Modernizing Canada’s district energy system for long-term low-carbon energy

The Government of Canada is decarbonizing its operations, starting at the heart of the National Capital Region (NCR). Many buildings- including the Parliament Buildings- are connected via more than 14 km of underground piping to the federal government’s National Capital Region District Energy System (NCR DES). Much of this legacy system has reached end of life and relies on outdated technologies. The Energy Services Acquisition Program (ESAP) is transforming it into a safer, smarter, lower carbon network built for the next generation.

In 2019, the Government of Canada signed a 35-year contract with Innovate Energy to overhaul the system. By significantly reducing the energy intensity of heating and cooling, ESAP is projected to save nearly half a billion dollars between 2026 and 2055. It also delivers substantial GHG reductions compared to 2005 baselines.

Innovate Energy is a locally based consortium comprising PCL, Black & McDonald, and Equans with WSP, and bbb architects Ottawa Inc. as key subcontractors of the project. With over 1,800 construction workers involved, the project was ranked the 23rd largest infrastructure initiative in Canada in 2021. ESAP stands as a real-world example of how cities can decarbonize building operations, aligning with Canada’s leadership in clean tech and renewable energy.

WSP leads a multidisciplinary team spanning architecture, landscape architecture, structural, mechanical, electrical, plumbing, process, civil, environmental, geotechnical, sustainability, commissioning, and project management. This integrated approach enables cohesive design and delivery across complex plant, tunnel, bridge, and building interfaces.

Sensitive surroundings

Given the sensitive nature of the facilities served by the ESAP project, and the designation of the four Energy Centres (three newly constructed, one retrofit) as post-disaster facilities, design requirements were heavily influenced by the need for robust access control, surveillance, and emergency response capabilities.

WSP collaborated closely with the contractors, PSPC, and PSPC’s security consultant to ensure that the necessary infrastructure was integrated into the ESAP construction. This included key upgrades to support revised access control protocols and enhanced security monitoring systems.

Location

Ottawa, Ontario, Canada

Client

Public Services and Procurement Canada (PSPC)

Project value

$3.4B

Project status

In progress

Challenged by existing infrastructure

Connecting and distributing energy to many existing buildings, many with heritage designations, diverse vintages and materials, and varied user security profiles, required careful routing, staging, and structural strategies to avoid adverse impacts on buildings, roads, parkways, and bridge structures.

Navigating a complex requirements roadmap

Beyond rigorous PSPC standards, the team coordinated with significant regulatory bodies to ensure the design’s fit with the public realm, particularly across the Parliamentary Precinct near the Supreme Court of Canada and within the Tunney’s Pasture master plan. Requirements from the NCC, FHBRO, the City of Ottawa, and the City of Gatineau were all addressed as part of the mandate.

ESAP project key numbers

New and/or modernized energy centres

4

Square metre footprint of the property impacted by the project

1.83M

Occupants serviced by the new system

55,000

Overcoming the complexities of this highly sensitive project, one that impacts a large percentage of our government’s federal operations, has the potential to reshape the energy landscape in Ottawa for decades to come.

Matthew Aston National Practice Leader, District Energy Systems, Property and Buildings, WSP in Canada

Matthew Aston National Practice Leader, District Energy Systems, Property and Buildings, WSP in Canada

Modernization through innovation

As part of WSP’s work on the project, numerous innovative solutions have been introduced, including:

Steam to low temperature hot water conversion

ESAP is converting one of North America’s largest public district energy networks from high temperature steam to safer, more energy efficient low temperature hot water (LTHW) for heating, requiring upgrades and redesign of distribution piping and components.

River assisted cooling

The Ottawa River will help chill water for buildings on the network. In tandem with electric chillers, river assisted cooling provides a more sustainable alternative to conventional systems.

Electrification

The new Gatineau Energy Centre will operate as a fully electrified plant, with electric boilers producing low temperature hot water (LTHW) and electric chillers producing chilled water.

An architectural landmark at the Cliff Plant

The Cliff Energy Centre is designed to blend with the limestone escarpment at the base of the Supreme Court. Its envelope uses a fluid, freeform curtain to screen functional energy centre and harmonize with the site’s topography.

Digital tools driving efficiency

A transparent, secure platform will track and monitor CO₂ emissions. Innovate Energy is also using blockchain to streamline data gathering and third-party verification. Purpose built operations and maintenance tools will improve energy efficiency, enable proactive maintenance strategies, and support a healthy, safe work environment.

Building a sustainable future

The modernization of the National Capital Region’s district energy system is more than an infrastructure upgrade, it’s a bold step toward Canada’s clean energy goals. By combining innovation, security, and sustainability, ESAP sets a new benchmark for how large-scale energy networks can operate efficiently, responsibly, and resiliently for decades to come.