A Legacy for Future Generations

The Long-Term Vision and Plan for the Parliamentary Precinct

The Context for Change

What Is The Parliamentary Precinct?
Renovation Initiatives in the Past
What Functions Does The Precinct Fulfill?
Jurisdictions
The Experience in Other Capitals

An Historical, Functional and Jurisdictional Overview

What Is The Parliamentary Precinct?

When we talk about the "Parliamentary Precinct", what, exactly, is meant?

There has been no officially recognized geographic definition for this high profile landmark. The Precinct has been defined differently by various agencies over time, depending on the purpose and scope of their work.

Historically, the Parliamentary Precinct has more often been defined according to its uses than its geography. Consequently, the "Precinct" has often been used to mean premises occupied by the Senate, the House of Commons and the Library of Parliament wherever the work of Parliament is conducted.

However, in recent years it has become more customary to use a geographical definition that encompasses buildings currently in use by parliamentary institutions, and lands and buildings that could be used for such purposes. In keeping with this approach, the definition proposed in this plan is: all buildings and land north of Wellington Street, east of the Supreme Court and west of the Rideau Canal locks.

Renovation Initiatives in the Past

Over the years, there have been a number of initiatives aimed at expanding or renovating the grounds and buildings in the Parliamentary Precinct.

After the original plan to construct the three Parliament Buildings on "Barracks Hill" was implemented, there was a period of almost 50 years before subsequent plans were produced. Frederic Todd's 1905 Plan for the general "Improvement and Beautifying of Ottawa", which included Parliament Hill, was supplemented in 1912 by his site plan for buildings to the west of the Hill. This was followed in the first half of the century by the Holt Commission Plan published in 1915, the Cauchon studies completed in 1928, and the Greber plan of 1950.

The modern history of Precinct review and planning dates to the Abbott Commission Report of 1976 which found that there was an immediate shortfall of space, and that a significant proportion of existing space was unsuitable. Reports in the 1980s defined in greater detail needs for additional accommodation and problems related to fire safety, health, electrical systems, mechanical systems, and basic structural integrity.

The most recent program of renovations began in 1992 when the Auditor General issued his Report to the Senate and the House of Commons on Matters of Joint Interest which noted that most of the necessary major repairs and renovations identified in the 1970s and 1980s for the Parliamentary Precinct had not been undertaken and that the government would not implement an earlier decision to provide funding for urgently needed repairs and development until an approved long term plan was in place.

The 1992 Long Term Capital Plan

Later in 1992, Public Works and Government Services Canada (PWGSC) submitted and received approval for a Long Term Capital Plan whose primary objectives were to safeguard health and safety, maintain essential operations of government, and satisfy where possible, the needs, constraints and pressures of the Parliamentary Precinct.

Since then, PWGSC has been implementing an extensive restoration and renovation program in the Precinct. The 1992 Long Term Capital Plan initially comprised 12 individual projects to be addressed between 1992 and 2003/4. Projects were identified based on the following objectives:

• safeguarding health and safety;
• maintaining essential operations of Parliament;
• maintaining existing inventory;
• satisfying wherever possible the functional requirements of parliamentary clients;
• respecting the heritage value of the Precinct; and
• protecting the environment.

The approval from the government focused mainly on projects to address the highest priorities - those in the first two categories above.

Emerging Needs

As with many renovation projects involving heritage assets, once underway it became apparent that many of the facilities in the Precinct were in worse condition than originally thought. This resulted in both an increased scope of work for some projects included in the 1992 Long Term Capital Plan and the addition of other projects not identified in 1992. In September 1998, the Minister of Public Works and Government Services issued Preserving the Hill, a status report on work approved for the Hill and expenditures up to that point. The document reported on 30 projects which had been approved up to September 1998, including the 12 projects in the 1992 Plan.

As noted above, the 1992 Plan approval focused on projects related to health and safety and maintaining essential operations of Parliament. The Parliamentary Precinct's major clients - the Senate, House of Commons and Library of Parliament - had identified, and continue to require, additional space and services related to their functionality. In the face of emerging asset-related and client-related requirements, Treasury Board requested that PWGSC update the 1992 Capital Plan. The Auditor General, in a report released in December 1998, also called for an updated long term comprehensive plan to restore and renovate the Parliamentary Precinct, noting that, "because projects are inextricably linked, there is a pressing need for an approved long term strategic plan that articulates the program's objectives, scope and cost."

In his report, the Auditor General called for the creation of an independent advisory council to guide Public Works and Government Services Canada in developing the long term plan and to advise its Minister. In response, the Minister of PWGSC established the Parliamentary Buildings Advisory Council (PBAC) under the chairmanship of the Honourable John A. Fraser. The Minister initiated a "pause" which would allow for a comprehensive, in-depth review of the work required to ensure that future projects be undertaken with a new focus that better reflects modern day requirements.

The current initiative to develop a Long-Term Vision and Plan for the Parliamentary Precinct is intended to permit development of plans and implementation strategies to meet priorities identified by clients and stakeholders in four key areas:

• accommodation requirements;
• site capacity/planning urban design principles;
• asset vocation; and
• asset integrity.

What Functions Does The Precinct Fulfill?

