Community and Protective Services
Committee
Comité des services communautaires et
de protection
and Council / et au Conseil
24 October 2007 / le 24 octobre 2007
Steve Kanellakos, Deputy City
Manager/Directeur municipal adjoint,
Community and Protective
Services/Services communautaires et de protection
Contact
Person/Personne ressource :
Steve Kanellakos, Deputy City Manager /
Directeur municipal adjoint,
Community and Protective Services / Services
communautaires et de protection
(613) 580-2424 x 25654
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SUBJECT: |
ARCHIVES/Ottawa public LIBRARY SYNERGY AND CO-LOCATION OPPORTUNITIES |
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OBJET : |
POSSIBILITÉS DE SYNERGIE ET DE PARTAGE DES
LOCAUX POUR LES ARCHIVES ET LA BIBLIOTHÈQUE PUBLIQUE D’OTTAWA |
REPORT RECOMMENDATIONS
That the Community and Protective Services Committee recommend that
Council refer one of the following options for consideration as part of the
2008 budget process:
1.
Design and construction of a stand alone 47,943 square
foot Central Archives at Centrepointe (non-synergistic option) in keeping with
the program requirements of the original Archives Relocation report
(ACS2007-CPS-CSF-0004) considered by Council in February of this year, or
2.
Design and
construction of a stand alone 62,091 square foot Central Archives at Centrepointe
in keeping with A-1 option (non-synergistic option) described in the Resource
Planning Group (RPG) Synergy and Co-Location Study attached as Document 1, or
3.
Design and
construction of the 81,363 square foot RPG recommended synergy option E-2 (synergistic
option), described in Document 1, that provides for selected archives public
services, archives technical services and library technical services to be
located at Centrepointe, which can be implemented using a phased approach.
RECOMMANDATIONS DU
RAPPORT
Que le Comité des
services communautaires et de protection recommande que le Conseil approuve
l’une des options ci‑après pour examen dans le cadre du processus
budgétaire 2008 :
l. a conception et l’aménagement d’un
bâtiment des archives centrales indépendant de 47 943 pieds carrés à
Centrepointe (option non synergique) conformément aux exigences de programme du
rapport original sur le déménagement des Archives (ACS2007-CPS-CSF-0004)
examiné par le Conseil en février cette année;
2. la
conception et l’aménagement d’un bâtiment des archives centrales indépendant de
62 091 pieds carrés à Centrepointe (option non synergique) conformément à
l’option A‑1 décrite dans la Synergy and Co‑Location Study du
Resource Planning Group (RPG) ci‑jointe (au document 1);
3. la
conception et l’aménagement de l’option synergique E‑2 de 81 363
pieds carrés recommandée par le RPG, décrite au document 1, qui prévoit
l’aménagement de certains services publics des Archives, services techniques
des Archives et services de la Bibliothèque à Centrepointe, selon une mise en
œuvre par phases.
EXECUTIVE
SUMMARY
At its meeting of February 23,
2007 Council approved a motion directing Cultural Services staff in conjunction
with the Archives Steering Committee 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.
In
response to this motion, the existing Library contract with the Resource
Planning Group (RPG) was amended to undertake the above-noted work within the
existing envelope of the Archives Relocation project.
City and Library staff in conjunction with, the RPG, and several advisory bodies completed a systematic review of opportunities for synergies including the development of 5 synergy options, ranging from completely separate entities at separate sites to a completely integrated Central Library and Central Archives at a single downtown site.
Ultimately, RPG and the staff project team recommended Option E, which proposes co-location of the Ottawa Public Library public service components as well as selected Archives public services on a prominent downtown site with the Central Library technical services and the Central Archives program accommodated on a site removed from the downtown core. This option would allow for maximum functional synergy between some of the public services of the Archives and the Central Library: there could be combined local history and genealogy functions, shared meeting spaces, and building operations spaces, and maximum exposure of the Archives to the public due to the large numbers of Central Library visitors. At the same time, some non-public support services could be co-located for greater efficiency to a site outside of, but accessible to, the downtown core. Recommendation 3 of this report represents the combined Central Archives and Library technical services components (i.e., E-2) of the Option E.
Although the Library Board and Community and Protective
Services Department are supportive of the recommended vision and concept of the
RPG study, given the current fiscal challenges faced by the City, as well as
the strict time constraints facing the Archives (whose current lease will not
be extended beyond December 31, 2010) staff is recommending that Committee and
Council select one of the three Archives options:
1. A 47,943 square foot stand alone archives (non-synergy option) consistent with the Archives report presented to Council in February 2007;
2. A 62,091 square foot stand alone archives (non-synergy option) represented by Option A-1 of the RPG report, or
3. A 81,363 square foot Archives and library technical services facility represented by synergy Option E2 of the RPG report. This option could be implemented in a phased approach and anticipates a future downtown Central Library component pursuant to Option E-1 to leverage additional synergies.
