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Three factors dictated the type of locomotive that could run on the South Eastern and Chatham Railway (SECR): increased freight and passenger train loadings, poor track quality, and weak, lightly built bridges.[5] An increasing number of passengers used the SECR to reach the cross-Channel ferries at Dover and Folkestone between 1910 and 1913, and heavy goods trains between Tonbridge and Hither Green marshalling yardstretched the capabilities of existing locomotives and infrastructure.[6] On the lines of the former London, Chatham and Dover Railway (LCDR), flint beach pebbles on a bed of ash had been used for ballast.[7][8]Conventional track ballast has irregular shapes that "lock" together to keep the track in place, whereas the smooth pebbles used by the LCDR failed to prevent track movement under strain.[7] The economies in construction meant that only locomotives with low axle loadings could run safely on the track.[9]These restrictions meant that the SECR was unable to follow a coherent locomotive strategy that reduced costs and increased serviceability. The railway's Operating Department had to use mismatched classes of underpowered and obsolete 4-4-0 and 0-6-0locomotives because they could run within the restrictions imposed by the infrastructure.[10] This meant frequent double-heading that increased operational costs.[9]
Richard Maunsell was appointed CME of the SECR in 1913, following the retirement of Harry Wainwright due to ill health. Wainwright left a legacy of competent but unspectacular locomotives that struggled to cope with the increased train lengths and loadings.[5]Maunsell took control of the short-term situation by improving existing designs, and he introduced new engines to progressively replace obsolete classes.[11] New designs could also cut costs on the SECR, as one capable mixed-traffic locomotive could undertake the work of two separate passenger or freight types.[9] The first new design was to become Maunsell's N class 2-6-0.