1 INTRODUCTION 3 2 OBJECTIVE 3 3 DEFINITIONS 3 4 PARAMETERS 3 5 OUTCOMES 5 6 EXISTING CONDITIONS 6 7 ISSUES DISCUSSION 9 8 CONSULTATION 11

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2 P a g e 2 Contents 1 INTRODUCTION 3 2 OBJECTIVE 3 3 DEFINITIONS 3 4 PARAMETERS 3 5 OUTCOMES 5 6 EXISTING CONDITIONS 6 7 ISSUES DISCUSSION 9 8 CONSULTATION 11 9 PROPOSED STRATEGY PROPOSED STANDARDS AND GUIDELINES STRATEGIC ACTIONS 19 Next Date of Review: Document Controller: City Infrastructure Manager Date Adopted by Council:

3 P a g e 3 1. Introduction This strategy intends to provide a clear direction for managing public lighting within Devonport. The Strategy will reflect Council s statutory responsibilities as well as the historic, physical, community, environmental and economic factors that determine the public lighting needs, expectations and priorities of the community. 2. Objective To provide public lighting across Devonport using a consistent and equitable approach, whilst being environmentally and financially responsible. 3. Definitions Public lighting: lighting provided to a public road or open space Luminaire: All components necessary to secure and protect the lamp and distribute and filter the light from the lamp Lamp The light source in an luminaire, can also be called the globe Major Fitting: Aurora terminology fitting has same meaning as luminaire. Major public lighting is installed in areas requiring higher levels of lighting as determined by Australian Standards and are generally 100W lamps and above. Minor Fitting: Aurora terminology fitting has same meaning as luminaire. Minor public lighting is installed in areas requiring lower levels of lighting as determined by Australian Standards and are generally lamps less than 100W. Light: a generic term which includes the lamp and luminaire 4. Parameters 4.1. Study Area This document covers public roads, car parks, pathways, and open spaces, whether currently lit by public lighting or not. It also applies to the future development of privately owned areas open to the public, including private car parks and car parks attached to commercial premises. The strategy does not apply to private property closed to the public or to Council buildings. It does not apply to privately owned areas open to the public that are already in operation.

4 4.2. Policy Context P a g e 4 The Corporate Action Plan is set out to ensure the goals of Council s Strategic Plan are achieved. The relevant outcomes are: Outcome 1.1 Devonport is an energy efficient City; Outcome 2.1 Our planning scheme encourages clustering of common property uses and facilitates appropriate land use; Outcome 2.3 The infrastructure priorities to support the development of our unique city are planned and appropriately funded; Outcome 3.3 Access in to, out of, and around the City is well planned and managed; and Outcome 4.1 Sport and recreation facilities and programs are well planned with strong participation. Council s related strategies are: Road Network Strategy 2009 Open Space Strategy 2013 Energy Efficiency Strategy 2013 Devonport Community Safety Strategy

5 4.3. Principles P a g e 5 The following principles will underpin Council s approach to public lighting strategy and policy: Consistency AS/NZS 1158 Lighting for Roads and Public Spaces will be the reference for all works and investigations involving public lighting Integration Lighting design and installation will be fully integrated into capital projects Sustainability Environmental and economic sustainability will be pursued through informed decision making and innovative design and product selection Efficiency Minimise energy use and ongoing costs through minimising the total number of lights and maximising the energy efficiency of existing lights Equity Competing projects and requests are prioritised using a fair and transparent process 5. Outcomes The key outcomes that will result from implementation of the strategy are: Outcome Determining Issues Guiding Principle 1 Long term improvement in level of compliance with AS Long term improvement in energy efficiency 3 Long term financial sustainability 4 Strong asset management practices AS1158 Capital budget Grant funding Asset data Available technology Capital budget Prioritisation of works Operational budget Capital budget Market prices Level of service Asset data Asset management plan Table 1: Outcomes