Details of the RPG study are contained in this report and the executive summary of the RPG study is attached as Document 1 to this report.
RESUMÉ
À sa réunion du 23 février 2007, le
Conseil a approuvé une motion obligeant l’équipe des Services culturels, en
collaboration avec le Comité directeur des archives, à travailler de concert
avec les experts-conseils de la Bibliothèque publique d’Ottawa pour élaborer le
plan de programme fonctionnel des archives, établir une liste de possibilités
d’économies et examiner les possibilités de partage des locaux puis rendre des
comptes au Comité dans les six mois pour qu’il connaisse les répercussions de
cette motion sur le processus budgétaire 2008.
À la
suite de cette motion, nous avons modifié l’actuel contrat de bibliothèque avec
le Resource Planning Group (RPG) pour permettre le début des travaux
susmentionnés à même l’enveloppe actuelle du projet de déménagement des
Archives.
La Ville et la Bibliothèque, en collaboration
avec le RPG et plusieurs conseils consultatifs, ont procédé à un examen
systématique des possibilités de synergie, notamment l’aménagement de cinq
options synergiques, qui variaient d’un modèle d’entités complètement séparées
sur des sites séparés à l’aménagement d’un seul site complètement intégré de la
Bibliothèque et des Archives centrales au centre-ville.
Le RPG et l’équipe de projet du personnel ont
fini par recommander l’option E, qui propose le partage des locaux des
composantes de services publics de la Bibliothèque publique d’Ottawa et de
certains services publics des Archives dans un seul site bien en vue au
centre-ville, les services techniques de la Bibliothèque centrale et le
programme des Archives centrales étant situés à l’extérieur du centre-ville.
Cette option permettrait un maximum de synergie fonctionnelle entre certains
services publics des Archives et de la Bibliothèque centrale : on pourrait
ainsi combiner les fonctions de généalogie et d’histoire locale, partager les
salles de réunion et les services d’exploitation des bâtiments, et offrir un
maximum de visibilité aux Archives étant donné le grand nombre de visiteurs que
reçoit la Bibliothèque centrale. Au même moment, certains services de soutien
généralement non publics seraient aménagés, par souci d’une plus grande
efficience, dans des locaux partagés situés à l’extérieur du centre-ville, mais
où l’accès au centre-ville est facile. La recommandation 1c du présent
rapport désigne la combinaison des composantes de services techniques de la
Bibliothèque et des Archives centrales (c.‑à‑d. E‑2) de
l’option E.
Bien que le Conseil d’administration de la
bibliothèque et les Services communautaires et de protection appuient la vision
et le concept recommandés dans l’étude du RPG étant donné les actuels problèmes
financiers auxquels se heurte la Ville et les contraintes de temps strictes
auxquelles les Archives sont soumises (le bail actuel ne sera pas prolongé au‑delà
du 31 décembre 2010), l’équipe recommande que le Comité et le Conseil
choisissent l’une de ces trois options pour les Archives :
1.
un
bâtiment indépendant de 47 943 pieds carrés pour les archives (option non
synergique) conformément au rapport des Archives présenté au Conseil en
février 2007;
2.
un
bâtiment indépendant de 62 091 pieds carrés pour les archives (option non
synergique) représenté par l’option A‑1 du rapport du RPG;
3. une installation de 81 363 pieds carrés des services techniques de la Bibliothèque et des Archives représentée par l’option synergique E2 du rapport du RPG. Cette option pourrait être mise en œuvre par phases et prévoit une composante future de Bibliothèque centrale au centre-ville conformément à l’option E‑1 pour encourager la création de synergies supplémentaires.
Les détails de l’étude du RPG se trouvent dans
le présent rapport, et le sommaire exécutif de l’étude du RPG se trouve ci‑jointe
au document 1.
BACKGROUND
The City of Ottawa Central
Archives
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, which 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 only environmentally controlled document storage area that meets some of the long-term preservation standards is the small vault located at the Central Archives at 111 Sussex. The City’s archival holdings, stored in five facilities across the City, 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 construction of a proper vault at the Central Archives will eliminate those risks and ensure that the collection will be available to future residents. The Archives Program serves over 30 patrons daily and responds to 8,000 requests for information/documents annually.
The
City of Ottawa Central Archives has been leasing approximately 8,582 square
feet of 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 complete the conceptual building program in 2007,
proceed to the concept/design stage in 2008, issue tenders in early 2009, and
build in 2009-2010.
On
February 15, 2007, staff presented recommendations regarding the relocation of
the Central Archives to Community and Protective Services Committee
(ACS2007-CPS-CSF-0004).
