3.         Central ARCHIVES RELOCATION – PROGRAM REQUIREMENTS AND OPTIONs ANALYSIS

 

RELOCALISATION DES ARCHIVES CENTRALES –

eXIGENCES LIÉES AU PROGRAMME ET ANALYSE DES OPTIONs

 

 

COMMITTEE RECOMMENDATION as amended

That Council approve the following substitute recommendation:

 

WHEREAS the Steering Committee has conducted significant research and consultation related to the Relocation of the Central Archives; and

 

WHEREAS the Ottawa Public Library is currently completing a functional program plan and assessing potential site options for the replacement of the Main Library; and

 

WHEREAS there may be opportunities to create synergies with the Ottawa Public Library and to identify savings in a co-located Library and Archives plan; and

 

WHEREAS there may be additional site options that could be considered; and

 

WHEREAS Funds are available to complete the Archives functional program plan in capital project number 903471;

 

THEREFORE BE IT RESOLVED that Cultural Services staff in conjunction with the Archives Steering Committee be directed to work with the Ottawa Public Library consultants to develop the Archives functional program plan, identify any opportunities for cost savings and consider site co-location opportunities and report back to Committee within six months in order to consider the implications as part of the 2008 budget process.

 

 

Recommandations modifiées du Comité

 

Que le Conseil approuve la contreproposition suivante :

 

Attendu que le Comité directeur a effectué des recherches approfondies et mené de vastes consultations au sujet du déménagement des Archives centrales;

 

attendu que la Bibliothèque publique d’Ottawa achève la planification de son programme fonctionnel et qu’elle évalue différents sites possibles en vue du remplacement de la Bibliothèque centrale;

 

attendu qu’un plan prévoyant l’installation de la Bibliothèque et des Archives dans un même lieu offrirait la possibilité de créer des synergies avec la Bibliothèque publique d’Ottawa et de réaliser des économies;

 

attendu qu’il existe peut-être d’autres sites pouvant être pris en considération;

 

attendu que le projet d’immobilisation numéro 903471 prévoit des crédits pour la planification du programme fonctionnel des Archives;

 

il est resolu d’enjoindre le personnel des Services culturels et le Comité directeur des Archives de collaborer avec les experts-conseils de la Bibliothèque publique d’Ottawa pour la planification du programme fonctionnel des Archives, la détermination des économies possibles et l’examen des possibilités de colocalisation; et de faire rapport au Comité dans un délai de six mois, afin que les implications du projet puissent être prises en considération dans le cadre du processus d’établissement du budget de 2008.

 

 

 

 

 

DOCUMENTATION

 

1.                  Deputy City Manager, report dated 8 February 2007 (ACS2007-CPS-CFS-0004).

2.                  Extract of Draft Minute, 15 February 2007 will be distributed prior to Council.

 


Report to/Rapport au :

 

Community and Protective Services Committee

Comité des services communautaires et de protection

 

and Council / et au Conseil

 

8 February 2007 / le 8 février 2007

 

Submitted by/Soumis par :

Steve Kanellakos

Deputy City Manager/Directeur municipal adjoint

Community and Protective Services/Services communautaires et de protection 

 

Contact Person/Personne ressource :

Colleen Hendrick, Director

Cultural Services and Community Funding

Services culturels et financement communautaire

(613) 580-2424 x 24366, colleen.hendrick@ottawa.ca

 

Rideau-Vanier (12) and City-Wide

Ref N°: ACS2007-CPS-CSF-0004

 

 

SUBJECT:

Central ARCHIVES RELOCATION –

PROGRAM REQUIREMENTS AND OPTIONs ANALYSIS

 

 

OBJET :

RELOCALISATION DES ARCHIVES CENTRALES –

eXIGENCES LIÉES AU PROGRAMME ET ANALYSE DES OPTIONs

 

 

REPORT RECOMMENDATIONS

 

That the Community and Protective Services Committee recommend that Council:

 

1.         Approve the relocation plan of the Central Archives to Centrepointe Lands as proposed in this report;

 

2.         Direct staff to proceed with the subsequent phases of planning including reserving sufficient land to meet the Archives’ 25-year growth projections; and

 

3.         Approve an increase to the Strategic Initiative funding category for 2008 Capital Budget of $18.3 million to fund the Central Archives Relocation.

 

 


RECOMMANDATIONS DU RAPPORT

 

Que le Comité des services communautaires et de protection recommande au Conseil :

 

1.         d’approuver le plan de relocalisation des Archives centrales sur les terrains à bâtir dans le secteur Centrepointe comme le propose ce rapport;

 

2.         de demander au personnel d’aller de l’avant avec les prochaines étapes de planification, y compris la réservation d’un terrain suffisant pour répondre aux prévisions de croissance des Archives sur une période de 25 ans;

 

3.         d’approuver une augmentation de l8.3 $ millions au montant alloué à la catégorie « Initiative stratégique » du budget d’immobilisation 2008 pour financer la relocalisation des Archives centrales.

 

 

EXECUTIVE SUMMARY

 

The City of Ottawa Central Archives has been leasing space at 111 Sussex (former Ottawa City Hall) since amalgamation. The federal government has advised the City that the lease will not be renewed beyond December 31, 2010. To successfully relocate the Central Archives by the end of 2010, staff must proceed to the conceptual building program in 2007, concept/design stage in 2008, issue tenders in early 2009, and proceed to construction in 2009.

 

This report responds to the end of the lease situation as well as Council's expectation (2005 motion 27/125) that staff develop a long-range plan for the Central Archives that addresses the community’s desire for a longer term solution for the Archives and the Health, Recreation and Social Services Committee’s recommendation (Report ACS2004-CPS-CFS-0025) that the plan address:

 

-         The off-site materials that are now not properly protected

-         City material presently held at the Library and Archives Canada

-         A central location for the facility

-         Official Plan requirements

-         Conservation facilities and exhibition space

 

The Central Archives plays a key role within the Corporation of the City of Ottawa by acquiring, preserving, and providing public access, as required under the Ontario Municipal Act, to municipal records that document the City’s business functions and transactions to encourage effective governance, transparency and accountability.

 

The City Archives Program also plays a key role in preserving community memory by acquiring community records where they would otherwise be lost to the City for lack of a venue to preserve and make them accessible.

 

The current Archives’ collection is one of Ottawa’s oldest and most valuable holdings of information on the development and evolution of municipal government and the community of Ottawa. This bank of information is irreplaceable. The City has a legislated and fiduciary responsibility to provide proper stewardship of this collection on behalf of today’s residents and future generations.

 

The Program currently occupies approximately 8,582 square feet at 111 Sussex. The Program has an immediate space need of 27,500 square feet to house its program elements and the records from the 12 former municipalities, the Ottawa Transition Board, the Ottawa Public Library, Police Services and OC Transpo. The total Archives Program to meet immediate needs and growth projections for 10 and 25-years respectively (including common spaces) are 47,943[1] and 90,199 sq. ft[2]. These projections were identified by staff, confirmed in the TCI/Commonwealth Report[3], and accepted by the Steering Committee.

 

The following selection criteria were used to assess potential sites:

 

-         A Downtown[4] or central location[5] with proximity to the Library and Archives Canada and the Central Ottawa Public Library

-         Serviced by rapid public transit

-         Adjacent public parking for 35 vehicles

-         Serviced by high-speed communications infrastructure

-         Appropriate zoning

-         Available within relocation timeframe

-         A consideration of City-owned property first

-         A consideration of adaptive re-use of City-owned heritage buildings before constructing new buildings or leasing

-         A capacity to meet program requirements for the next 10 years (47,943 sq. ft.)

-         The potential to meet future growth requirements beyond 10 years (90,199 sq. ft.)

 

Real Property Asset Management (RPAM) identified and investigated 44 potential sites between 2003-2007, including potential leases and fit-up opportunities that could meet the site and Program growth requirements. All potential downtown site options were eliminated due to lack of availability, technical issues, site constraints, etc. A number of potential partnerships for the new facility were also explored, none of which materialized, including co-location with the future Central Library, Library and Archives Canada, and the University of Ottawa. RPAM staff expanded the search outside the Downtown Core to central City-owned property and other sites suggested by community stakeholders (e.g. Vimy House, Lees Avenue Campus of Algonquin College, Hurdman Rapid Transit Station).

 


The following City owned sites and a lease option were retained for further investigation and costing based on meeting immediate and 10-year Archives Program requirements:

 

  1. Retrofit the existing City building at 9-11 Bayview Road.
  2. Construct an entirely new municipal Archives facility as an element of the Centrepointe Lands Development.
  3. Lease and fit-up of space at Vimy House.

 

Council approved on July 11, 2006 (ACS2006-CPS-CSF-0010) the establishment of a Steering Committee (see Document 1 for the membership) to assist staff in identifying the best option with regard to the relocation of the Central Archives. The Committee recommends the Centrepointe Lands as the preferred option. The relocation of the Central Archives to Centrepointe Lands would address current pressures in the Program, provide the Program space requirements for the next 10 years as well as provide flexibility to respond to 25-year growth projections.

