Several emergency planners and scientists said that the plans to protect the UK in a pandemic had once been a top priority and had been well-funded for a decade following the 9/11 terrorist attacks in 2001. But then austerity cuts struck. “We were the envy of the world,” the source said, “but pandemic planning became a casualty of the austerity years when there were more pressing needs.”
The last rehearsal for a pandemic was a 2016 exercise codenamed Cygnus which predicted the health service would collapse and highlighted a long list of shortcomings — including, presciently, a lack of PPE and intensive care ventilators.
But an equally lengthy list of recommendations to address the deficiencies was never implemented. The source said preparations for a no-deal Brexit “sucked all the blood out of pandemic planning” in the following years.
In the year leading up to the coronavirus outbreak key government committee meetings on pandemic planning were repeatedly “bumped” off the diary to make way for discussions about more pressing issues such as the beds crisis in the NHS. Training for NHS staff with protective equipment and respirators was also neglected, the source alleges.
Members of the government advisory group on pandemics are said to have felt powerless. “They would joke between themselves, ‘Haha let’s hope we don’t get a pandemic,’ because there wasn’t a single area of practice that was being nurtured in order for us to meet basic requirements for pandemic, never mind do it well,” said the source.
“If you were with senior NHS managers at all during the last two years, you were aware that their biggest fear, their sweatiest nightmare, was a pandemic because they weren’t prepared for it.”
It meant that the government had much catching up to do when it was becoming clear that this “nightmare” was becoming a distinct possibility in February. But the source says there was little urgency. “Almost every plan we had was not activated in February. Almost every government department has failed to properly implement their own pandemic plans,” the source said.
One deviation from the plan, for example, was a failure to give an early warning to firms that there might be a lockdown so they could start contingency planning. “There was a duty to get them to start thinking about their cashflow and their business continuity arrangements,” the source said.
A central part of any pandemic plan is to identify anyone who becomes ill, vigorously pursue all their recent contacts and put them into quarantine. That involves testing and the UK initially seemed to be ahead of the game. In early February Hancock proudly told the Commons the UK was one of the first countries to develop a new test for the coronavirus. “Testing worldwide is being done on equipment designed in Oxford,” he said.
So when Steve Walsh, a 53-year-old businessman from Hove, East Sussex, was identified as the source of the second UK outbreak on February 6 all his contacts were followed up with tests. Walsh’s case was a warning of the rampant infectivity of the virus as he is believed to have passed it to five people in the UK after returning from a conference in Singapore as well as six overseas.
But Public Health England failed to take advantage of our early breakthroughs with tests and lost early opportunities to step up production to the levels that would later be needed.
This was in part because the government was planning for the virus using its blueprint for fighting the flu. Once a flu pandemic has found its way into the population and there is no vaccine, then the virus is allowed to take its course until “herd immunity” is acquired. Such a plan does not require mass testing.
A senior politician told this newspaper: “I had conversations with Chris Whitty at the end of January and they were absolutely focused on herd immunity. The reason is that with flu, herd immunity is the right response if you haven’t got a vaccine.
“All of our planning was for pandemic flu. There has basically been a divide between scientists in Asia who saw this as a horrible, deadly disease on the lines of Sars, which requires immediate lockdown, and those in the West, particularly in the US and UK, who saw this as flu.”
The prime minister’s special adviser Dominic Cummings is said to have had initial enthusiasm for the herd immunity concept, which may have played a part in the government’s early approach to managing the virus. The Department of Health firmly denies that “herd immunity” was ever its aim and rejects suggestions that Whitty supported it. Cummings also denies backing the concept.
The failure to obtain large amounts of testing equipment was another big error of judgment, according to the Downing Street source. It would later be one of the big scandals of the coronavirus crisis that the considerable capacity of Britain’s private laboratories to mass-produce tests was not harnessed during those crucial weeks of February.
“We should have communicated with every commercial testing laboratory that might volunteer to become part of the government’s testing regime but that didn’t happen,” said the source.
The lack of action was confirmed by Doris-Ann Williams, chief executive of the British In Vitro Diagnostics Association, which represents 110 companies that make up most of the UK’s testing sector. Amazingly, she says her organisation did not receive a meaningful approach from the government asking for help until April 1 — the night before Hancock bowed to pressure and announced a belated and ambitious target of 100,000 tests a day by the end of this month.
There was also a failure to replenish supplies of gowns and masks for health and care workers in the early weeks of February — despite NHS England declaring the virus its first “level four critical incident” at the end of January.
