Plan for Canada’s Capital

A Second Century of Vision, Planning and Development

1999 Plan for Canada’s Capital

1999 Ce document est aussi disponible en français.

PLAN FOR CANADA’S CAPITAL

Table of Contents

Chairperson’s Message i Executive Summary iii Key Initiatives v Vision for Canada’s Capital vii Plan Structure ix

1 The National Capital Region: Past, Present and Future 1 Introduction 1 1.1 The 19th Century and Before 2 1.2 A Century of Capital Planning 4 1.3 Common Planning Themes 8

2 Planning Canada’s Capital 9 Introduction 9 2.1 Functions of the Capital 9 2.2 Lands of Capital Significance in the National Capital Region 10 2.3 The Need for an Update of the 1988 Plan 12 2.4 Summary of Need 17 2.5 Planning Principles 19

3 The Capital Plan 23 3.1 The Capital Concept 24 3.2 Capital Settings, Destinations and Links 28 3.3 Structure 29

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4 Capital Settings 31 Introduction 31 4.1 Natural Heritage Areas 32 4.2 Rural Lands 35 4.3 The Capital Core Area 37 4.4 Capital Urban Green Spaces 39 4.5 Capital Waterways and Shore Lands 42 4.6 Urban Design 45 4.7 Built and Landscape Heritage 48 4.8 Archaeology 50

5 Capital Destinations 53 Introduction 53 5.1 Visitor Destinations 53 5.1.1 Parliamentary Precinct Area 54 5.1.2 Confederation Boulevard 58 5.1.3 Public Art and Commemorations 61 5.1.4 National Cultural Institutions 63 5.1.5 Official Residences of Canada 65 5.1.6 Diplomatic Missions and International Non-governmental Organisations 67 5.2 Federal Office and Research Facilities 69 5.2.1 General Policies 69 5.2.2 The Core Area: Federal Accommodations 73 5.2.3 Non-Core Areas: Federal Accomodations 74

6 Capital Links 77 Introduction 77 6.1 Capital Arrivals and Scenic Entries 78 6.2 Inter-provincial Access 80 6.3 Capital Parkway Network 82 6.4 Capital Pathway Network 84

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7 Plan Implementation 87 Introduction 87 7.1 Land Use and Design Approvals 88 7.2 Monitoring and Evaluation 89 7.3 Lands Status 90

Figures National Capital Region-Concept 2050 after page 86 Urban Capital-Concept 2050 after page 86 Capital Core Area-Concept 2050 afterafter pagepage 8686

Appendix 1 Executive Summary of the Stategic Environmental Assessment (SEA) of the Plan Appendix 2 Valued Ecosystem Components Appendix 3 Common Planning Principles Glossary Acknowledgements Bibliography

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Chairperson’s Message

I am pleased to introduce the 1999 Plan for Canada’s Capital — the federal govern- ment’s lead land use planning policy document for the National Capital Region. The Plan will help prepare for the challenges of the coming years.

The Plan’s message is clear: in the midst of economic, political, social, and technologi- cal changes, the best features of today’s Capital are to be preserved and enhanced for future generations of Canadians.

The Plan for Canada’s Capital has been prepared by the National Capital Commission on behalf of the federal government. The Plan is designed to provide high-level, strate- gic advice to the federal government. The Plan explains the federal government’s per- spective on the vocation of its land base in the National Capital Region.

We view Capital planning and development as a responsibility shared by all govern- ments, communities, the private sector and individuals throughout the National Capital Region and across Canada. The Plan has therefore benefitted from an extensive consul- tation program that contributed many ideas to the plan’s development. I invite you to explore the Plan for Canada’s Capital, and welcome your involvement in bringing this exciting vision of the future to fruition.

Thank you for your interest in planning Canada’s Capital.

Yours sincerely,

Marcel Beaudry Chairman

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Executive Summary

Introduction • The Plan for Canada’s Capital is the federal • identify the lands and land uses required government’s lead policy statement on the for the Capital’s future needs; physical planning and development of the • guide accommodation decisions for federal National Capital Region (or the Capital) over departments; the next fifty years. • reinforce the relationship between Gatineau Park, the Greenbelt, and lands in This Plan is an update to the 1988 Plan for the Urban Area; Canada’s Capital (A Federal Land Use Plan). • guide more detailed land use planning of This update has been prepared to address situa- federal lands in the Capital; and tions that have emerged since the late 1980s or • direct the federal government’s land and that may become important in coming years — investment strategy in the Capital. opportunities and issues not anticipated in the 1988 Plan. These include: The Plan offers planning direction that reflects ideas from, and the interests of: • the impact of continued changes in the roles and size of the federal government; • the Canadian people; • a renewed commitment by the federal gov- • residents of the National Capital Region; ernment to a vital Core Area; • the Government of Canada, in particular • the need to harmonise planning policies federal departments and cultural agencies prepared by lower-tier governments and with land and property holdings in the federal government agencies; National Capital Region; • the continuing challenge of creating a sym- • provincial, regional and local governments; bolic Capital; and and • the influence of sustainable development • diplomatic missions and international non- on planning practice. governmental organisations with a pres- ence in the Capital. In this context, the Plan is designed to: The land is the source of our collective identity • communicate the federal government’s — it shapes our culture and our language. The vision for the Capital; land is our life. • provide principles, goals, a concept and James Arvaluk, policies to guide land use decisions in sup- Inuit spokesperson. port of the key functions of the Capital;

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Key Initiatives

The key planning directions proposed in this • a physical presence in the Capital for Canada’s document include the following: provinces and territories, Aboriginal peoples, diplomatic missions, and international non-gov- • a Capital that communicates national pride and ernmental organisations fosters national unity • urban design that befits the image of the Capital • a continued emphasis on the political, cultural and contributes to a pleasant, safe and stimulat- and administrative aspects of the Capital with ing urban environment priority on institutions and events in the Core Area • the preservation and conservation of the Capital’s cultural and natural landscapes, and • the long-term vitality of the Capital Core Area historical and archaeological resources of — specifically the North Shore in Hull, the Capital interest Islands, LeBreton Flats, and the Parliamentary Precinct Area — as a priority • continued and enhanced access to shore lands and shorelines for public use • the continuing role of Confederation Boulevard as the primary focus of public programming and • management of the Capital Parkway Network as capital investment multipurpose, scenic roadways that link Capital settings and destinations • enhancement and protection of the region’s ecosystems and its green image through the des- • continued improvement of the Capital Pathway ignation of a system of natural heritage areas, Network and protection of valued ecosystem components • improvement to the quality In the 1998 ‘In Touch’ • enhanced recreational and programming links and appearance of Capital survey of visitors to between the Core Area, Capital urban green Arrivals and Scenic Entries the capital, 63% said that it was ‘essential’ spaces, the Greenbelt and Gatineau Park to the Capital to recognise the con- tributions of the provinces, territories, • the provision of spaces and infrastructure • extended navigation along and Aboriginal people required to facilitate public programming, the Ottawa and Gatineau in the Capital. national celebrations and events Rivers, and

• the location of national cultural institutions, • commitment to harmonisation and cooperation diplomatic missions and national agencies in the among the various agencies and authorities Core Area, in areas supported by public transit, involved in the planning and development of and on prominent sites along selected segments land use and transportation in the National of the Capital Parkway Network Capital Region.

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Vision for Canada’s Capital

Imagine Canada's Capital fifty years from now. ners of the Capital themselves, the natural land- What kind of place will it be? scapes and perspectives are integrated with the urban and built landscapes of the Capital to form The Capital of today is the result of remarkable dramatic backdrops for national events, festivals, plans produced over the 100 years since 1899 by and daily life for visitors and residents alike. visionary planners — individuals such as Frederick G. Todd, E.H. Bennett and Jacques Imagine the heart of the Capital as a unified space Gréber. The past century of planning and develop- for working, living and celebrating Canada. This ment has created a place of pride for Canadians, a space, with its core on Parliament Hill, includes Capital which combines the beauty of its natural the Ottawa River basin, the shore lands and the setting with the symbolic buildings and spaces that islands (Chaudières and Victoria), the northern part pay tribute to Canada's history. of LeBreton Flats, the sweep of the ceremonial Confederation Boulevard, and the heart of Ottawa- What about the next century? How will the Hull itself. Imagine the extensive and diverse built Capital continue to grow as a meeting place and heritage of this area, the urban parks, scenic park- seat of our national government? ways, public spaces and monuments sustained and improved through the creation of new public The future Capital will remain a place where city spaces and vistas of the "Hill". and nature meet, a green space of rolling hills, powerful rivers and dramatic forests. Its rivers Imagine the beautiful and busy heart of the Capital, have seen the Aboriginal peoples, explorers and ringed by the Gatineau Hills, the urban parks and voyageurs pass on their way to the interior or to the Greenbelt, safeguarded for the benefit of all of the sea. Its lands have been shaped by the arrival Canada's citizens. Imagine pleasant and clear sail- of European settlers, who harvested the immense ing along the Ottawa River from Montreal to the forests and created farms and small towns in the Capital and on to Temiscamingue, boating farther wilderness. The lakes, hills and valleys of Gatineau north along the Gatineau River, and access to the Park, and the working farms and rural landscapes Capital via the internationally-recognized heritage of the Greenbelt are timeless reminders of the nat- Rideau Canal Corridor. ural and early cultural history of the Capital Region. Imagine a capital city that reflects both the great history and the exciting reality of 21st century With imagination, we can see how, in the future, Canada. As we begin the next century of Capital the natural settings and vistas of the Capital contin- planning, this is the vision which has inspired the ue to shape the experiences and the lives of visitors new Plan for Canada's Capital. and residents alike. As imagined by the first plan-

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Plan Structure

The Plan comprises three sections. In chapters Similarly, the Plan’s goals and policies have 1-2, the Plan identifies key issues and trends, as been designed in compliance with and further well as past planning decisions that influence to related federal government policies and pro- current and future planning in the National cedures (and to respect provincial and munici- Capital Region. Planning principles (Capital pal policies and procedures). This includes the and Regional Planning) that provide the philo- NCC’s land use and design approval authority sophical basis for the Capital Plan are included exercised under the National Capital Act here. (1988). Amendments to the goals and policies articulated in sections 4 - 6 of the Plan are sub- Chapters 3-6, The Capital Plan form the ject to the NCC’s Federal Land Use, Land "heart" of the Plan. This section describes the Transaction and Federal Design Approval Capital Concept. Supporting policies are organ- processes. ised under the headings of Capital Settings, Capital Destinations and Capital Links. In keeping with the spirit of intergovernmental Conceptual maps provide context for the plan- harmonisation, local and regional governments ning policies. The Plan concludes with will be encouraged to recognize the policies of Chapter 7, Plan Implementation. A glossary this Plan. of technical terms and a list of research refer- ences are also provided. The Plan is designed to be reviewed on a five- to seven-year cycle, generally coincident with Implementation the plan review cycles of the three regional governments. The NCC’s Master and Sector Plans, already prepared for large areas such as Gatineau Park, the Greenbelt and forthcoming for the Urban Plan Hierarchy at the NCC Area, are the main policy planning instruments for Plan for implementing goals and poli- Policy Plan Canada's Capital cies of the Plan for Canada’s Master Plans Urban Lands Capital. Plans prepared by Master Plans other federal departments and Sector Plans Core Area Sector Plan agencies will also comply Area Plans LeBreton Flats with and advance the policies Sector Plan of the Plan for Canada’s Capital. The Plan Hierarchy at the National Capital Commission

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The National Capital Commission mote the public programs that enrich The NCC received its the cultural and social fabric of new and expanded The Plan has been prepared by the NCC on mandate from Cabinet Canada. This mandate translates into in 1988. behalf of the Government of Canada. The NCC three main goals that guide the Plan: is a federal Crown corporation. Planning Canada’s Capital has been the responsibility of • Developing a Meeting Place — to make the NCC and its predecessors since 1899. the Capital Canada’s meeting place, and to encourage the active participation of The NCC operates under the National Capital Canadians in the evolution of their Capital; Act (1988), which confers unique responsibili- ties upon the NCC to plan, develop and • Communicating Canada to Canadians improve the Capital, and to organise and pro- — to use the Capital to communicate Canada to Canadians and to develop and In 1999, the federal government celebrated a highlight Canada’s national identity; and century of planning Canada’s Capital through: • Ottawa Improvement Commission (1899-1927) • Safeguarding and Preserving — to safe- • Federal District guard and preserve the nation’s cultural Commission (1927-58) • National Capital Com- heritage and the Capital’s physical assets mission (1958-present). and natural setting for future generations.

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Preparation of the Plan The NCC owns and/or maintains 97 kilometres of parkways, 77 bridges, 152 kilometres of recre- The Plan was developed over the period 1995- ational pathways, and over 720 residential, com- 99. Its preparation involved continuing mercial, agricultural, and other leased properties. research, a review of policy issues in the Strategic Environmental Assessment National Capital Region, strategic environmen- tal assessment, consultations with departments This Plan has been subject to a continuous and agencies of all levels of government, and strategic environmental assessment (SEA). public consultation. SEA is a systematic, iterative process that eval- uates the environmental consequences of pol- Public and agency consultations were held over icy, plan or program proposals. The process a 3½ month period on a draft plan and strategic ensures that environmental considerations, environmental assessment from early June to along with social and economic issues, are the end of September 1998. Many comments addressed at the earliest, appropriate stage of from these consultations were incorporated into decision making. A copy of the Executive the final plan. A public consultation report Summary of the SEA is appended to the Plan documents the consultation comments and the (Appendix 1). Both the SEA and its supporting NCC response to them, as well as resulting workbook are available from the NCC. revisions to the draft plan. The strategic envi- ronmental assessment was also revised as a result of the consultations.

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The National Capital Region: Past, Present and Future 1

Introduction rapid population and economic growth, driven by the expansion of the federal government. Canada’s Capital is now Canada’s fourth- The National Capital Region’s diverse and largest metropolitan region, with a culturally rugged landscapes epitomise the geographic diverse and highly educated population ex- variety of this vast country. Rivers and green ceeding one million residents. Approximately spaces structure the physical character of the 75 percent of the region’s population is Capital. A whole complex of ecological sys- located in Ottawa-Carleton, and 25 percent in tems has influenced and continues to influence the Outaouais. the region’s natural environment.1

The region sits on the boundary of two Canadian ecozones, separated by the Ottawa River. The Quebec The National Capital Region part sits in the Boreal Shield and Mixed Wood Plain Ecozones, while the Ontario part lies in the Mixed Wood Plain Ecozone.2 A

section of the Canadian Shield, the Q U É B E C Gatineau Hills, juts into the Gatineau 5 148 Park Capital’s Core Area, and features 50 richly forested hills, escarpments,

Hull rock outcrops, and bogs and marshes. The urban environment Greenbelt Ottawa features a network of natural 417 417 Greenbelt Greenbelt areas, including woodlots, wet- Greenbelt

lands and waterways. 7 O N T A R I O The region is located on the north- 416 western fringe of the Quebec City–Windsor urban corridor. The The National Capital Region. National Capital Region covers approximately 4660 km2, of which 2720 km2 are in Ontario and 1940 km2 are in Quebec. In the post-1945 era, the region experienced 1 Brunton (1988: 10). 2 Ecological Stratification Working Group (1996: 69; 84). 1 ...... PLAN FOR CANADA’S CAPITAL

The Capital’s centre is the Core Area of Ottawa-Hull in which Parliament Hill — with its striking neo-Gothic architecture — and the national museums are set in a modern urban environment. The Core Area remains the centre of the region’s cultural, retail and office activi- ties, and is the focal point of the region’s public transit systems. It is the heart of the Capital and of the region.

As with many Canadian cities, most of the region’s recent population growth has been accommodated in suburban and outlying com- munities. An extensive, varied and accessible network of open spaces, shore lands, recre- ational pathways and conservation areas meets Artifact from Leamy Lake, dated 3,000 B.C. the needs of visitors and regional residents for green space, helps define individual communi- ties, and supports the region’s ecosystems. Lawrence valley. The search for a route across the continent to Asia was The name “Canada” was derived from the a continuing motive for early explor- Huron-Iroquois word ers.4 The main route between “kanata”, meaning “village” or “settle- 1.1 The 19th Century and Before Huronia and the St. Lawrence was the ment.” Georgian Bay–French River–Lake Nipissing–Ottawa River route. This The National Capital Region is historically sig- was Canada’s first economic spine, and it nificant as a meeting place for both Aboriginal remained the sole route across Canada for mail and later cultures. The Ottawa Valley was first and passengers until the railway came in the inhabited by Aboriginal peoples. The region is 1880s.5 part of the Great Lakes, Ottawa Valley and New England corridor established by The names of these European explorers are Aboriginal traders. For nomadic Laurentian familiar to all Canadians: Samuel de peoples, the Ottawa River was an important Champlain; Brébeuf and Lalemant, the Jesuit route for moving or trading copper on trips to martyrs; Nicolet, Radisson and DesGroseillers; Lake Superior.3 Recently, archaeologists have Lamothe Cadillac, LaVerendrye, Frobisher, uncovered evidence of a pre-European settle- Mackenzie, Alexander Henry, David Thompson ment at Leamy Lake in Hull, which dates to and Simon Fraser. Although the missionaries, 3,000 B.C. explorers and traders of New France travelled frequently by the Grande Rivière des In the 16th century, the French began to Outaouais, few Europeans settled along its explore the rivers flowing into the St. Lawrence valley. The search for a route across

3 Bickley (1975: 1) 4 Harris (1987: Vol. 1, Plate 36). 5 Bickley (1975: 8, 20).

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shores except for communities near the mouth loads of majestic white pine could be rafted of the Ottawa River along Lac des Deux from the Ottawa River to the tidewater at Montagnes.6 Quebec City. Wright made this discovery in 1806, just a year before Napoleon sealed off At the beginning of the 19th century, only scat- the Baltic ports, separating the British Navy tered settlements were to be found along the from its timber supply.10 Ottawa River for about 60 kilometres west of Montreal. After this point, the country was for- The name Bytown was given to the new settle- est broken only by the occasional permanent ment after Colonel John By, who arrived in settlement.7 However, the region’s natural fea- 1826 to establish a military canal with 47 locks tures were appreciated by the booming forest connecting Kingston to the Ottawa River. The industry, which was responsible for the early Scottish stonemasons who came with Colonel growth of the community.8 The Ottawa Valley By stayed on to build some of the most grace- was filled with the finest growth of valuable ful stone houses in the country.11 red and white pines in North America.9 For many years, the location of the capital was

The name “Ottawa” is derived The permanent settlement the subject of intense competition among cen- from an Algonkian word meaning of the Capital dates back tres in Upper and Lower Canada. In 1857, “to trade”. to the turn of the 19th cen- Queen Victoria selected Ottawa as the new cap- tury when a Massachusetts ital, citing its natural beauty, security and loca- Yankee, Philemon Wright, discovered that tion along the border of the two linguistic and

The original Parliament Buildings, c. 1870

6 Bond (1968: 15). 10 Gwyn (1984: 37-38). 7 Bickley (1975: Part II, 5). 11 Gwyn (1984: 37-38). 8 Bond (1968: 17). 9 Bond (1968: 17)...... 3 PLAN FOR CANADA’S CAPITAL cultural groups of Upper and Lower Canada.12 In the period after its selection as capital, 1.2 A Century of Capital Ottawa was still very much a lumber town, Planning despite a growing governmental presence. In fact, with a population of some 16,000, Ottawa Early 20th Century could claim to be little more than just a "lum- ber village."13 Clearly, something had to be done. Between 1899 and 1939, the federal government The trouble was that, away from the immediate responded to Laurier’s challenge. It established confines of Parliament Hill, Ottawa was a com- two planning commissions, produced at least munity "unfit for gently-bred city folk."14 The two comprehensive planning reports, held two major architectural competitions, and engaged four different planners to plan and beautify the Colonel By was one of the Capital’s first plan- Capital.16 This was a tremendously exciting ners. The plans he developed in 1828 set aside large parcels of land for the defensive fortifica- and creative period of Capital planning. tion of the capital at the entrance to and along the Rideau Canal. Later, these parcels became the sites of the Parliament Buildings and seg- The comprehensive planning of the Capital ments of the parkway network. began in 1899 with the establishment by the federal government of the Ottawa Improvement Commission (OIC). A landscape architect from town’s rough character obscured its picturesque Montreal named Frederick Todd provided the setting. This conflict caused Sir Wilfrid Laurier Capital with its first plan in 1903. This was to to comment in 1884: be the first of the ‘City Beautiful’ plans pre- pared for the Capital. I would not like to say anything disparaging of the capital, but it is hard to say anything good Todd sought to create a city that would ‘reflect of it. Ottawa is not a handsome city, and does the character of the nation and the dignity, sta- not appear to be destined to become one, bility and good taste of its citizens’.17 Todd’s either.15 vision of a green, open capital in a distinctive northern setting began a tradition in civic plan- This situation led to the intervention of the fed- ning ideals for Canada’s Capital and set the eral government in the planning and improve- tone for later approaches to Capital planning. ment of the Capital — a responsibility that con- The Todd Report (1903) recommended the tinues today. preservation of large natural parks adjacent to Parliament Hill and the linking of the Parliamentary Precinct with Rideau Hall (the residence of the Governor General). Public The American press “endorsed” the choice of the new capital because “it could not be cap- buildings would be key to creating this image tured, even by the most courageous soldiers, of ‘dignity, stability and good taste’.18 because the invaders would get lost in the woods trying to find it.”