 

A public Open House and Information Session was held January 22, 2007 to obtain feedback from the community on the proposed relocation plan and site options. Overall feedback indicated a preference for the Centrepointe option. The following groups are also supportive of this option: the Arts, Heritage and Culture Advisory Committee; Friends of the City of Ottawa Archives; Council of Heritage Organizations in Ottawa/Conseil des organismes du patrimoine d’Ottawa; and the Archives’ partner organizations.

 

The 10-year solution at Centrepointe is estimated at a capital cost of $19,730,000 plus $658,000 annually in operating expenses (2010 cost projections).

 

 

RESUMÉ

 

Les Archives centrales de la Ville d’Ottawa louent un espace au 111, rue Sussex (ancien hôtel de ville de la Ville d’Ottawa) depuis la fusion. Le gouvernement fédéral a informé la Ville que le bail ne sera pas reconduit après le 31 décembre 2010. Afin de pouvoir relocaliser avec succès les Archives centrales d’ici la fin de 2010, le personnel doit développer le programme conceptuel de construction de l’édifice en 2007, procéder à la conception des plans en 2008, lancer des appels d’offre au début de 2009 et procéder aux travaux de construction en 2009.

 

Ce rapport répond à la situation de non-renouvellement du bail et aux directions du Conseil (motion no 27/125 – 2005) selon lesquelles le personnel doit développer un plan à long terme pour les Archives centrales permettant de répondre au désir de la collectivité de trouver une solution à plus long terme pour les Archives, ainsi que de donner suite à la recommandation du Comité de la santé, des loisirs et des services sociaux (Rapport ACS2004-CPS-CFS-0025) qui demande que le plan inclut :

 

-         Le matériel hors du site qui n’est pas protégé adéquatement

-         Le matériel de la Ville qui se trouve actuellement à la Bibliothèque et Archives Canada

-         Un emplacement central pour l’installation

-         Les exigences relatives au plan officiel

-         Les installations de conservation et l’espace d’exposition

Les Archives centrales jouent un rôle clé au sein de la Ville d’Ottawa en acquérant,  préservant, et rendant accessible, comme l’exige la Loi sur les municipalités de l’Ontario, les documents municipaux, lesquels documentent les fonctions opérationnelles et les transactions de la Ville tout en encourageant efficacement la bonne gouvernance, transparence et obligation de rendre de compte.

 

Le programme des Archives joue également un rôle clé dans la préservation de la mémoire collective, de part l’acquisition de documents communautaires que la Ville pourrait perdre à défaut de moyens pour les préserver et les rendre accessibles.

 

La collection actuelle des Archives représente l’une des sources de renseignements les plus anciennes et précieuses de la Ville d’Ottawa au sujet du développement et de l’évolution du gouvernement municipal et du milieu communautaire d’Ottawa. Cette banque d’information est irremplaçable. La Ville a une responsabilité juridique et fiduciaire de protéger adéquatement cette collection au nom des résidants d’aujourd’hui et des générations futures.

 

Le Programme des archives occupe actuellement environ 8 582 pieds carrés au 111, rue Sussex. Le programme a un besoin d’espace immédiat de 27 500 pieds carrés pour regrouper toutes les composantes du programme et les documents des 12 anciennes municipalités, du Conseil de transition d’Ottawa, de la Bibliothèque publique d’Ottawa, des Services de police et d’OC Transpo. Pour que le Programme des archives puisse combler ses besoins immédiats et pour répondre aux prévisions de croissance sur 10 ans et 25 ans respectivement, il faut obtenir un espace total de 47 943 pieds carrés[6] et de 90 199 pieds carrés[7]. Ces prévisions ont été élaborées par le personnel, confirmées dans le rapport TCI/Commonwealth[8] et acceptées par le Comité directeur.

 

Voici les critères de sélection utilisés pour évaluer les sites potentiels :

 

-         Un emplacement au centre-ville[9] ou à un endroit central[10] à proximité de Bibliothèque et Archives Canada et de la Bibliothèque publique centrale d’Ottawa

-         L’emplacement doit être desservi par un système de transport en commun public rapide

-         Le stationnement public adjacent doit pouvoir accueillir 35 véhicules

-         L’emplacement doit être desservi par une infrastructure de communications haute vitesse

-         Le zonage doit être approprié

-         L’espace est disponible en tenant compte du délai de relocalisation

-         On doit tenir compte en premier lieu des propriétés appartenant à la Ville

-         On doit envisager de réutiliser les édifices à valeur patrimoniale appartenant à la Ville en les adaptant aux besoins avant de construire de nouveaux édifices ou de conclure un bail

-         Il faut tenir compte de la capacité de répondre aux exigences du programme pour les 10 prochaines années (47 943 pieds carrés)

-         Il faut envisager le potentiel de répondre aux exigences sur la future croissance excédant 10 ans (90 199 pieds carrés)

 

De 2003 à 2007, la Direction de la gestion des  biens immobiliers (DGBI) a identifié et évalué 44 sites potentiels, y compris les possibilités de location potentielle et de restauration qui pourraient répondre aux exigences relatives au site et à celles liées à la croissance du Programme. On a éliminé toutes les options de relocalisation possibles au centre-ville en raison d’un manque de disponibilité, de questions techniques, de contraintes liées aux sites, etc. On a également exploré plusieurs partenariats potentiels pour la nouvelle installation et aucun ne s’est concrétisé, y compris le partage des locaux avec la future Bibliothèque centrale, Bibliothèque et Archives Canada ainsi que l’Université d’Ottawa. Le personnel de la DGBI a élargi la recherche à l’extérieur du noyau du centre-ville, i.e. aux propriétés centrales appartenant à la Ville et à d’autres sites suggérés par les parties intéressées (p. ex. Maison Vimy, le campus du collège Algonquin sur l’avenue Lees, la station de transport en commun Hurdman).

 

Les sites suivants appartenant à la Ville et une option de location ont été retenus pour de plus amples évaluations et estimations budgétaires en fonction des exigences immédiates et besoins pour les 10 prochaines années du Programme des archives :

 

  1. Rénover l’édifice existant de la Ville au 9-11 chemin Bayview.
  2. Construire une toute nouvelle installation municipale pour les Archives comme une composante du Développement du secteur de Centrepointe.
  3. Louer et aménager l’espace de la Maison Vimy.

 

Le Conseil a approuvé le 11 juillet 2006 (ACS2006-CPS-CSF-0010) la mise sur pied d’un Comité directeur (voir le Document 1 pour la composition du Comité) afin d’assister le personnel dans l’identification de la meilleure option relative à la relocalisation des Archives centrales. Le Comité recommande les terrains à bâtir dans le secteur Centrepointe à titre d’option préférée. La relocalisation des Archives centrales dans le secteur Centrepointe permettrait de répondre aux exigences actuelles du Programme, de fournir l’espace requis par le Programme pour les 10 prochaines années et d’offrir une marge de manœuvre pour répondre aux prévisions en matière de croissance sur 25 ans.

 

Une séance d’information et d’accueil du public a eu lieu le 22 janvier 2007 afin de recueillir les commentaires des membres de la communauté sur le plan de relocalisation proposé et les options relatives au site. Selon les commentaires en général, on privilégiait l’option Centrepointe. Les groupes suivants appuient également cette option : le Comité consultatif sur les arts, le patrimoine et la culture; les amis des Archives de la Ville d’Ottawa; Council of Heritage Organizations in Ottawa/Conseil des organismes du patrimoine d’Ottawa; et, les organismes partenaires des Archives.

 

Le coût d’immobilisation concernant la solution sur 10 ans pour Centrepointe est évalué à 19 730 000 $ auquel il faut ajouter les dépenses d’exploitation de 658 000 $ par année (prévisions des coûts pour 2010).

 

 

BACKGROUND

 

The City Archives Program plays a key role within the Corporation of the City of Ottawa by acquiring, preserving, and providing public access to municipal records, as required under the Ontario Municipal Act, that document the City’s business functions and transactions to encourage effective governance, transparency and accountability.

 

The Central Archives has been leasing space from the federal government at 111 Sussex since amalgamation. The federal government has approved 3 lease extensions. The current cost is $181,231 plus GST. The federal government has advised the City that the Central Archives must vacate by December 31, 2010. There will be no further extensions of the lease.

 

Past attempts since amalgamation at relocating the Central Archives to interim locations (i.e. the Blair Road Fire Station) were not supported by the community and Council due to several factors including location /transit access, no capacity to respond to growth requirements, etc.

 

This report responds to the end of the lease situation as well as Council's expectation (2005 motion 27/125) that staff develop a long-range plan for the Central Archives that addresses the community’s desire for a longer term solution for the Archives and the Health, Recreation and Social Services Committee’s recommendation (Report ACS2004-CPS-CFS-0025) that the plan address:

 

-         The off-site materials that are now not properly protected

-         City material presently held at the Library and Archives Canada

-         A central location for the facility

-         Official Plan requirements

-         Conservation facilities and exhibition space

 

Council also approved on July 11, 2006 (ACS2006-CPS-CSF-0010) the establishment of a Steering Committee to assist staff in identifying the best option with regard to the relocation of the Central Archives.