6 P a g e 6 6. Existing Conditions 6.1. Asset Inventory and Service Delivery Model The majority of public lighting is supplied and maintained by Aurora Energy. As at 30 September 2013, the inventory included 3303 lights. These lights are referred to as unmetered and are charged on a flat rate per year by light type. Refer to table 3. Unmetered public lights are usually mounted to Aurora owned poles, which also support power lines. Aurora maintains these poles. However, where no Aurora owned poles are available, private poles are installed which are Council assets. Of the 3303 unmetered lights, 468 are on private poles. Figure 1 Unmetered Lights on Aurora Energy Poles Figure 2 Unmetered Lights on DCC Poles There are also public lights that are on a metered supply. These are usually lights associated with a Council facility, such as the Council Chambers or the Bluff Precinct. Under this arrangement, DCC is responsible for the inspection and maintenance of all lighting infrastructure including lights, poles and underground cables. Energy costs are determined from the meter reading and paid to the energy retailer. Council has 208 lights on metered supply in the inventory. In addition, there are a small number of lights that are not connected to the energy grid. These are the three solar powered lights at Horsehead Creek. Council has full responsibility for inspection and

7 P a g e 7 maintenance of the lights, poles and all related components of these assets. Figure 3 Metered lights on DCC Poles Figure 4 Off-grid Lights on DCC Poles A summary of asset types can be seen in table 2. Asset Type Number DCC maintenance responsibility Lights on Unmetered Supply (UMS) 3303 Nil Private poles (UMS) 468 Lights on Metered Supply (MS) 208 Full Private Poles (MS) 133 Full Lights Off-grid (OG) 3 Full Private Poles (OG) 3 Full Table 2: Inventory summary Inspection responsibility not currently defined Maintenance and Renewal

8 P a g e Australian Standard Compliance (AS/NZS 1158) As part of the Public Lighting Strategy Background Paper, a desktop study was undertaken to determine what level of AS1158 compliance is currently being achieved. There were several limitations to the study, but 88% of the urban road network was able to be analysed. Of this, approximately half was found to be compliant with AS1158. Comparison with other Tasmanian LGAs showed that Council is likely to provide above average public lighting levels, despite the modest compliance levels. For more details refer to Public Lighting Strategy Background Paper Cost The cost of public lighting to Council is approximately $870,000 ($2380/day) in This excludes maintenance and renewal activities on Council assets. The annual cost of each light type on an unmetered supply is shown in table 3. Fitting Price $ per annum inc GST Major 150W Metal Halide W High Pressure Sodium W High Pressure Sodium W High Pressure Sodium W Mercury Vapour W Mercury Vapour x40W Fluorescent Minor 70W High Pressure Sodium W Compact Fluorescent x20W Fluorescent W Mercury Vapour W Mercury Vapour Table 3: Aurora public lighting charges / Retail Public Lighting prices , Aurora Energy

9 P a g e 9 7. Issues Discussion 7.1. Australian Standard Compliance (AS/NZS 1158) While it is an important aspirational goal to achieve full AS1158 compliance, there are many issues that affect the achievement of this goal: Financial impact: Upgrading all lighting to compliant levels would have a large impact on capital budgets (installation of cables and poles) and operational budgets (energy and maintenance costs); Environmental Impact: A major upgrade such as this would also result in a large increase in energy use, which would be in conflict with the Devonport City Council Energy Efficiency Strategy; and Community Expectation: Unlike other Council-provided services (e.g. waste collection, roads and storm water), the community is likely to have a low level of understanding and low level of interest in public lighting. The lighting levels across Devonport have slowly been improving over time due to various ad-hoc upgrade projects and responses to public requests. In many areas the community may accept lighting levels that are lower than required by AS1158. This acceptance may be stronger if the financial impacts of lighting upgrades are communicated to the community Road Safety As part of the Public Lighting Strategy Background Paper, a desktop study was undertaken to identify sites where crashes had occurred at night time. 332 crashes occurred at night time in the five years to June The total cost of these crashes (to the wider community) was estimated at $7.7M. Sites that had at least three property damage crashes, two casualty crashes or one fatal crash occurring at night at the site within the last five years were identified as potential locations for improvement. 14 intersections and 21 links met these criteria. These sites must be investigated further to see if the lighting provided is AS1158 compliant. If lighting is found not to be AS1158 compliant, upgrade projects must be considered.