12 NCC (1991a: 10). 16 Wright (1997: 136-137). 13 Gwyn (1984). 17 Wright (1997: 110). 14 Gwyn (1984). 18 Wright (1997: 111). 15 NCC (1991a: 12). 4 ...... PLAN FOR CANADA’S CAPITAL

in government and spending priorities. “Nature indeed offers a direct invitation to make this northern capital one of the most Together, these realities undermined any sus- beautiful in the world” (Federal Plan tained campaign of development and construc- Commission, 1916: 20). tion until after the Second World War.20

Subsequently, the Federal Plan Commission The Gréber Plan (overseen by Herbert Holt) engaged Edward Bennett to prepare a new vision for the Capital. The Capital we know today is largely the prod- The Bennett Plan (1915) proposed uniformly uct of post-Second World War planning, when designed streetscapes and the creation of a Canada enjoyed unprecedented population and great civic centre. Bennett also advocated the economic growth. The end of the war rekindled relocation of railway corridors, the decentrali- the government’s enthusiasm for building the sation of federal facilities and the construction national capital. By 1945, the concepts pre- of a National Gallery along Sussex Drive. pared during the 1920s were dated, and a suc- However, the First World War interceded and cessor plan was needed.21 halted further design work. The Prime Minister of the day, Mackenzie The recommendations of the Federal Plan King, hired a well-known Parisian planner- Commission were never abandoned.19 During architect, Jacques Gréber, to prepare a new the 1920s, the government intended to proceed Capital plan. In 1951, the Gréber Plan was with the work once funds were available. The tabled in the House of Commons. The Gréber Cauchon Report (1922), commissioned by the City of Ottawa, proposed a new federal district, the development of a large network of parks and parkways, and the relocation of railways and terminals.

The influences of the Todd, Bennett and Cauchon plans are apparent in later exercises, such as Jacques Gréber’s Notable achievements of the 1951 Plan for the National Federal District Commission before the Second World War Capital. However, none of include acquisition of over 6,400 these early plans was fully Jacques Gréber (with pointer) explaining Plan for the National Capital, c.1950. hectares of the future Gatineau implemented. This was due Park, and the construction of Island Park Drive and the in part to the complexities Champlain Bridge. inherent in the federal Plan was designed to make the National Capital bureaucracy. Further, new a reflection and symbol of the country. Gréber initiatives were frequently derailed by the intro- envisioned a ‘grand and dignified capital’ in the duction of competing plans produced by the tradition of Paris and Washington.22 The federal government and local government. The Gréber Plan advocated large-scale works that planning process was complicated by changes would dramatically alter the face of the Capital.

19 Wright (1997: 129). 20 Wright (1997: 137). 21 Wright (1997: 216). 22 Wright (1997: 216). 5 ...... PLAN FOR CANADA’S CAPITAL

Many of the recommendations found in Todd’s The Gréber Plan also called for the elimination and Bennett’s plans were found in Gréber’s of pollution from the Ottawa River, restoration work.23 Key recommendations of the Gréber of the islands and shores of the river, and the Plan included: improvement of urban infrastructure. Some of Gréber’s proposals could not be fully imple- • the continued prominence of the mented or were considerably modified. Only a Parliamentary Precinct few federal public buildings were constructed according to the architectural models presented

Before removal of railway yards from the downtown core. After removal of railway yards from the downtown core.

• the removal of railway tracks from the in the National Capital Plan (1951) — the East Core Area and relocation of the train sta- and West Memorial Buildings, and the National tion to the inner suburbs Printing Bureau.24 The railway station was- moved to a different location, and a number of • the decentralisation of federal office com- grand boulevards and inter-provincial bridges plexes to suburban satellite locations (e.g., proposed by Gréber were never built. Never- Tunney’s Pasture, Confederation Heights) theless, Gréber’s influence has been truly sig- nificant on the physical form of today’s • the acquisition by the federal government Capital. of river-fronts and green corridors for pub- lic access and recreation, and Many Gréber plan proposals were implement- ed, including rail relocation, employment nodes for federal departments, expansion of • the enlargement of Gatineau Park into a Gatineau Park, creation of a Greenbelt, shore- federally-administered park, the creation of line protection, and parkway construction. Other proposals in the plan that were not the Greenbelt, and the construction of a implemented include: scenic parkway network. • replacement of the Alexandra Bridge across the Ottawa River; • relocation and development of most of the Central Experimental Farm; • a parking lot on the Daly Building site.

23 Wright (1997: 216). 24 Wright (1997: 218).

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Plan for Canada’s Capital (A Federal Land Towards the New Century and Millennium Use Plan — 1988) Between 1988 and 1998, a number of master The Gréber Plan remained the federal govern- and sector plans were prepared, inspired by the ment’s vision for the Capital until 1988, when 1988 Plan for Canada’s Capital. These plans the Capital’s planning evolution continued with included the Gatineau Park Master Plan (1990), the Plan for Canada’s Capital (A Federal Land the Greenbelt Master Plan (1996) and prelimi- Use Plan).25 nary research in support of a forthcoming Urban Area Master Plan. The 1988 Plan sought to make the Capital a national symbol for all Canadians. As with ear- The year 1999 also marked the centennial of lier plans, it recognised the importance of the National Capital Commission and its prede- Confederation Boulevard, focused on the politi- cessors in planning, building and animating the cal, judicial and cultural functions of the Capital. At the dawn of a new century, and of a Capital, advocated the presence of the new Millennium, the 1999 Plan for Canada’s provinces and territories in the Capital, as well Capital integrates new ideas and inspiration as of the international community, and pre- with our reflections on past contributions to the served the Capital’s green spaces. The Plan also evolution of Canada’s Capital. sought to improve visitor attractions, provide better access to the Capital and encourage cooperation among planning agencies in the National Capital Region.

The major objectives for the 1988 Plan includ- ed:

• the use of federal lands to support the pro- gramming and interpretation of the sym- bolic Capital

• the rationalisation of federal land holdings

• the preservation of the existing built her- itage of the Capital and the character of its open spaces

• improvements to visitor services through diversification of programs, activities and The Millennium Clock at the Capital Information centres of attraction, and Centre on Wellington Street.

• the identification of locations for major national and international institutions.

25 The 1988 Plan for Canada’s Capital was received by the Treasury Board Secretariat.

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national cultural and political institutions 1.3 Common Planning Themes in the Core Area

This review of the major characteristics of • the design and implementation of the infra- almost 100 years of Capital planning indicates structure required to support the "business" considerable consistency in planning issues and of the federal government (e.g., administra- solutions. Each of these major plans has been tion, research and development) concerned with: • the need for long-term planning, to leave • the symbolic role of the Capital as the seat an enduring legacy for future generations of government of Canadians, and

• the beautification of the Capital, and the • the complex issue of fragmented gover- federal government’s century-long commit- nance in the National Capital Region. ment to achieving a physical presence that befits a national capital While the general intent of these plans has remained relatively constant and many of these • the enhancement of the Capital’s green themes remain topical, the means of achieving image through the creation of extensive these plans has evolved and will continue to do parks and open space systems, the preser- so. vation of river edges and shore lands, and the protection of significant natural areas

• the federal government’s investments in high-quality design of federal buildings and spaces, including preservation of the Capital’s heritage buildings, especially for

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Planning Canada’s Capital 2

Introduction 2.1 Functions of the Capital

The Capital’s unique roles and functions The Capital is the symbolic heart of the require planning, and often ownership, of lands nation and its political centre. It is the site of by the federal government. crucial political decision making, yet it is also a stage for the nation’s culture and history where the past is illuminated, the present displayed and the future glimpsed. The Capital is the administrative base for the federal govern- ment’s operations. These national political, cul- tural and administrative functions are unique to a national capital.

Canada Day

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The Political Function ues, aspirations and traditions. The Capital also expresses the importance and significance of The political function of the Capital is a mani- the nation’s natural environment. festation of the federal system of government. The Capital is the seat of Canada’s federal gov- The Administrative Function ernment. The political function is fulfilled through the accommodation of those institu- The administrative function of the Capital has tions, facilities and events that are required for many dimensions, including housing the head- the federal parliamentary process. Other key quarters for many federal departments, wherein roles include formal affairs of state, representa- decision-making processes are managed and tion, discussion and reconciliation of national research and development activities are carried interests, representation of Canada to the world, out by federal departments and agencies. The and the formal representation of the interna- planning challenge is to provide the facilities tional community in Canada. required to ensure the effective and efficient operation of the federal government. Federalism is a form of government where politi- cal power is divided between a central or nation- al authority and smaller, locally autonomous Approximately 100,000 people, or 20 percent of units such as provinces or states, generally the federal civil service, were employed in the under the terms of a constitution. Other nations National Capital Region in 1996. with a federal system of government include Australia, the United States, Mexico, and Brazil.

The Cultural Function 2.2 Lands of Capital Significance The cultural function of the Capital represents in the National Capital the achievements, cultural identities, customs Region and beliefs of the Canadian people. This occurs through the accommodation of those institu- The planning environment of the National tions, events, attractions, symbols, parks, path- Capital Region is complex. Four levels of gov- ways and associated facilities that are required ernment — federal, provincial, regional and to present the nation’s human and natural local, plus special-purpose bodies such as con- resources and to display Canadian history, cre- servation authorities — have land use planning ativity and knowledge, as well as cultural val- mandates in the National Capital Region.

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Federal assets — which include lands, build- ings and infrastructure such as bridges and parkways — as well as other key non-federal lands, can play one or more of the following roles in support of the three Capital func- tions:26

• convey, through their location, design and built form, the political, cultural and administrative functions of the Capital;

• provide support facilities for events and activities that express our culture;

Local and regional governments are responsible • provide an appropriate setting for the for the location and form of urban develop- Capital’s historic and archaeological sites ment, the location of municipal infra- and monuments that help communicate the Lands of Capital structure, and the staging of public story of this country or significantly Significance are con- sector investments. These decisions enhance the unique character of the sidered essential to the Capital’s political, are reflected in land use plans and/or Capital; cultural, symbolic and zoning bylaws prepared by regional administrative func- tions, and are identi- and local governments in compliance fied on the maps that with the respective planning acts and accompany this Plan. related statutes of the provinces.

In the absence of any statutory authority to control land use on private lands, the federal government must own, and/or plan for, all fed- eral lands as well as other assets of Capital sig- nificance in the National Capital Region. In this way, the federal government ensures that the unique and long-term functions of

Federal lands com- the Capital are met, and its character prise over 11 percent and enduring symbols are preserved of the total land area in the National Capital for future generations. In exercising • provide highly visible sites for, and Region. this planning mandate, the federal enhance access to, Capital destinations government acknowledges the pres- such as Parliament Hill, national museums, ence of complementary planning Gatineau Park and the Greenbelt; responsibilities and processes of lower-tier gov- ernments.

26 To Communicate Canada to Canadians; the Capital as Meeting Place; and Safeguard and Preserve the Capital on behalf of all Canadians.

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• support the accommodation and space park lands or environmentally sensitive needs of federal or national political, areas and river shore lands; and administrative or cultural institutions, including official residences, national • facilitate inter-provincial transportation museums and galleries; between the Ontario (Ottawa-Carleton) and Québec (Outaouais) parts of the National • meet the accommodation needs of foreign Capital Region and beyond. delegations whose requirements are not met by other means (e.g., the commercial The Host Environment real estate market); Federal lands and infrastructure also help to • provide locations for the headquarters of provide a suitable host environment that sup- Canadian or international non-governmen- ports the national and international image of tal organisations; the Capital, and that also contributes to the health and vitality of the region. Therefore, the • meet the special needs of the federal gov- federal government cannot take the position ernment (e.g., departmental headquarters, that it is responsible for planning only the "fed- research and development facilities, and eral" capital. The federal government will con- high-security activities for federal agen- tinue to participate in the creation of a quality cies); host environment on a selective basis, while recognizing that its central role as a catalyst • help tell the story of Canada through the and leader lies with the three Capital functions. Capital’s cultural landscapes, shape the urban form, and preserve the character of the region through the ownership of large parcels of land such as Gatineau Park, the Greenbelt, the Central Experimental Farm,

Winterlude festivities at Confederation Park

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2.3 The Need for an Update of the 1988 Plan

Common Planning Challenges

The style of planning in Canadian cities and regions is evolving in the face of considerable change in our social, economic and political systems. These changes present opportunities, as well as concerns, for all public planning authorities. The key challenges for the National Capital Region, shared by many communities across Canada, are: • Environmental. Planning initiatives are • Demographic. Ours is an aging society, expected to reflect and support the continu- with slower rates of natural population ing effort to protect ecosystems, preserve growth partially-compensated for by historical and archaeological resources, and increasing numbers of immigrants. Our enhance the quality of life in communities. planning must also consider the future Planning practice is governed by the relat- needs of today’s youth. The Canadian pop- ed concepts of biodiversity, the healthy ulation is generally well-educated and community and sustainable development, well-informed, understands how govern- each of which emphasises the need to bal- ments work, is aware of its rights and obli- ance environmental with social and eco- gations, and has high expectations of the nomic considerations when planning com- public sector to be accessible and account- munities and regions. able. • Economic. Changes in the economy, such as a shift from a dominant federal govern- From 1971 to 1996, the percentage of the popu- lation in the National Capital Region aged 65 ment employment base to a growing and over increased from 6 to 11 percent. This advanced technology sector and tourism percentage is expected to continue to rise. sector (e.g., eco-tourism and cultural tourism), present opportunities for com-

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munities with the necessary skills base and and population growth in the early years of the infrastructure. next century, a reflection of general economic conditions and the region’s historic economic • Political/Institutional. A common chal- dependence on a smaller federal government lenge is how to plan effectively in compli- presence. However, the dynamism of the cated intergovernmental settings. There is advanced technology and services sectors sug- considerable potential for intergovernmen- gests considerable opportunity for economic tal cooperation as a means to make more growth. efficient use of limited resources. The pub- lic has expectations of greater access to, and meaningful roles in, government deci- sion making processes. Our planning QUÉBEC processes, structures and plans need to facilitate decisions and implementation in a timely, equitable and cost-effective manner. Urban • Socio-Cultural. Canada is an increasingly

multicultural society with diverse values, Rural needs and priorities. The needs of Canada’s Major Aboriginal peoples are part of the planning

Open considerations for many communities. Space Many Canadians are exploring new con- ONTARIO

cepts of their communities, and of Canada, Future Urban Growth Patterns in the leading to a renewed vision of their nation. National Capital Region: 2025

• Technological. Our communities are affected by the dramatic effects of commu- The region’s economy is increas- nications and transportation technologies ingly information-based. Service- Ontario Québec

on the nature and location of work, on sector activities, such as consult- 1971 474,168 145,693 recreation, and on the future physical struc- ing and business-support enter- 1976 521,341 171,947 ture of communities. Communications prises, account for an increasing 1981 557,328 186,493 1986 619,049 200,214 technologies are recognised as integral share of the region’s workforce. 1991 693,900 226,957 land use and transportation elements and The federal government remains 1996 763,426 247,072 important means to achieve energy sav- the region’s dominant single Population Growth in the Ontario and ings, reduce roadway infrastructure employer, although its share of Québec Portions of the National demands, and encourage more flexible direct employment has decreased Capital Region. work arrangements and environments. significantly as a result of the feder- al government’s refinement of its program obli- The Evolving Region gations and roles. This trend is expected to con- tinue into the next decade. The next few years present considerable chal- lenges to, and opportunities for, the National In this context, the vitality of the region’s eco- Capital Region. It is expected that the region nomy will be a major concern for all levels of will experience moderate rates of economic

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government, as will governance issues general- land uses in the Urban Area as a way to mini- ly. Planning in this region will be guided by mise negative environmental impacts, and to issues of affordability and environmental make better use of resources. Some Core Area preservation. There will be considerable con- office buildings could be retrofitted for residen- cern about the costs of accommodating new tial or other uses (e.g., hotels). Over the hori- urban developments. According to regional zon of this Plan (25 - 50 years), the condition government planning agencies, areas already of many Core Area buildings will change, designated for urban development will be suffi- requiring significant investments in rehabilita- cient to accommodate growth in the foreseeable tion. There will also be opportunities to future. enhance the urban design of the Core Area to meet both Capital and urban needs. The regional governments intend to accommo- date future population growth through compact The Core Area of Ottawa-Hull will remain the forms of residential development within the focus of regional employment and cultural life, existing urban boundaries of both the although other key sectors of the regional econ- Outaouais and Ottawa-Carleton. No expansion omy, such as the advanced technology sector, of the urban development zone is anticipated in will continue to expand in areas such as Kanata this planning period. In Ottawa-Carleton, three and Hull. Development in rural areas is to satellite communities — east, south and west occur adjacent to existing small communities to urban centres — could each eventually support make optimal use of infrastructure and to min- populations of 105,000–170,000 persons. In the imise impacts on the natural environment. Outaouais, the existing communities of Hull, Gatineau and Aylmer will absorb the majority The Changing Federal Government of new population growth. However, a signifi- Presence cant amount of development will occur in out- lying rural areas and small towns. The process of redefining the mandate of the federal government will continue for several Efforts are under way to optimise existing ser- years to come. The federal government is vices such as the public transit system and expected to continue rationalising its real assets water/waste-water management infrastructure, — its lands and buildings — across Canada, and to minimise the effects of development on and throughout the National Capital Region, agricultural uses or environmentally sensitive with sensitivity to environmental, social and areas. economic effects in the host community.

Aging urban public infrastructure such as roads The number and size of federal departments and bridges will continue to be a major concern and agencies will change. The creation of new for municipalities facing resource constraints. types of federal agencies could make the coor- The replacement or rehabilitation of infrastruc- dination of planning and real asset management ture with a Capital role could involve federal a challenge for the federal government. There support. will likely be fewer yet larger federal depart- ments that will be accommodated (wherever Regional governments, as well as the cities of possible) in federally owned buildings. Ottawa and Hull, intend to encourage mixed

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Number of Federal Government Employees: 1976-96

140000

120000

100000

80000

60000

40000

20000

1976 1979 1981 1983 1986 1989 1996

It is expected that federal lands without a demonstrable Capital or departmental program role will be exchanged with or divested to other agencies, disposed of, or developed. Many buildings built during the construction "booms" of the 1950s and 1960s will become obsolete. Some of these buildings could be renovated and re-used, in line with current federal gov- ernment practice. Other buildings could be demolished and their sites redeveloped. Some federal buildings in the Core Area, federal nodes, or other non-Core Area locations (e.g., Natural Resources Canada’s Booth Street com- Place Vincent-Massey (Hull), across the Ottawa River. plex) could be adapted for residential or other uses. throughout the region. Increasing rates of com- puterisation could require significant invest- Federal accommodation location decisions ments in new communications technologies and affect and are affected by local and regional infrastructure (e.g., "smart" buildings). New retail, commercial and real estate sectors in the buildings will require the latest communica- Core Area. Most of the federal government’s tions infrastructure to support advanced com- leased office accommodation is in Ottawa, puter and communications systems. Older while the majority of Crown-owned office buildings will require extensive retrofits to accommodations are in Hull. Without careful remain viable work spaces. consideration, the Ottawa part of the Core Area could be affected by the government’s Crown- Ottawa-Hull is the third largest francophone owned consolidation policy. community in North America (after Montréal and Quebéc City). Telecommuting and other work relationships may affect the nature and location of work

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There are also land redevelopment opportuni- If the Capital is to reflect the true values and ties to be realised, particularly outside the Core realities of Canadians, it will be necessary to Area. Federal government land holdings within determine how best to meet the needs of an the Urban Area are extensive, and offer consid- aging and multicultural society. A continuing erable potential for helping lower-tier govern- concern for the environment expressed by ments in their efforts to intensify development. Canadians means that the federal government Large land blocks such as the surplus Canadian will continue to work with provincial and Forces Base Rockcliffe, and part of LeBreton municipal government counterparts to preserve Flats, as well as numerous smaller surplus its built heritage and natural environment. parcels, could be used for residential develop- ment or redevelopment in the region’s urban area. 2.4 Summary of Need

The policy recommendations of some sections of the 1988 Plan have been overtaken by events and are no longer relevant. New challenges have emerged that require a planning response. To address these challenges, regional-scale plans such as the Plan for Canada’s Capital should be more strategic than comprehensive in nature, less concerned with detail and more with direction setting. Details for site-specific decisions are provided by master plans, such as the Gatineau Park (1990) or Greenbelt (1996) plans, and by sector plans. These plans did not exist in 1988.

As a result, parts of the 1988 Plan need to be updated and supplemented with new policies. In summary, the update to the Plan is designed to address:

• the expectations Canadians have of their Capital as a key symbol of national pride and unity;

• the changing land use needs of federal government departments and agencies whose mandates, program needs and Peace Tower from the Ottawa River Pathway resources will continue to evolve;

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• the effect on the region of the continuing rationalisation of federal real property holdings;

• the redefinition of responsibilities that has accelerated during the 1990s among levels of government in the National Capital Region;

• the regional-scale impacts of policies pre- sented by master plans prepared for Gatineau Park (1990) and the Greenbelt (1996). The Plan for Canada’s Capital needs to reflect the key points of these plans and guide future updates; • the cultural dimensions of the Capital — events, interpretation, celebrations and • the opportunities and challenges presented commemorations, for example — and their by aging building stock, infrastructure expression within the built environment; and/or heritage, especially in the Core Area; • the opportunity to integrate Capital plan- ning issues and goals, such as the • the directions provided by the common tourism/visitor destination role, into planning principles, prepared by the three regional plans in the National Capital regional governments and the NCC, to Region; and guide their respective planning exercises (see Appendix 3); • the best way to apply the frameworks of sustainable development and healthy com- • the way the policies and themes of the munities to Capital planning. 1988 Plan that remain relevant could be implemented in this changing context; These trends and issues provide context for the principles that guide the Plan for Canada’s • the need to enhance Canadians’ under- Capital. standing of federal departmental and insti- tutional roles;

• the continuing challenge of how to repre- sent the contributions of Canada’s Aboriginal peoples, and those of the provinces and territories, to the country’s development;

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Sustainable development also means recognis- 2.5 Planning Principles ing the links that exist between the three dimensions of the environment — the econom- Planning a capital is a unique responsibility. ic, the social and the natural (or biophysical) — Capital planning needs a solid foundation that and making decisions and taking action in an addresses the special character and needs of a integrated manner. A healthy and sustainable national capital, and is based on sound urban environment is characterised by: a vital and and regional planning principles. dynamic economy; a community that fosters individual well-being, health and safety; and an ecosystem that functions well and has integrity.

