Submission
For:
DECISION
Public
No.: 2015-P55.1e
To: Board of Directors
Date: 2015-11-18/19
1. TITLE
National Holocaust Monument: Federal Design Approval
2. PURPOSE OF THE SUBMISSION
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To obtain the approval of the NCC Board of Directors for the re-design of the monument.
3. AUTHORITY
National Capital Act, sections 10 (2) and 12
Canada’s Capital Commemoration Strategic Plan, 2006 (CAPP A472-3)
NCC By-laws, sections 3.2.5, 3.2.6 and 3.2.19
4. RECOMMENDATIONS
THAT the revised design for the National Holocaust Monument BE APPROVED subject to it being
finalized in accordance with NCC staff recommendations and completed to the satisfaction of the Executive
Director, Capital Planning Branch; and
THAT the signature for the Federal Design Approval document for the revised design of the National
Holocaust Monument, and of subsequent approvals for minor design modifications arising during the
implementation process, be delegated to the Executive Director, Capital Planning Branch provided they do
not substantially alter the revised design intent.
5. BACKGROUND
Through a two-phase design competition, an independent jury selected the winning design and team led by
Lord Cultural Resources, as announced in May 2014. In November 2014, the NCC Board approved the
design for FDA, as well as delegation of authority for the Executive Director (ED) of Capital Planning to
approve subsequent design changes.
The construction tender closed on March 26, 2015 but resulted in bids that were over-budget. After reviewing
the tender results, the NCC presented 3 options to Canadian Heritage (PCH) and Employment and Social
Development Canada (ESDC) as well as the National Holocaust Monument Development Council
(NHMDC) to move the project forward. They approved an approach that involved constructing the project
on budget through careful redesign and re-specification with as little impact on the monument as possible,
followed by a second construction tender in the winter of 2015/16. The project is expected to open for Yom
HaShoah in April 24, 2017.
The NCC engaged an Ottawa-based construction management (CM) advisor to prepare cost estimates and
work with the Lord team during the re-design process. The team, including the independent CM advisor,
agrees that the estimate is now close enough to the budget that the construction documents should be
finalized with the current design and issued for tender in December.
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Due to the significant scope of design changes, the ED of Capital Planning is seeking Board approval of the
revised design, which includes the following changes since the tender version:
• Removal of all expanded metal mesh walls. They were in four locations, one of which (the south wall
of wedge 6) has been replaced with concrete;
• Elimination of the roof over wedge 5;
• Elimination of many of the most complex concrete walls;
• Simplification of the concrete walls in wedge 4 and 5;
• Replacement of the exposed aggregate finish on the concrete slab with a broom finish;
• Change of fabrication technique for the signature photograph on the south side of wedge 2, from
photo-embedded concrete to a photo-realist mural technique. All photos will be fabricated using this
technique;
• Reduction of the in-slab snow melt system by roughly 50%;
• Removal of the pathway along the north side of the monument leading up to the eastern raised
viewpoint;
• Extension of the elevator shaft;
• Elimination of the stair access on the south side of the monument, mid-way along Wellington Street
• Reduced wall thickness.
The NCC is funding the design and construction of the Transition Zone, an 11m wide landscape along the
entire north side of the monument. It will consist of a double row of deciduous trees and shrubs either side of
a permeable paver walkway that can be used for occasional vehicle access during special events. The design of
the Transition Zone has not changed since the Board’s last design approval. The construction of the
Transition Zone and Monument will be combined in the contract for the General Contractor, although they
are funded by different budgets.
6. ANALYSIS OF OPTIONS AND RISK
As with all construction call for tenders, there is a risk that bids differ from estimates. We have been managing
this risk by engaging an Ottawa-based CM advisor with in-depth knowledge of Ottawa construction market to
analyse the bids from the first tender, re-estimate all quantities and investigate unit costs for all aspects of the
construction. They have been working closely with the design team, providing objective, well-researched
estimates and technical advice and are confident in their estimates. In addition, bid results from the first tender
and discussions with all GCs who prepared bids gleaned helpful feedback for reducing costs.
The primary risk regarding scheduling is that there are delays in completion of construction leading to only
partial completion for the April 24, 2017 Yom HaShoah unveiling ceremony. The CM Advisor and design
consultants confirm that the current schedule is feasible. In addition, indications from the last tender, which
had additional time constraints, indicate that the proposed construction schedule was feasible.
7. STRATEGIC LINKS
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Canada’s Capital Commemoration Strategic Plan, 2006
Capital Core Area Sector Plan, 2005
Canada’s Capital Views Protection, 2007
LeBreton Flats Redevelopment Renewal Project, 2014
8. CONSULTATIONS AND COMMUNICATIONS
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EMC project endorsement: August 2011
NCC Board – Federal Design Approval: April 2013
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NCC ACPDR – comments on preliminary design guidelines: May 2013
NCC ACPDR – comments re: Phase 2 competition: February 20, 2014
Ministers’ approval of winning concept: March 14, 2014
NCC D&C, ULT and FLUDA staff technical review of first deliverable received (revised design, cost
estimate and schedule): June 2, 2014
NCC and PCH steering committee meetings, including directors and staff of D&C, ULT, Procurement
and Finance: May 21 and 28, June 9 and 25, 2014
City of Ottawa staff in planning and infrastructure approvals: May 15, June 19, 2014
PCH and DFATD Ministers’ offices for review of 75% complete detailed design deliverable: July 3, 2014
Presentation of design concept to ACPDR: August 22, 2014
Presentation of design concept to Board: September 16, 2014
Presentation of final design to Board for FDA and delegation of authority to sign a tri-partite
Memorandum of Understanding: November 19, 2014
The Minister’s Office and NHMDC approval of 4-tier approach to redesign and retender: May 2015
Update on project progress for Report on Activities, public session: June 25, 2015
NHMDC approved design revisions and next steps: Oct. 13, 2015
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9. NEXT STEPS
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Board approval of re-design for FDA: November 2015
Finalize agreement on concrete donation: November 2015
Finalize tender documents and issue construction tender: December 2015
Close of tender: late January 2016
Board approval of tender amount: February 2016
Start of construction: March 2016
Installation of interpretive panels, plaques, etc.: March 2017
Opening ceremony for Yom HaShoah: April 24, 2017
10.
LIST OF APPENDICES
Appendix 1 – Images demonstrating design changes
11.
SUBMISSION AUTHORS
Stephen Willis, Executive Director, Capital Planning
Claude Robert, Director, Design and Construction
Fred Gaspar, Director, Federal Approvals and Environmental Management
Yoland Charette, Chief, Landscape Architecture and Industrial Design
Susan Fisher, Project Manager, Landscape Architect, Design and Construction
Jason Hutchison, Landscape Architect, Design and Land Use
ty
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Appendix 1 – Images demonstrating design changes
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