As the seat of government, and the site of highest symbolic importance to Canadians, the Parliamentary Precinct accommodates several key functions:

• Legislative Functions, including the Senate and House of Commons Chambers, committee rooms, facilities for caucuses, research support for legislative activities;
• Institutional Functions, which fall into three categories: ceremonial, heritage, and symbolic. Included here are activities such as the Speech from the Throne, visits of Heads of State and other dignitaries, and commemorations;
• Accommodation for Parliamentarians and their support staff, and for parliamentary officers/leadership and their support staff;
• Operational Functions, including information management, security services, corporate services, operational services, etc., services to the approximately 1.5 million people who visit the Hill annually, and services for special events and celebrations (Changing of the Guard, Sound & Light, Christmas Lights, Snow Sculptures, Canada Day) ; and
• Employee Services, examples of which include cafeteria, recreational facilities, daycare services,

All of these functions had to be considered in developing a comprehensive, forward-looking plan.

Jurisdictions

Her Majesty in Right of Canada is the owner of all lands and buildings within the Parliamentary Precinct. Prior to Confederation, the land was owned by the Imperial Government and transferred in 1857 to the Province of Canada. A registered plan dated October 20, 1859 identifies the site on which the Parliament Buildings and the Confederation Building are located as "Ordnance Property".

Department of Public Works and Government Services Act, 1996, c.16, subsections 10(1)and 10(2) state that:

"The Minister has the administration of all federal real property except federal real property under the administration of any other minister, board or agency of the Government of Canada or any corporation. The Minister may incur expenditures or perform, or have performed, services or work in relation to:

(a) any federal real property;

(b) any work or other property belonging to Her Majesty in right of Canada..."

The Senate and House of Commons have occupied space in the Precinct since the time of Confederation. Section 18 of the Constitution Act, 1867 gives to each House the privileges, immunities and powers enjoyed by the British House of Commons. These privileges include exclusive control over their precincts and over the internal administration of the House. The definition of the precincts is a functional one. Maingot, in Parliamentary Privilege in Canada, defines the precincts as follows:

"In the parliamentary sense, the precincts are the premises which the House of Commons and the Senate occupy from time to time for their corporate purposes. It includes those premises where each House through its Speaker exercises physical control to enable the members to perform their parliamentary work without obstruction or interference."

Various federal departments and agencies have on-going responsibility for lands within the Parliamentary Precinct. The nature of these responsibilities is not easily defined as there are multiple layers of ownership, custodianship, maintenance responsibility, zones of influence, which affect these lands. In general, however, PWGSC has primary responsibility for most of the lands within the Precinct. The NCC is custodian of Major's Hill Park, as well as the lands along the Ottawa River. Parks Canada is responsible for the Rideau Canal.

The Experience in Other Capitals

A number of western nations and other Canadian jurisdictions are similarly engaged in the expansion, upgrading and preservation of historic government buildings. Below are a few examples from other countries:

The United States Capital

In the U.S. capital, the Pentagon began a 10-year renovation program in 1998 at an estimated cost of $1.22 billion (US) (CAN $1.89B). Since it was built in 1943, the Pentagon has never undergone a major renovation. Consequently, the building's infrastructure has become increasingly unreliable and unable to support the headquarters and nerve center of the national military establishment. The Renovation Program will provide all new engineering systems, sprinkler systems, vertical transportation, cable management systems, flexible ceiling, lighting, improvements in fire and life safety systems, and partition systems. The Renovation will also provide accessibility throughout for persons with disabilities. It will preserve historic elements, upgrade food service facilities, construct co-located operation centers, install modern telecommunications support features, comply with energy conservation and environmental requirements, reorganize materials handling, and provide safety improvements in vehicular and pedestrian traffic.

In 1984, the U.S. Congress appropriated $81.5 million (US) to restore the Thomas Jefferson Building, along with the upgrading and renovation of the John Adams Building. Another $10 million was allocated subsequently to repair the roof of the Jefferson Building and to complete the renovation to its renowned Coolidge Auditorium. ($91.5M(US) = (CAN $140M).

The Australian Parliamentary Zone

In 1998, the Government of Australia announced that the National Capital Authority would undertake a strategic review of Parliamentary Zone and initiate the development of a master plan. The initiative was in response to public concerns about lack of people spaces, problems with through-traffic and parking, the physical isolation of major buildings from each other, lack of sufficient historical interpretation and commemoration, and a number of other issues. Proposed initiatives are expected to be implemented over a fifty year timeframe beginning in 2001.

The German Reichstag

The decision to move the German Parliament from Bonn to the historic Reichstag in Berlin has required a major renovation and construction project. The Reichstag renovation, now completed, sought to meet the demands of four major issues: the history of the Reichstag, the workings of Parliament, ecology/energy, and the economics of realizing the project.

In addition to its role as the seat of government, the renewed Reichstag has become a living museum of German history by peeling away the fabric of post-war repairs to reveal traces of the past such as shell marks, charred timber and the graffiti of the Russian occupation. Every effort has been made to ensure that the processes of democracy are revealed and made accessible to the public by means of extensive public areas.

Renovation of the 61,166m² building was completed between 1995 and 1999 at a cost of 600 million DM (approximately CAN $430M).

In addition to the Reichstag renovation, the German government has constructed major new parliamentary facilities in Berlin to allow it to function as the seat of government.

The United Kingdom

A major new facility has recently been built at Westminster to provide office space for parliamentarians. These facilities include several meeting and committee rooms as well as office space for 210 MPs and staff members. The building cost approximately £233M (approximately CAN $525M). New facilities are also being built in Edinburgh and Cardiff to accommodate devolution of parliamentary responsibility to Scotland and Wales.

How Canada's Parliamentary Precinct Compares

Work on Canada's Parliamentary Precinct is unique in a number of ways, including the nature of the limestone masonry and copper roofs used throughout the Precinct and especially the need to allow for continued use during construction. There is general support for the need to preserve this cornerstone of our national heritage. It is critical that we move forward.