With sustainable development as an umbrella principle, there are two sets of principles that provide the basis for this Plan: Capital Planning principles and Regional Planning principles. Together, these principles guide the creation of goals and policies in the Plan.

Capital Planning Principles

Capital planning principles distinguish how capital planning complements, yet is distinct from, generic urban and regional planning practice. A Capital plan must consider attri- butes such as the symbolic role of a capital, and reflect the trust that Canadians place in the federal government to plan the Capital properly on their behalf. Key Capital planning principles include:

• Symbolism. The Capital is a national sym- bol and a window on Canada. Canadians Sustainable Development should be able to recognise themselves and their country in the events, activities, com- Sustainable Development emerged The Plan is guided by the concept of memorations, displays and physical design as a concept from the sustainable development, which is of the Capital throughout the entire year. United Nations Commission on supported as a policy by the federal Furthermore, the plan should promote inte- Environment and government. Sustainable development gration between the Ontario and Québec Economy, chaired by means development that meets pres- Norwegian Prime portions of the NCR in terms of Capital Minister Gro ent needs without compromising the orientation. Brundtland. Its report ability of future generations to meet “Our Common Future“ was released in 1987. their own needs.

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• The Beautiful Capital. Federal lands and thetically pleasing pedestrian In 1978, the National Capital facilities in the region should, to environment for visitors and fed- Capital Commission began winter pro- the extent possible and appropriate, incor- eral employees. gramming in the porate standards of design and mainte- Capital with the intro- nance befitting the unique image and roles • Communicating Canada. Lands duction of Winterlude festivities on the of a national capital. This is especially true and buildings should promote a Rideau Canal. for federal facilities that are visible and better understanding of the accessible to visitors to the Capital. Capital and the nation through interpretation, animation, outreach, and other means of communicating messages of relevance.

• Accessibility. Government policy27 requires that, wherever practical, persons with disabilities have the same level of access to and use of a federal department’s facilities as the general populace does.

• Integrated Transportation and Communications. Capital destinations, facilities and events should be accessible through a balance of transportation modes Museum of Civilization, Hull that can serve all users in a manner consis- tent with sustainable transportation princi- • Capital Stewardship. There are federal ples. The Capital should also be accessible lands and buildings, natural features, his- through evolving forms of communication torical and archaeological treasures, and (e.g., use of computer networks). symbols that must be preserved and pro- tected as an enduring legacy for all Canadians.

• Effective Orientation Services. Suitable spaces, advanced communications tech- nologies and orientation services, such as wayfinding systems, are needed to enhance the visitor’s opportunities to enjoy the Capital’s attractions and programs through- out the year.

• Safety and Comfort. Lands and buildings owned by the federal government should contribute to a safe, convenient and aes-

27 See TBS, Real Property Manual, chapters 1-6. 20 ...... PLAN FOR CANADA’S CAPITAL

Confederation Park Regional Planning Principles planning decisions will be considered part of the region’s planning processes. In carrying out Regional Planning principles signal the feder- their responsibilities, these planning agencies al government’s understanding of planning will be guided by shared principles. The follow- directions followed by the three regional gov- ing principles represent the federal govern- ernments in the National Capital Region: the ment’s articulation of the common planning Region of Ottawa-Carleton, the Communauté principles shown in Appendix 3: urbaine de l’Outaouais, and the Municipalité régionale du comté des Collines-de l’Outaouais. • Cooperation in Planning. The federal These regional governments, along with the government will endeavour to harmonize NCC and local municipali- its planning processes and policies with One of the key initiatives of the ties, jointly cooperate in those of local, regional and provincial gov- 1990 Green Plan was a National the planning and develop- ernments, and to pursue opportunities for Action Strategy on Global Warming. Canada was also a ment of the National projects of mutual benefit with other gov- signatory to the 1992 Capital Region. ernments, the private and not-for-profit sec- Convention on Climate Change tors. at the United Nations Conference on Environment These agencies recognise and Development (the Earth that the economic, environ- • Efficiency. In times of resource constraint, Summit). Canada also signed mental and social effects of it is essential that optimal and timely use is the 1997 Kyoto Protocol on Greenhouse Gas Emissions. made of federal and other governments’ These initiatives commit investments in land, infrastructure, amen- Canada to reductions in green- house gases.

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ities, public transit and related facilities. Accordingly, the Plan supports develop- ment that will make the most efficient use (and adaptive re-use) of land, infrastructure and public services and facilities.

• The Livable Region. The maintenance of a high quality of life in the region is a responsibility shared by all governments, communities and the private sector. The Plan seeks to assist in the improvement of the region’s quality of life by fostering healthy communities and by facilitating the provision of services and facilities to meet the needs of current and future residents. The Plan also subscribes to planning and design approaches that are appropriate to a northern climate.

• Environmental Stewardship. The mainte- nance of a high quality natural environ- ment is also a shared responsibility. The policies of this Plan indicate the federal government’s leadership role in applying best practices to land stewardship, natural resource management, and the protection

of ecosystems of Capital significance. Terry Fox statue

• Economy. The Plan recognises the need of this Plan, a coordinated effort among to plan, develop and manage federal assets governments will be required to create and in a sustainable manner that facilitates a implement a vision of the Core Area that strong, integrated and diverse regional integrates Capital and urban needs. economy, and enhances the region’s com- petitive position within the global econo- • Accessibility. The Plan supports sustain- my. able, affordable, accessible and integrated transportation and communication net- • Capital Core Priority. A healthy, dynamic works within the National Capital Region, Core Area is considered essential to the and between the Capital and the rest of the Capital’s future. Accordingly, the Plan world. seeks to maintain and enhance the Core Area of Ottawa-Hull as a focus for eco- nomic, cultural and political activities in the National Capital Region. Over the life

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The Capital Plan 3

Parliamentary Precinct

A capital is unique because it acts as a symbol ments, we ensure that such experiences can be of its country. Through careful building and enjoyed for many years to come. preservation, the federal government has helped to ensure that Canadians have inherited, From the 1950s to the 1970s, the federal gov- in their Capital, a combination of built and nat- ernment’s capital-building efforts involved land ural environments that contribute to this sym- acquisition for Capital parks, large open spaces, bolic role. and large-scale infrastructure and office com- plex construction. The result is a Capital known The Capital’s built and natural environments for its well-developed system of federal institu- educate, instill pride, please the senses and tions, for its excellent physical infrastructure, enrich the quality of life for residents and visi- and for the high quality of its open spaces and tors. They are remembered by Canadians and natural environment. This is the legacy of international visitors alike as integral parts of Gréber. the Capital’s symbolic image. By enhancing built elements, and by protecting natural ele-

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Since 1988, the federal government has con- centrated on capital investments that support 3.1 The Capital Concept the functions of the Capital that are unique to the federal mandate — the political, cultural Over the next 25 to 50 years, Canada's Capital and administrative functions. In the Core Area will evolve as a large metropolitan urban area of Ottawa-Hull, priority has been given to surrounded by, and connected to, a network of national symbols, and political and cultural open spaces, parks and natural areas. functions. This Plan builds on this foundation by providing goals, policies and ideas designed As future visitors approach the Capital, some to reinforce these earlier initiatives and to will pass through and experience the natural address the spatial implications of the federal landscapes of the Greenbelt and Gatineau Park, government’s changing roles and resources. each providing examples of our shared natural heritage. Visitors to the Capital will arrive by The physical interpretation of the Capital road, rail, air and water. Some will travel Vision — the Capital Concept — is expressed along the Ottawa River, navigable from in the following section, complemented by fig- Montreal to Témiscamingue. Others will arrive ures in the policy sections of this plan (sections via the historic Rideau Canal, rich in history 4 through 6). and one of the best examples of an operating 19th century canal. Those travelling along highways, scenic roads and parkways will find signage, banners, design and landscaping to herald their arrival at a special destination —

E.B Eddy and the Chaudière Dam

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the nation's capital. The gateways of the Ottawa Macdonald-Cartier International Airport and the train and bus terminals will provide displays of Canadian culture and information about the Capital.

An extensive network of recreational pathways, park- ways and parklands will help define residential communi- ties. Much of the shore lands of the Ottawa River, Rideau Canal and Gatineau River will be accessible to the pub- lic, and will provide spaces for wildlife habitats and year- round recreation. The recre- ational pathway system and the network of parkways and scenic entries will and forest resources. Visitors to the Greenbelt connect destinations in the Core Area of will be able to experience and learn about the Ottawa-Hull with those elsewhere in the Urban rural lifestyle that has been so important to Area, Gatineau Park and the Greenbelt, and Canada's past. The Greenbelt will provide with destinations throughout (and outside) the rural-related visitor attractions, farm vacations, National Capital Region. Interpretation and interpretation areas and an extensive network public programming activities, services and of recreational pathways. amenities will support public enjoyment of the Capital's protected natural environment. The Urban Area will provide a rich symbolic setting for the seat of national government, as The natural qualities of Gatineau Park as a well as accommodation for key federal depart- part of the Canadian Shield will be protected. ments. It will be the focus in the Capital for Recreational activities, interpretation for con- expressing Canadian culture, history and val- servation topics and historical sites, commer- ues. Within the Urban Area, the system of cial facilities and events compatible with the parkways and scenic entries will be completed preservation of the Park will ensure that it is and, along with the rivers and the historic used without losing its natural beauty. Rideau Canal, will lead the visitor to key desti- nations in and around the Capital. The Rideau The Greenbelt, a diverse rural mosaic of Canal will remain a key venue for recreational farms, working forests, natural areas, research activities and an important component of the establishments and recreational areas, will con- visitor experience. Access between Gatineau tinue to provide a fitting and symbolic setting Park and the Core Area will be enhanced. for the capital of a country rich in agricultural

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Confederation Boulevard

The Core Area will be the preferred location National Aviation Museum, and National for headquarters activities of most federal Museum of Science and Technology, will be departments and agencies, as well as non-gov- more closely linked to the Boulevard. ernmental organisations. The Core Area will serve as the main public stage for communica- With the construction of the American tion of Canadian culture and history, and host- Embassy, the Sussex Drive section of ing of national events, ceremonies and celebra- Confederation Boulevard will become an even tions. stronger focus for diplomatic missions, non- governmental organisations and public pro- The magnificent buildings and monuments of gramming with an international theme (e.g., Parliament Hill will be made more accessible "Canada and the World"). This part of to pedestrians. Views and vistas of the Confederation Boulevard could become an Parliament Buildings and of the Ottawa River, International District. and pedestrian access to the Ottawa River will be improved. The Ottawa River’s shoreline and the Islands will be revitalized to make the most of their Confederation Boulevard will be fully devel- natural beauty and programming potential with- oped to become the focal point of the nation's in an urban setting. LeBreton Flats will be cultural heritage, including most of the national developed to provide sites for national cultural museums, the National Archives and Library, institutions, major meeting spaces, and mixed the National Gallery and the National Arts uses to the south. The industrial heritage of the Centre. Other national cultural institutions, Islands (Chaudières and Victoria islands) could such as the Canadian Museum of Nature,

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be restored and interpreted as part of a complex ways, scenic entries and recreational pathways of activity spaces, green areas, and mixed uses. will continue to accommodate those federal The eastern end of Victoria Island could departments and agencies with special location- become an interpretation centre for Canada's al needs. These nodes will be integrated with Aboriginal peoples that complements related adjacent communities and public transit sys- programming provided at national cultural tems. Other lands in the Urban Area considered institutions. surplus to departmental needs could be redevel- oped to meet the region’s need for housing, On the North Shore, adjacent to the Ottawa economic development or recreation. River, new or relocated national cultural insti- tutions could be built within Confederation Toward the end of this planning period, a new Boulevard in Hull, on lands previously used for crossing could be constructed across the industrial purposes. Existing bridges could be Ottawa River to link communities in the rehabilitated or replaced with structures that Outaouais and Ottawa-Carleton, and to facili- enhance pedestrian, cycle and vehicular access tate access to visitor destinations and federal between LeBreton Flats, the Islands and the office accommodations. Existing cross-river North Shore. bridges would be renovated or replaced to accommodate bicycles and pedestrians to the The majority of federal employees in the greatest extent possible, and where appropriate, National Capital Region will continue to work public transit and high-occupancy vehicle in the Core Area. Several large-scale employ- lanes. ment nodes (e.g., Tunney’s Pasture and Confederation Heights) located in the inner suburbs and linked to the Capital Core by park-

Ottawa River west of the Capital Core Area

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The second element — Capital Destinations 3.2 Capital Settings, Destinations — comprises two major groups: Visitor and Links Destinations, and Federal Offices and Facilities. Visitor Destinations include This physical expression of the Capital Vision Parliament Hill, Confederation Boulevard, his- is further interpreted as goals and policies in toric sites and monuments, and national cultur- three groupings of Capital characteristics — al institutions. Federal Offices and Facilities Capital Settings (Chapter 4), Capital refers to the places where the federal govern- Destinations (Chapter 5) and Capital Links ment’s administration functions are carried out (Chapter 6). While presented here as distinctive — the federal nodes, office buildings in the elements, in reality, most lands of Capital sig- Core of the Capital, research complexes, as nificance feature two and often all three ele- well as Parliament Hill. These spaces are meant ments. These elements are therefore to be con- to be visible and well connected to transporta- sidered complementary rather than mutually tion links, making them accessible to visitors exclusive characteristics of lands throughout and employees alike. the National Capital Region.

The first element — Capital Settings — pro- vides the visual backdrop and natural setting for Capital Destinations and Capital Links. The Capital’s image and much of its environmental quality are created by the Capital Settings. Gatineau Park, the Greenbelt, the rivers, the Rideau Canal, green corridors and major public spaces are key elements of Capital Settings.

The Capital Settings are created through lands, landscapes and buildings that add visual beauty to the Capital, and mirror the Canadian envi- ronment and way of life. For the most part, these lands are parks and open spaces that York Street steps may be formal in character (e.g., manicured gardens) or very informal (e.g., naturalised shore lands). Some lands identified as Capital The third element — Capital Links — con- Settings also play an important conservation nects and provides access to the Capital role and provide recreation space, such as Settings and Destinations. Capital Links waterway and shore land corridors. Capital include recreational pathway and parkway net- Settings also provide important stages for pub- works and inter-provincial crossings, and can lic programming and commemorations of often be found in open space links. The Capital national significance. The natural charm and Links connect and provide access to Capital attractiveness of the Capital is attributed to this Destinations, while revealing the high-quality ensemble of Capital Settings. experiences found in Capital Settings. In Capital Links, the emphasis is on the experi- ence of the journey as well as the arrival.

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Opportunities and Issues — opportunities as 3.3 Structure well as issues that could be addressed in sup- port of the Capital Vision; and Each of these three elements features the fol- lowing structure: Policies — statements of direction and intent regarding the long-term planning of the Goal — a statement of general intent and broad National Capital Region. These statements purpose, a preferred end-state for the National reflect the interests and contributions of federal Capital Region, realised in part by the Plan for departments and agencies, as well as advice Canada’s Capital, other land use plans pre- from other parties (e.g., regional governments, pared by the federal government, and by other public). agencies and levels of government;

Context — an orientation and review of key characteristics that provide the necessary back- ground for the Plan’s goals and policies;

Overlooking Canada Day

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Capital Settings 4

ings reflect the history of the region and the Introduction country as a whole. The Parliament Buildings are the most powerful symbol of Canadian The Canadian experience has been profoundly democracy at work, and of our relationship to influenced by our relationship with our land- the landscape. Their setting, on top of a strik- scapes and a demanding climate. The natural ing, heavily treed escarpment overlooking the and rural landscapes, and our built heritage, are Ottawa River, is an expression of the affinity also part of our shared experience as that Canadians have for their geography. Canadians. Extensive open spaces provide stages for Diverse in character, Capital Settings symbolise Capital events and programs, contribute to the many landscapes that are familiar to most Capital’s green image, help to structure urban Canadians. The Capital Settings are composed communities, and direct the location of future of large areas of federal lands such as Gatineau development. The Capital Settings policy areas Park and the Greenbelt, as well as rivers and include: green corridors within the Urban Area. Capital Settings provide the backdrop for Capital • Natural Heritage Areas; Destinations and Capital Links. • Rural Lands; • The Capital Core Area; Capital Settings play several roles and include • Capital Urban Green Spaces; natural, rural and built landscapes that epito- • Capital Waterways and Shore Lands; mise the boldness and diversity of Canadian • Urban Design; geography. Visitors to the Capital enjoy the • Built and Landscape Heritage; and rivers, lakes, forests, and farms. Heritage build- • Archaeology.

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4.1 Natural Heritage Areas

Goal

A network of natural heritage areas that protects valued ecosystems.

Context

Natural Heritage Areas include the following: one or more ecological communities that are defined in extent by unbroken areas of vege- Pink Lake, Gatineau Park tation, significant natural features, or key eco- logical processes. Many different habitats are tem. The Shield and wetlands, in particular, associated with natural heritage areas, includ- were not extensively developed. Consequently, ing significant wetlands, forests, and wildlife we have a cross-section of these natural envi- habitat; critical portions of the habitat of endan- ronments to enjoy today and, because of their gered, threatened, and vulnerable species; and ease of accessibility, to preserve for future gen- natural or restored corridors such as significant erations. ravines and streams. Gatineau Park is a large, dramatic section of Natural heritage areas include bold examples of Canadian Shield that pierces the urban fabric. the Canadian Shield, wetlands and other natural Another natural heritage area — Mer Bleue in features that are common to, and provide strik- the Greenbelt — is an internationally recog- ing symbols of, many of Canada’s natural land- nised wetland. Others, such as Mud Lake, are scapes. Natural heritage areas also include notable because they are relatively high-quality forests and lands whose primary vocation is to areas either in or close to a large urban area support the National Capital Region’s ecosys- and, because of their ease of accessibility by visitors to the Capital, require special attention.

In 1995, the Greenbelt’s Mer Bleue bog was designated a wet- land of international importance — one of 36 Canadian wetlands under the RAMSAR Convention.

The Greenbelt’s Mer Bleue Bog

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Opportunities and Issues Policies

• These areas offer considerable opportuni- • Allow natural processes to predominate to ties for Canadians to learn about their natu- the greatest extent possible. ral environment. • Implement federal environmental and natu- • There are concerns about the long-term ral heritage resource policies and legisla- ecological health of natural heritage areas tion, and take related provincial and due to urban development pressures (e.g., municipal government policies and laws fragmentation by infrastructure corridors, into account. adjacent uses, and pollution). • Protect VECs identified on federal lands, • There is a need to pro- and encourage other agencies to protect Valued Ecosystem Components tect valued ecosystem com- (VECS) are identified in an NCC VECs on other lands. reference document entitled ponents (VECs — see mar- Sources for Environmental gin note) such as rare or • Develop tools to manage federally-owned Priority Maps (NCC, 1998). An Environmental Synthesis map endangered plant and ani- natural heritage areas according to interna- from this report is provided in mal species, woodlands, tionally recognised standards and practices, Appendix 2. wetlands, and wildlife and respect the inherent carrying capacity habitats. of the lands.

• Competing demands arise between the nat- • Facilitate the restoration of degraded natu- ural heritage protection needs of certain ral heritage on federal lands. areas and the pressure for local recreational use as a result of urban proximity. • Designate Gatineau Park as a protected area managed first for ecosystem protec- Gatineau Park’s Pink Lake is a • The management of nat- tion and then for recreation.28 meromictic lake, where waters in ural heritage areas trans- deep oxygen-deprived depths do not ciruclate. A rare and ancient species cends political boundaries; • Designate the conservation areas of the of fish thrives there. Only 58 such therefore, intergovernmental Greenbelt as protected areas managed first lakes are known in North America. co-ordination is required. for ecosystem protection and then for recreation, and manage the rest of the Greenbelt using best management practices to support the maintenance of habitats.29

• Endeavour to secure (e.g., by acquiring, zoning, private stewardship or by other means) inadequately protected portions of Natural Heritage Areas identified on the maps and assign the highest priority to those under threat through co-operative

28 Gatineau Park should be managed as an IUCN Category II Area (see margin note on the next page). 29 Champlain Lookout, Gatineau Park Greenbelt Natural Areas should be managed as IUCN Category II Areas. 33 ...... PLAN FOR CANADA’S CAPITAL

Policies (continued)

arrangements with other governments, non-profit agencies, the private sector and landowners.

• Protect lands that function as natural links owned by the federal government between Natural Heritage Areas and waterways.

• Collaborate with other owners and organi- sations to integrate the management of conservation areas and to protect natural links beyond the federal government’s holdings.

• Co-operate with other governments and agencies to program and interpret natural heritage areas, where appropriate.