At that Committee and subsequently Council, it was directed that Cultural Services staff in conjunction with the Archives Relocation Committee, work with the Ottawa Public Library consultants Resource Planning Group (RPG) to develop the Central Archives functional program, identify any opportunities with the central library for cost savings and consider site co-location opportunities and synergies, and report back to Committee through the following motion.
Council motion February 23, 2007 9/1
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.
In response to this motion, the existing contract with the Resource Planning Group (RPG) was amended, through Supply Management, to review and confirm the key concepts and components of the Central Archives program; develop a detailed functional building program; identify opportunities for cost savings; assess co-location and operational opportunities with the Ottawa Public Library; and confirm site selection criteria for relocation. By early summer, three deliverables were completed – the project parameters, master program and ideal site selection criteria.
Ottawa Public Library
The Main Library receives over 16,000 visits
weekly and circulates almost 1,000,000 items annually. The Library Board approved the Ottawa Public
Library’s Libraries for Ottawa: Facilities Strategy in February 2006.
The strategy describes the OPL Board’s vision to invest in the future of our
city’s library services and meet the needs of library users in our dynamic,
growing city. Libraries for Ottawa identifies three key aims, maintain,
renovate and renew community and district branches, build new branches in
growing areas of the city, and build a new central library to ensure a strong
foundation for the whole library system. The building or expansion of branch facilities in growth areas of the
city will be funded primarily through development charges.
The
next critical step in planning for a new central library, in the context of Libraries
for Ottawa, was the
completion of a detailed functional building program. Work towards this was
first started in 2002, was then put on hold, and resumed in 2005. The new
central library was re-confirmed as a key priority in the Library Board’s
2008-2011 Strategic Priorities approved October 15, 2007.
A
functional building program is the main tool for communicating the criteria for
the building and its design to a design team. It is not a building design. It
reflects what the public has confirmed it wants in a new central library. It is
based on an understanding of the activities and functions in the proposed
central library and the functional criteria that must be addressed during
subsequent stages of schematic design and design development.
In
September 2006, the Ottawa Public Library Board approved awarding of a contract
for the new central library functional building program to the Resource
Planning Group, Inc.
The
Resource Planning Group (RPG) is a Vancouver and Toronto based company that
specializes in the development of functional building programs for large
central public libraries. This includes the Vancouver Public Library, the major
renovation of the Winnipeg Public Library, the Salt Lake City Public Library,
the Free Library of Philadelphia and the Seattle Public Library. Central
libraries for which they have completed functional building programs have won
awards from the American Institute of Architects and the American Library
Association.
DISCUSSION
Resource Planning Group (RPG) Study
City and Library staff in conjunction with, the Resource Planning Group (RPG), and several advisory bodies completed a systematic review of opportunities for synergies, including co-location, between the Ottawa Public Library and the City of Ottawa Central Archives in response to Council motion February 23, 2007 9/1. The results of the first part of this review focussing on synergies are outlined in more detail in the RPG study Executive Summary attached as Document 1.
This document identifies the Central Archives functional building program plan, identifies any cost saving opportunities for co-location, and outlines site co-location opportunities with the new Central Library. The study also identifies and outlines 5 project options that were developed and evaluated in order to support the recommend course of action.
Project Team
A Library and Archives Site and Synergy Team (LASST) was created with the mandate to ensure successful and timely completion of the response to the February Council motion prior to Council’s consideration of the 2008 budget.
The
Library and Archives Site and Synergy Team (LASST) is more specifically
responsible for:
1.
Making decisions and
recommendations as required regarding site co-location opportunities for the
Central Library and Central Archives.
2.
Making decisions and
recommendations as required regarding the identification of any opportunities
for cost-savings relating to co-location of the Central Library and Central
Archives.
3.
Providing direction to Resource Planning
Group Inc (RPG).
4.
Receiving recommendations from the
Archives Project Team (APT) and Library Project Steering Committee (PSC) as
required.
5.
Providing regular formal
updates and/or recommendations to the Deputy City Manager, Community and
Protective Services (CPS), New Central Library Board Committee (NCLBC), the
Library Board, the Archives Relocation Committee and/or the Community and
Protective Services (CPS) Committee of Council.
6.
Requesting direction
from the Deputy City Manager, CPS, NCLBC, the Library Board, and/or the CPS
Committee as required.
This multi-disciplinary team is
composed of staff from across the corporation including; Ottawa Public Library,
Cultural Services and Community Funding Branch, Corporate Communications, Real
Property and Asset Management Branch, and Planning, Transit and the Environment
Department.