10 P a g e Public Safety Unlike road crash data, Council does not have direct access to a crime database. Instead Council is reliant on information provided by police, residents, business owners and other stakeholders to locate sites where improved public light may assist in deterring crime at night time. However, it should be noted that public lighting is not intended as a replacement for security lighting of private commercial and residential areas. AS1158 includes provision for a higher level of lighting to be provided in locations where it is deemed there is an increased risk of crime Environmental Sustainability Generally, the lamps currently in service have a life span of 4 years, while luminaires generally have a life of around 20 years. This means that for new lamps installed now, the same type of light is likely to still be in place in 20 years, regardless of efficiency improvements and new technologies that may become available in that period. Product selection has a long term impact on energy use. However, for lights on an unmetered supply, light types must be selected from an Aurora Energy list. This list does not currently contain any LED lights. For metered lights and off-grid installations, Council has the freedom to investigate and select the most efficient products available. Historically some lights have contained mercury and other hazardous materials. There are still a small number of mercury vapor lamps in the asset inventory. Although Aurora Energy is currently responsible for maintenance and disposal of most of these lamps, there is still some risk of exposure to Council staff, or even the public during an incident Financial sustainability The cost of public lighting has increased to more than double the rate of CPI increase over the last five years. Although future increases cannot be predicted, there will be an increase in real terms to the operational costs for public lighting. The total number of lights in the asset inventory will also increase due to completion of capital works and handover of commercial and residential subdivisions. Each additional light has a long term effect on Council operating costs.

11 P a g e Asset Management Historically the vast majority of lights were fixed to Aurora Energy poles, which meant Devonport had no lighting related assets. However, many areas now have underground energy supply and many public spaces have decorative lighting, so light poles have emerged as an asset type. Asset management practices for public lighting assets are not as advanced as other asset groups. Public lighting assets are currently managed under a number of asset groups depending on function, which may not be the best approach. The asset database for poles and lights is lacking in completeness and level of detail. This must be improved to be able to implement any strategy more advanced than reactive maintenance. There is also a transition phase for inspection responsibilities of private poles on unmetered supply. Aurora has undertaken these inspections, but is intending to cease this work with the responsibility shifting to Council. Official notification of this is yet to be received. This would add significant scope to the inspection work required. 8. Consultation 8.1. Stakeholders Public lighting affects nearly all residents and visitors to Devonport including: 8.2. Existing Data Motorists using Council s road network; Cyclists using the roads, cycle ways and tracks; Pedestrians using footpaths and walking tracks; and All users of Council s open spaces. In the Devonport City Council Community Research Report from August 2013, Street Lighting received a mean importance score of 4.36 out of 5, which is categorized as very high. The mean satisfaction score was 3.77 out of 5 or moderately high. However, satisfaction score for lighting made only a very small contribution to the overall satisfaction with Council. This report reinforces the need for the public lighting infrastructure to be responsibly managed, and a suitable and consistent level of service provided. It should be noted that there are many possible factors that contribute to the results of this this report regarding public lighting. Not all of these are the direct responsibility of Council.

12 P a g e Consultation Method Further consultation should be used to create an initial list of projects to be assessed and prioritised for implementation. Consultation through Council s online presence will be sufficient and should encourage respondents to comment on Road safety to identify locations where road safety could be improved by changes to public lighting; Public safety - to identify locations where public safety could be improved by changes to public lighting; and Level of service to determine if the current level of service is satisfactory Other public lighting concerns. This will also provide an opportunity to remind people of the fault reporting process to Aurora Energy. Council can also request comment from the various committees that meet regularly, including the Community Safety Liaison Group and Traffic Committee. After this initial period, request for upgrades can be managed through Council s action request system.