IUCN. (International Union for Conservation of Nature but more recently known as the World Conservation Union) is a union of over 70 nations, over 100 government agencies, and more than 700 non-governmental organisations working at the field and policy levels to protect nature around the world. The IUCN’s (1994) Guidelines for Protected Area Management Categories include:

Category II National Park. Protected area managed mainly for ecosys- tem protection and recreation.

Net Biological Productivity

10000

8000 6000 4000

2000

Kcal/ m2/yr 0

Temperate Temperate Lakes and Swamps and forest Agricultural Grassland Streams Marshes land Type of Ecosystem

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Some rural lands also help to buffer areas des- 4.2 Rural Lands ignated for federal government accommodation in cases where an extensive open area or a rural Goal environment is required.

Productive rural lands that provide opportu- nities to learn about Canada’s rural and resource heritage.

Context

Rural land activities such as agriculture, forestry and recreation are important uses on lands of Capital significance. Farms and forests owned by the federal government, particularly those in the Greenbelt, help to structure the urban Capital, along with the provincially- mandated agricultural and rural zones in the Central Experimental Farm Outaouais and Ottawa-Carleton. They also contribute to the Capital’s supply of green spaces, and provide venues for agricultural Opportunities and Issues research and demonstration by the federal gov- ernment. • Urban proximity offers outstanding oppor-

Rural Lands. Rural Lands support tunities for public programming and near- productive farms and forests (partic- The proximity of farms and by markets for rural products and services. ularly in the Greenbelt), support out- forests to developed urban door recreational activity, and feature It can also affect neighbouring agriculture viewpoints and attractive vistas. areas provides a dramatic and forestry through the demand for urban These lands of Capital significance, example of how urban devel- services (e.g., roadways, recreational facili- along with provincially-designated agricultural zones in the Outaouais, opment, agriculture, and ties and utilities) and constraints on operat- help to structure the urban area and forestry can exist in a mutu- ing procedures (e.g., fertilising, trespass- contribute to its green image. ally beneficial state. Passive ing). recreational services related to the rural environment also broaden the visi- • There are opportunities for the develop- tor’s exposure to the rural landscapes of the ment of recreational pathways, the demon- Capital. stration of new and innovative farming techniques, the display of mature forests, The Central Experimental Farm is a National the establishment of unique woodlands and Historic Site. Both it and Greenbelt lands pro- the interpretation of Canadian rural her- vide a means for urban Canadians to enjoy and itage. to learn about farming, forestry and rural lifestyles. Farms, forests and sites for rural • Large blocks of high-quality, viable agri- recreational uses also assist in buffering more cultural soils (e.g., Class 1-3) are rare in sensitive natural and conservation areas such as this region and need to be protected to sup- Gatineau Park and Mer Bleue, and help ensure port sustainable agricultural activity. a continuous expanse of diverse green lands. 35 ...... PLAN FOR CANADA’S CAPITAL

• The federal government’s diminished role Policies in agricultural research has created oppor- tunities to meet local demand for farm- • Continue to encourage measures that will land, improved visitor access and environ- enhance agricultural or forestry sustaibili- mental management. ty and productivity on federal land (e.g., farm stewardship, diversity in the scope • Federal managed forests have tended to be and range of operations). located on marginal lands and be mono- cultures. There are opportunities to diver- • Conserve federal properties with high sify existing managed forests and to create quality (Class 1-3) agricultural soils. new high-quality forests on better soils. • Encourage activities that are compatible • Forests are perceived as a local recreation- with adjacent urban developments (e.g., al resource, rather than as a demonstration avoid intensive livestock operations). of renewable resource management. • Encourage research and display of new • In the past, programming and public and innovative farm and forest manage- involvement has been restricted to themes ment techniques on federal farms and of local interest, whereas considerable forests. potential exists to explore national themes. • Provide opportunities for the public to Federal farms and forests can include creeks, learn about significant events, individuals viewpoints, and attractive vistas. or practices associated with the develop- ment of Canadian agriculture or forestry.

• Extend the Capital’s recreational pathway network through federal agriculture and forestry lands to facilitate public enjoy- ment and learning, while at the same time ensuring that the development and use of such pathways are sensitive to the needs of farming and forestry.

• Encourage recreational uses with an out- door orientation that complement rural activities and maintain the rural qualities of the landscape.

• Direct the more intensive permitted forms of recreational development away from shore lands and wetlands.

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vis-à-vis the expanding urban area. Several 4.3 The Capital Core Area major long-standing Capital initiatives are also nearing completion, such as Confederation Goal Boulevard.

The vitality of the Capital Core Area, and With these trends in mind, a re-examination of the reinforcement of exchange between the the Capital role of the Core Area and its rela- federal and city parts of the Core, as well as tionship to the "urban" core was launched in to and across the Ottawa River. the summer of 1998 with public consultations concerning ideas to consider for the future.30 Context

The Capital Core Area extends to inner urban lands on both sides of the Ottawa River. It includes the downtown cores of Ottawa and Hull, as well as the Byward Market and the cluster of lands immediately west of the Parliamentary Precinct Area, including LeBreton Flats, the Islands (Victoria and Chaudières islands), and the adjacent industrial lands along the north shore of the Ottawa River in Hull.

The Capital Core Area is a unique mix of the symbolic and the practical, accentuated by a splendid assembly of political, cultural and administrative institutions situated along Confederation Boulevard. It is also the focus Opportunities and Issues of economic, cultural, political and administra- tive life for the metropolitan area. • While substantial work in the Core Area has focussed on the area in and around Historically, considerable work has been Confederation Boulevard, the appropriate- focused on reinforcing a distinction — physi- ness of stronger integration between the cally, visually, and symbolically — between the Capital presence and the urban fabric mer- Capital presence (e.g., Parliament Hill) and the its investigation. city fabric of the downtown core. The Core Area has undergone significant change over the • There are opportunities to better integrate past decade in terms of employment, building the symbolic and urban aspects of the Core and infrastructure viability, and a changing role

30 The document entitled A Capital for Future Generations — Vision for the Core Area of Canada’s Capital Region contains a number of ideas to enhance the Capital Core over the next 50 years.

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Area, physically and visually, to the Ottawa Policies River. • Give priority to the Capital Core Area as an • Over the next 25-50 years, much infrastruc- area for federal presence and attention (e.g., ture and many buildings in the Core Area investment, maintenance). will require significant and large-scale rein- vestment. • Investigate alternative plans for enhancing the symbolic approaches to Parliament Hill • There will be a need to accommodate through streetscaping or other means, and national cultural institutions, federal depart- investigate the creation of new links into ments, diplomatic missions and non-govern- the Parliamentary Precinct (e.g., along Bank ment institutions in high-profile, Core Area Street). locations. • Encourage better public access to the • The connections between Confederation Ottawa River (e.g., extension of the Bank Boulevard and the Ottawa River need to be Street axis). improved. Pedestrian access to the Ottawa River also requires attention (e.g., the north • Investigate means to improve cross-river end of Bank Street). access to cultural institutions in both Ottawa and Hull (e.g., water taxis). • The Islands present an opportunity to make one of the most significant industrial and • Investigate means to use capital improve- cultural landscapes in the Capital more pub- ments in the south of the Parliamentary licly accessible. This could eventually lead Precinct to help revitalise the adjacent to improved public access to, for example, Capital core area. the Chaudières Falls. • Work with regional and local governments • The Islands are important to Aboriginal and the private sector to prepare and imple- peoples as a portage and meeting place, and ment land use plans for the river edges and are considered sacred. the Islands. • There is a legacy of industrial sites along • Work with Aboriginal groups to enhance the river edges that could eventually be their representation in the Capital Core Area converted to greater public use. (e.g., Le Breton Flats, the Islands).

See Special Study Area on the Capital Core Area- • Rely on public/private and inter-jurisdic- Concept 2050 which refers to future studies of Chaudières and Victoria islands. tional cooperation to undertake the built and natural rehabilitation of the river edges and islands.

• Investigate ways in which to improve access between the Core Area and Gatineau Park, having regard for the balance between accessibility and natural carrying capacity in the Park. 38 ...... PLAN FOR CANADA’S CAPITAL

4.4 Capital Urban Green Spaces

Goal

Urban green spaces that are key elements of the Capital’s setting and open space net- work, and provide stages for Capital events, activities and interpretation.

Context

Capital urban green spaces are a major ele- Major’s Hill Park ment of the Capital experience. They are an enduring legacy from the early days of federal Core, and communicate messages of Capital involvement in the beautification of the interest. They also provide important habitats Capital. They include Capital parks (e.g., for plants and wildlife. Capital urban green Majors Hill Park) and green corridors (e.g., spaces also support a mix of formal and infor- along the Rideau Canal, the Western Corridor mal activities, and active and passive recre- west of the Central Experimental Farm). Most ation. Capital Parks, an important subset of the of these spaces are found in the urban area, pri- Capital urban green spaces system, provide marily along Confederation Boulevard, the green oases for visitors and residents, stages for Capital waterways, and the parkway network. events, activities, and interpretation, sites for Capital urban green spaces are often related to monuments, and views of national symbols. a natural, cultural or historical feature, and are generally visible and accessible to visitors to the Capital. Capital Park. Park land tied to a significant natural or built feature or historical event which makes it a major contributor to the Capital’s image (e.g., the Rideau Canal or Jacques Capital urban green spaces contribute to the Cartier Park). Capital parks serve as stages for events and Capital’s network of open space corridors, link activities of Capital significance. Gatineau Park and the Greenbelt to the Capital Key Capital Parks include the following: • Confederation Park • Jacques Cartier Park • Rockcliffe Park • Major’s Hill Park • Rideau Falls Park • Commissioner’s Park • Hog’s Back Park/Vincent Massey Park • Leamy Lake Park • Brébeuf Park and • LeBreton Common.

Jacques-Cartier Park, Hull

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Opportunities and Issues • The range of landscapes, cultural and natural features, and history associated with Capital • The size and diversity of the Capital urban urban green spaces (and within individual green spaces network make it possible to areas) offers potential for a wide range of plan, program and manage individual parks as learning experiences and programming. part of a network or larger visitor experience. • Federal parklands tend to constitute the majority of public open space available to local communities and commercial cores, and as a result could be subjected to competing user demands.

Lands considered Capital parks in the 1988 Federal Land Use Plan, but are no longer consid- ered to fulfill this role as a result of the 1995-99 review, include the following:

• Prince of Wales site is not considered to be of Capital significance, except for the shore lands. • Shirley’s Bay was redesignated as a Natural Heritage Area. • The role of each Capital Park within the net- • Gatineau Park south of Gamelin Boulevard has been redesignated to Natural Heritage work of Capital urban green spaces could be Area. more clearly defined.

• Certain lands proposed as “Capital Parks” in the 1988 Plan for Canada’s Capital are not expected to serve the roles envisaged for them as a result of the 1995-99 review. Others are not considered to serve a Capital role (see margin note).

• The management and use of some Capital Parks are characterised by competing demands for public use and park protection.

• A concentration of Capital Parks along Confederation Boulevard offers many oppor- tunities for co-ordinated public programming.

• The existing level of wayfinding and orienta- tion within and between Capital urban green spaces and Capital destinations could be improved.

Major’s Hill Park

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Policies

• Manage Capital urban green spaces as size and character that will enrich the visi- multiple-use, year-round, public spaces of tor’s experience of the urban Capital, and green and open character that can support a will contribute to community identity. range of appropriate activities. • Reserve appropriate locations in Capital • Focus public events and programming in urban green spaces for interpretation that Capital Parks. communicates Capital messages (e.g., the Green Capital, historical aspects), com- • Base public use, facilities development memorations, monuments, public art and (e.g., eating facilities, washrooms) and other visitor destinations that celebrate conservation of individual Capital urban individuals, events and ideas of national green spaces on their accessibility, visibili- significance. ty, centrality, size, views of Capital sym- bols, landscape history, natural features and • Ensure appropriate visitor wayfinding and functions (e.g., VECs),31 and other relevant visitor support services (e.g., permanent or factors (e.g., character of surrounding temporary event signage, drinking foun- areas). tains, telephones) within and between Capital urban green spaces and other visi- • Protect environmental components of cor- tor destinations in the Capital. ridor functions (e.g., VECs, ecological links between a natural heritage area and a • Continue to encourage local and regional waterway). governments to provide lands that meet the open space requirements of their citizens. • Co-ordinate the planning of corridors and recreational pathways with other govern- ments, and ensure these corridors are of a

Major’s Hill Park

31 For a definition of VECs, see Appendix 2.

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4.5 Capital Waterways and Shore Lands

Goal

Waterways that serve as accessible, continu- ous symbols of Canada’s natural and cultur- al heritage.

Context

Rideau Canal The National Capital Region is blessed with an abundance of rivers and lakes, several of which hold national significance. The region’s Capital waterways are a reflection of our coun- waterways can be seen as symbols of the try and its beginnings. Like other communities, Canadian landscape. They are a reflection of the region’s waterways and their shore lands our country and its beginnings, and have serve many roles: they are an important source played a key role in the economic and political of drinking water, they are an essential part of history of Canada. They play a symbolic role the Capital experience, they increase the quali- today by linking Quebec and Ontario, and by ty of life through their navigational and recre- creating a backdrop for many national institu- ational functions, and they provide wildlife tions. The Rideau Canal provides a unique his- habitat. toric waterway and leisure resource of interna- tional stature that penetrates the heart of the The federal government, as the largest Capital. landowner in the region, has a special responsi- bility to preserve shore lands under its owner- ship, and to manage all federal lands in a man- Examples of heritage features and landmarks ner that respects local watersheds and their include the Rideau Canal, Gatineau River, and former portage routes. A scenic feature might receiving waters. It also has a role in communi- include a major view. cating the significance and symbolic value of shore lands, as well as providing opportunities for public enjoyment through facilities (e.g., beaches and marinas) and programming.

In June of 1613, Samuel de Champlain reached the falls of the Rideau River, so-named by later French explorers because the falls resemble a graceful drapery.

Ottawa River

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Opportunities and Issues • There are opportunities to create and extend navigation along both the Ottawa • The region’s waterways and shore lands and Gatineau rivers. offer many more opportunities for interpre- tation and programming activities than • While the water quality in major rivers has have been recognised in the past. improved significantly in recent years, occasional closure of beaches continues to • Larger waterways in the region such as the occur. Rideau Canal and the Gatineau and Ottawa rivers are key communicators of Capital In the 1998 “In Touch” survey of visitors to the identity and a link to the geography and Capital, 62 percent indicated that it was “essential” to make waterfronts and shore history of the country. lands more accessible and meaningful to visi- tors. • Urban and rural activities have a major impact on water resources and related habitat quality, by shoreline erosion and deterioration, increasing water runoff and pollution loads into water courses, or by depleting and polluting ground-water.

• There is little likelihood of creating contin- uous shore lands accessible to the public in areas where the shore lands are currently privately owned.

Leamy Lake Park

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Policies

• Encourage the use of waterways and shore • Encourage the expansion of the network of lands as potential stages for Capital inter- navigable waterways to the Capital (e.g., pretation, cultural programs and commem- Ottawa River to Témiscamingue, Rideau orations, and for recreational pathways. Canal, Gatineau River).

• Ensure public facilities and programming • Work with local and provincial government of waterways and shore lands is compati- agencies to adopt contemporary planning ble with their natural, cultural, and scenic and management practices on and off fed- contexts, and that proposed uses provide eral lands in dealing with storm water in benefit to, and benefit from, proximity to order to preserve or enhance surface- or water. ground-water resources to make them safe for aquatic life, recreation and other uses.32 • Plan and manage Capital waterways to pro- tect their environmental integrity (e.g., • Encourage, with local government and through naturalisation) and encourage the provincial agencies, the prevention or rehabilitation of shorelines. reduction of environmental impacts from flooding or erosion (e.g., community dis- • Encourage public access to waterways and ruption, property damage, damage to shore lands in a manner compatible with archaeological resources). environmental protection. • Encourage, with local government and • Safeguard, communicate and enhance the provincial agencies, the prevention or significance of the heritage features and reduction of environmental impacts (e.g., landmarks, scenic features, and the natural pollution) to Waterways and Shore Lands. environment along Waterways and Shore Lands.

Water-related or water-dependent activities and • Make the Core Area river basin (compris- uses include the following: ing parts of the Ottawa River, Rideau • swimming Canal, Rideau Falls and the Gatineau • recreational boating (e.g., canoeing, kayaking) River) more accessible and meaningful to • water-skiing visitors, and a key setting to tell the story • interpretation (e.g., tour boats, facilities) • wetlands/nature study of both Canada and the Capital. • birdwatching • certain cultural institutions • eating establishment • fishing, ice-fishing • skating • contemplation, and • sunset watching • access to and within the Capital (e.g., water taxis)

32 See the NCC’s Corporate Administrative Policies and Procedures on Stormwater Management (CAPP 2CP2).

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4.6 Urban Design

Goal

Urban design that integrates architecture, streets, public spaces, and built and natural environments, to create a sense of place befitting a national capital.

Context

The role of lands of capital significance is to Confederation Boulevard, Ottawa, 1999. locate and communicate important Capital functions, symbols, and events. The highest open, waterside landscapes, and the city fabric standards in design should differentiate govern- and urban activities, which surrounds them on mental, cultural and administrative areas as both sides of the Ottawa River. Retaining and being of special significance, including the enhancing the experience of the Capital and Capital Core and parks, the Greenbelt and national landmarks such as Parliament Hill, Gatineau Park, as well as links such as park- the Supreme Court, and national cultural insti- ways, driveways, and boulevards. tutions will depend on the active protection of these landmarks and views, and the preparation The unique character and special sense of place of urban design guidelines to set appropriate of the Capital Core has evolved from the inter- standards for the future planning and develop- action between national symbols, set within ment of Capital sites.

Museum of Civilization, Hull

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Opportunities and Issues • Physical assets have a fixed life span and require rehabilitation, reconstruction, and • While there is an emphasis on the protec- preventive maintenance to ensure their tion and renovation of Capital buildings for long term quality and utility. health, safety and security, more attention must be paid to the rehabilitation and • The Capital's four-season climate presents improvement of the public spaces between a number of challenges and opportunities them, and to the recognition of their inter- to urban design that fosters a comfortable dependence as "cultural landscapes." and environmentally-sound visitor experi- ence. • Key assets such as Gatineau Park and the Greenbelt are not strongly connected to the • Confederation Boulevard and the Capital's Core Area and, therefore, do not fulfill parkways provide an example of the suc- their potential for attracting visitors. There cessful marriage of streetscape, landscape, is a need to improve these links (e.g., via and programming. signage, interpretation resources, direct vehicular links, and pathways). In the 1998 “In Touch” survey for visitors to the National Capital Region, 59 percent con- sidered it “essential” to create architecture • The development of non-federal lands, and design excellence that befits the image especially in the Core Area, requires coor- of the Capital, and contributes to a pleasant, stimulating urban environment. dination in order to positively influence the image and experience of the Capital.

• The architectural quality and landscaping of federal buildings and urban parks should be appropriate to their significance.

• There is a need to ensure that the mainte- nance of lands of Capital significance is appropriate to their role and location.

Computer renderings of Core Area visual impact analysis.

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Policies

• Continue to protect and enhance the views • Adopt a life-cycle approach as a way to and symbolic primacy of the Parliament preserve and protect assets. Buildings and other national symbols, through height controls and urban design • Ensure that standards of maintenance on guidelines in co-operation with the munici- lands of Capital significance are appropri- palities on both sides of the Ottawa River. ate to their location and role.

• Identify and develop principles for the • Work with municipalities and other agen- enhancement of cultural landscapes in the cies to strengthen the sense of the “central Capital, recognising the integrated experi- place” within the Capital, focused on the ence of buildings, spaces and landscapes. Core Area and the Ottawa River basin, and enhancing the relationship between Capital • Create high-quality connections (e.g., and local urban design. through streetscaping, landscaping, sig- nage, and banners) between destinations • Use high quality street furniture and appro- such as Gatineau Park, the Greenbelt, the priate signage (permanent or temporary) Core Area, Capital Urban Green Spaces, where required on highly visible lands of and Confederation Boulevard — in co- Capital significance (e.g., Confederation operation with municipal and other agen- Boulevard, parkways). cies. • Encourage the use of imaginative lighting, • Work with federal and municipal partners while recognizing the need to reduce light and other agencies to achieve a high stan- pollution. dard of architectural design appropriate to lands and buildings of Capital significance. • Respond to the Capital's four-season cli- mate and the increasing importance of environmentally-responsible design in urban design and architecture.

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Opportunities and Issues 4.7 Built and Landscape Heritage • Progressive forms of urban development Goal include ways to preserve and re-use heritage structures. Built and landscape heritage that is protect- ed and preserved as an important part of the • Some federal heritage buildings may be Capital’s cultural milieu. vacated as the government continues its organisational restructuring efforts. Context • The management and rehabilitation of The built and landscape heritage of national heritage buildings, particularly those that value in Canada’s Capital — buildings such as have been designated as national historic Parliament, monuments, heritage landscapes sites, requires an approach that is appropri- such as the Central Experimental Farm and the ate to their historic value. MacKenzie King Estate in Gatineau Park, transportation routes such as the historic • Cooperation between all levels of govern- Rideau Canal, and physical remains left by ment, the community, and the private sec- centuries of human activity — provides a visi- tor is required to preserve the Capital’s ble record of an important part of the Canadian built and landscape heritage. story, and makes a symbolic statement of Canadian identity. This heritage has national • The public’s awareness and appreciation significance and forms an important part of the of, and access to, Canada’s built and land- Capital’s cultural landscape. scape heritage in the National Capital Region must be enhanced. Cultural Landscape. Cultural landscapes are geo- National Historic Site. graphical terrains that exhibit characteristics of or Any place declared to that represent the values of a society as a result of • There is a need to complete, in a be of national historic human interaction with the environment. The ele- comprehensive manner, data interest or significance ments of a cultural landscape definition include the by the Minister perception, visibility and readability of the cultural bases on designated heritage responsible for Parks landscape, the notion of interaction between the indi- buildings, national historic sites, Canada. vidual and the environment, the concept of evolution of the cultural landscape over time and the meaning and cultural landscapes as a and value of symbolism in relation to history and means to set priorities for future interven- social recognition (ICOMOS Canada, 1996). tions.