It was a key part of the pandemic plan — the NHS’s Operating Framework for Managing the Response to Pandemic Influenza dated December 2017 — that the NHS would be able to draw on “just in case” stockpiles of PPE.
But many of the “just in case” stockpiles had dwindled, and equipment was out of date. As not enough money was being spent on replenishing stockpiles, this shortfall was supposed to be filled by activating “just in time” contracts which had been arranged with equipment suppliers in recent years to deal with an emergency. The first order for equipment under the “just in time” protocol was made on January 30.
However, the source said that attempts to call in these “just in time” contracts immediately ran into difficulties in February because they were mostly with Chinese manufacturers who were facing unprecedented demand from the country’s own health service and elsewhere.
This was another nail in the coffin for the pandemic plan. “It was a massive spider’s web of failing, every domino has fallen,” said the source.
The NHS could have contacted UK-based suppliers. The British Healthcare Trades Association (BHTA) was ready to help supply PPE in February — and throughout March — but it was only on April 1 that its offer of help was accepted. Dr Simon Festing, the organisation’s chief executive, said: “Orders undoubtedly went overseas instead of to the NHS because of the missed opportunities in the procurement process.”
Downing Street admitted on February 24 — just five days before NHS chiefs warned a lack of PPE left the health service facing a “nightmare” — that the UK government had supplied 1,800 pairs of goggles and 43,000 disposable gloves, 194,000 sanitising wipes, 37,500 medical gowns and 2,500 face masks to China.
A senior department of health insider described the sense of drift witnessed during those crucial weeks in February: “We missed the boat on testing and PPE . . . I remember being called into some of the meetings about this in February and thinking, ‘Well it’s a good thing this isn’t the big one.’
“I had watched Wuhan but I assumed we must have not been worried because we did nothing. We just watched. A pandemic was always at the top of our national risk register — always — but when it came we just slowly watched. We could have been Germany but instead we were doomed by our incompetence, our hubris and our austerity.”
In the Far East the threat was being treated more seriously in the early weeks of February. Martin Hibberd, a professor of emerging infectious diseases at the London School of Hygiene and Tropical Medicine, was in a unique position to compare the UK’s response with Singapore, where he had advised in the past.
“Singapore realised, as soon as Wuhan reported it, that cases were going to turn up in Singapore. And so they prepared for that. I looked at the UK and I can see a different strategy and approach.
“The interesting thing for me is, I’ve worked with Singapore in 2003 and 2009 and basically they copied the UK pandemic preparedness plan. But the difference is they actually implemented it.”
Towards the end of the second week of February, the prime minister was demob happy. After sacking five cabinet ministers and saying everyone “should be confident and calm” about Britain’s response to the virus, Johnson vacated Downing Street after the half-term recess began on February 13.
He headed to the country for a “working” holiday at Chevening with Symonds and would be out of the public eye for 12 days. His aides were thankful for the rest, as they had been working flat out since the summer as the Brexit power struggle had played out.
The Sunday newspapers that weekend would not have made comfortable reading. The Sunday Times reported on a briefing from a risk specialist which said that Public Health England would be overrun during a pandemic as it could test only 1,000 people a day.
Johnson may well have been distracted by matters in his personal life during his stay in the countryside. Aides were told to keep their briefing papers short and cut the number of memos in his red box if they wanted them to be read.
His family needed to be prepared for the announcement that Symonds, who turned 32 in March, was pregnant and that they had been secretly engaged for some time. Relations with his children had been fraught since his separation from his estranged wife Marina Wheeler and the rift deepened when she had been diagnosed with cancer last year.
The divorce also had to be finalised. Midway through the break it was announced in the High Court that the couple had reached a settlement, leaving Wheeler free to apply for divorce.
There were murmurings of frustration from some ministers and their aides at the time that Johnson was not taking more of a lead. But Johnson’s aides are understood to have felt relaxed: he was getting updates and they claim the scientists were saying everything was under control.
By the time Johnson departed for the countryside, however, there was mounting unease among scientists about the exceptional nature of the threat. Sir Jeremy Farrar, an infectious disease specialist who is a key government adviser, made this clear in a recent BBC interview.
“I think from the early days in February, if not in late January, it was obvious this infection was going to be very serious and it was going to affect more than just the region of Asia ,” he said. “I think it was very clear that this was going to be an unprecedented event.”
By February 21, the virus had already infected 76,000 people, had caused 2,300 deaths in China and was taking a foothold in Europe with Italy recording 51 cases and two deaths the following day. Nonetheless Nervtag, one of the key government advisory committees, decided to keep the threat level at “moderate”.
