REPORT TO: Council FOR: Regular Meeting of Council

Transcription

1 DISTRICT OF SQUAMISH REPORT TO: Council FOR: Regular Meeting of Council PRESENTED: September 5, 2006 FILE: COMDEV FROM: SUBJECT: Community Development Department Street Lighting Standards Recommendation: THAT Council direct staff to bring forward an amendment to the District s Subdivision and Development Control Bylaw No for the standardization of street light options consistent with the Illumination Engineering Society of North America (IESNA) Dark Skies standards AND FURTHER THAT prior to amending the bylaw staff are directed to apply the street light options described in Table 2 of this report on District projects, and municipal projects constructed by Developers. 1. Purpose: To finalize the street lighting options that will apply to municipal roads in the District of Squamish. 2. Time Critical: A number of development projects are nearing completion and are proposing ornamental lighting options to the standard District streetlight. It is incumbent on the District to establish a framework for street light selection options in order to properly manage municipal infrastructure. 3. Background: The current District standard for street lights in new urban construction is the conventional streetlight type generally know as the Cobra Head. This standard, widely applied throughout North America, is the most economical free standing street light available and has been used recently on the Garibaldi Springs Golf Course Development. Over the years other streetlights of the ornamental type have been introduced in the District. These include: the Expo lights that were installed when Cleveland Avenue was revitalized in the early 1990 s; the Tantalus Mall ZED Z60B lights; and, the Gardco Gull Wing installed on the Mashiter Creek Bridge entering the University Site. Recently, development proposals have come forward to use other ornamental lights that are new to the District. While it is desirable to have more attractive lighting provided, at no cost to Page 1

2 the District, from an operational perspective it could become unmanageable for the District to accept several different street light standards. Also, the discussion of Smartgrowth standards in the community has suggested that the current District lighting standards are not in line with Smartgrowth and sustainability principles. We currently require higher levels of lighting than what is absolutely necessary for safety and security. This has come to be known as light pollution, the generation of unnecessary and unwanted light. On this topic the Illumination Engineering Society of North America has established a set of lighting standards that are gaining worldwide acceptance. These Dark Skies standards prescribe the lighting levels needed to meet safety and security objectives and target light sources to these purposes while controlling unnecessary and unwanted dispersal of light. The District s Infrastructure standards are generally under review and are being increasingly based on sustainability considerations. When adopted in 2003, the current standards were considered to be a huge improvement from the previous (1976) standards. However, they only refered loosely to the emerging trend towards more sustainable standards by acknowledging that alternate standards would be considered by the District. Recently the Development Variance Permit has been used to reconcile the emerging standards to the bylaw standards. Clearly the District must amend the bylaw to provide the development community with clear direction. Because the review of a bylaw is a formidable exercise an interim policy is necessary to address streetlighting. 4. Project Information: ROAD CLASSIFICATIONS The current servicing bylaw describes road classes as arterial, collector, local and limited local (non through road). This is patterned after the Transportation Association of Canada (TAC) Standards. Generally the road hierarchy is based on the number of units served and therefore the required carrying capacity. Higher classes, with arterial being the highest, anticipate higher volumes of traffic and higher speeds. For the purposes of streetlighting design other important factors include the surrounding land use and bicycle and pedestrian usage. For example, a local industrial road might be expected to have less non-motorized after hours traffic than a local residential road which in turn might have less than a local commercial road. This suggests a different approach to lighting. In a busier pedestrian environment a white (more natural light) would be preferred to a colored light. Alternatively on a high speed, arterial road the coverage of the lighting should be more complete than on a relatively quiet road, particularly when coupled with high non-motorized activity. In design this translates to different pole types, heights, spacings, illumination levels and lamp types. For the purposes of considering different streetlighting options a distinction has been made between major and minor collector roads to account for these design differences (a context sensitive approach). Page 2