Methodology
Potential Synergies
The process for identifying synergy and co-location options began with a synergy exercise based on the completed Project Parameter documents for the Central Library and the Central Archives. These documents identified the optimal functional components for each program, potential site partners, and site selection criteria, including exterior space requirements. The exercise identified aspects of the two projects that could be combined to achieve varying degrees of synergy. This information was then arranged and evaluated by the following areas of synergy:
1. Mission
2. Governance
3. Administration
4. Service Delivery
5. Operations
6. Functions
7. Technology
8. Location
9. Physical Requirements
10. Architecture
For the purpose of this study the
term “synergy” was defined three separate ways. External synergy, which refers
to the degree of effective interaction between a public service and Library and
Archives services. Mutual synergy, which refers to the degree of effective
interaction between the Library and the Archives. Finally, internal synergy,
which refers to the degree of effective interaction among the components of the
Library and/or among the components of the Archives.
Project Options
Once the various potential levels of synergy were identified RPG developed five project options, of varying degrees of synergy, for consideration as set out below. More detailed information on the functional requirements of each option is contained in Document 1.
Option A - Stand Alone Central Archives (A-1) and Stand Alone Central Library (A-2) on two separate sites, and a phase 2 Archives expansion. This is a no-synergy option with separate buildings and no functional integration.
Option B - Central Library and Central Archives on a single downtown site with little integration. A stand-alone Archives would be built initially with the Central Library to be added later. The public meeting spaces and main entry concourse would be designed to serve both the Library and Archives. This is a limited synergy option with only the site and meeting spaces shared.
Option C - Complete
Central Archives Program and Library Technical Services on a single central
site and the Central Library on a separate downtown site. This is a limited
synergy option.
Option D - Complete integration of the Central Library and Central Archives on a single downtown site. This is a maximum synergy option requiring a very large downtown site.
Option E - Co-location of the Ottawa Public Library Public Service components including a strong Archives public service presence on a downtown site (E-1) and the Library technical functions co-located with the Central Archives program (E-2) on another geographically central site. This is also a maximum synergy option.
Archival technical services consist of the program support functions including the vault, offices and work spaces, conservation laboratory, photographic and digital imaging laboratory, quarantine/isolation room, equipment and supply storage, shipping and receiving, etc. Library technical services include the following functions: technical services, a system-wide service that catalogues and processes 270,000 items annually for the library system materials collection; collection development services, a system-wide service that selects and orders collection materials for the library system with a budget of $4.2 million/year; and materials distribution, a system-wide service that receives, sorts and moves 50 tonnes of materials between 33 library locations each week.
The five options identified above were assessed based on a set of criteria including opportunities for innovation, functional suitability, tangible cost benefits, intangible cost benefits, potential synergies, critical timelines, and operational factors as detailed in Document 1.
After careful consideration of the five project options, Option E – Co-location of the Ottawa Public Library Public Service components including a strong Archives public service presence (E-1) and the Central Archives and Library technical functions (E-2) on two separate sites was deemed to have the greatest level of synergy.
Project option E, recommended by the Resource Planning Group and the Library and Archives Site and Synergy Team, could result in a number of efficiencies including:
· Eliminating the cost of the existing lease of the Central Archives, which is currently $181,231 plus GST annually.
· The recommendation implies the inclusion of public service space (e.g. a public reference room, working space for volunteers and partners and their collections, some exhibit space) for the Central Archives in the technical facility, thereby eliminating the need for the renovation of any space for temporary accommodation in the existing central library or elsewhere. This represents a cost avoidance of approximately $1 million.
· Depending on the location chosen, the Central Archives facility may be able to use existing meeting space in adjacent City buildings and, in the future, meeting and exhibit space in the new Central Library.
· Because the Central Archives and Library Technical Services will form one building project, rather than two separate projects, it is reasonable to expect significant savings in site development, site servicing, and project administration costs.
· Combining functions in a Central Archives and Technical Service Facility will reduce the spatial requirements for operations and maintenance facilities that would be required in two separate buildings.
· Locating Library Technical Services apart from the proposed Central Library will reduce future Central Library site development costs, excavation costs, and capital costs.
In addition to the efficiencies above there are several other benefits of Option E including:
· Significantly expanded archival services and programs to the community
·
Location of the Central Archives and Library Technical
Services facility outside the downtown core will reduce traffic congestion.
·
Location of the Central Archives and relocation of the
Library Technical Services facility outside the downtown core, adjacent to
major arterial routes, will allow for more streamlined library distribution
services that will accommodate increases in volume without significant
increases in cost.
·
Library Technical Services would benefit from operational
synergy with a library system branch that is adjacent to the site eventually
selected.
Recommended Options
The
Library Board and Community and Protective Services Department concur that the
RPG recommendation (option E) represents the best long-term vision for a
Central Library and Archives for the City of Ottawa. However, given the substantial investment required to
complete the design and construction of the option within the City’s current
fiscal environment, the Department is recommending that Committee and Council
select one of the following three (3) options to be referred to the 2008 budget
process.
A summary chart comparing the program requirements of the 3 Archives options is attached as Document 2. Costing information contained within this report is based on Class D estimates (+-25%) and is not inclusive of GST and land acquisition, remediation and encumbrance costs.