Its members may well regret that decision with hindsight and it was certainly not unanimous. John Edmunds, one of the country’s top infectious disease modellers from the London School of Hygiene and Tropical Medicine, was participating in the meeting by video link but his technology failed him at the crucial moment.
Edmunds wanted the threat level to be increased to high but could not make his view known as the link was glitchy. He sent an email later making his view clear. “JE believes that the risk to the UK population [in the PHE risk assessment] should be high, as there is evidence of ongoing transmission in Korea, Japan and Singapore, as well as in China,” the meeting’s minutes state. But the decision had already been taken.
Peter Openshaw, professor of experimental medicine at Imperial College, was in America at the time of the meeting but would also have recommended increasing the threat to high. Three days earlier he had given an address to a seminar in which he estimated that 60% of the world’s population would probably become infected if no action was taken and 400,000 people would die in the UK.
By February 26, there were 13 known cases in the UK. That day — almost four weeks before a full lockdown would be announced — ministers were warned through another advisory committee that the country was facing a catastrophic loss of life unless drastic action was taken. Having been thwarted from sounding the alarm, Edmunds and his team presented their latest “worst scenario” predictions to the scientific pandemic influenza group on modelling (SPI-M) which directly advises the country’s scientific decision-makers on Sage.
It warned that 27 million people could be infected and 220,000 intensive care beds would be needed if no action were taken to reduce infection rates. The predicted death toll was 380,000. Edmunds’s colleague Nick Davies, who led the research, says the report emphasised the urgent need for a lockdown almost four weeks before it was imposed.
The team modelled the effects of a 12-week lockdown involving school and work closures, shielding the elderly, social distancing and self-isolation. It estimated this would delay the impact of the pandemic but there still might be 280,000 deaths over the year.
The previous night Johnson had returned to London for the Conservatives’ big fundraising ball, the Winter Party, at which one donor pledged £60,000 for the privilege of playing a game of tennis with him.
By this time the prime minister had missed five Cobra meetings on the preparations to combat the looming pandemic, which he left to be chaired by Hancock. Johnson was an easy target for the opposition when he returned to the Commons the following day with the Labour leader, Jeremy Corbyn, labelling him a “part-time” prime minister for his failure to lead on the virus crisis or visit the areas of the UK badly hit by floods.
By Friday, February 28, the virus had taken root in the UK with reported cases rising to 19 and the stock markets were plunging. It was finally time for Johnson to act. He summoned a TV reporter into Downing Street to say he was on top of the coronavirus crisis.
“The issue of coronavirus is something that is now the government’s top priority,” he said. “I have just had a meeting with the chief medical officer and secretary of state for health talking about the preparations that we need to make.”
It was finally announced that he would be attending a meeting of Cobra — after a weekend at Chequers with Symonds where the couple would publicly release news of the engagement and their baby.
On the Sunday, there was a meeting between Sage committee members and officials from the Department of Health and NHS which was a game changer, according to a Whitehall source. The meeting was shown fresh modelling based on figures from Italy suggesting that 8% of infected people might need hospital treatment in a worst-case scenario. The previous estimate had been 4%-5%.
“The risk to the NHS had effectively doubled in an instant. It set alarm bells ringing across government,” said the Whitehall source. “I think that meeting focused minds. You realise it’s time to pull the trigger on the starting gun.”
At the Cobra meeting the next day with Johnson in the chair a full “battle plan” was finally signed off to contain, delay and mitigate the spread of the virus. This was on March 2 — five weeks after the first Cobra meeting on the virus.
The new push would have some positive benefits such as the creation of new Nightingale hospitals, which greatly increased the number of intensive care beds. But there was a further delay that month of nine days in introducing the lockdown as Johnson and his senior advisers debated what measures were required. Later the government would be left rudderless again after Johnson himself contracted the virus.
As the number of infections grew daily, some things were impossible to retrieve. There was a worldwide shortage of PPE and the prime minister would have to personally ring manufacturers of ventilators and testing kits in a desperate effort to boost supplies.
The result was that the NHS and care home workers would be left without proper protection and insufficient numbers of tests to find out whether they had been infected. To date 50 doctors, nurses and NHS workers have died. More than 100,000 people have been confirmed as infected in Britain and 15,000 have died.
A Downing Street spokesman said: “Our response has ensured that the NHS has been given all the support it needs to ensure everyone requiring treatment has received it, as well as providing protection to businesses and reassurance to workers. The prime minister has been at the helm of the response to this, providing leadership during this hugely challenging period for the whole nation.”
