Construction: Committee of the Whole—August 12, 2020
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- National Capital Region bridges
- Rehabilitation of the Supreme Court of Canada and the West Memorial buildings
- Rehabilitation of the National Capital Commission assets including 24 Sussex and Harrington Lake
- Federal construction work
- Status of the Long Term Vision and Plan for the Parliamentary Precinct
- Big Bar landslide remediation
National Capital Region bridges
Context
Budget 2019 provided funding to replace the Alexandra Bridge, support for rehabilitation and ongoing maintenance of the MacDonald-Cartier Bridge and the Chaudière Crossing, as well as the directive to refresh studies on a potential sixth interprovincial crossing in the National Capital Region (NCR), and develop a Long-term Integrated Interprovincial Crossings Plan.
Suggested response
- The government will continue to improve crossings in the NCR
- Work continues to advance on budget 2019 commitments to replace the Alexandra Bridge, and we are addressing the demonstrated need for an additional NCR crossing with a Long-term Integrated Interprovincial Crossings Plan led by the National Capital Commission (NCC)
- Funding has been allocated to the NCC to help address the maintenance and rehabilitation requirements of their 2 interprovincial crossings, the Champlain and Portage bridges
- As well, we are investing to rehabilitate and maintain other existing crossings, including the Chaudière and Macdonald-Cartier bridges
If pressed on a sixth crossing:
- the budget 2019 commitment of refreshing existing studies on a potential sixth crossing has been completed. The public release of a summary report coincided with a presentation of the results of the refresh studies to the NCC Board of Directors on June 25, 2020
- the refresh will inform any future considerations of the sixth crossing project. Further planning would include an impact assessment, which includes comprehensive consultation with the public, municipal and provincial, and Indigenous partners, and would leverage the results of the Long-term Integrated Interprovincial Crossings Plan due to be completed in late 2021
If pressed on replacing the Alexandra Bridge:
- a 2017 life cycle cost analysis looked at the options for investing in the Alexandra Bridge over the long term
- the study determined that replacing the bridge would be less disruptive to the public than trying to maintain the existing bridge, while also being more cost effective
- given this, Public Services and Procurement Canada (PSPC) has begun activities related to planning, impact assessment and design
- its replacement has become more critical after inspectors found an unexpected structural flaw which forced the bridge’s closure from May 1 to 23 for emergency repairs
- planning, design and construction of a new crossing to replace the Alexandra Bridge is expected to take up to 10 years. In the meantime, inspections and repair work continue to ensure the bridge remains safe and accessible until it is replaced
If pressed on the program of work:
- PSPC is working closely with the NCC and the cities of Ottawa and Gatineau, and other partners, to ensure that federal bridges in the NCR are safely and effectively serving Canadians, and that required lane closures are properly co-ordinated
If pressed on the Long-term Integrated Interprovincial Crossings Plan:
- the NCC is responsible for the Long-term Integrated Interprovincial Crossings Plan, in collaboration with the City of Ottawa, la Ville de Gatineau, provinces of Ontario and Quebec, transit authorities, and other stakeholders
- the NCC awarded a contract to IBI Group Inc. in spring 2020 to propose a long term transportation strategy for the future of sustainable interprovincial travel in the NCR
- the plan will confirm the vision, policies and infrastructure priorities for sustainable interprovincial travel for a 2050 planning horizon. It will also act as a comprehensive blueprint to support decision-making at all levels of government to achieve integrated and coordinated multi-modal interprovincial transportation
- the plan will go through a first round of public consultations in late 2020. The final version of the plan is expected in late 2021
Background
There are 5 crossings in the NCR. PSPC manages and operates the Alexandra Bridge (built in 1900), Chaudière Crossing (portions built in 1828, and Union Bridge built in 1919) and the Macdonald-Cartier Bridge (built in 1965). The NCC manages and operates the Champlain Bridge (built in 1928) and the Portage Bridge (built in 1973).
