Parliamentary Precinct: Standing Committee on Procedure and House Affairs—May 17, 2022
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Federal jurisdiction for the operational security of the Parliamentary Precinct to include sections of Wellington Street and Sparks street
Key messages
- The Parliamentary Precinct involves many stakeholders, working in collaboration to ensure the ongoing protection and enhancement of Canada’s democratic institutions, and that they remain open to all Canadians
- The 2022 illegal protests in Ottawa threatened the safety and security of the Parliamentary Precinct and had a direct impact on its management and operations
- Public Services and Procurement Canada, as the federally designated custodian for the buildings in Parliamentary Precinct, is committed to working with parliament and other stakeholders to address security challenges stemming from the 2022 illegal protests as well as broader longstanding governance challenges
- Central to these discussions will be establishing a solution that removes jurisdictional barriers and enhances security and the visitor experience while enacting appropriate governance to support effective planning, management and operations of the precinct
Key data points
- Canada’s Parliamentary Precinct is comprised of 37 Crown-owned buildings including Parliament Hill, the 3 city blocks facing Parliament Hill extending from Elgin to Bank Streets, and the Senate of Canada Building
- Parliament Hill is defined in the Parliament of Canada Act as the grounds within the city of Ottawa bounded by Wellington Street, the Rideau Canal, the Ottawa River and Kent Street. The city of Ottawa owns both Wellington Street and Sparks Street
- The restoration and modernization efforts in the Parliamentary and Judicial precincts are increasingly shifting operations to the south side of Wellington Street. Within the next decade, approximately 50% of parliamentarians will be permanently accommodated on the south side of Wellington Street
- In a 2010 audit, the Auditor General observed that the complex governance for the Parliamentary Precinct posed a significant risk for the implementation of the Long Term Vision and Plan and recommended that custodial responsibilities be transferred to parliament
Background
The 2022 illegal protests in Ottawa had a direct impact on the operations of Canada’s Parliamentary and Judicial precincts. It also demonstrated the elevated risk associated with multiple entities managing a space that plays a central role in the operations of Canada’s democratic institutions.
While the Standing Committee on Procedure and House Affairs (PROC) study is focussed on boundaries and security in response to the protests, the issues stemming from the protest are reflective of the longstanding day-to-day governance challenges in the Parliamentary Precinct. Given the number of actors involved in the management and administration of the Parliamentary Precinct, a coordinated and holistic solution is needed to remove jurisdictional barriers, streamline accountabilities and improve decision making structures.
The Parliamentary Precinct, including Wellington Street and its surrounding areas (for example, Sparks Street) is a complex environment involving many stakeholders with varying and overlapping areas of accountability:
- Parliament
- Supreme Court of Canada
- Office of the Prime Minister and the Privy Council
- Public Services and Procurement Canada
- National Capital Commission
- The city of Ottawa
- Ottawa Police Services
- Parliamentary Protective Services
- Royal Canadian Mounted Police
- Corps of Commissionaires
The recent illegal protests in Ottawa brought to the fore 3 key longstanding issues of multiple actors and jurisdictional barriers, regarding:
- ownership and control
- security
- governance
While these issues and risks have long been a focus of attention in the management of the Long Term Vision and Plan for the Parliamentary Precinct, the illegal protests clearly demonstrated the elevated risk associated with multiple entities managing a space that plays a central role in the operations of Canada’s democratic institutions.
The issues of ownership and control, security and governance are increasingly relevant and emphasize the need for a clear operational and decision making framework. Beyond responding to the issues brought bare during the illegal protests, the future role of Wellington Street is a critical consideration for other reasons as well. The restoration and modernization efforts in the Parliamentary and Judicial precincts are increasingly shifting operations to the south side of Wellington Street. Within the next decade, approximately 50% of parliamentarians will be permanently accommodated on the south side of Wellington Street. In addition, the Société de transport de l'Outaouais plans to use Wellington Street as the route for its public tram project.
In the wake of the illegal protest, a series of conversations on the future of Wellington Street have been launched and are ongoing. In particular, the City of Ottawa Council passed a motion to close Wellington Street to vehicle traffic to provide time to develop a longer term plan, and PROC has launched a study on “Expanding the federal jurisdiction for the operational security of the parliamentary precinct to include sections of Wellington Street and Sparks Street.”.
