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A Report by the Rt Hon Lord Fraser of Carmyllie QC on his
Inquiry into the About Holyrood Project
This report, presented to the First Minister, Rt Hon Jack McConnell
MSP and the Presiding Officer, Rt Hon George Reid MSP, is laid
before the Scottish Parliament by the Rt Hon Lord Fraser of
Carmyllie QC and is published by the Clerk of the Scottish Parliament
under the authority of the Parliament in accordance with a resolution
of the Parliament of 24 June 2004.
Contents
Introduction
1. Events Prior to 1 May 1997
The 1979
Referendum
Scottish Constitutional
Convention
Labour’s
1997 Manifesto
Briefing for
Incoming Ministers
2. White Paper "Scotland’s
Parliament" to the Passing of the Scotland Act 1998
The Ministerial
Team
The Civil Service
Team
Drafting the
White Paper — Site Selection
Cost Estimates
in the White Paper
The Origins
of the £24.5 to £34 million Range
The Origins
of the £10 million Figure
The Origins
of the £40 million Figure
Was the Figure
of £40 million Realistic?
Funding from
the Scottish Block
PFI/PPP —
Funding
Referendum
and the Scotland Act
3. Selection of the Holyrood Site
Feasibility
of the Old Royal High School Site
Four Site Options
Considered
Short-list
of Three Potential Sites
Inclusion of
the Holyrood Site on the Short-list
4. Appointment of the Architect
The Decision
to Hold a Designer Competition
Form of the
Competition and its Announcement
Conduct of
the Competition
The Appointment
of the Selection Panel
Evaluation
of Pre-Qualification Questionnaires
The Short-listing
Process
Public Display
of Concept Designs
EMBT/RMJM Ltd
Joint Venture and Contractual Arrangements
External Advice
to the Selection Panel
Costing of
Concept Designs
Final Selection
Interview and Decision
The Tender
Opening Process
5. The Evolution of the Building
User Brief
Purpose of
the Brief
The Appointment
of Mr Bill Armstrong
Early Development
of the Brief
Scottish Parliament
Building Steering Group and the Consultative Steering Group
Further Development
of the Brief
Increases in
Area
The Shape of
the Debating Chamber
Adequacy of
the Brief
6. Construction Management
What is Construction
Management?
Identifying
a Contract Strategy
Advantages
and Disadvantages of Construction Management
Selection of
Construction Management
7. The Appointment of the Construction
Manager
Initial Steps
Evaluation
of the Tenders
Candidates
for Final Interview
The Selection
and Appointment of Bovis
8. Project Management 1998 to
1 June 1999
The Project
Management Structure
The £50 million
Budget — Early Days
Delivery of
Design Information
Enric Miralles’
Presence in Edinburgh
Growing Tensions
Resignation
of Mr Armstrong
Budget Increase
— Spring 1999
9. The Project from Handover to
February 2000
Health of
the Project at Handover
Position with
the Project in the Period Leading up to Handover
Handover of
the Project to the Scottish Parliamentary Corporate Body (SPCB)
The Project
Team
Power of the
SPCB to Delegate
Briefing the
SPCB
Procedures
of the SPCB
The Parliamentary
Debate of 17 June 1999
Discussion
of Costs during the Debate
Landscaping
History of
the Project after the June 1999 Debate
Debating Chamber
Redesign
Increased
Space Requirements and Budget
State of the
Project in August 1999
The Aftermath
of the Project Review
Design Team
Issues
Reporting
of Costs to the SPCB
Value Engineering
Feasibility
Study
10. Early 2000 and the Establishment
of the Holyrood Progress Group
Concerns
about the SPCB
Mr Spencely’s
Methodology
Was a ‘Pause’
Recommended?
Reaction of
the Consultants
The SPCB Report
on Mr Spencely’s Investigation
The Parliamentary
Debate of 5 April 2000
Genesis of
the Holyrood Progress Group (HPG)
Formation of
the HPG
Memorandum
of Understanding
Training for
HPG Members
11. The Holyrood Project June
to December 2000
Progress
to Stage D
Stage D —
The Cost Plan
Agreement of
the Cost Plan
Stage D —
Adequacy of Design
Robustness
of Stage D
Guaranteed
Maximum Price
The Death of
Snr Miralles
Cost Reporting
to the HPG
The Death of
Donald Dewar
September 2000
Report of the Auditor General for Scotland
Scottish Parliament
Audit Committee’s 6th Report
Health of
the Project — December 2000
12. The Project from Late 2000
The Appointment
of Mr Alan Ezzi
Cost Cutting
Exercises
Loss of Confidence
in Mr Ezzi
Performance
of Mr Ezzi
The Appointment
of Ms Sarah Davidson
The Parliamentary
Debate of 21 June 2001
Cost Escalation
— The Foyer Roof
Cost Escalation
— Kemnay Granite
Tensions within
EMBT/RMJM Ltd
Design Freeze
Fee Capping
13. Planning, Queensberry House
and the Role of Historic Scotland
The Building,
its Symbolism and Condition
The NOPD Procedure
and the Role of the City of Edinburgh Council
The Role of
Historic Scotland
The Simpson
& Brown Report
Archaeological
Studies
Re-Categorisation
of Queensberry House
Change of Chief
Inspector
Roof Covering
Flooring
The Belvedere
Tower
The Enfilade
The Wallhead
Height
The Spencely
Report of March 2000
Cost of Queensberry
House
Impact on
Overall Cost and Programme
14. Programming and Design Delay
Factual Background
Programming
and the Construction Manager
Contractual
Responsibilities for Programming
Delays in the
Programme
15. Security Issues
Overview
Security Requirements
Security Consultants
Impact of Events
of 11 September 2001
Costs
16. The Holyrood Project from
Autumn 2003 Onwards
Introduction
Monthly Reporting
to the SPCB
New Project
Director
Completion
Conclusions and Recommendations
Principal
Conclusions
Summary of
Main Findings
Recommendations
Annex A - Chronology
of Key Events
Annex B - Who’s
Who
Footnotes
Acknowledgements
The conclusion of my Report could not have been achieved without
the masterful work of Derek Bearhop as Secretary to the Inquiry.
As this Report will reveal, I am not uncritical of the performance
of a number of public servants from which criticism Derek is
wholly excepted. Scotland should be proud that it has in Derek
Bearhop such a fearlessly independent public servant with a
keen eye for detail, unswerving objectivity and a preparedness
for hard work.
Diane Barr from the Scottish Parliament has, to my advantage,
demonstrated her high intelligence and her incomparable capacity
for hard work. She and Derek were central to the task and I
acknowledge, with the greatest respect, their contributions.
Lauren Drummond was irrepressibly charming and helpful and
if she had not already achieved her ambition of joining a Ministerial
Private Office, that would have been one clear recommendation
I would willingly have offered the First Minister.
Jonathan Elliott was a quiet but thoroughly effective member
of the Team and valued by all.
John Campbell, Counsel to the Inquiry, is now, with cause,
after the brilliance of his questioning throughout the Inquiry
probably the most famous QC in Scotland. He could not have achieved
that immense reputation without the tireless and assiduous work
of Douglas Tullis assisting him. Lawyers do not come better
than Douglas.
Jim Cassidy and Archie Mackay of Media 2k have been invaluable
with their shrewd and skilled media advice.
We were all working on the principles of openness and transparency.
Neither could have been achieved without the contributions of
this small Team. The mould of past inquiries in Scotland has
been broken and their workings will never again be allowed to
become remote or opaque.
ISBN 1-4061-0013-7
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