3 LIGHTING OPTIONS CONSIDERED The selection criteria for streetlight standards included the following: Should be Dark Skies Friendly. Should be in use, proposed for use or compatible to those in use. Should deliver value for expenditure (functional, decorative and affordable). Should be applied in an orderly manner and be context sensitve. Should provide options and diversity. Should be operationally manageable. In April staff obtained some guidance from Council, including: a) Adopting some form of ornamental lighting as a requirement on all streets with the exception of arterial roads and industrial roads. b) Adopting a Dark Skies approach to lighting with the exception of local commercial roads. c) Adopting the use of white light as a requirement on local and minor collector roads in residential and commercial neighborhoods. d) Adopting the use of banner arms, flower basket hangars and power outlets as a requirement on all local and minor collector roads in commercial neighborhoods. e) A change to the standard District pole colour from forest green to dark green (almost black). f) Establishing a program to replace the Expo light used in the downtown with an alternate ornamental light. g) The application of the Kim Lighting ERA standard as an option for residential developments. Council also directed the lighting options to the Advisory Design Panel for comment. On April 20, 2005 the ADP reviewed the options and made the following comments: 1. The use of ornamental poles was generally supported. 2. A dark skies philosophy was accepted. 3. Walkway lighting was encouraged. 4. A mix of modern and traditional options was suggested. 5. It was suggested that solar lighting options be investigated. 6. The Gardco Gull Wing and Lumec Candela light standards were positively received while the Kim Structural, Bounce and the Lumec 5200, post top were thought not to be appropriate for Squamish. 7. Neighborhood character should be considered when selecting lighting options. 8. The current green used for poles should be replaced with a number of options ranging from dark green, dark brown, charcoal and black. Based on this feedback the Street Lighting Guidelines were adjusted to exclude certain pole types. In addition staff investigated the solar lighting option and determined that the state of art was applicable to walkway lighting but not to street lighting. Pole colour options were added. Table 1. below shows the adjusted guidelines. Page 3

4 Table 1. Lighting Options After Council and ADP Feedback District of Squamish Street Lighting Guidelines 3-Aug-06 STREET LIGHT CHARACTERISTICS CURRENT USE Dark Skies Friendly PROPOSED STREET LIGHT APPLICATION Local Road Minor Collector Major Collector Arterial Res Com Ind Res Com Ind Res Com Ind Pole Type GE Flat Glass "Cobra Head" Throughout District Y N N O N N O N N O Y 100% The previous standard Gardco G13/18 "Gull Wing" University Bridge Y N N O O O O O O O N 125% The proposed standard Kim Lighting "ERA" Thunderbird Creek Y O N N O N N N N N N 170% Modern ornamental for residential use Kim Lighting "Bounce" No current use Y O O N O O N N N N N 170% Eliminated from consideration Kim Lighting "Structural" No current use Y O O O O O O O O O N 135% Eliminated from consideration Lumec Lighting "ZED Z60B" Tantalus Mall N N O N N N N N N N N 166% Use only on local commercial. Lumec Lighting "Candela CAND 6" No current use Y O O N O O N N N N N 170% Modern Post Top Lumec Lighting "5200" Similar to "Expo" Y N O O N O O N N N N 170% Eliminated from consideration Pole Features Banner Arms Cleveland, Tantalus N Y N N Y N O O O O Flower Basket Hangars Cleveland, Tantalus N Y N N Y N O O O O Power Outlet Cleveland, Tantalus N Y N N Y N O O O O Pole Base Varies Pole Finish Varies Pole Colour Dk Gr Blk; Dk Gr; Dk Grey Lamp Options High Pressure Sodium (HPS) Throughout District Y N N O N N Y N N Y Y 100% Metal-Halide Tantalus Mall Y Y Y O Y Y N Y Y N N 125% Note: 1. Y= Yes; N= No; O= Optional 2. Lighting Consultant must propose lighting for any District or Development Project based on the Guidelines 3. All options are to be approved by the District prior to ordering COST COMPARED WITH STANDARD COMMENTS With the elimination of the Lumec 5200 which was proposed to replace the existing Expo lights in the downtown and the comment that both traditional and modern options should be made available, a new traditional post top option was needed. Staff proposed a traditional option that was discussed with the ADP and consulted with a number of downtown developers in the belief that their significant downtown developments should help define the downtown post top standard. The outcome of this consultation was that the Lumec L80-SF80 was selected as the traditional option. The Candela CAND6 and the Lumca CP8303 were selected as the modern post top option. These streetlights are attached as Schedules 1, 2 and 3 respectively. Table 2, below, describes the final Streetlighting Guidelines proposed for use in the District. Table 2. District of Squamish Street lighting Guidelines District of Squamish Street Lighting Guidelines 5-Sep-06 STREET LIGHT CHARACTERISTICS CURRENT USE Dark Skies Friendly PROPOSED STREET LIGHT APPLICATION Local Road Minor Collector Major Collector Arterial Res Com Ind Res Com Ind Res Com Ind Pole Type GE Flat Glass "Cobra Head" Throughout District Y N N O N N O O O O Y 100% The previous standard Gardco G13/18 "Gull Wing" University Bridge Y N N O O O O O O O N 150% The proposed standard Kim Lighting "ERA" Thunderbird Creek Y O N N O N N N N N N 170% Modern ornamental for residential use Lumec Lighting "ZED Z60B" Tantalus Mall N N O N N N N N N N N 166% Use only on local commercial. Lumec Lighting "Candela CAND 6" No current use Y O O O O O N N N N N 170% Modern Post Top Lumca CP8303 No current use Y O O O O O N N N N N 170% Modern Post Top LumecL80-SF80 No current use Y D D D D D N N N N N 170% Traditional Post top Downtown only Pole Features Banner Arms Cleveland, Tantalus N Y N N Y N O O O O Flower Basket Hangars Cleveland, Tantalus N Y N N Y N O O O O Power Outlet Cleveland, Tantalus N Y N N Y N O O O O Pole Base Varies Consultant to propose Pole Finish Varies Consultant to propose Pole Colour Dk Gr Black; Dk Green; Dk Grey Lamp Options High Pressure Sodium (HPS) Throughout District Y N N O N N Y N N Y Y 100% Metal-Halide Tantalus Mall Y Y Y O Y Y N Y Y N N 125% Note: 1. Y= Yes; N= No; O= Optional; D= Downtown Use only. 2. Lighting Consultant must propose lighting for any District or Development Project based on the Guidelines 3. All options are to be approved by the District prior to ordering 4. Developers supplying ten poles or more shall provide a 10% surplus stock rounded to the nearest whole number. COST COMPARED WITH STANDARD COMMENTS 5. Other Considerations: COSTS The proposed standards will have a cost impact on the provision of streetlighting in the District. Our current standard for all street lighting in urban areas is a Cobra Head luminaire with a Page 4