The 5 crossings are currently at full capacity at peak travel periods (average daily traffic on all crossings: 187,000 vehicles daily; 9,000 using active transportation). Transportation studies conducted over the last 10 years have consistently shown that the existing Ottawa River crossings and connecting roadways are at full capacity during morning and evening peak travel times.
Alexandra Bridge condition
A 2017 third-party life-cycle cost assessment concluded that replacing the 120-year-old Alexandra Bridge is the most cost-effective alternative, as it will have reached the end of its life span within the next 10 years. A recent structural evaluation of the bridge (completed in March 2020) revealed that due to the deterioration of several bridge members, load restrictions were required. Its replacement has become more critical after inspectors found an unexpected structural flaw, which forced the bridge’s closure from May 1 to 23 for emergency repairs. Other repair projects are planned and will be completed to ensure the bridge remains safe and accessible until its replacement.
Sixth crossing
Budget 2019 directed the NCC to “Address the demonstrated need for an additional NCR crossing by refreshing existing studies and developing a long-term integrated interprovincial crossing plan with both provincial governments and the cities of Gatineau and Ottawa.” Additional crossings could help to reduce congestion, improve fluidity and increase transportation options throughout the region.
Long Term Integrated Interprovincial Crossings Plan
Budget 2019 also announced that the NCC would lead the development of a Long-term Integrated Interprovincial Crossings Plan. The result of this plan will be a long-term strategy with a vision and approaches for all parties to build on past successes and move forward to meet new and emerging challenges. The plan will set long-term targets as well as provide options on how we may achieve the vision, and address the following issues:
- sustainable choices of interprovincial mobility
- regional transition toward low-carbon and climate-resilient mobility networks/systems
- improving interprovincial mobility of people and “people capacity”
- alternatives for interprovincial heavy truck movement in the core area
Timing
The study refresh on a potential sixth crossing has been completed while the Long-Term Integrated Interprovincial Crossing Plan is expected to be completed in late 2021.
We are at the preliminary phase of the Alexandra Bridge replacement project which includes environmental studies and assessments, as required by the Impact Assessment Act.
Other bridge projects
In addition to the studies and projects listed above, the government supported the rehabilitation and ongoing maintenance of the NCR crossings, including the Alexandra Bridge, Chaudière Crossing and Macdonald-Cartier Bridge in Budget 2019 over 10 years.
Through the approval of Supplementary Estimates (A), the NCC received additional appropriations from Parliament to address the condition of its assets. Included in this funding was an investment to address the maintenance and rehabilitation requirements of the Champlain and the Portage bridges. Those projects are set to commence in 2020.
Rehabilitation of the Supreme Court of Canada and the West Memorial buildings
Context
From 2019 to 2023, the West Memorial Building (WMB) will undergo rehabilitation in order to meet the standards of the National Building Code of Canada.
Once rehabilitation is complete, the WMB will temporarily accommodate occupants of the Supreme Court of Canada Building (SCCB) from 2023 to 2028, as the SCCB undergoes its own rehabilitation.
Suggested response
- The government takes the integrity and safety of its heritage buildings seriously
- Over $1 billion is being invested in the SCCB and the WMB’s rehabilitation
- This investment will also create jobs for the middle class by creating employment opportunities for Canadians in construction, manufacturing, and professional services
- Construction started in April 2020 and the COVID-19 pandemic situation has had minimal impact on the project schedule
If pressed on current building conditions:
- all measures to ensure the continuous delivery of operations in the SCCB are in place, including the monitoring of key building components and pursuing the urgent repair and maintenance
Background
The WMB has been vacant since 2008 and requires major rehabilitation in order to meet the standards of the National Building Code of Canada. Work began in fall 2019 and will include upgrades to meet current building standards for sustainability, health and safety, and accessibility, while at the same time conserving its heritage character.
The selection of the WMB for rehabilitation makes sense as it will allow a vacant classified federal heritage building, within the downtown Ottawa area to return to the active federal real estate portfolio.