 

 

DISCUSSION

 

Overview of the City Archives[11] Program

 

A Dual Mandate

 

The City of Ottawa Archives is the corporate authority for making final determinations on the archival value of corporate records and for documenting the City’s history. One of the primary responsibilities of the Archives is to provide the Corporation, its citizens and researchers with a balanced picture of the institution as it evolved over the years. Archival records are essential to effective governance and accountability to citizens in a democracy.

 

The City Archives Program is also a centre for local heritage preservation and programming. It is the only citywide program focused on preserving and making accessible Ottawa’s documentary heritage (civic government and community records) for current residents and for future generations. The Program operates in partnership with community based archival and genealogical societies, and attracts volunteers and student placements.

 

Serving the community in this fashion is a recognized best practice in government archives at all levels of government (municipal, provincial and federal) in Canada and abroad. Examples in Ontario include Library and Archives Canada, the Archives of Ontario, the City of Toronto Archives, Oxford County Archives, Elgin County Archives, and the Archives of the Region of Peel.

 

The dual mandate is a hallmark of the Canadian archival system, enshrined in a 1980 Report (authored by Ian E. Wilson, current Librarian and Archivist of Canada) that established the present Canadian Council of Archives and the network of provincial and territorial councils.

 

The Corporate Mandate of the City Archives

 

Municipalities have an obligation under the Ontario Municipal Act to retain, preserve in a secure manner, and provide public access to municipal records that provide an accurate record of business functions and transactions to encourage effective governance, transparency and accountability. The former City of Ottawa created an Archives Program in 1976 to meet this legislated requirement. The current program contributes to the Corporation’s administrative efficiency as well as the cultural, social, and economic advancement of the City as a free and democratic society.

 

The City Archives is responsible for: (1) promoting good record keeping by the City to facilitate the identification and preservation of civic government records that have enduring value because they document its business functions and transactions; (2) identifying which civic records have archival value and authorizing their transfer to the City Archives for retention and preservation in a secure manner; (3) determining which civic records no longer have any value and authorizing their destruction in accordance with the records retention by-law approved by City Council (Record Retention and Disposition By-Law: ACS2003-CRS-INT-0003); and (4) providing public access to the records in its care.

 

When City Council approved the Ottawa 2020 Arts and Heritage Plan in 2003, it made the City of Ottawa Archives accountable for identifying and preserving the City’s documentary heritage. The Archives’ mandate includes responsibility for the archival records of the 12 former municipalities preceding amalgamation in 2001, the Ottawa Transition Board records, the Ottawa Public Library, Police Services and OC Transpo.

 

The Community Mandate of the City Archives

 

The City Archives Program also plays a key role in preserving community memory by encouraging individuals, organizations and businesses in the community to create their own archives to preserve records that enhance our understanding of the history, evolution and development of the City’s social fabric, natural and built environment, and the people that lived, worked and made significant contributions to the shaping of the City of Ottawa. The City Archives Program acquires community records where they would be lost to the City for lack of a venue to preserve and make them accessible.

 

Archival Principles, Practices, and Standards

 

The City has a responsibility to acquire, document and conserve its collections in accordance with professional practices and standards for the benefit of the public today, and for future generations. An archival program in Ontario must conform to established archival principles, practices, and standards that encompass: (1) appraisal, selection, acquisition, and management of archival holdings; (2) preservation and conservation of archival holdings; (3) making archival records available for continuing use under defined conditions, including meeting copyright, access, and privacy legislation requirements[12].

 

National Recognition

 

The City of Ottawa Archives is certified as a Category A Cultural Institution by the Cultural Property Export Review Board (CPERB). This coveted recognition means that the City Archives can apply for cultural property grants and loans to acquire and preserve records of local or regional significance that may be leaving the country. Also, certification of a body of records as cultural property provides significant income tax incentives to donors, encouraging them to preserve and deposit their records with an archival program rather than destroy or sell their records.

 

Given that this designation is based on the Program’s ability to meet and maintain minimum stewardship standards, the Central Archives may be at risk of losing this designation. One of the consequences of losing this accreditation would be that the Archives would be required to transfer designated collections (such as the Billings Estate Collection) to other accredited archives.

 

City Archives Branches

 

The City Archives Program operates out of three sites to serve urban and rural residents: (1) the Central Archives at 111 Sussex; (2) the Rideau Township Branch in North Gower; and, (3) the Gloucester Branch in Leitrim. The Central Archives provides the leadership, policies, procedures, guidelines and standards consistent with best archival practices. All branches are at capacity in terms of their ability to store records and serve the public. This report addresses only the relocation of the Central Archives at 111 Sussex. The Rideau Branch located at 6581 Fourth Line Road (Main Street) in North Gower, and the Gloucester Branch located at 4550 Bank Street (at Leitrim Road) will continue to operate out of their current facilities to provide service centres in other parts of the City.

 


Community Partnerships

 

The City Archives Program has established partnerships with five resident research organizations and one archives:

 

-         Archives of the Ottawa Conference of the United Church of Canada, Ottawa and Seaway Valley Presbyteries

-         Ontario Genealogical Society - Ottawa Branch

-         Régionale Samuel-de-Champlain Inc. de la Société franco ontarienne d'histoire et de généalogie

-         C. Robert Craig Memorial Library (railway history)

-         The British Isles Family History Society of Greater Ottawa

-         United Empire Loyalists, Sir Guy Carleton Branch

 

These organizations store their research materials at the Central Archives and provide public access to them, while maintaining ownership, custody and management responsibilities for these resources. In exchange for the space, the partners assist Archives staff with reference requests.

 

Friends of the City of Ottawa Archives (FCOA)

 

FCOA is a not-for-profit arms-length organization of 600 plus members dedicated to the promotion and support of the City Archives. For example, through public lectures and other activities, the Friends raise funds to assist the Archives with restoration projects.

 

Students and Volunteers

 

The City Archives Program benefits from the assistance of educational program placement students and volunteers, particularly at the Rideau and Gloucester branches. In 2005, 71 volunteers contributed 8,665 hours across the three branches.

 

Civic Government Records

 

The archival government records of the City of Ottawa and 43 predecessors (including Police Villages) and the information they contain are valuable and irreplaceable assets to the City administration and the residents of Ottawa. The original/official civic records document and provide the best evidence of:

 

-         The origin, development, and organization of the City and its agencies.

-         Legal precedents, rights and obligations of the City and its citizens.

-         Current and historical business functions, activities and transactions.

-         The development and implementation of statutes, regulations, by-laws, agreements, policies and decisions.

-         Significant interactions between the City and its citizens.

-         The history of the evolution of all parts of the City.

 


Community Records

 

More than 350 collections from the community enhance our understanding of the history and evolution of Ottawa. For example, the Billings Family and Estate collection, designated in 1996 as certified cultural property under the Canadian Cultural Property Act, is a signature collection of the Archives containing unique and irreplaceable records of Ottawa's past. Significant records include letters and journals from the mid-19th century, and several daguerreotypes[13] taken in the 1840s – some of the earliest photographs of Ottawa residents.

 

Equally significant is the collection of the Historical Society of Ottawa. The collection contains 168 linear feet and presents a unique snapshot into the early collecting habits of Canada’s museum and historical societies, and the history of Ottawa itself. The earliest document is a land grant dating from 1771. The most recent documents are administrative records of the Society dating to 2003. Prior to the formation of the City of Ottawa Archives in 1977, and the Ottawa Room of the Ottawa Public Library in 1955, the Society was the only non-governmental body collecting documents and information related to the history of the City of Ottawa (1855–) and the former Bytown (1826–1855).

 

Among the Archives’ extensive and valuable photographic holdings is the Andrews-Newton Photographers Ltd. Collection, spanning over 50 years of Ottawa history and consisting of approximately 2,000,000 prints and negatives.

 

Reference Library

 

The Reference Library (non-circulating) contains 2,000 linear feet of published and unpublished items relating to the history of Ottawa and its residents, including a Civic Government Reports Library, reference copies of Council Minutes and By-laws from the former municipalities and the current City of Ottawa, local histories, and an extensive genealogical collection of over 6,000 volumes owned by the partner organizations.

 

Serving Council, the Corporation and the Public

 

The Archives Program serves over 30 patrons daily and responds to 8,000 requests for information/documents annually.

 

The Archives serves Council and all City departments. The following provides a partial list of the inquiries and types of corporate records that were requested from Archives Program staff in 2006:

 

-         Original document confirming the City’s ownership of a property in order to revise records at the Land Registry Office

-         Original agreements including those registered on title

-         Minutes of Council & Committees of Council to confirm specific policy decisions

-         Reports considered by Council & Committees of Council when making policy decisions

-         By-laws

-         Records documenting the evolution of public health in the City

-         Bilingualism/official languages policies in former municipalities

-         Rights and obligations related to the Triple A baseball stadium

-         Municipal Drain records from former municipalities

-         Assessment Rolls

-         History behind specific street names

-         Ottawa Transition Board reports and decisions

-         Historical plans of bridges, structures, sewer & water systems

-         Historical budget documents approved by former Councils

-         Geographical boundaries of former municipalities

-         Inaugural & farewell speeches by former Mayors

-         Queensway development including expropriations

-         Historical election results and statistics on voter turnout

-         Reports and studies related to: archaeology, cycle paths, environment, expropriations, flooding, heritage conservation, landfill sites, soil, traffic, transitway, urban renewal, waste management, and the infrastructure including roads & sewers

 

External users of the Archives Program include the media, genealogists, students and academic researchers, historians, land planners, architects, legal and real-estate professionals, staff from other levels of government, etc. Residents of Ottawa, Gatineau and visitors from outside the region also use the City Archives.