The immediate priority for ensuring clear accountability within the precinct is removing jurisdictional barriers that prevent a clear and coordinated response to emergent and ongoing security matters. At this point, there is emerging consensus amongst stakeholders on core issues and some recommended paths forward. However, without coordination amongst the many actors, there is a significant risk that this alignment will not be leveraged to produce broad-based recommendations for clear action.
Status of the Long Term Vision and Plan for the Parliamentary Precinct
Key messages
- 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 Parliamentary Precinct into an integrated parliamentary campus
Construction industry strikes impacts
- The recent construction industry strikes are having significant impacts on construction projects across the province of Ontario, including projects on Parliament Hill
- Schedule and cost impacts are currently under review and will be largely dependent on the length of the work stoppage, and increases in labour rates
- We are monitoring the situation and working with the remaining workforce to mitigate the impacts of the strikes to the extent possible
The Centre Block rehabilitation program
- The Centre Block is the largest and most complex heritage rehabilitation ever undertaken in Canada
- To ensure this heritage icon can serve Canadians for another century, it needs to be taken apart carefully and rebuilt to integrate modern standards including a reinforced structure, seismic upgrading, and new building and digital systems
- The restored Centre Block will be more accessible and secure through the addition of a Parliament Welcome Centre. The Centre Block will also be transformed from one of the government’s highest energy users and greenhouse gas-emitting buildings into a carbon neutral facility
- The project is advancing well with construction activities now focused on excavation work for the new Parliament Welcome Centre, interior demolition and the abatement of hazardous materials and masonry rehabilitation
Centre Block trompe-l’oeil
- As one of Canada's most recognizable landmarks, the Parliamentary Precinct is a key driver for the National Capital Region’s tourism industry, which attracts approximately 3 million visitors each year
- Working hand-in-hand with parliament, Public Services and Procurement Canada will be installing a decorative tarp that replicates the image of the Centre Block, known as a trompe-l’oeil. Both the House of Commons and the Senate approved the installation of the trompe-l’oeil
- The trompe-l'oeil will mitigate the visual impact of construction activities on the Centre Block to provide a positive visitor experience from both sides of the Ottawa River
- The city of Ottawa, the city of Gatineau, Ottawa Tourism, Tourisme Outaouais, and the National Capital Commission have all expressed strong support for this initiative
- Installation of the trompe-l'oeil will begin spring 2022, starting with the north façade of the Centre Block. The tarps will extend around the sides and the front of the Centre Block as the masonry rehabilitation program progresses
- The Peace Tower clock image on the trompe l’oeil will be set to 11:45 a.m., which represents the start time of the 1927 inauguration of the Peace Tower and carillon
Parliamentary engagement, governance and Senate decisions
- My department is working hand in hand with parliament to deliver the Long Term Vision and Plan
- As part of this collaborative process, each House of Parliament establishes project requirements and priorities to support their parliamentary operations
- My mandate is to work with each House of Parliament to ensure that parliamentary requirements are being met in a manner that preserves our heritage, can fit within the available space and ensures value for money
- Public Services and Procurement Canada continues to work collaboratively with the Senate to meet their needs in a cost efficient manner that respects our heritage buildings
Convoy protest
- Public Services and Procurement Canada worked closely with parliamentary, federal and municipal partners to protect our national monuments and buildings, and provide logistical support during the protests in Ottawa
- The convoy stopped work for 3 weeks including excavation of the Parliament Welcome Centre as well as demolition and abatement and masonry rehabilitation for the Centre Block
- Public Services and Procurement Canada is working with the construction manager to determine the financial implications resulting from the Centre Block construction site closure
- The cost of the work stoppage is estimated at approximately $3 million ($190 000 for 16 days). This estimate will be further refined by the claims process which is now underway
Block 2 redevelopment
- The redevelopment of Block 2 is a critical step in our collective plan for the Parliamentary Precinct, because it will enable us to empty and then restore both the East Block and the confederation buildings. This redeveloped space will then enable us to consolidate parliamentary operations into an integrated campus
- Public Services and Procurement Canada, in partnership with parliament, is leading a design competition to transform this entire city block of aging and underutilized buildings into an integrated and sustainable facility to support the needs of a 21st century Parliament