From 2019 to 2023, the WMB will undergo its rehabilitation. It will serve as an interim space for occupants of the SCCB from 2023 to 2028 The SCCB rehabilitation will take place from 2023 to 2028 once the occupants have moved into the WMB.
The contract award to EllisDon Corporation for construction management services was announced on October 26, 2018, and the contract to Moriyama & Teshima Architects and Kasian Architecture Interior Design and Planning Ltd. for design and architectural services was announced on February 23, 2018, for the WMB rehabilitation project.
Demolition started in October around the site. A City of Ottawa permit was received and construction started in April 2020. COVID-19 pandemic situation has had minimal impact on the project schedule.
Rehabilitation of the National Capital Commission assets including 24 Sussex and Harrington Lake
Context
The Official Residences of Canada: Asset Portfolio Condition Report, identified a requirement for a one-time injection of $83 million over 10 years to address the deferred maintenance deficit for all 6 official residences and ensure that the official residences meet universal accessibility and sustainability requirements.
Note
The numbers in the asset condition report represent recommended and projected investments based on 2017 asset values, not actual expenditures/commitments/planned spending by the National Capital Commission (NCC).
Suggested response
- The NCC is an independent Crown Corporation and is responsible for year-round maintenance and operations for the 6 official residences in Canada’s National Capital Region (NCR)
- The NCC recognizes the significance of the official residences and are committed to working with its partners to ensure that issues related to security, heritage preservation, sustainability, and accessibility are addressed
- The NCC is working with federal partners to develop a plan for the future of 24 Sussex to enable the government to make a prudent and informed decision
- Our goal is to ensure that all aspects of the rehabilitation are taken into consideration, including security, functionality, accessibility, design excellence and heritage preservation
If pressed on Harrington Lake rehabilitation costs:
- the NCC’s work at Harrington Lake is part of a broader program to preserve, maintain and restore all official residences under NCC management
- we will continue to support the NCC in its important work
If pressed on the NCC’s Asset Portfolio Condition Report:
- both the Government of Canada and the NCC recognize the importance of official residences of Canada, their heritage and cultural value
- that is why the NCC commissioned the 2018 report entitled Official Residences of Canada: Asset Portfolio Condition Report, detailing the investment required for the restoration of several of Canada’s official residences
- the NCC released this report in 2018 to remain transparent and open with both the Government of Canada and the Canadian public
- the NCC is committed to working with its partners to ensure that issues related to security, heritage preservation, sustainability, and accessibility are addressed
- we will continue to support the NCC in its important work
Background
Official Residences of Canada Asset Portfolio Condition Report
In 2017, the NCC commissioned in-depth building condition reports for the largest and most complex buildings in the official residences portfolio. These reports found that 58% of the assets in the official residences portfolio were considered to be in ‘poor’ to ‘critical’ condition, including half of the main official residences (24 Sussex and Harrington Lake main cottage are in critical condition while the farm is in poor condition). The complete report, Official Residences of Canada Asset Portfolio Condition Report, was endorsed by the NCC Board of Directors in April 2018 and publicly released in October 2018.
The report reflects an in-depth analysis of the official residences asset portfolio and highlights the shortfall in funding required to restore and maintain these heritage buildings.
24 Sussex
On October 16, 2018, the NCC released the Official Residences of Canada: Asset Portfolio Condition Report, which found that 24 Sussex Drive was in “critical” condition. The report identified a requirement for a one-time injection of $83 million over 10 years to address the deferred maintenance deficit for all 6 official residences, and a further $24.6 million annually for ongoing maintenance, repairs and renovations. The implementation of this 10-year recapitalization plan would also need to consider the investment required to ensure that the official residences meet universal accessibility and sustainability requirements, as well as escalation.
Over the last decade, the NCC has completed significant work at 24 Sussex including the rehabilitation of chimneys and fireplaces, fire compartmentalization, stabilization of the escarpment at the back and west sides of the property and the removal of hazardous materials from the main building. However, it has not been able to proceed with the extensive rehabilitation of the residence and has been limited to completing work on the repairs relating to health and safety that were urgently required.