Centrepointe
Location
Each of the options proposes Centrepointe as the preferred location. Centrepointe was the preferred location in the February report and was supported by the Central Archives Relocation Steering Committee and the Arts, heritage and Culture Advisory Committee. The Centrepointe site has also been supported by the Ottawa Public Library Board and the Archives Relocation Committee with respect to the options under consideration in this report.
The Centrepointe site has been recommended because:
- It is situated in the geographic centre of the new City
- It is a City-planned development that offers several potential location options for the central Archives and Library Technical Services facility
- Program requirements for 10 years and space to meet future growth requirements can be met
- Cultural facilities such as the Nepean Centrepointe Branch of the Ottawa Public Library and the Centrepointe Theatre are already established there and offer partnership and efficiency opportunities
- The adjacent Algonquin College campus 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
Option 1 – February Report with Updated Costs
The Long Range Financial Plan currently identifies $18.3
million for the relocation of the Central Archives and $1.02 million for
operating impacts. The cost to complete
the design and construction of a basic 47,943 square foot archives building
proposed in the February report is $22.5 million based on revised estimates from
RPAM that incorporate updated costs (e.g., design allowances, overhead, testing
and inspection fees, development charges, etc.) not included in the original
LRFP estimates and $920,103 in operating impacts.
Option 2
– Stand Alone Option A-1
The February Archives report recommended a building solution with a net space requirement of 47,943 sq ft to meet immediate and 10-year projections for all program requirements. RPG identified a building solution of 72,361 sq ft, a difference of 24,418 square feet. The difference in square footage requirements from the February report are a result of previously incomplete functional analysis of several areas of program requirements and projecting requirements to a 25 year timeframe instead of 10 for all program requirements except the vault because of the challenges of expanding these areas in the future. The following components have now been refined in square footage requirements: public meeting spaces; community partners’ space; reference space; staff workspace; operations and maintenance space. Vault projections are the same, but are based on a 10-year timeframe.
Real Property and Asset Management Branch (RPAM) has estimated the total cost of the stand alone 72,361 square foot Archives (option A-1) to have a total project cost of $33.63 million.
Because the A-1 option described in the RPG report was developed as a stand alone option without reference to a specific building site or proximity to certain amenities it does not include the efficiencies presented by locating the facility at Centrepointe. Locating the archives at Centrepointe will allow some program components (e.g. the auditorium and meeting space) to be removed from the model because of proximity to such amenities at Centrepointe. This modification has resulted in new gross square footage requirement of 62,091 and cost savings of $4 million resulting in a cost of $29.63 million and operating impacts of $1.32 million.
Option 3 – Option E-2
To complete the design and
construction of the 81,363 square foot Library Technical Services and Central
Archives functions as identified in option E-2 would require a project total of
$38.63 million and operating impacts of $1.479 million for the Archives and
$108,000 for the Ottawa Public Library.
Should
Option E-2 be selected as the preferred option, a detailed functional building
program will be completed within the approved budget. It will incorporate
feedback received from the Archives Relocation Committee and Archives partners
in order to accommodate space for community partners, volunteers, reference
room functions, staff work space, some exhibit space, etc to allow the program
to function properly.
The E-2 option could be phased as follows:
- Phase 1 could address the immediate and 10 year requirements of the City Archives (with an initial vault with a projected capacity of 10 years)
- Phase 2 could address the Ottawa Public Library capital requirements for technical services space
- Phase 3 would allow for the expansion of the Archives vault when the initial vault reaches capacity
Additional synergies will also be achieved with the new
downtown Central Library.
Staff will be seeking provincial and federal contributions to this capital project. For example, preliminary discussion with the federal Cultural Spaces Canada funding program have taken place. This funding program supports the improvement, renovation and construction of arts and heritage facilities, and the acquisition of specialized equipment and offers support of up to 33% of eligible project costs for expansion/construction or renovation, and up to 40% of eligible project costs for specialized equipment purchases. The federal government’s Cultural Space Canada program has in the past approved on average $2.5 million for municipal cultural infrastructure applications to this program. A funding request would also be submitted to the Province; however, there is no dedicated funding program for cultural infrastructure at this time.
CONSULTATION
Consultation
Stakeholders
Key stakeholder groups that have been engaged during the review of synergy and co-location opportunities between the new Central Library and the Central Archives several include:
a) Central Archives Relocation Committee (ARC)
b) Ottawa Public Library Board (the Library Board)
c) New Central Library Board Committee (NCLBC).
a) Archives Relocation Committee (ARC)
On July 11, 2006, Council approved the establishment of a Committee composed of 6 community heritage stakeholders, 2 councillors and staff to assist the City in identifying the best option with regards to the relocation of the Main Branch of the City Archives.