- An independent jury assembled by the Royal Architectural Institute of Canada, comprised of design professionals, members of academia, civil society and parliamentarians, has recommended the first, second and third place designs to my department. The results of the competition are anticipated to be publicly announced in the coming weeks
- The recent decision by the Senate of Canada to empty the Victoria Building earlier and include it in the redevelopment of Block 2 will reduce the overall costs of our efforts to restore and modernize Canada’s Parliamentary Precinct by $65 million
Indigenous Peoples Space
- Public Services and Procurement Canada continues to support Crown-Indigenous Relations, the Algonquin Nation and the National Indigenous Organizations in developing a national space for Indigenous peoples’ in the Parliamentary Precinct
Key data points
- Approximately $4.2 billion has been invested into the Parliamentary Precinct to date
- This investment has created over 60,000 jobs with approximately 4,000 of those jobs attributed to the Centre Block rehabilitation project
- The Centre Block rehabilitation is expected to create 70,000 jobs in the engineering, construction, architecture and interior design, masonry, and restoration sectors, providing economic benefits for Canadians
- Currently, there are 400 workers on site daily, which is expected to increase to 1,500 at the project’s peak
- Over 500 companies from across Canada are already working on the Centre Block rehabilitation project and 50 initial internships have been created from 10 Canadian colleges and universities to date
- The ongoing restoration and modernization work has reduced greenhouse gas emissions in Canada’s Parliamentary Precinct by 66% from 2005 levels, and we are on track for reductions of 95% by 2040
Background
The Long Term Vision and Plan (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.
With a goal of reaching of 5% of procurement with Indigenous businesses, Public Services and Procurement Canada (PSPC) has established agreements with organizations such as the National Aboriginal Capital Corporations Association, the Canadian Council for Aboriginal Business, and others, to assist with fulfilling that target as it pertains to the Parliamentary Precinct.
The restored West Block and Senate of Canada Building and the new Parliament Welcome Centre, were transferred to parliament in fall 2018. Efforts are now focused on restoring and modernizing Centre Block and transforming the precinct into an integrated parliamentary campus that addresses parliament’s long-term requirements, including material handling, the movement of people and goods, accessibility, sustainability, and security.
Centre Block rehabilitation project
The Centre Block work is the largest and most complex heritage rehabilitation ever undertaken in Canada. Construction work is progressing well, in tandem with the careful removal or in situ protection of the more than 20,000 heritage assets. The selective interior demolition and the removal of hazardous materials is now 65% complete, which includes the removal of approximately 16 million pounds of asbestos containing material to date. Excavation work for the new Parliament Welcome Centre is also progressing well and is approximately 65% complete with over 27,000 truckloads of rock removed from the site. Design work is also well advanced, with the final schematic design submitted to the National Capital Commission in April 2022.
Masonry rehabilitation of the north facade of the Centre Block has begun, and is now approximately 25% complete, which represents approximately 5% of the overall masonry work. Masonry rehabilitation includes the repair and repointing of the entire building, including the Peace Tower. This work will involve the removal of approximately 35% of the stones to conduct repairs and in some cases the replacement of damaged stone.
A tarp is required to create a climate-controlled and safe environment for this important work. Tarping will be in place for several years for the duration of the masonry rehabilitation program. A decorative tarp that replicates the image of the Centre Block will be installed, starting with the north façade this spring and eventually extending around the sides and the front of the building as the masonry rehabilitation program progresses. The cost for a standard tarp on all façades of the building is approximately $1.5 million. The incremental costs associated with the trompe l'oeil is approximately $2.4 million.
Impacts of the May 2022 construction industry strikes
Between May 2 and 9, several unions have gone on strike including crane, equipment and elevator operators, and carpenters. There is also high likelihood that general labourers will also go on strike imminently.
Given the extent of strike action at this point, the program is experiencing significant impacts to the progression of construction activities. Since May 2, Parliament Welcome Centre excavation and removal of the walls in the Centre Block courtyards has been halted. As of May 9, installation and modification of scaffolding as well as crating and on site protection of heritage assets has also stopped.