As 24 Sussex Drive has not seen significant investment in over 60 years, the additional work required would include the rehabilitation of the building envelope, mechanical and electrical systems, all buildings on the site would require extensive recapitalization and NCC would need prolonged access to the residence.
Construction activities on the main residence would allow for the abatement of hazardous materials, retention of certain heritage components, improvement in the building envelope, replacement of mechanical and electrical systems, construction of universally accessible entrances and washrooms, creation of dining facilities and support spaces to accommodate state functions.
Harrington Lake
While the main cottage at Harrington Lake is 95 years old, most of the buildings were built between 1850 and 1925. Harrington Lake, the official country residence of the Prime Minister, is used for both official and private functions, with buildings that can accommodate official business as well as state visits.
Harrington Lake last saw major capital investment during the 1950s (over 60 years ago); the property has not seen any investment since 2005, when the NCC made critical repairs to the roofing, eavestroughs, piping, electrical, mechanical and structural systems of the property. The Harrington Lake property was deemed to be in critical condition in the NCC’s 2018 Official Residences of Canada: Asset Portfolio Condition Report (see pages 38 to 43).
Federal construction work
Context
On May 11, commercial construction re-opened in the province of Quebec, and on Thursday, May 14, the Government of Ontario communicated that all construction work could resume effective May 19.
Suggested response
- The health and safety of Canadians is our top priority as we respond to the COVID-19 pandemic
- On May 11 and May 19, commercial construction re-opened in the provinces of Quebec and Ontario respectively, enabling federal construction projects to recommence in alignment with measures prescribed by public health authorities
- We continue to work with our industry partners, and the provinces and territories, to ensure that strict health and safety protocols, including appropriate physical distancing and face covering protocols, are in place to prevent the spread of COVID-19 on our worksites
If pressed on the Parliamentary Precinct:
- construction activities continue on the Centre Block and the East Block but are limited to activities undertaken in unoccupied spaces. Necessary repair and maintenance work required for the safe operations of parliamentary facilities continues
- these projects are aligned with the Government of Ontario’s direction, and we have put in place industry-leading health and safety protocols to ensure appropriate physical distancing and compartmentalization of the construction site
- as the province moves towards opening the economy, Public Services and Procurement Canada (PSPC) will assess the re-opening of construction projects in close collaboration with Parliament
If pressed on the Canadian Construction Association (CCA) request to support industry:
- the Government of Canada will continue its ongoing collaboration with the CCA in key areas as we navigate the reality created by the COVID-19 pandemic
- PSPC officials have been actively participating in discussions with the industry. We will continue our work to ensure the health and safety of construction employees, and to continue those projects that can meet the protocols established under provincial authorities
Background
PSPC continues to monitor the situation to ensure that any decision regarding construction sites respects the advice of public health officials and aligns with the CCA’s standardized COVID-19 protocols for all Canadian construction sites and respective provincial and territorial government direction.
The CCA has voiced their support for keeping federal construction sites open and its workforce employed on project sites that can meet a high standard of health and safety measures and that involve defence, security, infrastructure and the administration of justice and government. Federal unions (for example, Unionized Building and Construction Trades Council) wrote to the Minister directly expressing their gratitude for maintaining jobs by keeping the Parliament Hill site open specifically, noting that it is among the safest in the country.
Projects not aligned with the revised Province of Ontario directives have paused construction work. The 85 demobilized projects are in 3 primary categories:
- Interior fit-ups (for example, office fit-ups in parliamentary administrative leased space at 50 O’Connor; retail and operational space fit-up in the Wellington Building)
- Interior improvements (for example, Drywall repairs and patchwork in the East Block; ceiling and radiator repairs in the Confederation Building; marble stone repairs in the Sir John A. Macdonald Building)
- Exterior repairs (for example, window seal repairs to the Justice Building; window replacement/repairs to the Confederation Building; masonry maintenance on the Office of the Prime Minister and Privy Council; National Press Building exterior envelope)
Status of the Long Term Vision and Plan for the Parliamentary Precinct
Context
Public Services and Procurement Canada (PSPC) is implementing the Long Term Vision and Plan (LTVP)—a multi-decade strategy to restore and modernize the Parliamentary Precinct.