The
Committee has the following objectives:
1. Provide
strategic advice to help position the Central Archives Relocation project as a
City and community priority.
2. Provide
feedback on the functional building program, site co-location opportunities
with the New Central Library, financial costing, funding strategies, and final
site selection for the City Archives.
3. Assist
the City on consultation with key stakeholders and the City with hosting a
community information session.
4. Provide feedback on recommendations related to reports to the Community and Protective Services Committee and Council, as required.
b) Ottawa Public
Library Board
The Ottawa Public Library
Board, which consists of 14 trustees including six councillors and eight
members of the public, participated in this process by providing direction,
making decisions, and approving recommendations from the New Central Library Board Committee and staff relating to the Archives
and central library projects, and their impact on the planning work already
underway on the new Central Library.
c) New Central Library Board
Committee (NCLBC)
The New Central Library Board Committee is a
standing committee of the Ottawa Public Library Board. Created in 2002, the
current mandate of the Committee (approved in April 2007) is to develop the vision and guide the
strategic direction for the new central library-building project including
making recommendations to the Board.
Consultation
Meetings
Several briefings were provided by the Resource Planning Group’s Project Manager to all of these stakeholder groups. It should be noted that the Ottawa Public Library Board, whose meetings are open to the public, and whose agendas are published on www.ottawa.ca, were also consulted through regular staff updates and RPG presentations and discussions at the April 16, June 28, July 11 and September 10 public Board meetings.
Regular
updates have also been provided to the Arts, Heritage and Cultural Advisory
Committee (AHCAC) by staff on February 15, March 22, April 26, July 5, and on
September 27, 2007.
In
addition to regular updates, stakeholders provided input at key stages of the
projects including participation in the functional modeling exercises as well
as providing feedback on the 5 synergy options outlined in this report.
On
August 29th, 2007 the Archives Relocation Committee met to review
the 5 synergy options. After careful deliberation it was determined that
further exploration of Option E needed to be conducted between stakeholders and
Archives staff. As a result, a facilitated session was held on September 4th
to further explore this option. At the conclusion of the session it was agreed
that Option E, which called for the splitting of the Archives public functions
from the remainder of the program, was not the preferred option and that
selected Archives public reference services were desirable in E-1 and required
in E-2. On August 28, 2007, the New Central Library Board Committee met and
approved motions, which supported maximum synergies between the central library
and the central archives. These motions were then recommended to the Library
Board for approval.
The
Ottawa Public Library Board then expressed their support for the co-location of
the public services and technical services (including materials distribution)
functions at separate sites at the September 10th, 2007 Board
meeting by approving the following motions:
That
in order to maximize synergies and operational efficiencies for both the
Central Library and City of Ottawa Archives, the Ottawa Public Library Board
supports the grouping of the public services of both organizations at one
downtown location, and the grouping of non-public/technical/material
distribution services of both organizations together on city owned land at
Centrepointe.
The Arts, Heritage and Culture Advisory Committee (AHCAC) will be reviewing this report at their meeting of October 25. The disposition of that meeting will be communicated to Members of Council prior to consideration of the item at Community and Protective Services Committee at its meeting of November 1.
FINANCIAL IMPLICATIONS
There is currently $19.6 million identified for the Relocation of the Central Archives. $18.3 million has been identified in the Draft Capital Budget in 2008 and 2009 and $1.3 million remains from the original Archives Relocation project. The financial implications of each of the options of this report are set out below
Option 1 - $22.5 million total capital and $920,103 in operating impacts including 3 FTEs
Option 2 - $29.63 million total capital and operating impacts of $1.312 million including 5 FTEs
Option 3 - $38.63 million total
capital and operating impacts of $1,479 million including 5 FTEs for the
Archives and $108,000 for the Library including 1 FTE.
CITY STRATEGIC DIRECTIONS
Service Priorities:
Priority E. Sustainable Healthy and Active City
- Objective 11. Operationalize the Ottawa 20/20 Arts and Heritage Plan and the
recently approved Museum Sustainability Plan.
The
Heritage Plan called for the City to “Move the City Archives Main Branch from 111
Sussex Drive to an interim or permanent facility by the end of 2003.”
Priority F. Planning and Growth Management -
Objective 4. Ensure that City infrastructure required for new growth is built
or improved as needed to serve the growth.
Transformation
Priorities
C. Sustainable Finances - Objective 6. Achieve efficiencies in City operations.
SUPPORTING DOCUMENTATION
Document 1 - Ottawa Public Library and Archives Synergy and Co-location Study – Overview and Executive - full report on file with the City Clerk.
Document 2 – Comparison Chart of Program Requirements for the 3 Archives Options
DISPOSITION
Community and Protective Services
will coordinate implementation of any direction approved by Council with
respect to this report.