 

Typical records consulted by external users of the Archives include:

 

-         Assessment rolls to confirm property values

-         Photographs for property and neighborhood research, historical designation, and building renovations

-         City directories for historical land-use, and to track development and expansion of the City, residents for genealogical purposes and land-ownership

-         Aerial photographs, maps and other land-use documents to confirm prior use, such as dumps, chemical storage, and industrial uses

-         Bylaws to determine historical obligations on land, zoning, and civic responsibility, such as smoking regulations

-         Land-registry copy books in order to obtain official records from Land-Registry Office

-         Fire Insurance plans to document changes to landscape, neighborhoods, and structures within the City of Ottawa

-         Newspapers, such as Le Droit, The Citizen, and the Ottawa Journal

-         Private papers and manuscripts for research purposes, such as the Archives' extensive literary collection, women's history, trades, and commercial activity, transportation

-         Records of hospitals and schools to track historical patterns in public health and education

-         The Archives partner library holdings to conduct genealogical, neighborhood, and transportation research

-         Private papers and extensive photographic holdings to document and confirm events, for display and exhibition purposes, and for personal use

 


A Stewardship Crisis

 

The Archives’ collection is one of Ottawa’s most valuable holdings of information resources on the development and evolution of municipal government and Greater Ottawa. Settlement in the Ottawa area began in the 1790’s, making the City one of the oldest in Canada. Created in 1976, the Archives Program has the stewardship of an irreplaceable bank of information. The City has a legislated and fiduciary responsibility to provide appropriate stewardship of this collection on behalf of today’s residents and future generations.

 

The archival holdings include textual records, electronic records, rare books, historical publications, maps, plans, microfilms, films, photographs, documentary art, gifts presented to the Mayor, chains of office and corporate memorabilia dating back 200 years. The extent and location of current archival holdings, in linear feet, is summarized in Table 1 below.

 

TABLE 1: Summary of Archival Holdings (Linear Feet[14])

 

Location

Textual

Photo

Maps & Plans

Artifacts

Total

Central Archives Vault (111 Sussex)

5,479

333

250

-

6,063

Rideau Township Branch

250

4

14

-

268

Gloucester Branch

375

20

30

-

425

Ben Franklin Place (storage facility)

208

-

8

-

217

Diefenbunker (storage facility)

100

-

-

108

208

Commercial Storage

a) Identified archival holdings stored off-site

4,800

 

50

-

4,850

b) Estimate of dormant civic records with archival value from all former municipalities that need to be transferred to the custody of City Archives

41,682

750

6,650

-

49,082

Totals

52,894

1,108

7,003

108

61,113

 

The only environmentally controlled document storage area that meets some of the long-term preservation standards is the vault located at the Central Archives at 111 Sussex. Elsewhere, as noted in Table 2, the City’s archival holdings are at risk of damage from repeated handling during transportation and improper storage conditions, i.e. exposure to water, fire, high humidity levels leading to mould outbreaks, dust and other air borne pollutants, etc.

 

The bulk of existing holdings in the custody of the City Archives consists of civic government records for the City of Ottawa including the 12 former municipalities and their antecedents, the Ottawa Public Library, Police Services and OC Transpo. These holdings include: original by-laws, original minutes of Council and Committees of Council, legal agreements, assessment rolls, historical maps, historical photographs of major civic events, plans of major structures and City infrastructure, extensive holdings of departmental operational records, etc.

 

Table 2: Summary of Issues With Current Archival Storage Facilities

 

Location

Issues

Central Archives Vault

111 Sussex Drive

·        Climate-controlled vault but limited control over air borne pollution

·        No ability to provide media specific climates (e.g. cold storage for photographic negatives)

·        Located underground under a surface pond of water

·        Some archival holdings damaged due to overcrowding

·        Some archival holdings damaged due to lack of space for oversize document storage

·        At capacity

Rideau Township Branch

6581 Fourth Line Road (Main Street)
North Gower

·        Seasonal fluctuations in temperature and humidity

·        Limited fire protection

·        At capacity

Gloucester Branch

4550 Bank Street (at Leitrim Road)

·         Limited security and fire protection

·         No control over dust and air borne pollution

·         Fluctuating temperatures and humidity

·         Site has experienced flooding in the past

·         Some holdings have suffered water damage and required remediation

·         At capacity

 

Ben Franklin Place (storage facility)

101 Centrepointe Drive

·         Limited security

·         No control over dust and air borne pollution

·         Major seasonal relative humidity

·         Adjacent room contains hazardous materials

·         At capacity

 

Diefenbunker (storage facility): Rental

·         Damp

·         Major seasonal relative humidity

·         Mould beginning to form on objects

·         Damaged items will require expensive remediation

 

IronMountain (commercial storage): Rental

·         No control over dust and air borne pollution

·         Variable temperatures and humidity levels

·         High density stacking of boxes (3 high x 3 deep) can damage records

·         Some records are damaged when retrieved for reference as a result of repeated handling and transportation

·         Some archival holdings damaged in fire of July 11, 2006

·         Some damaged archival records will require expensive remediation

·         In the event of a disaster, the Archives has no control over disaster recovery planning and priorities for recovery and restoration

·         Facility designed for short-term storage not long term archival storage

 

 

 

Municipal Government and Community Records in the Custody of Other Government Archives

 

While collecting municipal records is not in their current mandates, the Archives of Ontario, and Library and Archives Canada, have in their custody municipal government and community records collected by them for safe keeping prior to the creation of municipal archives in the Ottawa area. Both institutions will transfer municipal records and private collections of local and regional significance from their collections to municipal archives when requested subject to negotiations.

 

A limited survey of their holdings indicate that at least 2,700 linear feet could be repatriated in the future providing that the City of Ottawa has an Archives Program and facility that meets the required standards.

 

Recent transfers of collections of local interest to the City of Ottawa Archives include the Kenneth Greene collection (a prominent Ottawa family) and an early daybook (ca. 1915-1917) of Dr. Andrew P. Davies of Ottawa, both from the Archives of Ontario. Possible future transfers might include the records of the Ottawa Little Theatre, the Ottawa Philharmonic Orchestra, the Ottawa Electric Railway, Bytown and Nepean Road Company, the papers of Art Price (sculptor who created current coat-of-arms), McLeod Stewart (former mayor of Ottawa), John Heney (a prominent entrepreneur and City alderman) and Alexander Christie (founder of the Bytown Gazette).

 

Examples of civic records held by the provincial or federal archives include Carleton County records (1842-1902) including original Council minutes; Eastview records (1909-1965); Fitzroy/Huntley Township records (1850-1964) including Council minutes, by-laws, birth, death and marriage registers, and assessment rolls; March Township records (1822-1869) including original minutes and town clerk records; Nepean Township records (1851-1960) including minutes of township meetings, deeds, and assessment rolls.

Examples of civic records include ….

 

Efficiency of Information Storage and Retrieval

 

The City can significantly improve the efficiency of information retrieval by centralizing the majority of all civic records with archival value and with a permanent retention period in one City Archives vault. In addition, restoration costs can be avoided if archival records are stored in a climate-controlled vault adjacent to the public reference room where the damage due to handling and transportation is minimized, rather than storing them in multiple facilities that do not meet the recommended preservation standards and where transportation to another reference facility is required.

 

Central Archives Program Requirements

 

An Archives Program requires sufficient space for collections management, reference services, storage, exhibit and public programming, and program support. The following section provides details on each of the key program elements (see Table 3 for a summary). All of these program elements are typical best practices in contemporary archival programs. See Document 4 for more examples of best practice archival programs in Canada.

 

Archival Vault

 

The archival vault is the main storage area for the archival materials, where the holdings are kept under strict security and environmental conditions to ensure long-term preservation. To ensure their long-term preservation, archival storage space must meet environmental conditions specific to each medium (e.g. for paper, the recommendations are a temperature of 18 degrees Celsius, relative humidity 40%, maximum fluctuation of 2% year-round). In addition, air must be filtered to remove air borne pollution and dust particles. As noted in Table 2, the current vault at 111 Sussex doesn’t meet all of these requirements and is too small to accommodate Archives Program needs.

 

Responding to the previously mentioned HRSS motion, a new vault would permit the consolidation of archival holdings from the former 12 municipalities, the Ottawa Transition Board, OC Transpo, Police Services and the Ottawa Public Library held at 111 Sussex, Iron Mountain and in three non-commercial offsite storage locations (Gloucester, Ben Franklin, Diefenbunker). The new vault would also offer the potential to repatriate municipal government and community records currently held by the Archives of Ontario and Library and Archives Canada.