Suggested response
- In partnership with Parliament, we are restoring the Parliamentary Precinct for future generations of Canadians, and making it modern, safer, greener and more accessible
- Our focus is on restoring the Centre Block and transforming the precinct into an integrated parliamentary campus
- The Centre Block is the most iconic heritage building in Canada—we are committed to preserving it for Canadians and modernizing it to support 21st century parliamentary requirements
- Throughout the COVID-19 crisis construction activities have continued on the Centre Block and East Blocks in alignment with the Government of Ontario’s direction, with industry-leading health and safety protocols in place to ensure appropriate social distancing and compartmentalization of the construction site
- As the province has now opened its construction industry, PSPC continues to assess the re-opening of construction projects in close collaboration with Parliament
If pressed on governance and costs for the Centre Block:
- PSPC is committed to working in partnership with Parliament throughout this process
- there are a number of important decisions that need to be made before we can determine a baseline scope, cost and schedule
If pressed on redevelopment of block 2:
- a design competition is being used to transform aging and underutilized Crown-buildings into a sustainable and integrated campus that supports a 21st century Parliament, while building a respectful complement to Canada’s capital
- a design competition will bolster innovative ideas and promote design excellence, all of which reflect the significance of the site. In fact, the original Parliament buildings were the result of a design competition held in 1859
Background
The LTVP was first approved in 2001 for the restoration and modernization of Canada’s Parliamentary Precinct. All major projects continue to track on time and budget.
PSPC has invested approximately $3.5 billion in the Parliamentary Precinct to-date, which has created over 25,000 jobs in local and national economies in, for example, engineering, architecture, construction, manufacturing and skilled trades sectors.
The restored West Block and Senate of Canada Building and the new Visitor Welcome Centre (Phase 1), were transferred to Parliament in fall 2018. These projects followed the completion of the 21 key projects since the Library of Parliament in 2006, including the 180 Wellington Building (2016) and the Sir John A Macdonald Building (2015).
Efforts are now focused on restoring and modernizing the Centre Block and leveraging the remaining 23 assets in the precinct to create an integrated parliamentary campus that addresses Parliament’s long term requirements, including material handling, the movement of people and goods, accessibility, sustainability, and security.
Restoring the Centre Block is a core objective of the LTVP. It will be the largest project of its kind in Canadian history. The program is on track and several key milestones have been accomplished:
- a series of enabling projects ranging from the construction of a temporary loading dock to the re-location of the Books of Remembrance are now complete
- the most comprehensive assessment program undertaken in the precinct to date is now complete. It includes 100 field surveys, 900 openings, 2000 inspections, 10,000 tests and samples, and 20,000 heritage assets recorded
- demolition and abatement has begun on floors 4 to 6 of the Centre Block. In addition, excavation of underground infrastructure in the footprint of the phase 2 Visitor Welcome Centre is underway
PSPC is working with the parliamentary partners (Senate, House of Commons, the Library of Parliament, and the Office of the Prime Minister and Privy Council) to finalize their functional and design requirements (for example, number, size and types of functional spaces such as offices and committee rooms). The outcomes of these assessments and outreach will directly support the design efforts of the building rehabilitation. The completion of the schematic design is planned for spring 2020. This will inform the baseline scope, schedule and budget for the Centre Block rehabilitation.
Parliament Hill draws millions of visitors annually and is a key driver of tourism that contributes significantly to the Ottawa economy. PSPC is committed to ensuring that a positive visitor experience continues during the rehabilitation program.
PSPC has leveraged the LTVP to create opportunities for Canadians, including youth and Indigenous Peoples. We have committed to include provisions in all of our major projects’ contracts that would subcontract at least 5% of work to Indigenous firms.