• In preserving heritage, the NCC must find solutions that reflect the realities of a growing city. The challenge is to balance the protection of built and landscape her- itage with the development of the Capital in the interest of all Canadians.

Mackenzie King Estate

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Policies

• Improve public access to heritage proper- • Work cooperatively with local and provin- ties in the National Capital Region in a cial government heritage agencies to iden- manner that respects the features for which tify, interpret and preserve heritage proper- the property has been designated.33 ties of Capital significance.

• Introduce visitors to the built and land- • Ensure that heritage buildings, sites and scape heritage of the Capital in ways that landscapes on lands of Capital significance will enhance their experience of these cul- are properly identified and assessed in tural resources, while protecting the order to establish priorities. resources from undue exploitation. • Make best efforts to arrange for appropri- Federal Heritage • Prefer repair to replacement, ate alternative uses compatible with the Building. Any federal- respect original materials, and character of a federal heritage building ly-owned building that has been designated limit intervention as much as pos- when program needs end, or the building is by the Minister of sible when undertaking works on no longer fully used by the federal govern- Canadian Heritage 34 under the Federal federal heritage buildings. ment. Heritage Buildings Policy. • Ensure that new elements are • Work to ensure that the protection provided compatible with and subordinate to by federal heritage legislation continues for the building’s historical parts when under- buildings that leave the federal inventory taking new construction adjacent to federal by encouraging the appropriate province to heritage buildings. apply its historic resource protection to the building. • Endeavour to respect, to the extent possi- ble, those sites designated under provincial • Any disposal of federal heritage buildings legislation that contribute in some way to should be accompanied by legal instru- the national mosaic in the Capital.35 ments (e.g., easements) designed to ensure the continued protection of its heritage • Federal buildings and grounds which are character. designated as national historic sites should receive the highest level of protection, and • Contact and encourage the provincial their significance should be communicated ministry responsible for heritage to apply to the public. its historic resource legislation to federally- designated buildings that leave the federal inventory.

33 In a physical sense, accessibility means that the property is accessible to the public. In a psychological sense, accessibility means making the resource known to the public for its true her- itage value, through oral, written or visual media.

34 This policy reflects heritage conservation principles provided by the FHBRO Code of Practice (1996).

35 Built Heritage Policy (NCC, 1991: 2). 49 ...... PLAN FOR CANADA’S CAPITAL

Opportunities and Issues 4.8 Archaeology 36 • Regional and municipal plans increasingly Goal recognize that archaeology is a subject requiring policy guidance. Archaeological resources that are preserved and interpreted as a way to tell part of the • Our knowledge and understanding of the story of Canada. region’s archaeological resources is incom- plete. The diversity of original inhabitants and settlers, and their presence in the Archaeological Resource. The remains of any building, structure, activity, place, or cultural feature region for over 5,000 years, however, indi- or object that, because of the passage of time, is on cates that considerable archaeological or below the surface of land or water, and is of signi- ficance to the understanding of the history of a peo- potential exists. ple, place or event. • There is a need to comply with accepted standards of archaeological practice and conservation. Context • Despite the dense settlement around the Relatively little emphasis has been placed on Capital, much of the region’s archaeologi- the preservation of archaeological resources in cal potential is still in place. Canada. Early occupation of the land in Canada tended to follow its rivers. The National Capital • There are many opportunities to interpret Region’s history and pre-history is reflected in the region’s rich archaeological resources artifacts and other heritage resources that are for visitors to the Capital, while respecting related to the presence of Aboriginal peoples, their integrity. Site interpretation could European explorers and voyageurs, and later reveal Canadian history and pre-history to settlers, primarily along its waterways. the public.

36 An archaeological potential study entitled Potentiel archéologique des terrains fédéraux de la Région de la capitale nationale (ébauche) was completedby the NCC in 1998. A draft archaeo- logical resrouces policy was issued by the NCC Leamy Lake artifacts in 1991.

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Policies

• Comply with established international stan- • Respect and take into account archaeologi- dards concerning archaeological practice, cal resources of local or regional interest especially the International Charter for on federal lands when undertaking envi- Archaeological Heritage ronmental assessments. ICOMOS (ICOMOS Management adopted by ICO- (International Council on MOS in 1990. • Where archaeological resource potential Monuments and Sites) is an international non-governmen- exists and is threatened by a project or land tal organization affiliated to • Comply with recognised development (e.g., as identified through an UNESCO and is concerned with the conservation and conservation standards environmental assessment or at the concept protection of monuments, when conducting archaeo- stage of any project), require a qualified and historic and archaeologi- cal sites. logical research (e.g., data archaeologist to undertake a site assess- conservation, integrity of ment. collections, protection of sites). • Continue to develop interpretation pro- grams in which archaeological resources • Undertake necessary actions to identify, help tell the story of Canada (e.g., through conserve and interpret archaeological agencies such as the Canadian Museum of resources of national interest on federal Civilization) and of the Capital. lands. • Follow provincial legislation if unmarked cemeteries or human remains are encoun- tered on federal lands.

Leamy Lake archeological research 51 ......

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Capital Destinations 5

Introduction 5.1 Visitor Destinations

The Capital is a meeting place for all Goal Canadians. It is a place that should communi- cate Canada to both Canadians and foreign vis- A network of visitor destinations that helps itors. It is also a place where the national cul- visitors explore the Capital and learn about tural and political heritage is safeguarded and Canada. preserved. Context The first set of policies in this Section, Visitor Destinations, recognises those sites and activi- Every year, the Capital welcomes millions of ties of interest to visitors to Canada’s Capital. visitors from all parts of Canada and the world. The second set of policies, Federal Offices The Capital should be the place where the and Research Facilities, are intended to guide Canadian story is told, its culture is expressed, decisions by federal departments and agencies and the role of its national institutions is con- concerning the location and design of office veyed. Visitor destinations are cultural (e.g., buildings and research facilities in the Core museums, exhibitions), political (e.g., the Area and in federal nodes, and other peripheral Parliament Buildings, the Peace Tower) and areas such as the Greenbelt. natural/recreational (e.g., Gatineau Park, the Greenbelt, the Central Experimental Farm, and Rideau Canal).37

Visitor destinations include the following:

• Parliamentary Precinct; • Confederation Boulevard; • Public Art and Commemorations; • National Cultural Institutions; • Official Residences; and • Diplomatic Missions and International Non-Governmental Organisations.

Winterlude, Rideau Canal 37 Visitor destinations with a natural / recreational orientation generally cover a large area, and are therefore found in Section 4, Capital Settings. 53 ...... PLAN FOR CANADA’S CAPITAL

most visited heritage sites in Canada with 5.1.1 Parliamentary Precinct Area 1.5 million visitors each year, the site of major national events such as the Canada Day celebra- Goal tion, and a National Historic Site. A visit to Parliament Hill fosters a better understanding of A Parliamentary Precinct Area that is Parliament, of the federal government, of the planned, protected and interpreted as the Capital and of Canada. symbolic and political heart of the nation, as a national landmark and centre stage for Because of its signifi- The East Block and the Library of national celebrations, and as the focus of the cance, any development Parliament are the only structures within the Precinct should that survived the great fire of Nation’s Capital. 1916. The stone for the present occur in a comprehensive Parliament buildings is Nepean Context and integrated manner. sandstone, and came from a (now-closed) quarry in the wes- The planning framework tern Greenbelt. The Parliamentary Precinct Area encompasses for this area is the federal lands between Sparks Street and the Parliamentary Precinct Ottawa River, extending from the Rideau Canal Area Long Range Development Plan, jointly in the east to the Portage Bridge in the west. prepared by Public Works and Government These lands, in addition to Parliament Hill, con- Services Canada (PWGSC) and the NCC, and tain the Judicial Precinct, the National Archives tabled in the House of Commons in 1988. Its and National Library, the Wellington Street goals are threefold: South properties, and the Garden of the Provinces. Their location atop an escarpment • to accommodate and improve the functions has made for a dramatic setting unlike any other and growth of the Precinct’s main institu- Parliamentary institutions in the world. tions

Parliament Hill is more than the workplace of • to express the symbolic and ceremonial Canada’s government — it is a national symbol, roles of the Precinct, and a site of architectural beauty and historical sig- nificance, and the centre of national political decision making. The Hill is also one of the

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• to establish the pattern for development of • There is a unique but fragile relationship the highest aesthetic order, while protecting between national symbols and their natural the inherent natural and heritage qualities setting on the escarpment. of the Precinct. • There is a growing demand for commemo- Works that have been designed or are under ration of key national figures and events on construction, consistent with the terms of the the Hill. These requests need to be bal- plan, include a new Federal Court, renovations anced with environmental capacity, the to the Centre, East and West Blocks and to the protection of views and landscapes, and the Justice, Confederation and East Memorial role of the Hill as the Capital’s premier Buildings, and the renewal and provision of symbol and tourist destination. underground facilities and services. These pro- jects will continue until 2010. • The environmental capacity of the Precinct needs to be recognised in any future expansion of government, judicial and/or public record facilities.

• The views of the Parliament Buildings and other national symbols from around Confederation Boulevard and the main approach routes to the Capital, and to the Core Area (e.g., Metcalfe and York streets) need to be protected and enhanced to ensure the visual integrity and symbolic primacy of these and other national sym- bols in the Core Area. For this reason, the heights of downtown development on both Opportunities and Issues sides of the river must continue to be regu- lated.38 • Parliament Hill is the Capital’s premier symbol and visitor attraction. As a national • The needs of visitors and those who work heritage treasure, the Hill belongs to all within the Precinct must be recognised and Canadians. accommodated. The rising concern for security, health and safety must be bal- • The siting and design of Parliament Hill anced with the desire to make the site as (buildings, grounds and landscape) have accessible as possible to the Canadian pub- set a high standard for architecture and lic and other visitors (whether involved planning within the Capital, and indeed, constituents, visitors, demonstrators or within Canada. spectators at programs and events).

38 In 1997, the City of Ottawa passed a height control by-law that reinforces and potentially enhances the protection of national symbols in the Core Area.

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• Increased security measures should result • The long-term role for the front lawn on in real, substantive improvements to the Parliament Hill as the premier events space public experience of the Precinct, and for national celebrations (e.g., Canada reduce conflicts between pedestrians and Day), seasonal celebrations (e.g., vehicles. Christmas Lights Across Canada) and sym- bolic interpretation (e.g., the Sound and • Future site, vehicular, parking, security and Light Show) needs to be enhanced. servicing improvements need to be under- taken in a manner that respects the unique heritage, organisation and topography of the area and the principles of the approved plan.

• The ultimate extent and location of new accommodation and its relationship to the established building groupings should remain focused on the Centre Block and the Supreme Court.

• The relationship between Parliament Hill and the Wellington Street South buildings needs to be visually coherent and user- friendly.

• A permanent place is needed on Parliament Hill to accommodate visitor services. In the past, these essential functions have been provided on a seasonal basis by the Infotent.

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Policies

• Retain the visual and symbolic pre-eminence • Ensure that the Parliamentary Precinct of Parliament Hill within the Precinct and Area offers a secure environment and within the National Capital Region as a first maintains a high level of accessibility so priority. that Canadians can continue to understand the significance of its symbols, appreciate • Secure the long-term role of Parliament Hill its relation to their own lives and witness as the key location for major national cele- first-hand democracy in action. brations, commemorations and events. • Provide a comprehensive level of services • Protect and enhance the unique relationship and amenities that meet the needs of visi- between the national institutions of the tors to the Parliamentary Precinct Area Precinct and their dramatic natural setting as (e.g., designated pedestrian entrances, an the Capital’s pre-eminent cultural landscape. appropriate and permanent indoor visitor facility, coherent signage, interpretation • Ensure protection of the escarpment in the programs and a range of services for Precinct Area. organised groups).

• Work with local governments to protect • Ensure that events and programming views of the Parliament Buildings and other activities, as well as new or modified national symbols from Confederation structural changes to buildings, occur Boulevard as well as from major approach within accepted environmental impact routes to and within the Core Area. standards for the Precinct, and respect Valued Ecosystem Components (see • Improve pathway links between Appendix 2). Confederation Boulevard and the Ottawa River. • Ensure that new buildings, streetscapes, landscape interventions, and commemora- tions in the Parliamentary Precinct Area are designed to be both of their own time and compatible with the existing architec- ture and cultural landscape.

• Any public activities such as national cele- brations should respect the Precinct’s built, natural, and cultural setting.

Bank Steet Axis Development, (Parliamentary Precinct Plan, 1987) 57 ...... PLAN FOR CANADA’S CAPITAL

National Capital Region, and as a springboard 5.1.2 Confederation Boulevard to all of the attractions in the Region. It also provides a window to Canada, introducing Goal Canadians to the variety of ways in which the Capital represents them and their country. Confederation Boulevard as the location of Confederation Boulevard is "Canada’s Canada’s foremost political and cultural Discovery Route." institutions, the Capital’s official ceremonial route, and the focus of Capital programming The major institutions, treasures and symbols and interpretation. that represent and influence all Canadians are dramatically presented in a setting of impres- Context sive natural beauty. The Boulevard setting also serves as a stage for the national events, com- The national institutions, treasures and symbols memorations, celebrations and everyday activi- located on or near Confederation Boulevard ties that bring Canadians together and enable make it an area of major symbolic value both them to experience their Capital in diverse to the National Capital Region and to Canada ways. It is the Capital’s central meeting place. as a whole. Confederation Boulevard and the Core Area offer the ideal setting to tell the Opportunities and Issues story of Canada as well as the story of the Nation’s Capital. The national cultural and • A high standard has political institutions located along been achieved in the Confederation Boulevard express the culture Confederation Boulevard. A cere- design and construc- monial route that encompasses and vitality of a nation, build a bridge between tion of the first phase Wellington, Mackenzie and Elgin the present and past, and provide a glimpse of (north of Lisgar) Streets, and Sussex of the Boulevard route. Drive in Ottawa, Laurier Street in Hull, what the future may hold. These standards need as well as the Portage and Alexandra Bridges. This route has special his- to be maintained toric, institutional, and natural attrib- throughout subsequent utes that make it suitable for occa- sional ceremonial functions and spe- phases, and Boulevard cial cultural or recreational events. improvements need to Such events also link various signifi- be completed in a time- cant areas within the Capital’s core. ly fashion.

• As construction of the Boulevard nears completion, additional efforts need to be made to promote the role of Confederation Boulevard as Canada’s Discovery Route, to ensure that it functions well as a national meeting place, as a stage for activities and Confederation Boulevard and the lands it sur- events, and as a place to represent the rounds represent the nation in the heart of the regions of this country and Canada’s place Capital. It connects the Ontario and Québec in the world. sides of the Capital. The Boulevard area serves as the focus for the visitor’s experience of the

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• The pedestrian experience of • The Boulevard’s natural setting not only Confederation Boulevard needs to be plays an important role in contributing to planned and designed with the highest of the national character of the Core Area, it standards to integrate permanent outdoor also provides an appropriate context and interpretative nodes in high interest loca- fitting ambience for the national institu- tions along the route. tions and symbols.

• The Boulevard lacks certain key elements • The Boulevard’s distinctive setting also has such as physical and conceptual connec- potential to serve as Capital stages or ven- tions between the various attractions in the ues for programming, commemorations area, and public programs that communi- and events. cate the significance of the Boulevard area as the heart of Canada’s Capital. Initiatives • Institutions located along the Boulevard to improve pedestrian connections in the have particular responsibilities to ensure Ottawa Core Area could help in this appropriate building design, landscape regard. architecture and marketing activities, and opportunities associated with their location • Confederation Boulevard has long been the on this nationally significant route. traditional ceremonial route for state occa- sions. This role needs to be sustained and enhanced. There is also a need to ensure that the Boulevard can function as the ideal backdrop for public visibility and national media coverage (e.g., TV, Internet).

• There is a need to strengthen the physical and information links between Confederation Boulevard and national cul- tural institutions located outside the Core Area.

• The symbolic and physical dominance of existing heritage buildings along Confederation Boulevard needs to be enhanced, and new buildings must be prop- erly planned and designed in a manner compatible with this setting while meeting the future office accommodation needs of political, judicial, and research activities of institutions in the Core Area.

Confederation Boulevard next to the Museum of Civilization

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Policies

• Give the completed construction of • Designate sites along the Boulevard that Confederation Boulevard and its mainte- offer opportunities to acknowledge the nance a high priority. contributions of generations of Capital builders — the planners, architects, land- • Confirm and enhance the ceremonial route scape architects and engineers (e.g., a role for Confederation Boulevard. Todd or Gréber tribute).

• Consolidate a year-round package of crea- • Continue to protect the natural setting of tive programming that encourages visitors the Boulevard. to interact with the resources of the Boulevard area and with each other, allow- • Designate, where appropriate, selected nat- ing visitors to discover what is special ural or heritage areas (e.g. Capital Parks, about Canada’s Capital, Canada, and shore lands, and canal lock stations) adja- Canada’s place in the world. cent to Confederation Boulevard as loca- tions for interpretative programming, com- • Conserve, enhance, communicate and pro- memorations or events, while avoiding mote an understanding of the significance sensitive environments (e.g., Valued of heritage features, landmarks and the Ecosystem Components). natural environment associated with the lands and buildings in designated areas • Continue to link Confederation Boulevard along Confederation Boulevard, and along — through signage, pathways and park- nearby segments of Capital Parkways, ways, streetscaping, wayfinding tools, and Arrivals, and Scenic Entries that connect programming — to key national cultural to the Boulevard. institutions in other areas of the Capital (e.g., the National Aviation Museum, the • Protect views of the Parliament Buildings Canadian Museum of Nature, and the and other national symbols from points National Museum of Science and around Confederation Boulevard. Technology).

• Designate sites along the Boulevard for • Further develop and maintain a safe, com- animation and physical presentations such fortable and pleasant environment to facili- as public art; interpretative panels; signage tate an adequate range and distribution of (permanent, event-related where the amenities, services, and access throughout Boulevard plays a role, orientation); and the area (e.g., superior walking surfaces, activity areas that communicate Capital lighting, accessible washrooms, conces- and national messages. sions, information and telephones).

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5.1.3 Public Art and Commemorations

Goal

Commemorations of nationally significant Canadians, events or ideas in visible, access- ible and symbolically appropriate locations.

Context

It is a long-standing tradition to express nation- al values through commemorations — the cele- bration of people, events or ideas that have meaning and value for the community at large. Commemorations are expressed in a great vari- ety of ways (e.g., the dedication of streets, parks, buildings, the erection of memorials, 39 and public art). National War Memorial

The Capital is the most appropriate location this practice, with a specific focus on for commemorations of national significance. Canadian art and artists. Federal lands, such as Parliament Hill, Confederation Boulevard, the parkway and • While Canada’s historically important pathway network and the Capital’s shore lands, national political figures are well recog- as well as Gatineau Park and the Greenbelt, nised, especially on Parliament Hill, the offer many opportunities for properly locating contributions of many others, specifically these commemorations. Canada’s Aboriginal peoples, are not prop- erly addressed. Opportunities and Issues • Many nationally historic sites are not pro- • Compared with other national capitals, perly marked, are inadequately maintained there are comparatively few physical mon- or are not properly interpreted (e.g., uments to, or commemorations of, individ- Aboriginal campsites, early European uals, events or ideas significant to explorer routes along the Ottawa and Canada’s history and evolution. Gatineau rivers).

• Over the years, the Capital has benefitted • A number of national and provincia heri- from investments in public art, much of tage organizations play a role in designat- which is located on federal lands in Capital ing sites, requiring co-operation and co- parks. There is an opportunity to continue ordination (e.g., Historic Sites and Monument Board of Canada). 39 Based on research undertaken for the NCC by duToit, Allsopp, Hillier (NCC, 1988). 61 ...... PLAN FOR CANADA’S CAPITAL

Policies

• Facilitate the commemoration of individu- Confederation Boulevard, or in visible and als, events or ideas of national significance accessible locations along the Parkway on highly visible and accessible lands Network. Other sites could include key owned by the federal government. federal accommodations (e.g., Banting and Best at Health Canada). • Locate commemorations where their sub- jects are appropriate to the nature, signifi- • Develop appropriate interpretative pro- cance and environment of the site, and grams to explain the significance of these where their symbolic importance and pres- people, events or ideas (e.g., through pro- tige is enhanced by virtue of association gramming, panels). with the site. • Enhance the quality and extent of interpre- In this context, Parliament Hill should be tive materials that explain the significance reserved for Canada’s prime ministers, of places in the history of the National Fathers of Confederation, and Royalty. Capital Region and their role in the deve- Confederation Boulevard from the lopment of Canada. Peacekeeping Monument to Rideau Hall has an existing "international" character • Locate and interpret public art created by that should be reinforced by siting com- Canadian artists in high-profile lands of memorations of Canada’s role in the global Capital significance, such as Capital Parks. community, and through long-term public programming strategies. Other commem- • Promote the presence of under-represented orations of important people, events in themes in public art and commemorations. Canada’s history, and the achievements of Canadian heroes should be located along

In the 1998 ‘In Touch’ visitors survey, 79% felt it Examples of under-represented themes include was ‘important’ or ‘very important’ to increase the following: public art and symbolic elements (statues, memo- rials, etc.) in the Core of the Capital. • Aboriginal culture and history, and their contributions to Canada • the achievements of Canadian women • the role of the provinces and territories in Confederation • Canada’s contributions to the world commu- nity, and • the role of immigrants in building Canada and opening up the West.