 

The immediate, 10 and 25-year growth projections are respectively 7,141 sq. ft., 20,375 sq. ft. and 48,678 sq. ft. of space. The calculation of the square feet required is based on the number of linear feet of storage space required converted into square feet. This conversion assumes the use of high-density mobile racking in a room 3 stories high, which reduces considerably the footprint needed to house the records, and is a highly efficient way to store archival materials.[15]

 

The estimate of future storage requirements is based upon an initial 10% growth factor to 2015 (compounded annually), with a reduction of ½ % per annum until 2030. The 10% annual growth factor is based on an estimate of 7% for corporate records and 3% for community records. As the City ages, and the Archives has a facility to adequately house archival records, more not-for-profit community organizations and residents will transfer archival records to the care and custody of the City. These conservative growth estimates reflect industry experience. The annual reduction starting in 2015 is an acknowledgement of the gradual importance of electronic records as primary documents.

 

Reference Space for Researchers

 

Approximately 5,000 patrons visit the current reference room at 111 Sussex annually to consult archival materials. It can only accommodate 10 researchers comfortably[16] but up to 20 people may use the reference room daily. On-site research has increased by 22% to 33% per annum since amalgamation. Demand is anticipated to continue to increase. Accordingly, the 10 and 25-year growth projections identify an expansion to 5,295 sq. ft. and 6,275 sq. ft. to accommodate up to 25 researchers at the same time in the reference room.

 

Program Space

 

Additional Archives Program space is also required to house current and future staff, interns, and volunteers. At present, 900 sq. ft. is allocated for this purpose, which is inadequate to accommodate staff (7-8), partners (5), volunteers and interns (1-6). The 10 and 25-year growth forecasts are respectively 1,650 sq. ft and 1,950 sq. ft.

 

Dealing with Potential Infestations

 

A triage room of 200 sq. ft. is needed to house collections suffering from pest and mould infestations or other conditions considered harmful to the rest of the holdings. These collections would be treated in the conservation lab before being transferred to the processing area and the vault.

 

Processing Documents

 

Space for document processing (1,200 sq. ft.) is required, where archival materials can be processed, arranged, catalogued and described using the collections management system. At present, the City Archives lacks the space to perform this essential function. Processing is currently performed in offices, the reference room (at the expense of clients), the lunch room or other public spaces. Secure dedicated space is required to allow archivists to lay out material, or process large collections efficiently and in context. Security considerations also dictate that records be processed away from public areas.

 

Photographic and Digital Imaging

 

At present, space for a photographic and digital imaging lab is provided at 111 Sussex to make preservation copies of valuable negatives, images, paintings, etc. This area requires a modest increase (18 sq. ft.) in the foreseeable future to better house staff and the equipment used. This space allows the photographic technician to manage and process photographic collections, reproduce records and images for preservation purposes as well as in response to client requests, and to coordinate the production of Archives exhibitions. Approximately 2,200 client requests for images are processed yearly. The photo technician also digitally reproduces several hundred images to add to the Archives collection from copies received by donors, or to make fragile originals more accessible to researchers.

 

Preservation of Collections

 

The long-term preservation of holdings is a public trust responsibility and a fundamental function of an archival program. A 1,000 sq. ft. preservation lab, specifically tailored to the needs of archival materials (as opposed to artifacts) is required. This facility would house specialized equipment used by a conservator to treat and remediate fragile archival materials prior to use by the public, or to prevent further damage, or to undertake interventions to mitigate health and safety issues (e.g. removal of mould, dust, and other contaminants). The former City of Ottawa Archives Program had a conservator and lab from 1976 to 1996 when budget reductions forced the closure of this program component. This program element would also address the previously mentioned HRSS motion. The Central Archives could also extend its preservation services to the City’s community museums and other local archives.

 

School and Public Programming

 

Classroom/workshop space of 300 sq. ft. for on-site public programming will allow the Archives to host school visits geared to curriculum objectives, general or specialized tours and public meetings to foster citizen participation and engagement in local heritage. This space will leverage the proximity of specialized Archives Program components such as the Archives Reference Library and the Preservation Lab to facilitate workshops of a more technical nature (e.g. preservation of photographs).

 

An environmentally controlled exhibit area of 2,000 sq. ft. will permit the Archives to raise public awareness of the role of the Archives in the community and showcase its holdings (including rare and fragile archival records) through permanent and temporary exhibits, thereby also contributing to the telling of the Greater Ottawa Story. Currently, the Archives doesn’t have an exhibit space of its own and has limited resources to support this function. One temporary two-month annual exhibit is hosted at the City Hall Art Gallery. A dedicated space in the new facility would enable the Archives to reach more people (the exhibits would run over a longer time frame) and reduce security and preservation concerns with respect to the materials on display. These thematic exhibits (examples of past exhibits include the 1998 Ice Storm, History of Football in Ottawa, the 2005 150th anniversary of Ottawa), have attracted thousands of visitors and residents and received positive feedback. This program element would also address the previously mentioned HRSS motion.

 

Revenue Generation

 

A gift shop of 150 sq. ft. selling reproductions of materials from the Archives, materials for researchers, local histories, etc., will assist in generating revenues for the Archives and help promote its existence and services to the community. Visitor feedback at the Archives’ exhibits has established that there is a demand for reproductions. The Archives currently sells approximately 2,000 images per year. Volunteers may assist with staffing this program element.

 

Volunteer Support

 

Recognizing the current and ongoing practice of utilizing volunteers and educational interns in a variety of functions, a volunteer lounge of 300 sq. ft. will support volunteers and interns.

 

Central Archives Program: summary of Immediate Needs and Growth Projections

 

Table 3 below presents the current space allocated to the Central Archives, the Program’s immediate needs following municipal amalgamation in 2001, and 10 and 25-year growth projections as initially developed by staff and subsequently confirmed in the TCI/Commonwealth Report (Project Parameters and High Level Business Case for the New Central Library, Arts and Heritage Centre, TCI Management Consultants and Commonwealth Historic Resource Management Ltd, July 2005). These growth projections were also accepted by the Steering Committee.

 

The Program currently occupies approximately 8,582 square feet at 111 Sussex. The Program has an immediate space need of 27,500 square feet to house its program elements and the records from the 12 former municipalities, the Ottawa Transition Board, the Ottawa Public Library, Police Services and OC Transpo. The total Archives Program to meet immediate needs and growth projections for 10 and 25-years respectively are 47,943[17] and 90,199 sq. ft[18].

 


TABLE 3: Archives Program Requirements (Square Feet)

 

Program Components

Current Space

(111 Sussex)

Immediate Needs

10 years

25 years

Archival Vault

1,600

7,141[19]

20,375

48,678

Reference Services

2,987

4,615

5,295

6,275

Program Support Space

922

1,562

1,650

1,950

Archival Holdings Processing Area

0

600

1,200

1,200

Photographic and digital imaging lab

307

325

325

325

Preservation lab

0

1,000

1,000

1,000

Secure equipment and supply storage

176

1,000

1,000

1,000

Acquisitions Triage Room

0

200

200

200

Loading dock and receiving area

0

400

400

400

Lunch room

138

200

200

200

Exhibits and displays

0

2,000

2,000

2,000

Classroom/workshop space

0

300

300

600

Gift Shop

0

150

150

300

Volunteers' lounge

0

150

150

300

Square Feet

6,130

19,643

34,245

64,428

Gross up (40%) in Square Feet

2,452

7,857

13,698

25,771

Total Square Feet

8,582

27,501

47,943

90,199

 

 

Directives Regarding the Central Archives Program

 

The 2003 Council approved Ottawa 20/20 Heritage Plan commits the City to:

 

-         Maintain a City Archives Program with a corporate and community mandate;

-         Move the Central Archives to a new permanent facility;

-         Provide the necessary storage facilities to house archival, museum and archaeological collections, including maintaining archival collections in a facility that provides the environmental conditions necessary for long-term preservation;

-         Enhance public programming at community and City-run museums and archives, particularly curriculum-based educational programs, special events, temporary and permanent exhibitions and virtual productions;

-         Consider the adaptive re-use of City-owned heritage buildings before constructing new buildings or leasing.

 

The City's Official Plan (section 3.6.7) requires that new "Major Urban Facilities" including "cultural facilities" which "usually service the entire city" will be located at a rapid-transit station and have direct access to an arterial road.

 

The City’s policy on the acquisition of real property requires that the City look to its own properties first to meet its program needs.

 

This report responds to the end of the lease situation as well as Council's expectation (2005 motion 27/125) that staff develop a long-range plan for the Central Archives that addresses community’s desire for a longer term solution for the Archives and the Health, Recreation and Social Services Committee’s recommendation (Report ACS2004-CPS-CFS-0025) that the plan address:

 

-         The off-site materials that are now not properly protected

-         City material presently held at the Library and Archives Canada

-         A central location

-         Official Plan requirements

-         Conservation facilities and exhibition space

 

Site Selection Criteria

 

The site selection criteria noted below respond to the above directions and program requirements:

 

-         A Downtown[20] or central location[21] with proximity to the Library and Archives Canada and the Central Ottawa Public Library

-         Serviced by rapid public transit

-         Adjacent public parking for 35 vehicles

-         Serviced by high-speed communications infrastructure

-         Appropriate zoning

-         Available within relocation timeframe

-         City-owned property be considered first before other options

-         Adaptive re-use of City-owned heritage buildings be considered before constructing new buildings or leasing

-         A capacity to meet program requirements for the next 10 years (47,943 sq. ft.)