Document 1
City of Ottawa
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Central Library and Archives |
Synergy and Co-location Study
Resource Planning Group Inc.
Vancouver, British Columbia
2007 October 2
Overview and Executive Summary
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City of Ottawa |
SYNERGY AND CO-LOCATION STUDY |
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SYNERGY AND CO-LOCATION STUDY PART 1 |
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1 OVERVIEW |
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1.1 Background |
This study originates from a
Council motion decided in February 2007, in which representatives of the
Archives and the Library, along with representatives of other city
departments were requested to examine opportunities for future mutually
supportive operations, including possible common location(s) for future
facilities. Replacement of space
currently leased for the Archives is a commitment embedded in the City’s Arts
and Heritage Plans. The current lease will expire in December 2010, so there
is a very small window of opportunity in which to examine operational and
site options for a new facility. Planning began early 2007
to determine the actual functional requirements and overall project scope of
a new Archives facility. This is a
critical period for the Archives; not only are there major challenges in
terms of space, there are also major requirements to identify best archival
practices, define the scope of future operations, and explore the role that
the Archives could play in the life of the Ottawa community. Concurrently, library
services are evolving dramatically; since it is assumed that a new Central
Library facility will be constructed at an as yet undetermined future date,
planning had begun in late 2006 to determine the actual functional
requirements and overall project scope of a new facility. Detailed
planning for both the Archives and the Central Library was interrupted in May
2007 in order to begin this study to evaluate potential synergies between the
two services, and to identify the impact those synergies could have on the
actual functional composition of the resulting projects. |
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1.2 Next Steps |
Upon acceptance
of the recommendations in this report, appropriate sites will be identified
and examined, with a final site recommendation available in early 2008 |
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1.3
Organization of the Report |
The Study has
two components: ·
Part 1 investigates potential synergies
between the Archives and the Library and identifies cost implications and
savings involved in co-location; and ·
Part 2 will examine available sites
for an Archives facility and a Central Library as defined in the Part 1
recommendation The attached
Executive Summary relates to Part 1 only; approval of this recommendation is
required in order to proceed to Part 2. |
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2. EXECUTIVE SUMMARY: PART 1 SYNERGY
RECOMMENDATION |
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2.1
Rationale for An Archives Facility |
The
Archives of the City of Ottawa are currently housed in space leased from the
federal government until December 2010. After that date, the Archives must be
relocated. The current space is severely limited; it is not possible in the
current space to house all the Archives collection, nor is it possible to
carry out preservation activities, nor provide appropriate public reference
services In its current situation, the Archives is unable to carry out its
mandate, nor is it able to engage the community by developing those programs
and services that would promote significantly more public interaction with
the Archives collection. It is a
serious misconception to think that the Archives collection can or should be
housed in an industrial storage space: the Archives require a sophisticated
custom designed facility with highly technical building systems that provide
the controlled and secure environments necessary to ensure the long-term
safety of the collection. It is mandatory that all future planning and
facilities solutions address the standards determined by best Archival
practices. Without such a facility, the City’s legislative and community
history will continue to be at risk. The
Archives are legally mandated to preserve and securely store those records
relating to the legislative and financial history of the community. An
appropriate permanent, purpose-built facility is urgently required. This
facility should consolidate current collection materials in one location and
anticipate ongoing needs for additional space and support services. |
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2.2 The Joint Vision for Archives and
Library |
In this study, the Archives and
the Library have been considered as two aspects of public information
services, and the question has been asked “ what do these services have in
common,” “how are they different?” and “can they come together to create a
whole that is greater than the sum of the parts?” Examination of
these questions has lead to an understanding of how the Archives and the
Library are each functionally unique as well as how they might work together in
complementary fashion. Their focus of potential synergy has to do
with the history of the community and the future involvement of the community
with collection resources in both the Archives and the Library that relate to
community history. The recommendations contained here thus relate to a larger
vision of community information services Recommendations
in this report are therefore driven by the ambitious vision of complementary
joint Archives and Library programs, professional expertise, resources, and
facilities that together will create an ongoing opportunity to educate,
engage and inspire the citizens of Ottawa and preserve, display and
illuminate the history of the city. Implementing the
larger vision cannot be done in one project alone; the recommendations assume
that the vision will require several phases: 1.
An Archives Centre housing core services; 2.
Either a concurrent or a phase 2 Library Technical Service facility; 3.
A Central Library with an Archives and Local History Centre; and 4.
Additions to the Archives vault as the Archives collection continues to
expand. By way of this visionary phased long-term project, the Archives will be
provided with a context for dynamic community engagement and future
generations of Library patrons will have the opportunity to better understand
and appreciate the Archives collection. |
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2.3
Methodology of Part 1 |
a. Information
assembled in the preliminary stages of functional programming for the
Archives and a Central Library has been used as a database for Part 1 of this
planning study. This information is subject to revision in the succeeding
detail Functional planning process. It includes
b. Ten
potential synergies between the Library and the Archives were identified and
investigated:
c.
