MEMORANDUM

AGENDA #8

MEMORANDUM

TO: Mayor and Town Council

FROM: W. Calvin Horton, Town Manager

SUBJECT: Downtown Street and Pedestrian Lighting Options

DATE: October 21, 2002

REISSUED: November 11, 2002

Adoption of the attached resolution would authorize the Town Manager to request Duke Power Company to install new street and pedestrian lighting in a section of the 100 blocks of Franklin and Columbia Streets.

The section where new lighting is proposed is shown on Attachment #1 and includes the contiguous area of the Central Business District where the underground conduit necessary to service the new fixtures has been installed by Public Works crews during recent Streetscape improvement projects.

SUMMARY

This report provides four options for installing different types of new street and pedestrian lights owned by either Duke Power Company or the Town in the area described above. They include:

1. Duke Power Company upgraded poles and fixtures, with an installation cost of $96,000 and an annual operating cost of $2,700.

2. Custom poles and fixtures owned by Duke Power Company, with an installation cost of $292,000 and an annual operating cost of $3,800.

3. Custom poles and fixtures owned by the Town, with an installation cost of $200,000 and an annual operating cost of $4,000 - $6,000.

4. Duke Power Company standard poles and fixtures, with an installation cost of $0 and an annual operating cost of $2,700.

Based on a comparison of cost estimates for the purchase, installation, and long term operating costs of new light fixtures and poles, we recommend using Duke Power Company upgraded poles and fixtures (Option #1). Adequate funds would be available in 2003 with the anticipated sale of $500,000 in 1996 Streetscape bonds and we recommend allocating $96,000 of those funds to implement Option #1.

BACKGROUND

In December 2000, the Council authorized the Town Manager to request that Duke Power Company install new street and pedestrian light poles in a portion of the 100 block of East Franklin Street where the necessary underground conduit was in place to service the new fixtures. The poles and fixtures proposed at that time were to be the same as those previously installed at the Streetscape demonstration project in 1994 and at the Top of the Hill in 1995 and the Council authorization was based on cost estimates for these poles and fixtures provided by Duke Power Company in September 1999.

In March 2001, the staff submitted a formal request to Duke Power Company for installation of the new poles and fixtures. In January of 2002, after an extensive review by Duke Power Company and the North Carolina Department of Transportation, the Town received a price quote from Duke Power Company for the proposed new fixtures that was approximately 90% higher than the cost estimate we received from them in 1999 for the same improvements. In response to this, the staff determined that options for improved lighting should be studied before proceeding.

In February 2002, the Town consulted with a local electrical engineer to determine the costs of materials and labor to install the proposed custom lighting improvements using a private contractor rather than Duke Power Company. Using this approach, the Town would then own the lights and would be responsible for all maintenance needs associated with the new fixtures. In July 2002, the consultant provided the initial cost estimates presented in this report as Option #3 and prepared a bid package for the Town to use to solicit bids from private contractors, if this approach is selected. The cost estimates provided by the electrical engineer for this approach also exceeded Duke Power Company’s earlier estimates, so the staff began new discussions with Duke Power Company representatives to determine if alternative pole and fixture selections were available at a more reasonable cost.

In September 2002, Duke Power Company provided cost estimates for a number of painted metal poles, including those sized to accommodate pedestrian level light fixtures and that were not previously available to us as Duke Power Company upgraded options. Selections from these newly available upgraded options are included as Option #1 in this report.

DISCUSSION

The area described as “Phase One” in this report includes most of the 100 blocks of East Franklin and North Columbia Streets and a short section of the 100 block of West Franklin Street, as shown on Attachment #1. It includes the area of the Central Business District adjacent to commercial buildings where recent Streetscape construction projects have been completed and where the underground utility conduits necessary to service new street and pedestrian fixtures have been installed.

We anticipate recommending installing six mast arm signal poles in the Phase One area, four at the Columbia and Franklin Street intersection and two at the mid-block crosswalk in the 100 block of East Franklin Street, in the near future. Because cost estimates for these improvements are still being developed by Duke Power Company, however, they are not included in the currently recommended improvements.

Along with providing cost estimates for Phase One improvements, the following comparisons include approximate costs for implementing lighting improvements throughout the downtown as recommended in the Downtown Streetscape Master Plan. These estimates, provided for the entire lighting plan, do not include the cost of remaining sections of underground utility conduit installation, which to date has been accomplished during incremental construction of Streetscape improvements.