-         The potential to meet future growth requirements beyond 10 years (90,199 sq. ft.)

 

Potential Partnerships Explored

 

Central Library Co-Location

 

The possibility of co-locating the Central Archives with the future Central Library was considered over the past few years but abandoned for the following reasons:

 

a)      The 2005 study Project Parameters and High Level Business Case for a New Central Library, Arts and Heritage Centre[22] demonstrated the significant challenge of finding sufficient land and funding to accommodate both program requirements;

b)      The timelines for both projects do not align. The Central Archives must relocate by the end of 2010, with construction starting in mid-2009. The Central Library does not have a fixed deadline for relocation. Contingent on funding, construction is currently estimated to start in 2011 with opening of the Central Library in 2015.

c)      Waiting until the Central Library is ready to proceed would require an interim move for the Central Archives. The delay in addressing the Archives’ needs will continue to put the archival holdings at risk, compound current Program operational challenges, and repeated moves will introduce significant risks to the holdings; and

d)      There is no guarantee that enough land can be assembled in the future in a suitable downtown location to meet the needs of both programs.

 

Library and Archives Canada

 

Library and Archives Canada were approached regarding a possible partnership. They confirmed that their responsibility is to the Government of Canada and that any changes in responsibility would require an amendment to their enabling legislation.

 

University of Ottawa

 

In January 2007, the University of Ottawa announced the purchase of the former Algonquin College Lees Avenue Campus and site. The University was approached to explore the possibility of accommodating the Central Archives on that site. The University of Ottawa confirmed that it requires all of the current buildings for administrative and educational functions. The remaining land is contaminated.

 

Sites Considered and Cost Implications

 

Using the site criteria outlined above, Real Property Asset Management (RPAM) identified and investigated 44 potential sites between 2003-2007, including potential leases and fit-up opportunities that could meet the site and Program growth requirements.

 

All potential downtown site options were eliminated due to lack of availability, technical issues, site constraints, etc. See Document 2 for a list of the sites investigated.

 

RPAM staff were requested to expand the search outside the Downtown Core to central City-owned property and other sites suggested by community stakeholders (e.g. Vimy House, Lees Avenue Campus of Algonquin College, Hurdman Rapid Transit Station). The following City owned sites and a lease option were retained for further investigation and costing based on meeting the immediate and 10-year Archives Program requirements:

 

  1. Retrofit the existing City building at 9-11 Bayview Road.
  2. Construct an entirely new municipal Archives facility as an element of the Centrepointe Lands Development.
  3. Lease and fit-up of space at Vimy House.

 

The Vimy House option was eliminated during the period of investigation when it was withdrawn from the market. The cost analysis, however, demonstrated that there would be no cost savings in a lease option (for a 10-year solution) and the initial fit-up investment would be lost at the end of the lease.

 

Table 4 below presents the high-level cost estimates and assumptions for the two retained shortlisted options.

 

TABLE 4: High-Level Cost Estimates for Shortlisted Options

 

Option

Notes

Design and Construction

Operating Costs

Total Costs

1.      Reconstruct 9-11 Bayview Road Site

§       Assumes partial demolition and reconstruction of existing City facility

§       Current building can only accommodate a Program Requirement of 44,000 sq. ft. which is less than the 10-year growth forecast

§       Expansion beyond 44,000 sq. ft. would require environmental soil remediation due to site contamination

§       Site provides sufficient reserve landmass for 25-year requirements providing environmental issues are addressed

§       Costing information is based on 2010 cost projections

 

$18,830,000

$658,000[23]

$19,488,000

2.      Construct Municipal Archives Facility on Centrepointe Lands

§       Site can accommodate a 10-year solution of 48,000 sq. ft.

§       Will require adjacent land reservation for 25-year needs at 90,000 sq. ft.

§       Costing information is based on 2010 cost projections

 

$19,730,000

$658,000

$20,388,000

 

Option Analysis: 9-11 Bayview

 

The former City Works Yard building and land at 9-11 Bayview presents opportunities and constraints including:

 

-          The location is adjacent to the downtown core and within 2 kilometres of Library and Archives Canada

-          This older City owned building, built between 1933 and 1947[24], is recommended for consideration for a heritage designation under the Ontario Heritage Act

-          The site is a Brownfield (a former industrial site and landfill)

-          The existing building, however, cannot accommodate the 10-year Program requirements within the current footprint

-          Working within the footprint of the existing building would compromise Program requirements and make it more difficult to meet Archival needs and standards

-          Built over landfill, the building may suffer from structural issues over time as the soil beneath it settles

-          Soil contamination restricts future Archives expansion beyond the existing footprint

-          Vapours emanating from the surrounding contaminated soil may be harmful to the archival holdings

-          The uncertain future of the neighbourhood’s development could isolate the Archives for a long period of time

-          Stakeholders are concerned about security and the distance between the building and rapid transit

 

Option Analysis: Centrepointe Lands

 

The Centrepointe Lands option presents opportunities and constraints including:

 

-          While not located in the downtown core, this option is situated in the geographic centre of the new City

-          This is a City-planned development that offers several potential location options for the Archives facility

-          Program requirements for 10 years and space to meet future growth requirements can be met

-          There is a significant concentration of Archives clients (City staff) at this site in municipal facilities

-          Cultural facilities such as the Centrepointe Branch of the Ottawa Public Library and the Centrepointe Theatre are already established there and offer partnership opportunities

-          The adjacent Algonquin College presents further opportunities for internship partnerships and other forms of collaboration between the Archives and the College, particularly the Museology Program

-          The accessibility of the site by rapid transit and bus service from all parts of the City and the Queensway meets Official Plan requirements

-          Another proposed municipal cultural facility, the Preservation Centre for museum artefact preservation (identified in 2012 in the LRFP 3) could be located here in the future creating further synergies with the Archives and Algonquin College.

 

Steering Committee Recommendations

 

The Central Archives Relocation Steering Committee recommends the Centrepointe Lands as the preferred option.

 

The Committee also recommends that:

-         The new building address immediate and 10-year Archives Program requirements, including provision for repatriation of off-site materials not now properly protected, city material currently held at Library and Archives Canada and the Archives of Ontario, and other program elements in accordance with the recommendations of the Health, Recreation and Social Services Committee (Report ACS2004-CPS-CFS-0025);

-         Sufficient land be reserved to accommodate the Archives’ 25-year growth projections;

-         The building be designed with expansion in mind;

-         The building be located on the Centrepointe site at a location convenient to public transit, yet at sufficient distance to protect the holding from pollution and vibration, in accordance with the requirements of the Official Plan.

 

Cost Estimates (Class D) for Centrepointe Option

 

The 10-year solution at Centrepointe is estimated at a capital cost of $19,730,000, which includes the following:

 

-         $3,530,000 for project management, site use and design development studies of which $1,500,000 has already been committed in project 903471 plus

-         $16,200,000 for construction, program fit-up equipment and move costs.

 

The operating costs associated with this project include the following:

 

-         $250,000 in Archives Program costs including 3 new FTEs for 2009; and,

-         $408,000 for annual facility operating and maintenance costs for 2010.

 

Archives Program costs include a budget for conservation and exhibits, and 3 additional FTEs to meet Program needs: a Conservator, an Archives Vault Technician, and an Archival Records Processing Technician. Once offset by the cost of the current lease at 111 Sussex ($185,000/year), the annual operating budget pressure associated with this facility will be approximately $475,000/year.

 

Costing information is based on 2010 cost projections.

 

Next Steps

 

To successfully relocate the Central Branch by the end of 2010, staff must proceed to the conceptual building program in 2007, concept/design stage in 2008, issue tenders in early 2009, and proceed to construction in 2009.

 

ENVIRONMENTAL IMPLICATIONS

 

The Bayview site is a contaminated “Brownfield”. Estimated costs to retrofit the existing City building at 9-11 Bayview for City Archives use (which does not meet the 10-year Program requirements) assumes no soil disturbance and therefore no environmental or site remediation costs. RPAM would be required to prepare a "Record of Site Condition" based on a site assessment prepared by an external environmental consultant.

 

CONSULTATION

 

Internal

 

Staff from several City Departments (Real Property Asset Management, Comprehensive Asset Management, Finance, Ottawa Public Library, etc.) were consulted during the development of the Archives long range plan and the preparation of this report.

 

Central Archives Relocation Steering Committee

 

On July 11, 2006, Council approved the establishment of a Steering Committee to assist the City in identifying the best option with regards to the relocation of the Central Archives. The Steering committee is composed of 2 Councillors, 6 community leaders and staff. Please refer to Document 1 for a list of committee members. The Steering Committee met 8 times between September 2006 and January 2007 and achieved the following to date:

 

1.      Reviewed the current and future Archives Program requirements developed by staff

2.      Provided feedback on various relocation options to accommodate the Archives Program requirements. These options included new construction on City owned lands; retrofit of City buildings; relocation to leased facilities; and other potential solutions

3.      Provided feedback on the feasibility, costing implications and funding opportunities of various options

4.      Consulted with stakeholders

5.      Provided feedback on recommendations to Community and Protective Services Committee and Council, as required.

 

 

 

Arts, Heritage and Culture Advisory Committee to Council (AHCAC)

 

Regular updates from the Steering Committee and staff were provided to the Arts, Heritage and Culture Advisory Committee. AHCAC passed a supporting motion January 25, 2007 for the Centrepointe option (see Document 3 for the Committee report).