13 P a g e Proposed Strategy 9.1. Long Term Improvement in Compliance Level Council must demonstrate that work is being undertaken to increase the AS1158 compliance level. This will reduce Council s exposure to risk. However, neither the capital nor operational budget is currently available for large scale upgrade projects, so the available budgets need to be best utilised to provide upgraded lighting to the required standard at the sites identified as having the highest benefit cost ratio Long Term Improvement in Energy Efficiency A long term improvement in energy efficiency must be achieved on a light-by light basis, but also on a whole of network level. That is, upgrade projects must make best use of available technology, by selecting the light type and light layout that meets the requirements of AS1158 that has the lowest energy use Long Term Financial Sustainability For public lighting to be financial sustainable long term, the costs must fit within the constraints of Council s Long Term Financial Plan. Costs will be affected by energy prices, as well as other input costs in such a specialized market. Council must engage retailers and suppliers that offer best value for Council and make adjustments to either budgets or service levels to suit future price changes Strong Asset Management Practices Council must compile and maintain accurate and detailed asset data on all public lighting assets. This data is vital to informed decision making regarding maintenance and capital projects.

14 P a g e Proposed Standards and Guidelines The following proposed standards and guidelines are provided to support the achievement of the strategic outcomes. AS1158 is the basis for all proposed standards Minimum classification The minimum lighting levels for each setting have been interpreted from Figure 5. Road hierarchy levels are taken the Council s Road Network Strategy (RNS). Open spaces are grouped by cost centre. Minimum classification levels, once adopted, should be used for all design work. Setting Hierarchy Level Minimum AS/NZS 1158 Classification Road - Urban Road Sub Arterial V5 Road - Urban Street Major Collector P3 Road - Urban Street Minor Collector P4 Road - Urban Street Local Street P4 Road - Urban Street Local Place P4 / P5 * Road - Urban CBD Commercial Area P3 Car Park CBD Commercial Area P11/P12** Car Park Urban Site Specific + Road - DIER DIER category 3/4 P3 ++ Road - Rural Sub Arterial P3 Road - Rural Major Collector P3 Road - Rural Minor Collector P4 Road - Rural Local Road Site specific Public Open Space Regional Parks and Gardens Site specific +++ Public Open Space Sub-Regional Parks and Gardens Site specific +++ Public Open Space Neighbourhood Parks and Gardens Site specific +++ Public Open Space Cemeteries Site specific +++ Public Open Space Sports Grounds Site specific +++ Table 4: Proposed minimum classifications *P5 classification is permitted for established roads where existing pole locations are fixed. For new roads and subdivisions, P4 is required **Disabled car parking spaces are classified as P12, the remainder of the car park is classified as P11 + Lighting based on nigh time activity level at adjacent facility ++ Only applies on sections of DIER Roads where Council maintains adjacent footpath +++ May be provided but not to standard

15 Figure 5: AS1158 Indicative lighting categories P a g e 15

16 P a g e Significant Areas Sites may be classified above the minimum requirement if there is an identified need due to: Pedestrian/cycle activity; A risk of crime (real or perceived); and Need to enhance prestige. Table 5, adapted from Figure 6 demonstrates how lighting levels can be increased due to these factors. The minimum lighting level from Table 4 is highlighted in Table 5. Hierarchy Level pedestrian/cycle activity Selection Criteria risk of crime need to enhance prestige lighting category CBD N/A High N/A P1 High Medium High P2 Medium Low Medium P3 Low Low Low P4 major collector N/A High N/A P1 High Medium High P2 Medium Low Medium P3 Low Low Low P4 minor collector N/A High N/A P1 High Medium High P2 Medium Medium Medium P3 Low Low N/A P4 Low Low N/A P5 local street N/A High N/A P1 High Medium High P2 Medium Medium Medium P3 Low Low N/A P4 Low Low N/A P5 local place N/A High N/A P1 High Medium High P2 Medium Medium Medium P3 Low Low N/A P4 Low Low N/A P5 Table 5: Adapted from AS Table 2.1

17 P a g e 17 Figure 6: AS1158 selection criteria for enhanced lighting Prioritisation tool The prioritisation tool must provide a fair and transparent way of comparing the costs and benefits of various projects across Devonport. First, the current lighting must be assessed. If the lighting level provided already complies with the level selected from table 5, then the project should not proceed. This confirms the need for an upgrade and will filter any unnecessary or over ambitious projects.