5 High Pressure Sodium Lamp and no provision for banners, flowers baskets or power outlets. Generally, this standard of lighting can be provided at a cost in the order of $80,000 per kilometer of road. For comparison, the Kim Lighting ERA proposed by the Developers of the Thunderbird Creek and University Heights Projects would cost as much as $140,000 per kilometer or 75% more than the standard. In these cases the Developers have valued the benefits delivered by ornamental lighting very highly. The ornamental standards proposed in this report would allow options that could lower the marginal increase in cost to 30% to 50% over the standard. Generally the intent is to include as much flexibility as possible. Because of cost concerns staff reintroduced the option of proposing the Cobra Head on Major Collectors in residential and commercial settings. However, staff agree with the Developers cited above that the introduction of more costly ornamental street lights is otherwise justified in terms of the significant beautification delivered to the built environment and the accompanying increased liveability of our community. Staff are also recommending that when Developers install ten or more poles that they be required to provide a surplus stock of 10% of the total installed, rounded up to the nearest whole number TRAILS The lighting of trails has not been contemplated in this report. This should be considered when Council considers the adoption of trails standards for the community. APPROVAL PROCESS The Director of Community Development will establish the road classification for various District roads. Designers will then be required to make a written submission of the pole standard being proposed in accordance with the guidelines. The final decision with respect to the options selected will be by the District based on existing context and neighborhood character. 6. Staff Recommendation: THAT Council direct staff to bring forward an amendment to the District s Subdivision and Development Control Bylaw No for the standardization of street light options consistent with the Illumination Engineering Society of North America (IESNA) Dark Skies standards AND FURTHER THAT prior to amending the bylaw staff are directed to apply the street light options described in Table 2 of this report on District projects, and municipal projects constructed by Developers. Implications: Staff are proposing the move to ornamental standards in keeping with the general trend in the District to upgrade the quality of the built environment in our community. The proposed lighting is also consistent with the Smartgrowth and sustainability principles that Council has endorsed. These standards will help to build community identity and pride and support the District s Strategic Plan objective of enhancing the liveability of our community. Page 5

6 Alternative 1: Another course of action described by Council Mick Gottardi, P. Eng. Director of Community Development Attach: [Schedules1,2&3] Page 6