 

Community

 

A public Open House and Information Session was held January 22, 2007 to obtain feedback from the community on the proposed relocation plan and site options. 60 people in total attended this session. 23 comments were received in writing at the meeting and by email.

 

Overall feedback indicated a preference for the Centrepointe option. Two individuals said that they do not support the Centrepointe option.

 

Friends of the City of Ottawa Archives (FCOA)

 

FCOA formally expressed support for the Centrepointe option in a written brief.

 

Council of Heritage Organizations in Ottawa/Conseil des organismes du patrimoine d’Ottawa (CHOO/COPO)

 

CHOO/COPO believes that the Centrepointe option best meets the needs of current and future users of the Central Archives.

 

Partner Organizations

 

The resident partner research organizations have also expressed their support for the Centrepointe option.

 

FINANCIAL IMPLICATIONS

 

The Archives Relocation Project recommended in this report will be funded from the Strategic Initiative (SI) funding envelope of the 2008 Capital Budget. The 2007 SI funding envelope to be considered by Council in the 2007 budget deliberations is $9.5M. The 2008 SI envelope would have to be increased to accommodate the recommendations contained in this report.

 

NEW AND FURTHER DEVELOPMENTS

 

The City’s Brownfields Redevelopment Strategy for the urban area boundary identifies the “Nicholas-Mann Gateway” as a signature brownfield redevelopment project. The City of Ottawa owns approximately 3.7 acres within that site that might accommodate the Central Archives facility. However, site specific environmental and geotechnical investigations would have to be undertaken in 2007 to assess the extent of contamination and the costs of addressing this issue. Also, the site doesn’t currently have an established adjacent Rapid Transit Station. Finally, the needs of the City would also have to be integrated into the collaborative community consultation process that is underway under the chairmanship of Councillor Georges Bédard. The timelines for both projects may not align.

 

Given the need to determine the environmental status of the City's property as part of the Gateway project and also the need to have this information available as soon as possible for evaluating the site's potential for Central Archives use, the Real Estate Services Division (RESD) is commencing the process to have the required environmental site assessment(s) initiated in February 2007.

 

Note that the potential of the Nicholas-Mann Gateway as an option for the Central Archives was not identified soon enough to be considered by the Central Archives Relocation Steering Committee and was therefore not an option during the associated community consultations.

 

SUPPORTING DOCUMENTATION

 

Document 1 – Central Archives Relocation Steering Committee Members

Document 2 – Central Archives site options investigated between 2002-2007

Document 3 - Arts, Heritage and Culture Advisory Committee memo date January 31,2007

Document 4 – Overview of selected archival programs in Canada

 

DISPOSITION

 

The Community and Protective Services Department will implement the decisions of Committee and Council.


DOCUMENT 1

 

 

CENTRAL ARCHIVES RELOCATION STEERING COMMITTEE MEMBERS

 

Clive Doucet                      Councillor

Peggy Feltmate                   Councillor

John Reid                           AHCAC representative

Jean Bruce                         AHCAC representative

John Heney                        Friends of the City of Ottawa Archives representative

Betty Warburton                 City Archives Partner Organizations representative

Michel Prévost                   University of Ottawa Archives representative

Françoise Bouvier               Library and Archives Canada representative

Debbie Hill                         Cultural Services & Community Funding

Gilles Séguin                       Cultural Services & Community Funding

Suzie Lanteigne                   Cultural Services & Community Funding

Colleen Hendrick                Cultural Services & Community Funding (Committee Chair)

 


DOCUMENT 2

 

central Archives Site Options INVESTIGATED BETWEEN 2002- 2007

 

Sites considered prior to 2005 were evaluated using different criteria than those identified in this report. Many of these sites are much smaller and do not come close to meeting immediate needs and 10-year requirements for 48,000 sq. ft.

 

2002 and 2003

 

 

Sites Considered

Reason for Rejection

1

2020 Walkley Road

Lease at 111 Sussex extended

2

100 Constellation Crescent

Insufficient space available

3

65 Auriga Drive

Funding not available coincident with lease opportunity

4

Carlingwood Shopping Centre

No alignment with technical criteria

5

Baxter Centre

Incompatible lease terms and conditions

6

Herongate Mall

Incompatible lease terms and conditions

7

26 Auriga Drive

Incompatible lease terms and conditions

8

2405 St.Laurent Boulevard

Unknown probable lease issues

9

2935 Conroy Rd

Incompatible lease terms

10

955 Green Valley Drive

Outside defined geographic boundaries and technical compliance issues

11

50 Hines

Unknown probable lease issues

12

80 Hines

Unknown probable lease issues

 

2003 and 2004

 

 

Sites Considered

Reason for Rejection

13

1700 Blair Road Protective Services Centre

Lease at 111 Sussex extended

14

330 Gilmour Street

Inadequate lease term

15

62-56 Sparks Street

Non compliant with Archives Program requirements

16

130 Slater Street

Non compliant with Archives Program requirements

17

200 Elgin Street

Insufficient floor loading capacity

18

473 Albert Street

Insufficient floor loading capacity

19

340 MacLeod Street

Insufficient floor loading capacity

20

222 Nepean Street

Insufficient lease term

21

190 O’Connor Street

Non compliant with Archives Program requirements

22

Canadian War Museum – Canada Lands Disposal

Not available at the time

23

150 Isabella

Insufficient floor loading capacity

24

200 Catherine Street

Insufficient floor loading capacity

25

245 Cooper Street Floor

Loading and compliance issues

26

377 Dalhousie Street

Floor loading and compliance issues

27

279 Laurier Street

Floor loading and compliance issues

28

Ottawa Main Library Branch

Re-fit and relocation costs prohibitive

29

Sir Richard Scott Building

Inadequate lease term

30

359 Kent Street Legion Bldg

Did not meet any of the criteria

31

55 Metcalfe Street

Floor loading and compliance

32

Ottawa Technical High School

Not available

33

Temporary Parliamentary Library Space (Sparks St.)

Insufficient lease term and co location issues

 

2006

 

 

Sites Considered

Rational

34

9-11 Bayview Road – Building Seven Redevelopment

Option remains

35

Vimy House – 255 City Centre

Property no longer available

36

National Conference Centre – 2 Rideau Street

Non compliant with Archives Program requirements

37

Centrepointe Lands

Option remains

38

Ottawa City Hall Complex – 110 Laurier

Site constraints and construction costs

39

150 Elgin Street

Limited viability based on development plan

40

Ben Franklin Place – 101 Centrepointe Drive

Site constraints and construction costs

41

Former Canadian War Museum – 330 Sussex Drive

Property no longer available, significant costs associated with retrofit

42

Lansdowne Horticultural Building – 1015 Bank Street

Insufficient size, high costs and site management issues

43

School Board Admin Building – Albert Street

Insufficient floor loading capacity

 

2007

 

 

Sites Considered

Rational

44

Previous Lees Avenue Campus of Algonquin College

Sold to the University of Ottawa. No partnering interest.

 


DOCUMENT 3

 

M E M O / N O T E D E S E R V I C E

 

 

To / Destinataire

Colleen Hendrick,

Director, Cultural Services and Community Funding, Community and Protective Services

File/N° de fichier:

G06 43 07 01

From / Expéditeur

Advisory Committee Coordinator,

Arts, Heritage and Culture Advisory Committee

 

Subject / Objet

City Archives Relocation

Date: 31 January 2007

 

At its meeting on 25 January 2007, the Arts, Heritage and Culture Advisory Committee (AHCAC) received a presentation and update from City staff of the Community and Protective Services department regarding the City Archives relocation.

 

As part of its mandate, the AHCAC has been providing continuous input to staff on the Archives relocation. A member of the AHCAC sits on the Archives Relocation Steering Committee and has provided the AHCAC with regular updates on the Steering Committee’s discussions.

 

On 22 January 2007, AHCAC members and staff co-hosted an open house and public information session to discuss the Steering Committee’s short listed options for the relocation of the Ottawa City Archives Main Branch. Of the options presented, the majority of public support was given to the Centrepointe Lands site. Likewise, having reviewed the options and information presented, the Arts, Heritage and Culture Advisory Committee supports the Centrepointe Lands site as the best option for the new location of the City Archives Main Branch and consequently approved the following motion at its meeting on January 25.

 

Whereas the Ontario Municipal Act and Municipal Freedom of Information and Protection of Privacy Act require the City to archive and provide public access to diverse municipal records.

 

Whereas management of a $2B City budget and a community with a more than 150 year history requires timely and efficient access to a wide range of information, which itself requires efficient and professional information management.

 

Whereas the Ottawa 20/20 Arts and Heritage Plan acknowledges that the City of Ottawa Archives is a foundation for local heritage preservation and programming

 

Whereas there is considerable lead time required to ensure that the City Main Archives can move to a permanent facility from overcrowded leased space at 111 Sussex Drive and other leased storage space which does not meet archival standards.