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• National cultural institutions, under 5.1.4 National Cultural increasing pressure to minimise subsidies, Institutions use a variety of methods to attract visitors.

Goal • Federal government funds for the construc- tion of new national museums and galleries National cultural institutions that showcase are limited. However, over the life of this Canada’s cultures, history and achieve- Plan, the structures housing some national ments, meet program needs, and are visible cultural institutions will become obsolete and accessible. and require rehabilitation or replacement.

Context • While several national cultural institutions display and interpret Aboriginal artifacts, One of the Capital’s main functions is to act as there is no building or interpretation centre a cultural showcase for the nation. This is in the Capital that is solely dedicated to achieved through the presence of national cul- Aboriginal peoples, where their traditions, tural institutions — the museums, galleries, beliefs and contribution to Canada’s devel- National Archives and opment could be shared. National Cultural Institution. The National Library, and function of a national cultural National Arts Centre — institution (e.g., museum) is to display, protect and explain past, and complementary events. present and future national phe- These national cultural nomena and human achieve- institutions display, protect ments. National cultural institu- tions are also used to communi- and explain past, present cate social, cultural, political, sci- and future natural pheno- entific, technical, or other knowl- edge through various media. mena and human achieve- ments. They are also used to communicate social, cultural, political, scientific, technical or other knowledge through various media.

Opportunities and Issues

• Some national cultural institutions are neither highly visible nor easily reached by visitors to the Capital.

• National cultural institutions require unique location, site and infrastructure planning to support their programs. The management of tour buses is one high-pro- file example of the special needs of nation- al cultural institutions. National Gallery of Canada

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Policies

• Locate, as opportunities arise, national • Work in cooperation with national cultur- cultural institutions in highly visible and al institutions, along with local and accessible locations on or adjacent to regional governments, to Confederation Boulevard, the parkway create a tour bus man- A diversified transportation sys- network, and regional roads served by agement strategy. tem includes the following: public transit (in this order of priority). • parkways • recreational pathways • Achieve a level of quali- • regional roads • Design and carry out events or other ty in urban design, archi- • provincial highways • public transportation public programming in a manner appro- tecture and site planning • parking, and priate to the location and significance of of national cultural insti- • all weather pedestrian linkages. the national cultural institution. tutions that is appropri- ate to the location, func- • Enhance access to national cultural insti- tion and stature of the facility. tutions through a diversified transporta- tion system (see margin note) and visitor • Work in cooperation with Canada’s orientation system (e.g., wayfinding Aboriginal peoples to identify a site in symbols, maps), especially for those the Capital appropriate for an interpreta- institutions in the Core Area that are tion venue that complements interpreta- removed from Confederation Boulevard, tion and programming carried out in and in non-Core Area locations. national cultural institutions.

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Opportunities and Issues 5.1.5 Official Residences of Canada • All of the official residences are designated as Federal Heritage Properties, with four of Goal the six dating back to the 19th century. Rideau Hall is designated a National Official residences that provide accommo- Historic Site. The primary challenge facing dation appropriate to our country’s most the federal government for these properties senior public officials. is to balance heritage considerations with the requirements of creating a healthy, safe Context and functional environment.

In most countries, official residences are pro- • In addition to the grounds and buildings, vided to key political leaders. The specific the contents of the residences are consid- number and location of official residences vary ered both individually and collectively as considerably and as such are not always found national treasures. within a country’s capital cities. • Rideau Hall offers thousands of visitors In Canada, the number of official residences is extensive opportunities to experience the small and they are concentrated within the grounds and the main building’s interiors. National Capital Region. Canada also has the Governor General’s second official • The life-cycle management of these her- WIth nearly 400 years of residence in Québec City. The resi- itage properties is key to their continued history, the Office of the dences and their grounds support both Governor General is utility for future generations. Canada’s oldest continu- the public and private lives of the ing institution. occupants and offer official visitors to • Maintaining public and security objectives Canada an opportunity to enjoy will vary with individual sites. Canada’s hospitality and cultural diversity.

The six official residences in the National Capital Region are: Rideau Hall (the Governor General); 24 Sussex Drive and Harrington Lake (the Prime Minister); Stornoway (the Leader of the Official Opposition in the House of Commons); The Farm at Kingsmere (home to the Speaker of the House of Commons); and 7 Rideau Gate, Canada’s Guest House (for for- eign guests to Canada).

24 Sussex Drive, residence of the Prime Minister

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Mackenzie King Policies Estate

• Maintain the portfolio of official resi- dences through an efficient life-cycle maintenance program.

• Balance public, private, and security objectives of the official residences.

• Manage the portfolio of official residences in a manner that offers visitors an example of Canadian life today as well as of Canada’s vast cultural heritage.

• Prepare plans for each official residence to ensure a level of quality in the planning, architecture, cultural resource manage- ment, and landscape design that is appro- priate to the stature and function of each residence.

Harrington Lake (Prime Minister’s summer residence)

Rideau Hall (the Governor General’s residence)

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5.1.6 Diplomatic Missions and International Non- governmental Organisations

Goal

Diplomatic missions and international non- governmental organisations whose symbolic role, physical presence and accessibility is enhanced. United States Embassy Context Opportunities and Issues The presence of foreign embassies and diplo- matic missions is another attraction for visitors • Canadians, and visitors to the Capital, are to the Capital. The Capital currently hosts more interested in learning more about Canada’s than 100 foreign delegations from countries roles in world affairs. The presence of the with which Canada maintains diplomatic rela- diplomatic community offers an opportuni- tions. Most diplomatic missions maintain both ty to learn about life in other countries. a chancery and a residence. Diplomatic mis- sions may be situated anywhere in the National • The residences and chanceries of the diplo- Capital Region, on either side of the Ottawa matic community are dispersed throughout River. Many countries rent space for their the region. Consequently, their symbolism chanceries in commercial office buildings and role in the Capital are understated. located throughout the region. • Along Sussex Drive, there is an opportuni- Diplomatic Missions. These are the accredited repre- ty to capitalise upon the current and future sentatives of foreign states. Most diplomatic missions maintain both a chancery and a residence. A chancery presence of diplomatic missions, the pres- is the main business office of a delegation, while a ence of Canada’s Department of Foreign residence is the official residence of the Head of the diplomatic mission. Affairs and International Trade, and current NCC programming about Canada’s role in the global community (‘Canada and the International organisations, such as the World’). European Community and United Nations agencies, have important connections with fed- • International organisations (e.g., United eral departments such as Foreign Affairs and Nations agencies) and some diplomatic International Trade. Diplomatic missions and missions lack a visual identity in the international organisations make a significant Capital because many are located in com- contribution to the image of the Capital, and mercial office buildings in the Core Area. represent an important facet of Canada’s role on the world stage. International Organisations. This refers to public organisations within the meaning of the Privileges and Immunities (International Organisations) Act. It can also refer to an organisation established by treaty, or by some other form of international agreement.

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• Affordable and secure accommodation is Policies increasingly important for diplomatic mis- sions and international organisations, espe- • Acknowledge the right of diplomatic mis- cially in the Core Area. sions and international organisations to make autonomous location decisions on • Embassies and missions located in residen- the basis of factors such as affordability, tial neighbourhoods can affect traffic and security and other considerations. parking. Embassies can also provide a cer- tain prestige to residential neighbourhoods. • Set aside federal lands on or adjacent to Confederation Boulevard (e.g., the International District along Sussex Drive) Over 110 embassies or high commissions are located in the National Capital Region. as the preferred locations for high-profile diplomatic missions and international organisations.

• Recognise Sussex Drive as the focal point for public programming that explains Canada’s role in the international com- munity, and as a formal diplomatic precinct in the Core Area.

• Encourage site-specific planning to deal with development and design issues and required municipal approvals for locations involving federal land. British High Commission • Encourage diplomatic missions and inter- national organisations to create an accessi- ble, visible ‘public face’ and interpretative program at their chanceries and offices for visitors to the Capital, consistent with their operational requirements and sensitive to effects on adjacent communities.

• Encourage municipal land use plans and zoning bylaws to recognise the unique contribution and special needs of the diplo- matic community (e.g., special parking requirements). Model of the Saudi Arabian Embassy

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5.2 Federal Office and Research Facilities

5.2.1 General Policies

Goal

Federal accommodations that meet pro- gram needs, provide a healthy work envi- ronment, and whose location has regard Terrasses de la Chaudière for regional and local planning objectives. when meeting the demand for federal accom- Context modations (or considering the life-span of fed- eral buildings). The federal government has long been the region’s single largest employer, largest The federal government will require buildings landowner and largest single tenant in leased able to support its activities. For example, office accommodations, especially in the Core offices built as recently as the 1980s may be Area. Since 1995, the federal government has technologically deficient or obsolescent. There extensively reorganised its operations. This will be a demand for work spaces with updated process will result in fewer federal employees heating, ventilation and air conditioning and, in some cases, the creation of new, more (HVAC) systems, electrical systems and fibre arms-length agencies to deliver services. The optic wiring systems. emergence of these new agencies, with their specialised accommodation needs, may make The size and nature of work spaces will change the coordination of federal land use and accom- considerably. Downsizing and the advent of modation planning especially challenging.

Bearing in mind the distribution of federal Federal Accommodations policies are divided employees between Ontario and Quebec, the into three sections:

portion of the Core Area within Ottawa will • Section 5.2.1 policies apply to federal remain a major focus of federal employment. accommodations at a general level.

• Section 5.2.2 policies deal with federal Continued fiscal restraint means that location accommodations in the Core Area of decisions will reflect stringent cost-effective- Ottawa-Hull. ness criteria. The federal government will • Section 5.2.3 policies cover federal accom- reduce its size and — to the extent possible — modations that are found outside of the Core Area, and include Federal Nodes such concentrate departmental staff in federally- as Tunney’s Pasture, Greenbelt sites, and owned office buildings. Whether space is such facilities as the National Archives in Gatineau. Crown-owned or leased, other factors have become important and must be considered

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alternative work arrangements — such as tele- • Surplus federal lands and buildings could be work and shared work spaces — reduce the need redeveloped or re-used in a manner that for space and require more flexible arrange- supports national, regional or community ments in building floor space. economic development goals.

Furthermore, the benefits of on-site services • There will be opportunities for federal such as day-care, fitness facilities and restau- departments to share accommodations with rants are recognised as a means of saving time other departments and other complementary and enhancing personal productivity and quality organisations (e.g., private or not-for-profit). of life. • There is an opportunity to enhance access to

Of the Capital’s population of 29,283 in 1871, federal employment centres by making bet- only 319 were civil servants. ter use of regional public transit. Similarly, there is an opportunity to reduce demands on transportation systems because of Opportunities and Issues changes in communications technology that may affect work behaviour and location • After salaries, accommodation is the largest (e.g., telework). component of federal government adminis- tration costs. • Many federal office complexes lack on-site employee services and amenities. • The spatial distribution of federal employ- ees has important regional economic and • Many federal government office complexes symbolic roles. Since 1969, the govern- lack visitor orientation facilities, thereby ment’s policy guideline has been to locate missing the opportunity to communicate approximately 75 percent of federal their mandates and achievements to visitors. employees in the Ontario and 25 percent in the Outaouais portions of the National • Federal buildings and grounds generally Capital Region. lack public art, sufficient identification or interpretation materials. • Within the life of this Plan, many federally- owned buildings will reach the end of their life-cycle, requiring decisions about poten- tial retrofit, re-use, redevelopment or other options.

• Federal buildings or lands that may be vacated as the result of obsolescence could appear derelict and contrary to the green, vital image of the Capital. Previously devel- oped sites may be contaminated and require remediation.

National Archives, Ottawa

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Policies

• Accommodate 75% of federal employ- • Redevelop or adapt previously developed ment in the Ontario portion of the federal lands before considering the use National Capital Region and 25% in the of undeveloped lands to meet federal Quebec portion, subject to the regular accommodations needs, where possible. review of permitted variations that achieve best value and operational flexi- • Encourage development and redevelop- bility. ment concepts for federal employment areas that support alternatives to the use • Locate federal agencies and departments of personal automobiles, demonstrate a (particularly headquarters functions) in preference for travel demand management the Core Area as a first priority, unless measures, and support public transit, inappropriate due to departmental require- cycling, and pedestrian access. ments. • Promote alternative work arrangements in • As a second priority, locate federal agen- the allocation and accommodation of fed- cies in federal nodes, followed by eral employees in the Capital (e.g., tele- employment centres or transit nodes iden- work). tified by local and regional government plans (e.g., Tunney’s Pasture, • Locate federal employees in office and Confederation Heights). research facilities that are energy efficient, and feature modern and flexible HVAC, • In all other cases, locate federal employ- electrical, telecommunications, and infra- ees in proximity to public transit services, structure such as resource reduction (e.g., and by exception in areas without such recycling). services (e.g., locations that meet special operational needs). • Ensure that the function, scale, and design of federal buildings and services are pro- • Locate federal agencies and departments, perly integrated with adjacent community as well as other organisations with com- land uses and services (e.g., retail and patible activities, in Crown-owned build- commercial services, and recreational ings where common services can be infrastructure). shared. • Encourage the use of informative signage, • Explore opportunities for adaptive re-use appropriate landscape treatments, and or retrofit of federal buildings to accom- public art at buildings owned or leased by modate federal employees before consi- the federal government, especially in dering new construction elsewhere, while areas of high visitor exposure (e.g., the demonstrating regard for building charac- Core Area). ter and any heritage characteristics.

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Confederation Heights

Tunney’s Pasture

Policies (continued)

• Encourage departments to provide a • Develop or redevelop lands that have ‘public face’ (e.g., visitor centre and low rather than high ecological value public programming, related commemo- when considering the future role of sur- rations) on-site to explain their man- plus federal lands. dates and activities. • Redevelop surplus federal lands or • Apply standards of urban design, buildings in a manner that meets federal signage, architecture and landscape government needs and complements treatments to federal buildings and lands regional and local government objec- that are appropriate to their location, tives (e.g., urban intensification, mixed visibility and role. land uses, regional economic develop- ment). • Consider issues such as the symbolism of building location, heritage status, use, • Promote, where appropriate, the incor- community stability, demands on urban poration of additional land uses within infrastructure and effects on the natural federal office complexes which provide environment. on-site services to enhance the quality of life for employees. • Designate land outside urban areas to accommodate those federal installations that require specialised locations for iso- lation, buffering, or other needs (e.g., CANMET laboratories in the Greenbelt).

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5.2.2 The Core Area: Federal Accommodations

Goal

A Core Area in which the federal govern- ment maintains a significant physical and employee presence.

Bank of Canada Context • The Core Area is the location for the The federal government is the largest single majority of national cultural and political property owner and consumer of commercial institutions, and is the primary destination office space in the National Capital Region. for visitors to Canada’s Capital. An oppor- Location decisions made by the federal gov- tunity exists for departments to communi- ernment therefore significantly affect the use cate their mandates and activities through of public transit systems, traffic initiatives such as an on-site departmental The Core Area is a flows, commercial and retail activity, sub-area of the Central interpretation centre. Capital identified on and building vacancy rates. the Capital Core Area- Concept 2050, after The federal government’s presence is page 86. Policies a major contributor to a healthy Core Area for both Ottawa and Hull — the • Consider the Core Area as the preferred traditional location of most federal office location for the majority of federal office workers. employees based in the National Capital Region. Opportunities and Issues • Locate, to the extent practicable, the head- • A significant number of federal employees quarters functions of departments and work in non-Core Areas throughout the agencies with national or international sig- region. This distribution of employees can nificance within the Core Area. impede ease of access to departments by visitors, and can contribute to the ineffi- • Locate different federal departments in cient use of Core Area municipal infra- shared accommodations (co-location) structure (e.g., regional public transit). where opportunities arise. • The federal government intends to contin- • Encourage departments to enhance their ue to use a mix of leased and crown- ‘public face’ through on-site information, owned accommodation in the National landscaping, art, and other means that help Capital Region. Any change in this mix communicate their mandates and activi- could affect the Core Area of Ottawa, ties. where much of the federal government’s leased space is located.

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5.2.3 Non-Core Areas: Federal Accommodations

Goal

Federal employment nodes and facilities that meet the program needs of federal depart- ments, and whose functions and character are compatible with adjacent communities.

Context Confederation Heights Nearly 50 years ago, the Gréber Plan advo- cated decentralised employment nodes as a require adaptation of building use and infra- means of alleviating downtown congestion and structure. These trends shortening commuter distances between home include the following: The Ottawa Magnetic Observatory and work. Decentralisation was also seen as a declining size of the federal — located immediately north of means of consolidating federal functions and Mer Bleue in the Greenbelt — public service, major monitors continuous fluctuations reducing the scattered pattern of temporary changes in the employment in the Earth’s magnetic fields, war-time buildings. and is part of an international status of federal government research consortium called employees, physical INTERMAGNET. In 1957, the federal government undertook an changes to the workplace, Located in the Communications extensive construction program to accommo- devolution of federal Research Centre in the Greenbelt, date a rapidly growing public service. In the the David Florida Laboratory is responsibilities to other lev- Canada’s national facility for years that followed, federal employment nodes els of government, and spacecraft assembly, integrating were established in non-Core Area locations decentralisation of federal and testing. such as Tunney’s Pasture, Confederation staff to other regions in Heights, Booth Street, Montréal Road and other Canada. sites. Most of these nodes are recognised in local and regional plans as employment cen- tres, and are connected to the Core Area via parkways and public transit.

A number of smaller facilities have also been built, including a number in the Greenbelt such as National Resources Canada’s Geomagnetic Laboratory and Communications Canada’s Shirley’s Bay Research Centre. More recently, the National Archives building in Gatineau and the Canadian Museum of Nature’s facility in Aylmer have been constructed.

Significant trends in both federal accommoda- tion demand and office space supply may

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Opportunities and Issues local or regional long-term transit planning objectives (e.g., transitway routes) or • Some federally-owned office buildings in regional employment centre policies. various nodes will become obsolete and will need repairs and retrofits. • Traffic congestion and parking spill-over by federal employees can occur in adjacent • Older buildings constructed during the neighbourhoods. 1950s and 1960s may not meet the work- place standards of the future. Federal Facility. A smaller cluster of buildings outside of the Core Area usually associated with a single department for specialized needs. In • There is often a lack some cases, isolation and buffering may be required to accommodate operational needs. The Federal Node. Large campus-style of consumer services and range of employee services is usually limited. complexes located outside the Core facilities in federal nodes Area that accommodate federal insti- tutions, including those of more than for federal government one department. The density and employees (e.g., food out- intensity of development in a federal node depends on the program needs lets, banking). Many nodes of its resident departments, and need to be made more "liv- includes a range of employee ser- vices. able" for federal employees.

• Some federal nodes and facilities are difficult to service by regional transit (e.g., the National Research Council and Canada Mortgage and Housing Corporation node on Montréal Road), and may not be compatible with

National Archives, Gatineau

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Policies

• Locate federal departments and agencies • Locate employees in federal nodes that are with special program requirements (e.g., close to (e.g., within walking distance) research and development, security) in regional public transit stations or bus stops non-Core Area sites (e.g., federal nodes) wherever possible. that meet their respective operating needs. • Integrate commercial, private/public sector • Classify non-core accommodations into research and development, institutional federal nodes and federal facilities, as and/or residential forms of development shown on the Urban Capital-Concept that complement existing land uses in fed- 2050 after page 86, and as defined in the eral nodes wherever possible. margin notes on page 75. • Locate consumer services such as restau- • Intensify accommodation development in rants, banking facilities, day-care, recre- existing federal nodes (e.g., Tunney’s ation and fitness complexes in federal Pasture, Confederation Heights, Montréal employment nodes wherever possible. Road) before creating new nodes or dis- persing federal accommodation wherever • Encourage a ‘public face’ that explains the possible. site program of a node or facility.

• Encourage a comprehensive and consulta- • Plan and design federal facility develop- tive approach to the planning, real asset ment located in the Greenbelt to respect management and development of federal the Greenbelt’s rural character. nodes and facilities. • Endeavour to work with regional authori- • Maintain a high level of quality in urban ties to identify ways to increase the share design, architecture and landscaping of transit at nodes and facilities not cur- appropriate to the node or facility and its rently well-served by transit.40 location.

40 This policy does not imply financial support from the federal government.

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Capital Links 6

Introduction the regional transportation function does not jeopardise primary federal objectives. These policies concern access to the Capital and accessibility within the Capital. There are Links extending in from the edges of the two types of Capital Links. One comprises National Capital Region comprise: Capital Arrivals and Scenic Entries, extending in from the edges of the National Capital • Capital Arrivals and Scenic Entries; and Region, including the major rail, bus and air • Inter-provincial Access. terminals that serve the Capital. A second set of Capital Links comprises elements of the Links within the National Capital Region region’s transportation sys- include: tem. This includes inter- Capital Links are defined as those assets or infrastructure which provincial bridges, Capital • the Capital Parkway Network; and facilitate access to, or within, the parkways and the Capital • the Capital Pathway Network. National Capital Region. Examples of links include roads, pathway system. rail lines, waterways, air travel, recreational pathways, and bridges. The federal government recognises that safe, attrac- tive, effective and efficient transportation is integral to the future evolution of the Capital. The spine of the Capital network is formed by parkways owned by the federal government. The primary objective of these parkways is to provide access to, and between, Capital institutions, attractions, scenic areas, parks and federal accommodations.