The LTVP is reducing the government’s carbon footprint. PSPC has already reduced greenhouse gas levels in the precinct by 56% from 2005 levels and is on track to reach 80% by 2030 while also diverting more than 90% of demolition materials from landfills.
The precinct is a model for accessibility. It will achieve, and in some cases exceed, accessibility standards. The West Block and Senate of Canada Building include barrier-free access and improved accessibility features in the Chambers, public galleries, offices, meeting places, washrooms and corridors.
Big Bar landslide remediation
Context
The contract for the Big Bar landslide in British Columbia has increased to over $53.5 million since it was awarded on December 31, 2019, at an original value of $17.6 million to Peter Kiewit Sons ULC.
Suggested response
- Public Services and Procurement Canada (PSPC) is committed to open, fair and transparent procurement processes while obtaining the best possible value for the government and Canadians
- PSPC is providing procurement and project management support to the Department of Fisheries and Oceans Canada (DFO) for urgent remediation work at the site of the landslide, which is preventing salmon stocks from reaching their spawning grounds
- The contractor successfully met the objectives of gaining access to the site, blasting boulders and widening the river channel ahead of the rising waters of the spring freshet. The contractor was tasked with additional urgent work that was time sensitive to the onset of the spring freshet and vital to moving fish past the slide this summer
If pressed on contract amendments:
- It is not uncommon to encounter unanticipated work arising over the course of construction contracts. The continued use of a contractor already on site to perform the urgent work represents a best-value solution for all
- These urgent works were made possible through contract amendments, and included building a “nature-like” fishway; preparation for a pneumatic fish transport system; and upgrading access for a fish “truck and transport” program
- The site is also in an isolated, remote canyon with harsh weather conditions and constant rock fall danger. The costs associated to perform this work reflect the dynamic nature of the response required at Big Bar to improve fish passage
Background
PSPC is working with the DFO to improve fish passage in the Fraser River in response to a landslide near Big Bar, north of Lillooet, British Columbia, that was discovered in June 2019.
On November 27, 2019, PSPC, on behalf of DFO, published a request for information on www.BuyandSell.gc.ca for the purpose of seeking industry feedback on possible options and capacity to address the Big Bar landslide.
In accordance with trade agreement provisions and based on the information gathered through the RFI, 5 suppliers were invited to submit a proposal by December 27, 2019. A limited tender process was completed.
The remediation project is occurring on the traditional territories of the Secwepemc Nation, specifically High Bar First Nation and Stswecem’c Xget’tem First Nation. The contract includes an Indigenous Benefits Plan to provide socio-economic benefits to these 2 First Nations consisting of opportunities related to subcontracting, employment, skills and development and training, protocols, community engagement and other measures.
When the landslide occurred, a large volume of rock fell into the river (approximately 75,000 cubic metres). Therefore, removal and restoration of the river will take multiple construction seasons and a long-term response and commitment.
Without immediate environmental remediation, many salmon stocks native to the upper Fraser River may become extinct. These impacts could result in economic losses throughout British Columbia and pose risks to the food security and culture of many First Nations communities.
Cold spring weather and the consequent late arrival of the spring freshet allowed more time for completing additional urgent works that were made possible through contract amendments.
As of May 29, 2020 there have been 18 change-orders processed, resulting in a total contract value of $53.5 million. These change orders encompass work such as additional scaling, slope stabilization and protection systems, civil work to support the installation of a pneumatic fish transport system, installation of ancillary equipment to supply water and power to the fish transport system, increased road maintenance costs, costs associated with increased quantities and costs related to additional shifts resulting from weather shut downs, as well as site direct and indirect costs related to the contract extensions.
In addition, it is important to note that the slide site is in an isolated, remote canyon with harsh weather conditions and constant rock fall danger. The costs associated to perform this work reflect the dynamic nature of the response required at Big Bar to improve fish passage.
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