18 P a g e 18 Once the need for an upgrade is confirmed, the tool must consider all the features of the subject site including: Length or area of site being upgraded; Activity Centre; Hierarchy Classification; Safety and Condition; and Usage. The tool must also consider the project costs including: Installation costs; and Maintenance and energy costs. If current lighting exceeds standard determined by use of Table 5 and the standard can be achieved with a more energy efficient and cost effective layout, then a downgrade project is possible. A prioritisation tool may not be capable of comparing upgrade and downgrade projects. However, as a guide, a downgrade project would require a payback period of five years or less to be considered.

19 P a g e Strategic Actions The action plan details the tasks that must be undertaken to achieve the outcomes of the strategy. The plan also ensures the identification of clear responsibilities for Council and staff, and specific timeframes for completing activities and identification of resources required. Definitions; Timeframes OG Ongoing day to day tasks which are budgeted for annually ST Short Term 1 to 2 years, MT Medium Term 2 to 5 years, LT Long Term 5 to 15 years Resources required A-OPEX -Annual Operational Expenditure staffing or operational resource allocated as part of the annual plan F-OPEX -Future Operational Expenditure identified increased requirements for future consideration in annual allocation F/A CAPEX Future or Capital Expenditure identified infrastructure requirements An annual review of the action plan will be undertaken by the internal working group, as part of Councils annual planning. Allocation of resources to complete actions will be considered as part of Council annual budget deliberations. CI = City Infrastructure, SC = Sustainable Communities No. Action Outcomes Resources Responsibility Timeframe 1 Adopt a minimum site classification from AS1158 for each road and open space hierarchy level that will be the base level for all new work and relevant upgrade work 2 Develop a tool to compare and assess the benefit of each competing project. Projects are to be prioritised in a fair and transparent way 1,4 A-OPEX CI / SC ST 1,4 A-OPEX CI ST 3 Compile and maintain a register of all projects initiated and the 1,4 A-OPEX CI ST

20 P a g e 20 assigned priority ranking. Projects are to be identified through Initial consultation process; Action requests; Investigations attached to capital projects; Investigations related to crash data; Formal and informal liaison with committees and community groups. 4 Engage a consultant to analyse the lighting levels at the 14 intersections and 21 links identified and to determine the scope of works required to achieve AS1158 compliance at each site. Prioritise these works using the priority ranking tool. 5 Monitor night time crash data on a quarterly basis to identify new key sites 6 Review the capital project design brief to ensure it is consistent with the strategic outcomes and adopted standards 7 Identify and pursue grant funding that may be available for bulk replacement of lights or other works that align with the outcomes of this Strategy 8 Identify and utilise technological improvements that can increase efficiency and reduce costs 1 F-OPEX CI ST 1 A-OPEX CI OG 1,2 A-OPEX CI ST 1,2,3 A-OPEX CI / SC OG 2,3 A-OPEX CI OG 9 Review energy supply and service agreements when available 3 A-OPEX CI OG 10 Review the existing public lighting asset data and address identified areas for improvement 11 Review the inspection and maintenance regime of public lighting assets and address identified areas for improvement 4 A-OPEX CI MT 4 A-OPEX CI MT

21 P a g e Develop, implement and maintain an Asset Management Plan for public lighting assets, either as a separate asset group or within each existing asset group 4 A-OPEX CI MT 13 Continue to provide capital funds annually for upgrade and renewal projects. Budget to consider depreciation costs. 1,4 F/A- CAPEX CI OG

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