LIGHTING OPTIONS:

Option #1, Duke Power Company Upgraded Poles and Fixtures - Substantial lighting improvements using Duke Power Company stock upgraded decorative poles and fixtures, installed and maintained by Duke Power Company.

In this option, we recommend a tapered steel pole painted dark green with the standard cobra head street light fixture mounted on a 30-foot pole. Pedestrian level lighting would be provided by Duke Power Company’s “deluxe acorn” fixture mounted on a separate dark green metal 12-foot pole located between each streetlight pole. Because the Duke Power Company upgraded 30-foot poles cannot accommodate pedestrian level fixtures there would be fewer pedestrian fixtures and less uniform sidewalk lighting than in options #2 and #3. Because the pedestrian lights would be installed between the streetlights rather than only on the streetlight poles, however, sidewalk lighting uniformity would be better than in option #4 and much improved over what currently exists. The fixtures would be painted to match the poles. Photos of these poles and fixtures are included in Attachment #2.

Option #1 Duke Power Company Upgraded Poles and Fixtures
Initial costs	Phase One: $96,000	Entire Lighting Plan: $443,200
Operating Costs	$2,700/year	$12,500/year
Advantages	· Duke Power Company maintenance · Significantly lower costs than Options #2 and #3 · Less time required for installation than Options #2 and #3 · Easier to maintain and replace than Options #2 and #3 · More attractive than Option #4 · Sidewalk lighting more uniform than Option #4
Disadvantages	· Poles and pedestrian-level fixtures are less decorative than Options #2 and #3 · Sidewalk lighting less uniform than Options #2 and #3 · Design of pedestrian level fixture produces some glare and may be more susceptible to vandalism than other options · Receptacles used for illuminated holiday decorations not included, as discussed later in this report

Option #2, Custom poles and fixtures owned by Duke Power Company - Optimal lighting improvements using custom ordered poles and fixtures like the fluted green poles and decorative fixtures currently in place at Top of the Hill. These poles and fixtures would be installed and maintained by Duke Power Company.

In this option, pedestrian level light fixtures are mounted on each streetlight pole and additional shorter poles with pedestrian fixtures only are installed between each streetlight. Photos of these poles and fixtures are included in Attachment #3.

Option #2 Custom Poles and Fixtures Owned by Duke Power Company
Initial Costs	Phase One: $292,000	Entire Lighting Plan: $1,353,000
Operating Costs	$3,800 per year	$17,600 per year
Advantages	· Duke Power Company maintenance · Attractive poles and pedestrian fixtures · Most uniform sidewalk lighting
Disadvantages	· Most expensive · Higher cost of Phase One, would leave less remaining Streetscape bond funds for construction of more improvements · Coordinating custom orders with Duke Power Company adds time to the implementation process · Receptacles used for illuminated holiday decorations not included, as discussed later in this report · Custom poles and fixtures more difficult to maintain and replace than Options #1 and #4

Option #3, Custom poles and fixtures owned by the Town – A variation of Option #2 is for the Town to purchase and maintain the custom poles and fixtures.

These improvements would be the same in appearance as those in Option #2 above, except Town-owned street light poles could have receptacles to serve illuminated holiday decorations regardless of Duke Power Company’s policies. Although initial costs would be somewhat lower than Option #2, Option #3 would require that the Town maintain the poles and fixtures and therefore long range operating costs are estimated to be higher. Additional information about the maintenance implications of Town ownership is provided after this summary of the lighting options.

Option #3 Custom Poles and Fixtures Owned by the Town
Initial Costs	Phase One: $200,000	Entire Lighting Plan: $925,000
Operating Costs	$4,000 - $6,000 per year	$18,500 - $27,800 per year
Advantages	· Attractive poles and pedestrian fixtures · Most uniform sidewalk lighting · Lower initial cost than Option #2 · Review by Duke Power Company not required for purchase or pole modification · Receptacles provided for illuminated holiday decorations
Disadvantages	· Town must maintain system · More expensive than Options #1 and #4 · Operating costs will vary over years and are more subject to increase above current estimates than other options · Custom poles and fixtures more difficult to maintain and replace than Options #1 and #4

Option #4, Duke Power Company standard poles and fixtures - Modest lighting improvements using wooden poles and standard light fixtures, installed and maintained by Duke Power Company.

This option would involve putting two fixtures on each streetlight pole. As proposed it would not include poles with pedestrian fixtures only installed between the streetlights, because suitable smaller scale poles are not available. There are no initial costs shown in the table below because Duke Power does not require an additional fee for wooden poles and non-decorative fixtures. Photos of this pole with fixtures are included in Attachment #4.