 

Whereas a public consultation session held at City Hall on 22 January expressed a substantial majority support for a location at Centrepointe as the best available, if not ideal location for the City Main Archives.

Therefore, be it resolved that the Arts, Heritage and Culture Advisory Committee support the City-mandated Archives Relocation Steering Committee recommendations identifying the Centrepointe Lands Development site as the best option for relocating the City of Ottawa Main Archives.

.

I am aware that staff are in the process of preparing a report to the Community and Protective Services Committee for its February 15 meeting to address this issue. It is requested that the AHCAC motion, above, be incorporated into that report.

 

Please do not hesitate to contact the undersigned should you require further information. Thank you.

 

Sincerely,

 

MD

 

Attach.

 

cc:     Steve Kanellakos, Deputy City Manager, Community and Protective Services (CPS)

         Gilles Seguin, Program Manager, Heritage Development, CPS

         Chair and Members, Arts, Heritage and Culture Advisory Committee

Rosemary Nelson, Coordinator, Community and Protective Services Committee

 


DOCUMENT 4

 

Overview of Selected Archival Programs in Canada

 

Profiled below are 4 municipal archives that have incorporated best practice approaches to the management of their archival programs. Each site has a dual mandate for both public and private records. The facilities, which serve larger populations, such as Toronto and Edmonton, are configured as stand-alone facilities, while smaller municipalities, like Gatineau and Grey County have opted for co-location with related cultural programs. The Provincial Archives of Newfoundland (The Rooms) has been included due to its population size relative to Ottawa. All programs feature the same program elements, except where noted, that are proposed for the Central Archives.

 

Toronto is a best practice example of the use of high-density shelving and the integration of exhibition space into the overall facility design. On-site program elements include a conservation lab, and photographic / microfilm / digitization facilities.

 

Edmonton is an example of best practice for the adaptive reuse of an existing heritage facility. It features standard archival program elements, including a reference room, loading dock, conservation lab, and exhibition space. In addition, it features an expandable vault.

 

Like the City of Ottawa, the City of Gatineau has developed partnerships with community groups. They have also designed their facilities to be upgradeable, for example, pre-wiring their microfilm room for network access in anticipation of microfilm’s replacement by digitization. Expansion has also been built into their vault design, with land on site reserved for that purpose.

 

The Archives of Grey County (Grey Roots) program elements include standard archival features such as a reference room, processing space, climate-controlled vault, as well as exhibition space and a conservation lab. Their integration of related cultural services (museum and tourism) is a heritage gateway.

 

The Rooms (Newfoundland Provincial Archives, St. John's) is an excellent example of a cultural facility which serves as a community focal point. It contributes to the redevelopment of the City of St. John's. Despite its co-location with other cultural services, it maintains its own program-specific elements, due to the unique nature of archival material and the specific needs of its users.

 


TABLE 1:       Summary of Selected Archival Programs: Space Requirements

(Square Feet, Excluding Gross Up for Common Spaces)

 

 

City

Population

Year Facility Built

Current Space

10 years Space Requirements

1

Ottawa

865,550

1997

6,130

34,140

2

Toronto

2,607,637

1992

38,690

48,878

3

Edmonton

712,391

1992

21,727

37,643

4

Gatineau

234,700

2002

13,603

21,116

5

Grey County

89,100

2004

36,304

42,569

6

St. John's NF

514,400

2004

198,000

216,715

 

City of Toronto Archives

This facility was designed for the former Region of Metro Toronto, not the new City of Toronto, and will be at capacity in a few years. The Toronto Program elements include a reference room, exhibition space, education and workshop space, a conservation lab, a photographic and digital imaging lab, and a high-density environmentally controlled vault. Reproductions from their collection and gifts, such as calendars, are sold through the reference room.

 

City of Edmonton Archives

The historic Prince of Wales Armouries, retrofitted in 1992, features a building within a building. Additional city and community services are located within the building on a lease basis. As the Archives requires more space, this lease arrangement permits the City to reclaim space for additional environmentally-controlled storage.

 

City of Gatineau Municipal Archives

Built in 2002 by the former City of Gatineau, it is co-located with a theatre, library, dance and music school, and the regional offices of the Archives nationales du Quebec. Its storage facility is already at capacity. The Gatineau Archives does not include a conservation lab. The City of Gatineau benefits from the presence of a central conservation facility managed by the Quebec government (located in Montreal). No such program or facility exists for archives in Ontario.

 

Grey Roots (Grey County Municipal Archives)

The new facility, Grey Roots Museum & Archives, which also includes Grey County Tourism, opened June 18, 2004. This facility is a heritage gateway and community destination. The inclusion of the tourism function allows Grey Roots to be a centre of community life and activity. The Archives Program includes a reference room, exhibition space, education and workshop space, a conservation lab, an environmentally controlled vault, and a gift shop.

 

Their storage facility is currently at 2/3rds capacity. The will reach capacity in a few years, as dormant records are identified and transferred to the Archives.

 

The Rooms (Newfoundland Provincial Archives, St. John's)

The Rooms, constructed in 2004 is architecturally significant. It has been built adjacent to heritage designated land, and combines a museum, archives, and art gallery. Their facility has become a focal point of culture both in Newfoundland, and the City of St. John’s.



[1]       Comparable municipal facilities of 48,000 sq. ft. include the Earl Armstrong Arena and the Pinecrest Recreation Complex.

[2]       Comparable municipal facilities of 90,000 sq. ft. include Arts Court and the Carleton Lodge.

[3]       Project Parameters and High Level Business Case for the New Central Library, Arts and Heritage Centre, TCI Management Consultants and Commonwealth Historic Resource Management Ltd, July 2005

[4]       City’s Real Estate and Property Management (RPAM) definition of the boundaries of “Downtown Ottawa”: Ottawa River to the North, Bronson to the West, King Edward Avenue to the East and 417 to the South

[5]       “Central” was interpreted as geographically central to the new City of Ottawa.

[6]       Parmi les installations municipales comparables de 48 000 pieds carrés, mentionnons l’aréna Earl Armstrong et le complexe récréatif de Pinecrest.

[7]       Parmi les installations municipales comparables de 90 000 pieds carrés, on compte la Cour des arts et le Carleton Lodge.

[8]       Project Parameters and High Level Business Case for the New Central Library, Arts and Heritage Centre, TCI Management Consultants et Commonwealth Historic Resource Management Ltd, juillet 2005.

[9]       Selon la Direction de la gestion des biens immobiliers (DGBI), les limites du « centre-ville d’Ottawa » se définissent comme suit : la rivière des Outaouais au Nord, la rue Bronson à l’Ouest, l’avenue King Edward à l’Est et l’autoroute 417 au Sud.

[10]     On entend par « central » ce qui est central sur le plan géographique à la nouvelle Ville d’Ottawa.

[11]    The definition of "archives" is not restricted to actual records, produced or received by any individual or organization in carrying on their work. It also refers to the institution or program responsible for taking charge of, arranging, describing and conserving archives and making them accessible to the public.

 

[12]     Institutional Standards for Ontario Archives, Archives Association of Ontario, 2000. An international standard is currently in development.

[13]     Daguerreotype is an early photograph produced on a silver or a silver-covered copper plate; can also mean the process of producing such photographs.

[14]     A "linear foot" is the standard unit of measure used to express the extent of archival holdings. It represents the distance of laying textual, photos, maps, plans and artefacts vertically side by side (e.g. file folders stored in a box or in a file cabinet, maps in a vertical map cabinet, negatives in a drawer, etc.). It is generally not feasible to count individual items (e.g. documents) in archival holdings.

[15]     High-density racking, used in high capacity archives facilities, allows considerable storage per square foot.  With a height of 26 ft., mobile racking requires a ceiling of 30 ft. in the high-density module. Staff retrieve materials using specialized equipment. Mobile racking is also highly configurable. Shelves can be removed and replaced with map cabinets or freezer units, eliminating the need for additional dedicated storage space for specialized and oversized materials.

[16]  Researchers can spend days or weeks at the Archives and need room to spread out the documents they are working on. The City of Gatineau Archives can accommodate 30 researchers and 18 microfilm users.

[17]     Comparable municipal facilities of 48,000 sq. ft. include the Earl Armstrong Arena and the Pinecrest recreation Complex.

[18]     Comparable municipal facilities of 90,000 sq. ft. include Arts Court and the Carleton Lodge.

[19]    To house the archival holdings from all locations identified in Table 1.

[20]     City’s Real Estate and Property Management (RPAM) definition of the boundaries of “Downtown Ottawa”: Ottawa River to the North, Bronson to the West, King Edward Avenue to the East and 417 to the South

[21]     “Central” was interpreted as geographically central to the new City of Ottawa.

[22]     Project Parameters and High Level Business Case for the New Central Library, Arts and Heritage Centre, TCI Management Consultants and Commonwealth Historic Resource Management Ltd, July 2005

 

[23]    Before being offset by $185,000 annually from the current lease at 111 Sussex.

[24]     Cultural Heritage Planning Statement, Bray Heritage, 2004