Some federal transportation infrastructure has Bank Street Bridge over the Rideau Canal been used to help meet regional transportation needs (e.g., some parkway segments for tran- sit purposes, recreational pathways). This allowance has been by exception and special agreement with regional transit agencies, where

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6.1 Capital Arrivals and Scenic Entries

Goal

Transportation links to the Capital that cre- ate a sense of arrival to the Capital and meet the needs of visitors for information, orienta- tion and services.

Context Ottawa Macdonald-Cartier International Airport The National Capital Region’s arrivals play a key role in influencing the visitor’s perception Opportunities and Issues of the Capital. The Capital is accessible by highway, rail, air and water (e.g, along the his- • Key Capital Arrivals such as the Ottawa toric Rideau Canal). Capital Arrivals denote Macdonald-Cartier International Airport, major routes to and from the Capital within the the train and inter-city bus stations, and National Capital Region. Capital Arrivals are certain lockstations along the Rideau Canal also key points of arrival, including the train are key points of first impressions and and bus stations, the Ottawa Macdonald-Cartier information on the Capital. International Airport (including the main termi- nal and the Canada Reception Centre), certain • The amount of visitor orientation at key Rideau Canal lockstations, and the Capital Capital Arrivals could

InfoCentre. be improved. Scenic Entry. A provincial or arterial road that offers a scenic • Many arrivals are alternative to Capital Arrivals. Capital Arrivals influence visitors’ perceptions These roads generally allow some of the region and, indeed, of the nation. They owned or managed by private access, but pass through are the visitor’s first point of contact with the other governments, or areas of scenic value such as river or open space corridors and Capital, and are therefore significant in terms the operation of the feature higher standards of land- of image creation and communication of the facility has been com- scaping and design than conven- tional regional roads. Capital. Arrival corridors and terminals should mercialised (e.g., the therefore be well designed and serve to orient Ottawa Macdonald- visitors to the region through proper landscap- Cartier International Airport is now man- ing, signage and related facilities. aged by a local airport authority). This highlights the need for co-operation among Scenic entries are complementary routes, found agencies. mostly in the built-up areas, that offer a scenic and alternative access to the core of the • Major provincial highways and roads Capital. These scenic routes are generally under could, with proper design, signage and the jurisdiction of regional governments, and landscaping treatments, play a significant can also connect to the Capital Parkway role as Capital Arrivals (e.g., Highway A50 network. in the Outaouais, and Highway 416 in Ontario) in addition to their basic transport 78 ...... PLAN FOR CANADA’S CAPITAL

functions. For example, the treatment of Policies the new Highway 416 arrival in the Greenbelt should set a standard for the rest • Continue to support the improvement of of the National Capital Region. air, rail, water and highway access for visi- tors to the Capital. • The major Capital arrivals (e.g., Ottawa Macdonald-Cartier International Airport) • Provide informative and high-quality sig- and corridors (e.g., Highways 416, 417, nage, protect scenic views and natural ele- the Airport Parkway, inter-city rail corri- ments, and feature enhanced landscape dors, and McConnell/Laramée) are con- quality and sensitive lighting at Capital trolled by non-federal agencies with differ- Arrivals on and adjacent to federal lands. ent interests and requirements. • Work with other jurisdictions to create • The Capital role of Arrivals and Scenic quality visitor orientation signage, tourist Entries is more important than issues of information facilities, interactive displays, ownership. For example, the arrival role of orientation materials or other media that the Airport Parkway needs to be main- communicate the "Capital experience" at tained despite its divestiture to the regional high-profile, high-volume arrivals (e.g., government. Ottawa Macdonald-Cartier International Airport, train and inter-city bus stations, • Two scenic entries await completion on the selected Rideau Canal lockstations, inter- Québec side: the Voyageur corridor in sections of provincial highways). Aylmer and the Draveur corridor in Gatineau. • Work with other jurisdictions to achieve consistency and high-quality design stan- dards worthy of a national Capital at Capital Arrivals (e.g., the Airport Parkway, key provincial highways and regional roads, Rideau Canal lockstations).

• Encourage policies of other jurisdictions that enhance the visitor experience of Scenic Entries through pleasing landscap- ing, street furniture and lookouts, signage and other relevant attributes which respect the primary function of the road (e.g., Riverside Drive, Draveur corridor).

• Co-operate with other levels of govern- ment in the design and development of future scenic entries (e.g., the proposed

Ottawa Train Station Draveur and Voyageur corridors).

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Opportunities and Issues 6.2 Inter-provincial Access • Inter-provincial crossings (e.g., existing Goal bridges) play an important symbolic and functional role as physical links between Inter-provincial crossings that facilitate the Ottawa-Carleton and the Outaouais. movement of people and goods between the Ontario and Québec parts of the National • The Alexandra ("Inter-Provincial") and Capital Region. Portage bridges are key elements of Confederation Boulevard and support Context Capital events in the Core Area.

The National Capital Region is a single eco- • Inter-provincial bridges are congested with nomic entity that encompasses communities in peak-period traffic (with the exception of both Ontario and Québec. The regional and the Macdonald-Cartier Bridge), while some provincial highway systems, along with the older bridges have major structural prob- bridges that cross the Ottawa and other rivers in lems (e.g., Champlain Bridge) or significant the National Capital Region, are critical links in heritage or historical value (e.g., Alexandra the region’s transportation and economic sys- Bridge, CP rail bridge). tem. • Projections of regional economic and popu- Most transportation infrastructure falls under the lation growth indicate that a new Ottawa control of provincial or regional governments or River crossing will be required by 2011 as is managed by the private sector (e.g., the local the capacity of existing inter-provincial airport authority at the Ottawa Macdonald- bridges is exceeded. Cartier International Airport). For historical and legal reasons, the federal government owns and • The location and design of future river manages key cross-river bridges in the region, crossings and their approaches can affect and has contributed to the construction of adjacent residential communities, and the regional-scale roads (e.g., the Québec Road location and form of urban development Agreement and the Queensway section of generally. Highway 417). • Bicycling, walking and public transit are Inter-provincial access in the region is achieved increasingly important travel choices that by means of five federally-owned bridges span- are not well accommodated on existing ning the Ottawa River. A rail bridge also spans inter-provincial bridges. the river at Lemieux Island.

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Policies

• Co-operate with provincial, regional and • Design inter-provincial crossings (includ- local governments to monitor and evaluate ing rehabilitated bridges) to accommodate the performance of various travel demand cyclists and pedestrians to the greatest management measures (e.g., staggered extent possible, and where appropriate and work hours, telework) to determine the feasible, public transit and high-occupancy need and timing for future inter-provincial vehicles. crossings. • Continue to protect federal lands for the • Co-operate with provincial, regional and possible implementation of a new inter- local governments and the private sector to provincial crossing in the long term promote measures to reduce the demand (beyond 2011). for inter-provincial and regional travel while recognising political, social and eco- • Work with all interested parties to min- nomic considerations. imise the environmental effects of future river crossings on adjacent areas. • Continue to co-operate with other levels of government and the private sector to reach • Consider the possibility of water links, in a consensus regarding the most appropriate co-operation with regional governments corridors for the possible implementation and private interests, where feasible and of new inter-provincial crossings in the appropriate. long term. • Amend this plan as a result of any inter- • Consider, with other jurisdictions, the need agency agreements to pursue an inter- for a transportation authority to manage provincial crossing strategy. future river crossings.

Champlain Bridge Alexandra Bridge, completed 1901

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6.3 Capital Parkway Network

Goal

A parkway network that facilitates safe, scenic and efficient road access to Capital settings and destinations.

Context

Parkways communicate the green quality and image of the Capital. They provide motorised Rockcliffe Parkway access to Capital destinations (visitor destina- tions and federal offices) in Ottawa-Carleton and the Outaouais. Occasionally, Parkways are Opportunities and Issues venues for public events and celebrations (e.g., Winterlude). • Certain Parkway segments are heavily used by commuters and by regional public tran- Today, portions of Capital parkways provide sit vehicles (e.g., the key links in the regional transportation and Ottawa River Parkway). transitway system (e.g., Ottawa River While not the original Capital Parkway. A limited or con- trolled access, scenic roadway Parkway). Parkways also continue their historic role for the Parkways, that is designed, built and main- role as recreational and leisure driveways for the granting of access, tained to NCC parkway standards. It runs through land of distinctive visitors and residents. as an exception, to scenic quality. It commonly con- regional public transit sists of two lanes with minimum The arrival function of Parkways remains key 60 m rights-of-way reserved for vehicles on some seg- landscaping and open space. to influencing the perception of visitors and to ments has reduced the communicating the image and landscape of the need in the short to Capital. The majority of Parkways are located medium term to construct transitways in in Ottawa-Carleton. The Gatineau, Champlain, adjacent communities. and Fortune Parkways are located in Gatineau Park. • The approach to Parkway corridor manage- ment has changed over the years, with additional opportunities to shift from mani- cured landscapes toward naturalised land- scapes.

Gatineau Parkway

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Policies 41

• Ensure that Capital Parkways continue to function • Highlight parkway links extending from provincial primarily as key parts of the green image of the and regional road networks (e.g., Aviation Parkway Capital and as a means of communicating the from Highway 417) as the preferred visitor Capital to visitors. approaches to Capital destinations (e.g., national cultural institutions, Core Area). • Use the Parkway Network as a key form of access to Capital destinations for visitors and federal • Incorporate recreational pathways or lanes as part employees (e.g., federal employment nodes) via of repair or reconstruction programs along Parkway Capital Parkways. corridors to facilitate sustainable and alternative forms of transportation (e.g., walking as well as • Accommodate by special arrangement public transit commuter and recreational cycling). service along segments of the Parkway Network to enhance visitor access to Capital destinations and • Permit visitor supportive uses and ancillary facili- settings, where appropriate and feasible. ties in appropriate locations along the Parkway Network with low environmental and community • Encourage the maintenance of approved standards impacts. of design and landscaping for all Parkways. • Maintain high quality limited access parkway and • Ensure that orientation and temporary signage (i.e., driveway corridors, free of commercial vehicles, limited to special events) in Parkway corridors is that provide a unique, safe, and comfortable experi- properly designed, informative, and relevant to and ence of the Capital for motorists and non-motorists. harmonious with the setting. To do so, control the density, types and scale of vehicular traffic and, through standards of design, • Encourage compatible land uses and built forms landscaping, and maintenance, ensure appropriate alongside Parkway corridors that complement the environments in terms of noise, air, and scenic parkway experience. qualities, views and vistas.

• Protect existing natural features in Parkway corri- dors (e.g., Valued Ecosystem Components) and where the landscape character and adjacent land uses permit, facilitate the naturalisation of Parkway corridors.

41 The forthcoming Urban Area Master Plan will provide policies for specific sections of the Parkway Network.

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6.4 Capital Pathway Network

Goal

A pathway network that provides safe, scenic and non-motorized access to Capital settings and destinations.

Capital Pathways. Capital pathways accommo- date a variety of non-motorized recreational users, including cyclists, pedestrians, cross- country skiers, in-line skaters (without poles), joggers, and disabled individuals (NCC et al., 1994: iv). (which was approved by the NCC and regional and local governments in the National Capital Context Region) entitled Integrated Network of Recreational Pathways for the National Capital The creation of an integrated network of recre- Region. ational pathways for the National Capital Region has been part of the federal govern- Opportunities and Issues ment’s planning of the Capital since the 1950s. The Capital Pathway Network has a strong • There is an opportunity to link the Capital influence in structuring and communicating the Pathway network with the evolving system landscape of the region. The network comprises of national trails (e.g., Trans-Canada Trail pathways along waterways and green corridors and other pathways), and with a proposed set within the urban and natural environment of conceptual regional network of pathways. the Capital. Its role is similar to that of the Parkway network because it provides links • There are opportunities to communicate between visitor destinations and activity nodes the significance of the Capital Pathway throughout the region. network as a key element of the Capital experience. The Capital Pathway network has significant environmental, recreational and touristic value. • Missing links in the Pathway system It helps preserve natural resources and require completion to achieve a continu- advances the principles of sustainable develop- ous, integrated pathway network. ment. The network is a key element and asset of the Green Capital and helps to provide a • Recreational pathways are fairly uniform symbolic link to Capital attractions along with in appearance and function, but the use of destinations outside the National Capital some segments by commuter traffic has Region. The network is also an excellent exam- introduced multiple functions and potential ple of cooperation among federal, regional and user conflicts. municipal governments. In 1994, these partner- ships produced a strategic development plan

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More could be offered in the way of com- patible facilities to enhance the enjoyment of the experience (e.g., service facilities and rest areas, commercial facilities such as bicycle rentals and refreshment stands).

• While an integrated system of directional and orientation signage has been installed on pathways owned and managed by the NCC, a continuing commitment is required to complete the task on pathways of other jurisdictions.

• Many pathways are located in remote areas, are not lit, or are screened by vege- tation.

• Pathways are often located within, and span, areas that have played significant roles within the development of the region. • While many existing pathways have been There is a need for more extensive inter- rehabilitated to new standards, a continuing pretation of the Capital, using the pathway commitment is required to complete the network and adjacent lands (e.g., archaeo- task (e.g., pathway width). logy, natural resources, waterways). • There are opportunities to naturalise many segments of the pathway network, thereby protecting environmental integrity and reducing maintenance costs.

• The majority of recreational pathways are maintained and used only during spring, summer and fall. Winter use of selected corridors needs to be explored in relation to access to Capital destinations and fea- tures.

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Policies

• Continue to cooperate with local and • Identify and manage segments of the regional governments to plan, implement Capital Pathway network for all-season use and manage an integrated network of (e.g., cross-country skiing in winter) in recreational pathways that complements a relation to access to Capital destinations separate commuter network managed by and features. other levels of government. • Permit and encourage land uses and ancil- • Connect the Capital Pathway Network with lary facilities in appropriate locations along other networks that link the Capital to the the Pathways (e.g., restaurants, bicycle rest of Canada (e.g., Trans-Canada Trail, rentals, rest areas and washrooms) that Route Verte), and with a proposed concep- involve low environmental impacts and tual regional network. considerable community benefits.

• Provide continuous green links between • Promote, in conjunction with other juris- the Greenbelt, Gatineau Park, the Core dictions, the extension and integration of Area and other Capital destinations (e.g., all recreational pathway networks in the natural cultural institutions, federal National Capital Region, and encourage employment nodes, Capital urban green the linkage of visitor attractions throughout spaces/parks), and ensure the protection of the Greenbelt, Gatineau Park and rural open space corridors required to achieve areas around the Capital. these links. • Ensure the protection of Capital Pathway • Continue efforts to enhance and upgrade corridors within surplus federal lands. existing Pathways to new design and safety standards (e.g., standard width, universal • Co-operate with other levels of govern- accessibility). ment and local communities to preserve existing, abandoned, or underused trans- • Facilitate the naturalisation of Pathway portation corridors (e.g., surplus rail lines) corridors, where the landscape character as potential corridors for transit, recre- and adjacent land uses permit. ational pathways, other transportation modes, or utilities — • Develop and implement interpretation where feasible, with infrastructure, including a uniform and priority on recre- integrated signage/wayfinding system ational pathway use throughout the network in order to create where overlap with visitor circuits and link major destinations the Capital Pathway along Pathways. network exists.

Entrance to Gatineau Park

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Plan Implementation 7

Introduction

The NCC will use this Plan in its role as the planning authority for federal lands in the National Capital Region, and as the guiding policy document for all land use decisions that it makes or influences. The Plan will also serve as a statement of federal land use intent for consideration by the other planning jurisdic- The Plan Hierarchy at the NCC tions in the National Capital Region. Amendments The success of this Plan will depend on the capability and commitment of the partners The policies and policy maps of this Plan will responsible for its implementation — that is, be subject to amendment. Other sections such federal agencies and departments, other levels as the Context or Opportunities and Issues will of government, and other potential contributors not require formal amendment. When a pro- to Capital building. Extensive consultation with posed land use cannot be supported by the other interested parties is seen as an essential existing provisions of the Plan, an evaluation component of their implementation and will determine whether the proposal should includes a recognition of regional and munici- proceed or whether the Plan should be amend- pal planning processes and public consultation. ed to allow the proposal.

Master, Sector and Area Plans Proposed amendments may come from the NCC, from other federal agencies and depart- This Plan is regional in scope and strategic in ments, or from other interested parties. Any nature. The designations shown on the maps proposed amendment will be subject to a thor- are broad and conceptual. Specific guidance for ough review carried out under the NCC’s individual parcels of land is available at the Federal Land Use Approval process which, Master, Sector and Area Plan levels. By work- depending on the scale of the amendment, may ing within the parameters set by the Plan for include public consultations. Canada’s Capital, existing and future Master, Sector or Area plans will provide detailed land use policy guidance for more specific areas.

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7.1 Land Use and Design Approvals

The day-to-day administration of requests to use federal lands in the Capital and the continu- ing implementation of the Plan will be conduc- ted through the NCC’s Federal Land Use, Design and Land Transaction processes. Proposals for the use of federal lands may The Aqueduct come from within the NCC, from other federal (LeBreton Flats). departments and agencies, or from other inter- All proposals will be reviewed through the ested parties such as municipalities, the private Federal Land Use and Design Approvals and sector, not-for-profit agencies or individuals. Land Transaction processes for conformity with the Federal Design Approval. Federal design review is primarily con- Federal Land Use and Federal Design Approvals. policies of this Plan, as well cerned with the layout, design or These two types of approvals arise from the as the objectives and poli- site development of the project, Commissions’s regulatory responsibilities under its inherent significance, and how Section 12(1) of the National Capital Act. One or cies of any applicable it fits into and contributes to the both of these approvals may be needed for a Master, Sector or Area Capital context. It is invariably particular project. Plan. granted after the Federal Land Use Approval. However, the NCC always follows an integrated and Federal Land Use Approval. Federal land use steamlined process and, where- review examines the specific land use implica- ver possible, will provide a joint tions of a project and its conformity with exist- land use and design approval. ing plans and policies such as the Plan for Canada’s Capital, the project’s impacts on exist- ing site conditions, and the project’s relationship to and impact on the surrounding land uses and Federal Land Transaction Approval. All proposals by departments ownership. As a result, federal land use approval and agencies of the federal government to dispose of, to acquire or is usually granted before specific designs are to exchange land in the National Capital Region are reviewed in prepared or approved. this process.

Building Confederation Boulevard on Elgin Street, 1999.

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Monitoring Methods 7.2 Monitoring and Evaluation Plan monitoring and evaluation is an essential The goal of monitoring and evaluation is to component of land use planning. Monitoring ensure that the goals and policies of the Plan and evaluation should be carried out on a con- remain current, relevant and effective over tinuing basis and should address the following: time. • pay attention to specific sections or subsec- The Plan for Canada’s Capital is a high-level, tions and policy areas, strategic land use plan. It provides key direc- • review qualitative and quantitative infor- tions to decision makers. Other planning instru- mation acquired and assessed, ments such as Master, Sector or Area Plans • assess information via content analysis, present increasing levels of detail to implement discussions, media analysis, scenario- the Plan’s broad goals and policies. building, trend extrapolation, etc., and • pay specific attention to exceptional issues These differences in roles require different or opportunities. approaches to monitoring and evaluation. The strategic nature of the Plan suggests that broad In this context, NCC staff should convene peri- Opportunities and Issues should be tracked and odically to consider trends, patterns, and their their consequences analysed. The key is to implications concerning the integrity of the ensure that the Plan’s goals and policies remain Plan’s goals and policies. Plan amendment sufficient to guide the progressively finer detail should be undertaken as required. of Master, Sector and Area plans. Other Federal Departments and Agencies Characteristics The Plan for Canada’s Capital incorporates In this context, the monitoring and evaluation ideas and directions from federal real property process should: agencies, as well as national cultural institu- tions. These agencies and institutions should be • be carried out on a cyclical basis consulted regularly. • be cost-effective (not require significant expenditures in studies or monitoring Information Sources processes) • make optimal use of existing studies or Participants in the monitoring and evaluation reports process should review, on a continuous basis, • produce useful information for project the following types of information in order to managers and decision makers assess the currency of Plan directions: • be time-effective • be simple, relevant and easy to administer, • new, significant trends in the operating and environment, • be strategic in scope and scale (with details • changes in legislation (federal, provincial left to Master, Sector or Area Plan monitor- or municipal), ing and evaluation).

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• creation of new policies (all governments), (every five years, to coincide with the • new Master, Sector or Area Plans, Census and regional government database • new studies, findings or reports, research). • corporate plan statements (NCC and other agencies), and These reports would be available for public • applications for changes to land use or distribution. design. Comprehensive Review Strategic Environmental Assessment The Plan for Canada’s Capital should be Strategic Environmental Assessment (SEA) is analysed every five years, or as required, to an integral part of the continuing monitoring determine the need for comprehensive review, and evaluation process. During the Plan prepar- based on the findings of the continuous moni- ation phase, SEA ensured that the Plan incorpo- toring and evaluation process. This assessment rated sound environmental planning principles would help ensure that the Plan remains a cur- and policies. The key is to ensure that future rent and effective policy instrument, given the changes to the Plan are based on up-to-date cumulative changes that typically occur over environmental goals, principles and practices. such a period. The five-year cycle would also Accordingly, the monitoring requirements of coincide with the review periods for the three the SEA should be integrated with those of the regional government land use plans, thereby Plan. offering opportunities for harmonisation of planning policies. Both public consultation and A summary of the Strategic Environmental environmental assessment would be an integral Assessment is provided in Appendix 1. part of the comprehensive review of the Plan for Canada’s Capital.