Option #4, Duke Power Company Standard Poles and Fixtures
Initial Costs	Phase One: $0	Entire Lighting Plan: $0
Operating Costs	$2,700/year	$12,500/year
Advantages	· Duke Power Company maintenance · Least expensive initially and in the future
Disadvantages	· Least attractive appearance contrasts with improved sections of Streetscape · Wiring for fixtures would be in conduits on the outside of poles · Least uniform sidewalk lighting · Receptacles used for illuminated holiday decorations not included, as discussed later in this report

RELATED ISSUES:

Providing power for illuminated holiday decorations - In 1999, Duke Power Company changed its policy regarding electrical receptacles on streetlight poles which the Town in the past has used for illuminated holiday decorations. This revised policy requires that if a municipality wishes to install receptacles on streetlight poles that they be wired through a conduit system separate from the wiring for light fixtures, and that an electric meter be installed to service them.

This duplication of wiring has the potential to significantly increase the cost of providing illuminated holiday decorations. Duke Power Company officials are currently reviewing this policy, and we believe that it is possible that the policy could be modified in the future in a way that would not require extensive duplication of wiring. If the Town Council directs the Manager to work with Duke Power Company to provide downtown lighting, we recommend that non-illuminated holiday decorations be considered in the Phase One area until Duke Power Company’s policy has been finalized. If at that time, it is determined that a duplicate wiring system will be needed for illuminated holiday decorations, the staff will consult with private electrical contractors and provide cost estimates of this work to the Council for its consideration.

Flags and banners – Duke Power Company will install brackets on their streetlight poles for a nominal fee and therefore all options provided in this report can accommodate flags and banners.

Initial costs – The initial cost estimates provided in the above tables include the costs required to have either Duke Power Company (Options #1, #2 and #4) or a private contractor (Option #3) install the light fixtures and make them operational. Duke Power Company fee schedule includes an initial cost for decorative fixtures that includes, along with the installation work, a commitment from Duke Power Company to maintain the poles and fixtures for a period of thirty years. Such work and commitment is also included in Duke Power Company’s monthly fee for non-decorative fixtures. The initial cost estimate for working with a private company (Option #3) does not include a long term maintenance commitment. Therefore an estimate of ongoing Town maintenance costs was developed and is included as a component of the operating costs for Option #3 as provided in this report.

Operating costs – Duke Power Company charges a monthly fee for each of the streetlights in the Town system that is based on the size and type of lamp installed. These fees are approved by the North Carolina Utility Commission and cover the cost of providing power to the streetlight as well as the cost of bulb replacements and other routine lamp maintenance.

If the Town owns the fixtures (Option #3) the Town pays the actual metered electrical cost plus the cost of all maintenance needs as they arise. The cost for electrical service can be estimated with reasonable confidence by determining electrical usage based on the wattage of the proposed lamps, but the cost of other maintenance needs will likely vary considerably over time.

Initially, we would anticipate that maintenance costs would be relatively low but as the fixtures age re-lamping, ballast replacement and other routine maintenance needs will likely increase. The costs of pole and fixture repair or replacement due to traffic accidents, vandalism and other causes are also difficult to estimate. Because of these uncertainties, we provide a likely range for operating costs for Option #3 based on discussions with a local electrical engineer.

If the Town owns the system, the Public Works Department would have a greater role in its maintenance. Supplemental private contracts for maintenance likely would be based on the cost of labor and materials and may require periodic, or perhaps annual, review. Furthermore, the level of service during emergencies such as storm-related outages is difficult to anticipate. Once upgrades to downtown lighting reach a certain threshold under Town ownership and maintenance, additional Public Works resources may be needed if Option #3 is selected.

Custom pole installation and replacement - Under both Options #2 and #3, to expedite future replacement of damaged system components, it is likely that the Public Works Department would need to store at least one or two of each type of pole, fixture, arm and bracket. These poles are custom manufactured, so it can take several months to receive new or replacement poles when ordered.