Demolition and abatement as well as masonry restoration are continuing at significantly lower levels of productivity given that waste produced must be stored on-site until elevators and the tower crane are operational.
Carpenters have indicated an interest in picketing on Parliament hill. In the event of such a situation, it is expected that the rest of the unionized work force would respect the picket line for 1 day as a show of solidarity. The project team is monitoring this closely and coordinating with the Parliamentary Protective Services to ensure any picketing does not impact the operations of the hill.
The impacts of the strikes will increase the longer the strikes continue, up to and including a full shutdown of the site. The work stoppages and mitigation measures caused by the strikes will have cost and schedule impacts and these are currently under review by PSPC and the construction manager. It is also expected that labour costs will increase once the new collective agreements are ratified.
Block 2 redevelopment
PSPC is redeveloping the thr3ee city blocks (blocks 1, 2 and 3) facing Parliament Hill to establish a modern integrated campus. The redesigned block will provide office space for the Senate and the House of Commons and will allow for the future consolidation of parliamentary accommodations, including space for the Library of Parliament. The decade-long transformation will begin with Block 2 and is a key priority of the LTVP.
Block 2 will be permanent space, but will also act as swing space that will allow for the rehabilitation of the East Block and Confederation buildings. This work will create 2 new infills on each side of the Indigenous Peoples Space (the former American Embassy), and see the redevelopment of adjacent buildings, creating large flexible interconnected complexes, all while preserving the overall heritage character of the block. Over the coming year, PSPC will work with the Senate and House of Commons to finalize the sequence for the next tranche of the LTVP.
Within Block 2, the Victoria Building was the only parliamentary space not already part of the Block 2 scope but still requiring rehabilitation. It was not initially included as part of the Block 2 program because there was no available swing space in the area. Through ongoing planning, additional swing space for Victoria tenants was identified at 40 Elgin, allowing PSPC to advance Victoria to be rehabilitated as part of the Block 2 works. 40 Elgin already accommodates Senator offices.
Advancing work in Victoria results in significant cost savings overall—approximately $65 million in hard cost savings compared to the baseline option, and approximately $200 million in cost savings compared to advancing the East Block project instead of Victoria. PSPC acquired the additional space in 40 Elgin by taking over a lease from the National Capital Commission for this space, at a cost of $137 million over a 20-year period. The end state of 40 Elgin will be 63 Senator offices and related support services and 87 parking spaces.
Block 2 is in its final stages of a design competition. All 6 competitors presented their designs in a fully virtual public presentations on April 11, 2022. The independent jury assembled by the Royal Architectural Institute of Canada, comprised of design professionals, members of academia, civil society and parliamentarians, met on April 20 to 22 and recommend the first, second and third place designs. Once the design competition is completed and a concept design is selected, PSPC will evaluate the winning design and identify next steps, including the development of a project schedule. The results of the competition could be announced as early as May 2022.
Indigenous Peoples Space at 100 Wellington
As part of the Government of Canada’s commitment to renew relationships with Indigenous peoples and advance reconciliation, in 2017 the Prime Minister announced that 100 Wellington Street (the former United States Embassy) would be transformed into a national space for Indigenous peoples. The project also includes the re-development of the former Canadian Imperial Bank of Commerce (CIBC) building located at 119 Sparks Street and an infill space between the 2 buildings. These are both federally designated heritage buildings.
Crown-Indigenous Relations and Northern Affairs Canada (CIRNA) is the project lead on the development of the space. PSPC will continue to support CIRNA as it works with the Algonquin Nation and the National Indigenous organizations to develop this national space for Indigenous peoples in the Parliamentary Precinct.
Advancing accessibility and sustainability
PSPC is committed to making the Parliamentary Precinct a model for universal accessibility excellence. 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. The LTVP is reducing the government’s carbon footprint. PSPC has reduced greenhouse gas levels in the precinct by 66% from 2005 levels and is on track for reductions of 80% by 2030 and 95% by 2040, while also currently diverting more than 90% of demolition materials from landfills.
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