Options were developed that addressed
varying degrees of potential synergy. d.
Assumptions were made concerning each
option based on the understanding of current information on macro-level space
requirements and building organization concepts. e.
It was acknowledged that the
assumptions regarding space and building organization must be carefully
tested in the detailed functional planning phase. f.
High-level cost estimates were
prepared for the options; these estimates are included as an appendix to this
report. g.
Consideration was given to the
following factors: ·
Opportunities for innovation; ·
Functional Suitability ·
Tangible cost benefits; ·
Intangible cost benefits; ·
Potential synergies; ·
Critical timelines; and ·
Operational factors. |
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2.4 Critical Assumptions Underlying
the Recommendation |
a. The recommendation should address:
b.
The recommendation assumes that there
will continue to be leadership by the Archives that maintains archival best
practices and develops operational models that offer far reaching and ongoing
programs of community interaction that exposes community members to archival
resources, programs, and services than are involved at present. c. The recommendation is predicated on the need to continue to support archival best practices. d. The recommendation is predicated on the expectation that the Archives will serve more people at the Technical Services location and at the Central library than it does now. e. Significant operational changes should result in increased public services, public attendance and support. f. It is assumed that many public services of the Archives would benefit from a setting that allowed optimal access to maximum numbers of the public. g. It is assumed that there are no sites large enough downtown to bring all Library and Archives public and technical functions together on one site. |
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2.5
Recommendation: Option E-1 and E-2 |
a. Library public functions and selected Archives
Public Service components should be brought together in a prominent Central
Library located in the downtown core. b. The recommended setting is the proposed New Central Library with its anticipated future 10,000 visitors a day. c. Selected Library technical functions and Archives technical functions should be brought together in an Archives and Technical Services Facility at a geographically central location. It is recommended that service
delivery, operations, functions, location, physical requirements and
architecture synergies be developed first. This recommendation proposes that governance or
administrative changes not be undertaken at this time. d. Expensive downtown land should not be acquired to accommodate library or archives technical functions. e. Archives
reference room and selected community partners functions that provide direct
reference room support are technical support functions that should be located
near the vault. Inclusion of these functions will remove the need for interim
accommodation in the existing Central Library. f. Archives exhibit space, selected reference services and selected community partner activities that will enable the development of expanded and very visible archives programs should be located in the Central library adjacent to Local History and Genealogy Collections and the Ottawa Room. g. Detailed Functional Programs will now be completed for the two facilities as described above. h. In phase 2 of the site and collocation project, sites should be identified for the two facilities as described above. i. Archives proposed phase 2 expansion requirements will not be known for at least 15 years, due to the constantly evolving proportion of printed and electronic formats. |
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2.6 Tangible Benefits of the Recommendation |
a. The recommendation implies the early completion of an Archives and Technical Services Facility. Existing Archives space would be vacated on schedule at the end of 2010. The cost of the existing Archives lease would be eliminated. b. The recommendation implies the inclusion of some public service space in the technical facility, thus eliminating the need for the renovation of any space for temporary accommodation in the existing central library. c. Depending on the location chosen, the Archives may be able to use existing meeting space near the site for the Archives and Technical Services Facility, and future meeting space in the Central Library. As a result, that space would not require duplication in the Archives and Technical Service Facility. d. Because Archives and Library Technical Services will form one building project, rather than two separate projects, it is reasonable to expect considerable savings in site development, site servicing, and project administration costs. e. Combining functions in an Archives and Technical Service Facility will eliminate the need to provide those technical spaces in the future Central Library; (however, some minor functions will be duplicated and will require added costs in the Central Library). f. Combining functions in an Archives and Technical Service Facility will eliminate the need for separate operations and maintenance facilities be required by two separate buildings. g. Locating Library Technical Services apart from the proposed Central Library will reduce future Central Library site development costs, excavation costs, and capital costs and allow for more accessible public parking in the building. h. If the Archives and Technical Services Facility were constructed on city owned land, additional funds would not be required for site acquisition. |
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2.7 Intangible Benefits of the Recommendation |
a. The opportunity will be created to provide significantly expanded archival services and programs to the community. b. Location of the Archives and Technical Services Facility outside the downtown core, adjacent to major arterial routes, will allow for more streamlined library distribution services that will accommodate increases in volume without significant increases in cost. c. There will be no additional expense involved in transporting Archival materials between the Archives and Technical Service Facility and the Central Library; Materials movement will utilize the existing public library distribution system. d.
Location of the Archives and
Technical Services Facility outside the downtown core will reduce traffic
congestion. e.
The potential exists for Library
Technical Services to develop operational synergy with any library system
branches that are adjacent to the site eventually selected. |