Funding - The current available balance of the 1996 Streetscape bond funds is approximately $125,000. An additional $500,000 is anticipated to be available during the third quarter of the current fiscal year bringing the available funding level to $625,000. A typical summer Streetscape construction project requires on average $100,000. Using any of the lighting options described in this report, the total funds expected to be available in 2003 will be sufficient to pay for lighting upgrades in Phase One, anticipated costs associated with the six mast arms proposed in the Phase One area, likely to be in the range of $100,000 to $200,000 and at least one typical Streetscape sidewalk improvement project. Implementation of either of the two less expensive options (Options #1 and #4) would likely allow for additional Streetscape construction projects and/or additional lighting improvements with the funds anticipated to be available.

We recommend that the method chosen to implement a new system of downtown lighting remain the same for each phase of future improvements to simplify on-going maintenance and repairs to the system.

FURTHER DISCUSSION:

In the analysis of the options presented above, the 3 major points for comparison are cost, lighting uniformity, and aesthetics. The following table summarizes initial and ongoing costs for each option.

Summary of Costs
Phase One	Option #1	Option #2	Option #3	Option #4
Initial Costs	$96,000	$292,000	$200,000	$0
Operating Costs	$2,700 per year	$3,800 per year	$4,000 - $6,000 per year	$2700 per year
Maintenance Provided By	Duke Power Company	Duke Power Company	Town of Chapel Hill	Duke Power Company

We recommend implementation of Option #1, Duke Power Company upgraded poles and fixtures, based on cost, lighting level and aesthetics as summarized below:

Cost – In addition to the savings evident in the comparison above, installation of Option #1 would require considerably less of the Town’s personnel and equipment resources than Option #3. Option #1 would result in significant funds being retained in the Streetscape bond fund for other Streetscape construction projects and/or additional lighting improvements.

Lighting uniformity - The pedestrian fixtures recommended in Option #1 are different from the custom fixtures in that they distribute light over a wider area rather than directing all light downward upon the sidewalk. Although this light distribution may result in some glare it allows for better sidewalk lighting uniformity than is possible using the same number of down-lit fixtures. Although we are proposing fewer pedestrian fixtures than would be the case in Options #2 and #3, we believe that their wider lighting distribution and their placement between streetlights will result in a reasonable sidewalk lighting uniformity that will be a significant improvement over existing conditions. We also note that if specific sidewalk locations, for example near crosswalks, are identified as needing supplemental lighting that additional pedestrian level fixtures on 12’ poles could be installed at a modest additional cost.

Aesthetics - We believe the basic form, proportion, and color of the poles and fixtures described in Option #1 are comparable to the custom poles and fixtures in Options #2 and #3: dark green tapered metal poles of two different sizes with dark green fixtures. Although the pedestrian fixtures will not be as unique as in Options #2 and #3 and the poles will not be fluted, we believe that these design details may not justify the two to threefold increase in cost for the more expensive options.

RECOMMENDATION

We recommend that the Council approve the attached resolution authorizing the Town Manager to request Duke Power Company to begin installing new street and pedestrian lighting as proposed in Option #1 for a section of the 100 blocks of Franklin and Columbia Streets, once additional bond funds become available.

ATTACHMENTS

1. Downtown Lighting Improvements Plan (p. 10).

2. Photos of Standard and Upgraded Duke Power Company Poles and Fixtures – Option #1 (p. 11).

3. Photos of Existing Custom Poles and Fixtures – Options #2 and #3 (p. 12).

4. Photos of Standard Duke Power Company Poles and Fixtures – Option #4 (p. 13).

A RESOLUTION AUTHORIZING THE TOWN MANAGER TO REQUEST THAT DUKE POWER COMPANY INSTALL NEW STREET AND PEDESTRIAN LIGHTS AS INDICATED ON THE PLAN FOR PHASE ONE DOWNTOWN LIGHTING IMPROVEMENTS (2002-11-11/R-10)

WHEREAS, the Downtown Streetscape Master Plan was adopted as part of the Town’s Comprehensive Plan; and

WHEREAS, lighting improvements are a fundamental part of the Town’s Downtown Streetscape Master Plan; and

WHEREAS, the Council has received reports comparing various options for design, ownership and maintenance of a system of downtown lighting; and

WHEREAS, the Council has determined that the optimal arrangement for improving downtown lighting, given budgetary constraints, is to work with Duke Power Company to install upgraded decorative poles and fixtures;

NOW, THEREFORE, BE IT RESOLVED by the Council of the Town of Chapel Hill that the Council authorizes the Town Manager to submit a request to Duke Power Company for the installation of street and pedestrian lighting downtown according to the Phase 1 Downtown Streetscape Lighting Plan using Duke Power Company’s upgraded decorative poles and fixtures.

This the 11th day of November, 2002.