Products — Monitoring and Evaluation 7.3 Land Status This monitoring and evaluation process will produce the following products: The Plan applies to lands of Capital signifi- cance within the National Capital Region, the • a periodic Summary Report to the vast majority of which are owned by the feder- Executive Management Committee and al government. However, some lands fall out- advisory committees, which should contain side federal jurisdiction, while other federal the amendments, research and modifica- lands currently in federal ownership are not tions, as required, to the Plan and to the included as lands of Capital significance in this SEA, plan. The following considerations will guide • updates to the Statistical Handbook every the federal government in dealing with both five years, linked to the Census, and types of land. • updates to the Federal Employment Survey

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Lands of Capital Significance Not in Federal Other Federal Lands Ownership Some federal lands in the National Capital These lands serve important Capital functions, Region are not considered to be of Capital yet are owned and managed by others, includ- importance. These lands are not included in ing other levels of government (e.g., Capital this plan and do not fall under the National Arrivals are often provincial highways or Interest Land Mass. These lands will be sub- regional roads) or the private sector (e.g., E.B. ject to possible disposal, transfer of manage- Eddy lands in the core of Hull). In such cases, ment, and/or development. Decisions concern- the following factors will aid the application of ing the future use of such lands will have Plan policies to these lands: regard for federal, provincial, and municipal considerations, including: • Consideration of National Interest Land Mass status (see the explanatory note on • maximise benefit to federal government this page). objectives (e.g., further accomplishment of • Encouraging relevant regional and munici- this plan, asset exchange with other gov- pal jurisdictions to apply supportive offi- ernments, etc.) cial plan and zoning designations • the presence of Valued Ecosystem • Possible acquisition (through purchase, Components land exchange, or other means), and • corridors required to implement the Capital • Other formal land use and management Pathway Network controls, such as protective easements and • federal and NCC policies (e.g., Federal management agreements. Policy on Wetland Conservation, environ- mental assessment, heritage, archeology), and • regional and municipal planning policies and planning processes, including public consultations, where a change in land use is contemplated.

National Interest Land Mass (NILM). A key implementation vehicle for the 1999 Plan is the NILM. The NILM lands reflect the NCC’s effort to focus its land ownership and management activities on those lands most supportive of the NCC’s 1986 Mandate, whose basic tenets are to: use the Capital to communicate Canada to Canadians; make the Capital Canada’s meeting place; and safeguard and preserve the Capital for future generations.

The existing (1988) NILM definition is the following:

The National Interest Land Mass is considered essential to the realisation of the Vision of the Capital. It gener- ally consists of the following in the National Capital Region, national shrines such as Parliament Hill; the rivers and canal banks such as the Rideau Canal and Ottawa River; the ceremonial route encompassing Confede- ration Boulevard; Gatineau Park; the Greenbelt, and other properties owned by the federal government in the national interest. It should be noted that NILM lands may or may not be in federal ownership (e.g., the La Baie site in Gatineau). The NILM will be revised as part of the implementation of this Plan.

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Appendix 1 3. to provide guidance/direction for plan- and Executive Summary of the Strategic site-specific (if applicable) environmental Environmental Assessment (SEA) of assessments that may be undertaken for the Plan future initiatives generated or guided by plan policies. The Plan for Canada’s Capital is a strategic regional prescription for the federal presence in Details concerning the methodology and specif- the National Capital Region in two major ic SEA results are provided in the comprehen- respects. First, like previous National Capital sive background reports entitled Srategic Commission (NCC) plans for the National Environmental Assessment of the Plan for Capital Region, it presents the federal perspec- Canada’s Capital and Strategic Environmental tive on the types and amounts of real assets — Assessment Workbook. The related IEE docu- land, parkways, buildings, parks, bridges, statu- mentation reports on the following elements of ary — that the Government of Canada should the SEA: own or make available to residents and visitors to the Capital. Second, it provides the federal • the context for the Plan for Canada’s vision concerning the prescribed uses and func- Capital tions to be associated with federal assets, as • the regulatory framework for the SEA of well as other lands considered to be of Capital the Plan significance. • an introduction to the proposal • the SEA framework, and It is NCC policy to undertake a strategic envi- • the primary findings of the SEA. ronmental assessment (SEA) of all of its plans. Since the Initial Environmental Evaluation The Plan consists of a regional vision, planning (IEE) process of the Plan for Canada’s Capital principles, and goals and policies related to was initiated in July 1994, it falls under the specific federal interests. In the SEA, the envi- requirements of the federal Environmental ronmental analysis begins by breaking the Plan Assessment and Review Process Guidelines down into its component planning principles Order (EARPGO). The IEE is supported by a and policies. The environmental implications of SEA process that has three primary functions: each planning principle and policy are then extended into space and time and assessed 1. to bring environmental considerations according to prioritised environmental issues, directly into the planning process (e.g., environmental planning objectives and cumula- through the minimisation of negative tive effects criteria. impacts or the provision for supplemental policy coverage concerning priority/scoped The primary findings of the most recent SEA environmental issues), exercise are organised into four categories:

2. to generate interim IEE documents to faci- • principle/policy additions litate dialogue among interested parties and • principle/policy deletions record environmental input into the plan- • principle/policy adjustments, and ning process, and • specific mitigation measures (to be

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employed to minimise unavoidable envi- Appendix 2 ronmental effects).

All planning principles and policies were Valued Ecosystem Components assessed. The accompanying map highlights those areas Since the Plan is strategic (i.e., more concerned on federal lands with environmental signifi- with direction than detail), it is assumed that cance. These areas were identified by the many site-specific environmental consider- Environmental Priority Maps project, under- ations will be dealt with at the Master, Sector, taken by the NCC between 1993 and 1998. Area or Development Plan levels. Through this This project outlined significant valued ecosys- SEA, it was determined that the draft Plan for tem components on federal land or involving Canada’s Capital meets the conditions of areas of federal jurisdiction. The project culmi- Section 12 c) of EARPGO. nated in a series of maps contained in the report entitled Sources for Environmental Potentially adverse environmental effects that Priority Maps (NCC, 1998). may be caused by the Plan are insignificant (i.e., minor or mitigable with known techno- The Appendix B map is a synthesis of several logy or policy adjustment) when considered maps that comprise the report, including the individually and cumulatively. Moreover, following: many positive effects associated with the Plan will result, including the following: • Significant Trees, Wooded Areas and Forests 1. consolidation of conservation efforts, • Significant Wildlife Habitats and Rare visioning efforts and environmental plan- and/or Endangered Species ning efforts, • Significant Geological and Geomorphological Features 2. recognition of government downsizing, fis- • Wetlands cal austerity, growth in the advanced tech- • Hazard Lands, and nology sector and aging of the baby boom, • Designated Natural Areas. and This map is to be used in conjunction with 3. facilitation of the integration of program- policies in the Plan that refer to Valued ming, realty and planning, inter-jurisdic- Ecosystem Components. tional cooperation and planning, and the user-friendliness of planning products.

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Appendix 3 Environment: To safeguard and preserve the natural environment and architectural heritage. Common Planning Principles Economy: To encourage the development of a The shared planning principles developed joint- strong, integrated and diverse economy which ly by the National Capital Commission, the enhances the region's competitive position Region of Ottawa-Carleton, the Communauté within the global economy. urbaine de l'Outaouais and the Municipalité régionale de comté des Collines-de-l'Outaouais Community Development: To improve the were finalized in 1996. They are intended to quality of life by fostering healthy communities guide and coordinate regional planning in the and by facilitating the provision of services and NCR, and include the following: facilities to meet the needs of current and future residents. Common Planning Principles National Capital: To reinforce the symbolic The NCC, ROC, CUO and MRC des and functional roles of the Capital as the seat of Collines-de-l’Outaouais are partners in the our national government, the home of national planning and development of the National cultural institutions and the headquarters of Capital Region. They recognize that the eco- federal government departments while fostering nomic, environmental and social impacts of a more important presence on the international planning decisions will be considered as part of scene. the region’s planning processes. Capital Core: To maintain and enhance the In carrying out their responsibilities, these core of Ottawa and Hull as a focus for econom- planning agencies will be guided by seven ic, cultural and political activities in the NCR. planning principles. These principles must be considered as a whole, not separately, and will Efficiency: To manage development in a way require interpretation and trade off in their that will make the most efficient use of land, application. infrastructure, and public services and facilities.

Transportation and Communication: To encourage affordable, accessible and integrated transportation and communication networks.

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Glossary CUO is composed of the municipalities of Hull, Gatineau, Aylmer, Buckingham and Area of Natural and Scientific Interest Masson. (ANSI). Area of land or water identified by the Province of Ontario as representing distinctive Corridors. These are land corridors that pro- elements of geological, ecological or species vide the principal links among the Capital’s diversity and including natural landscapes or open space lands. Radiating from the Core features of value for natural heritage protection, Area, these linear green spaces provide the scientific study or education. Particular areas basic vehicular and pedestrian connections may be referred to as life science or earth sci- among the Capital’s parks, attractions and insti- ence sites, depending on their features. These tutions. In some locations, the lands associated areas may vary in their level of significance with the Capital parkways also accommodate and their vulnerability to environmental Capital attractions, events and recreational impacts. facilities.

Area Plan. An Area Plan is a land use plan, Development. The construction, erection or approved by the NCC's Executive Committee, placement of a building or structure; activities that articulates specific development and man- such as site grading, excavation, removal of top agement recommendations for a specific feder- soil or peat, and the placement and dumping of al property, or set of properties. An Area Plan fill; and drainage works, except for the mainte- can identify the location of specific land uses, nance of existing municipal and agricultural access and circulation, environmental features, drains. types and intensity of development, land man- agement, and visitor requirements. Where Ecosystem. A community of different species appropriate, an Area Plan establishes design interacting with one another and with the guidelines for the development, improvement, chemical and physical factors making up its protection or reinstatement of land, buildings, nonliving environment (Miller, 1997). and structures. Area Plans also provide imple- mentation strategies associated with specific Endangered Species. An endangered species is proposals (NCC, 1999). one facing imminent extirpation or extinction (COSEWIC, 1999). Biodiversity. The variety of life in all forms, levels, and combinations. It includes ecosystem Environment. The components of the Earth, and landscape diversity, species diversity, and including: genetic diversity (Miller, 1997). • land, water and air, including all layers of Communauté urbaine de l’Outaouais the atmosphere; (CUO). A municipal corporate body estab- • all organic and inorganic matter and living lished by the Loi sur la Communauté urbaine organisms; and de l’Outaouais. Its mandate is land use plan- • the interacting natural systems that include ning, the provision of potable water, sewage the above components (EAA,1997). treatment, property assessment, property tax collection, and economic development. The

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Environmental Effects. Environmental effects existing structure or land use; or the creation of are changes that a proposal or initiative may apartments or other accommodation in houses; cause in the environment, including any effect or (b) The creation of new dwelling units in of such changes on health and socio-economic existing buildings or on previously developed, conditions, on physical and cultural heritage, serviced land and includes redevelopment and on the current use of lands and resources for small-scale intensification. traditional purposes by Aboriginal people, or on any structure, site or thing that is of histori- Landmark. National Capital Symbols which cal, archaeological, palaeontological or archi- are readily defined and visible at the site. tectural significance (CEAA, 1997). Landmarks can be buildings, monuments or natural features (e.g., the National War High-Profile Core Area Locations. Locations Memorial, the Peace Tower, Chaudière Falls). in the Core Area, as defined in the Capital Core Area-Concept 2050, and more particularly Land Use Planning. Using official plans or along Confederation Boulevard, in the northern zoning bylaws to manage the development and part of LeBreton Flats, and potentially on the use of land so that the municipality can grow islands, that provide a high level of visibility, and provide services that are necessary and still symbolism, and accessibility for visitors to the protect the environment. Capital, while meeting the functional needs of the organization. Master Plan. A Master Plan is a land use plan, approved by the National Capital Commission, Infill. The construction of small-scale housing that develops in further detail the policy direc- units on vacant lots or underdeveloped lots in tions and strategies already expressed in the existing residential or commercial areas in a Plan for Canada's Capital. A Master Plan can form compatible with the surrounding com- provide broad development and land use objec- munity. tives and policies, including a system for desig- nating lands, lands uses, and visitor program- Infrastructure. Physical structures that form ming opportunities, for an extensive set of fed- the foundation for development. Infrastructure eral lands in the National Capital Region (e.g., includes: sewage and water works, waste-man- the Greenbelt, Gatineau Park, and Urban Lands agement systems, electric power, communica- areas) (NCC, 1999). tions, transit and transportation corridors and facilities (including bridges), as well as oil and Mixed Uses. A variety of uses in a building or gas pipelines and associated facilities (e.g., community in proximity, including housing, road or rail-based). recreational, commercial, institutional, indus- trial or other employment uses. Intensification. (a) The development of a prop- erty or site at a higher density than previously Municipalité régionale du comté (MRC) des existed. This may include: redevelopment or Collines-de-l’Outaouais. A regional munici- development within existing communities; pality created in 1991 following the dissolution infill development; or development on vacant of the Communauté régionale de l’Outaouais. lots or underdeveloped lots within a built-up The MRC is composed of the municipalities of area; or conversion, or change of use of an Chelsea, Cantley, L’Ange-Gardien, Notre-

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Dame-de-la-Salette, Pontiac, La Pêche and Val- Region of Ottawa-Carleton. A regional des-Monts. municipality established in 1969 by Ontario statute that includes 11 municipalities centred Official Plan. A policy document that contains by the City of Ottawa. Regional responsibilities the goals, objectives and policies established include land use planning, roads, public transit, primarily to manage and direct physical change water supply, sewage treatment, social services, and the effects on the social, economic and nat- and other responsibilities. ural environment of the municipality. An offi- cial plan may contain a description of the Sector Plan. Sector Plan is a land use plan for measures and procedures for informing and a smaller geographic area, approved by the obtaining the views of the public with respect NCC's Executive Committee, that refines the to a proposed amendment to the official plan or general themes, goals and policies of a Master zoning bylaw. Plan. It provides precise interpretations of land designations, and can address long-term devel- Policy Plan. A Policy Plan is a land use plan, opment, environmental, circulation, heritage, approved by the National Capital Commission, and visitor objectives, among others. A Sector that directs, through broad policies or strate- Plan provides a framework to simplify manage- gies, the future development and management, ment and resolve specific planning issues, and and programming of all federal lands within the provides general directions for implementation National Capital Region. The Plan for (NCC, 1999). Canada's Capital (PFCC) is a Policy Plan. The Policy Plan's goals and policies are carried out, Sustainable Development. Sustainable devel- and refined, in Master and Sector Plans (NCC, opment is development that meets the needs of 1999). the present generation without compromising the ability of future generations to meet their Protected Area. Defined by the IUCN (1994) needs. Sustainable development provides a as "an area of land and/or sea especially dedi- framework for the integration of environmental cated to the protection and maintenance of bio- policies and development strategies. It recog- logical diversity, and of natural and associated nises that development is essential to satisfy cultural resources, and managed through legal human needs and improve the quality of human or other effective means." life.

Public Realm. Publicly owned roads, side- Development must be based on the efficient walks, rights-of-way, parks and other publicly and environmentally responsible use of all so- accessible open spaces and portions of public ciety’s scarce resources - our natural, human and civic buildings and facilities. and economic resources. Economic develop- ment, social development and environmental Regional Element. National Capital symbols protection are interdependant and mutually that are readily defined and visible at the reinforcing components of sustainable deve- regional scale (e.g., the Ottawa River, the lopment. Gatineau Hills and the parkway/driveway net- work). Principles of sustainable development include the following:

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• fullfillment of human needs for safety, clean urban mobility and help protect the environ- air and water, food, education, and useful ment. and satisfying employment; • Optimize the use of existing transportation systems to move people and goods. • maintenance of ecological integrity through • Design and operate transportation systems careful management, rehabilitation, reduc- which can be used by the physically chal- tion in waste, and protection of diverse and lenged. important natural species and system; • Ensure that urban transportation decisions protect and enhance the environment. • achievement of equity with the fairest possi- • Create better ways to pay for future urban ble sharing of limited resources among con- transportation systems. temporaries, and between our generation and our descendants; and Threatened Species. A threatened species is one likely to become endangered if limiting • public involvement in the definition and factors are not reversed (COSEWIC, 1999). development of local solutions to environ- mental and development problems Valued Ecosystem Components (VEC). All (Government of Canada, 1995). natural elements and functions that are ecologi- cally important and contribute to the quality Sustainable Transportation Planning Goals. and integrity of a region in terms of content, The Transportation Association of Canada quantity or impact on the natural environment. (1993) identifies the following sustainable Examples include the following: transportation planning goals: • Rare or endangered plant and animal species, • Plan for increased densities and more mixed including insects and other invertebrates, land uses. reptiles and amphibians, birds and mammals • Promote walking as the preferred mode for (existing federal legislation and policies on person trips. rare species are taken into consideration) • Increase opportunities for cycling as an • Woodlands or forests of special interest to optional mode of travel. the National Capital Region • Provide higher quality transit service to • Rare or old trees increase its attractiveness relative to the pri- • Wetlands and their functions vate auto. • Wildlife habitats • Create an environment in which automobiles • Geomorphologically important sites, and can play a more balanced role. • Natural heritage areas such as areas of natu- • Plan parking supply and price to be in bal- ral and scientific interest in Ontario and eco- ance with walking, cycling, transit, and auto logically sensitive areas, as well as other nat- priorities. ural areas protected by various designations • Improve the efficiency of the urban goods in municipalities. transportation distribution system. • Promote inter-modal and inter-line connec- Visitor Facilities and Services. A range of ele- tions. ments that are vital to a visitor’s stay in the • Promote new technologies which improve Capital. These include reception and informa-

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tion services, transportation, accommodation, refreshment facilities, recreational activities, tours and guide services.

Vulnerable Species. A species of special con- cern because of characteristics that make it par- ticularly sensitive to human activities or natural events (COSEWIC, 1999).

Watershed. All lands drained by a river or stream and its tributaries.

Wetland. Land that is saturated with water long enough to promote wetland or aquatic processes as indicated by poorly drained soils, hydrophytic vegetation and various kinds of biological activity that are adapted to a wet environment. Wetlands include bogs, fens, marshes, swamps and shallow waters — usual- ly two metres deep or less (Canada, 1991).

Wetland Functions. The natural processes and derivation of benefits and values associated with wetland ecosystems, including economic production (e.g., peat, agricultural crops, wild rice, peatland forest products), fish and wildlife habitat, organic carbon storage, water supply and purification (ground-water recharge, flood control, maintenance of flow regimes, shoreline erosion buffering), and soil and water conserva- tion, as well as tourism, heritage, recreational, educational, scientific and aesthetic opportuni- ties (Canada, 1991).

Wildlife Habitat. Areas of the natural environ- ment where plants, animals and other organ- isms, excluding fish, survive in self-determin- ing populations and from which they derive services such as cover, protection or food.

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Acknowledgments The project was guided by a Steering Committee comprised of: The following people participated in the prepa- ration of the Plan for Canada's Capital (PFCC) Curry Wood, Vice-President, CPRAM over the period 1995-99. Jaap Schouten, Vice-President, National Programming and Marketing; The PFCC was prepared by NCC's Capital André Bonin , Vice-President (1996-98) and Planning and Real Asset Management Branch Michelle Comeau, Vice-President (1998-99), (CPRAM), Planning Division. A Project Park Services and Land Management Branch Team was responsible for the creation of the François Lapointe, Director, Planning Division, plan, and included: CPRAM, Micheline Dubé, Strategic Planning and Mark Seasons, Project Manager, 1995-98; Information Management Branch Richard Scott, Project Manager, 1998-99; Sandra Pecek, Executive Office. Erin Novakowski, 1995-99; Marc Sarrazin, 1995-97; Public Consultation was conducted with the David Petrovich, 1995-97; assistance of Sandra Pecek, Diane Dupuis, and Michel Céré, 1997-99; Carolyn Strauss of the NCC's Executive Office. Pierre Malo, 1999. Environmental Assessment was conducted A Working Committee reviewed the work of under the guidance of Gabrielle Simonyi, the Project Team and contributed to the devel- CPRAM, Design and Land Use Division. opment of PFCC policies. It included: The NCC's Advisory Committee on Planning, Arto Keklikian, Daniel Miron, Barb McMullen, Design, and Realty provided guidance through- and Judie Smith-Dakin, CPRAM, Planning out the plan's development. Division; John Abel, Johanne Fortier, Grace Strachan, Contributions from other government agencies, Gabrielle Simonyi, CPRAM, Design and Land and in particular Jack Ferguson of the City of Use Division; Ottawa, Carol Christensen of the Region of Marc Monette, CPRAM, Design and Ottawa-Carleton, and David Pollard of Public Construction Division; Works and Government Services Canada is Marc Lalonde and Gershon Rother, Park acknowledged, as are the many suggestions Services and Land Management Branch made by members of the public. Marie Boulet and Laurie Peters, National Programming and Marketing Branch. Other NCC staff that contributed to the PFCC include Luc Bégin, Pierre Dubé, Daniel Hamelin, and Lori Thornton.

Philippe Lauzon undertook the French transla- tion.

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