt, a residual stock of this salt is also currently being stored on behalf of Transport Scotland, supplemented by a stock of waste salt, a by-product of INEOS manufacturing, which has been screened to remove the waste material.
3.8 Operation of the Salt Group
The Scottish Salt Group was actively involved in the operation of ensuring that Scotland did not run out of salt during the extreme and prolonged winter until March 2010. It is testimony to that group and its partnership working with DfT that this critical objective was achieved.
However, the function of the group could have been improved if all local authorities had provided returns as requested and if the confidence in the accuracy, transparency and methodology of the reported resilience levels could be improved. (Recommendations 4 and 5)
The red, amber, green methodology used by DfT (Annex D) was based on entire routes being treated but in practise many roads authorities’ treatments in real terms vary considerably depending on its winter service policy. This led to inconsistencies, between local authorities, in the number of resilience days being reported and often the number of days resilience appearing to be less or more than was the actual case. Discussions resulted in guidance being issued to local authorities in Scotland so the system, although rough, did provide a practical level of consistency across the UK.
There is a need to communicate/provide guidance to Roads Authorities on the operation of any Salt Cell if implemented this will include Operation, Intervention points, use of salt stock data, expectation of Roads Authorities, relationship with DfT data collection and decision process.