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HomeMy WebLinkAbout8C - Street Lighting Issues AGENDA NUMBER: PREPARED BY: SUBJECT: DATE: 8C ROBERT BARTH, ENGINEERING INTERN DISCUSS PROPOSED STREET LIGHTING POLICY AND COST ESTIMATES NOVEMBER 21, 1994 INTRODUCTION: This item has been placed on the Council agenda so that Council can provide input and direction regarding the proposed policy draft, and review its budget implications. The Council should also provide direction on whether street lighting should be addressed in policy only, ordinance only, or both. Attached to this memorandum is a package of research materials. They include: an executive summary of the research, an initial report to staff, a draft street lighting policy, and altemate cost scenarios. BACKGROUND: Council directives 94-82 and 94-05 directed the engineering staff to research and draft new guidelines with respect to residential street lighting. The City Subdivision Ordinance provides that: "6-7-5: STREET LIGHTING: Street lighting shall be provided to confonn with standards adopted by council." On our existing streets current policy allows for street lighting at major intersections only. The City does not provide lighting between intersections unless a clear traffic hazard exists. The current policy does not address new developments, where developers generally provide more comprehensive lighting plans - plans that provide street lights for intersections, between intersections. and at the ends of cul-de-sacs. Current policy does provide that the City pay all ongoing energy and maintenance costs for the street lights. At present developers generally do not pay the total capital cost of the street lights installed in their developments. They usually enter a lease agreement with the utility, and the City assumes the monthly payment once the utility energizes the lights. Lease agreements require less initial capital, but entail monthly payments two to three times above what would be paid under an operation and maintenance agreement. DISCUSSION: The Engineering Department conducted a survey of surrounding communities regarding their street lighting policies for both new and existing developments. The survey showed that, in new developments, most communities approve lights for intersections. between intersections at prescribed intervals, and at the ends of cul-de-sacs. Most apply the same warrants to existing neighborhoods but not without citizen prompting - unless a clear traffic hazard exists. The survey pointed out a couple significant differences between Prior Lake and its neighboring communities in how street lights are funded. Most the surveyed communities require the developer to purchase street lights rather than enter a lease agreement. On the chance that the 4629 Dakota St. S.E., Prior Lake, Minnesota 55372-1714 / Ph. (612) 447-4230 / Fax (612) 447-4245 AN EQUAL OPPORTUNITY EMPLOYER - developer might then purchase cheap lights, these communities insist that the lights match a standard and be servicable by the utility. In the same vein, these communities require the developer to pay operation and maintenance through the warranty period. In existing developments residents must petition for additional street lights. This holds true in the communities surrounding Prior Lake and to some extent in Prior Lake. In most communities, payment for a new light on an existing street falls to the affected residents; except in those cases where the light request is for a collector street with heavy traffic. Currently, in Prior Lake, if the City Engineer's office approves a light for an existing street the City pays for installation. Installation may mean the full purchase price of the light or, when the City leases the light, the associated installation costs. Current policy, though, limits new lights on existing streets to high traffic intersections or at locations where traffic safety can clearly be improved. Two disparities are evident. Residents in new subdivisions pay for their lighting through the purchase prices of their homes, while lights approved for existing streets in older subdivisions are purchased by the City. Yet residents of older subdivisions have less opportunity to obtain lighting comparable to that which is currently being placed in new developments. It became apparent that most commumtIes treated collector roads differently than residential streets and that we would have to extend our original mandate and consider those highly traveled roads in our policy statement. Our policy draft provides an additional warrant for street lighting: an Average Daily Traffic (ADT) of 2000 vehicles. In Prior Lake this ADT roughly separates collector roads from residential streets. Lighting for collectors, otherwise known as municipal state aid roads, should be a priority since they carry the bulk of the City's vehicular traffic. It would seem appropriate that lights for collector streets should be subject to planning and not citizen initiative. The initiative for collector lighting should come from the City Engineer; and since collector roads provide benefit to the City as a whole, their lighting should be the financial responsibility of the City and not that of a developer or group of residents, though staff has discussed requiring developers to pay for lights where residential streets in their developments intersect a collector. Beyond a 2000 ADT warrant, warrants for street lights on collector roads might include intersections and every 300' between intersections. ISSUES: The extent to which Prior Lake will be lit depends on both fiscal, philosophical, and energy concerns. A well lit City requires an extensive and aggressive lighting plan. Certain residents, though, resist street lighting, while others believe that additional lighting is needed for security. Our policy must balance these concerns. Some more issues: 1) By extending warrants beyond current policy the City would see a more rapid increase in its utility bill, since the City pays ongoing operation and maintenance costs 2) The City should require developers to pay the full capital cost of the street lights in their developments. 3) Developers should pay operation and maintenance through the warranty period. 4) If developers wish to install non-standard lights or more lights than policy allows, staff recommends these lights be the responsibility of an homeowner's association. - ALTERNATIVES: RECOMMENDATION: BUDGET IMPACT: 5) Staff suggests a petition process be used for lighting requests. 6) Staff recommends, at a minimum, that residents pay the full capital costs of the lights requested in existing neighborhoods. Staff has discussed whether residents should also pay the operation and maintenance. Most the surveyed communities do not require residents to pay for operation and maintenance, though a couple do. Monthly costs vary between 5 and 10 dollars per month depending on the type of light and the utility servicing the area. 8) Staff recommends that the lighting of collector streets be done on a project by project basis. 9) Staff recommends that lighting standards be established in policy form, since policy content can be changed without a large investment of time. If an ordinance were used the subdivision ordinance would apply to new developments only. Street lights need to be addressed on a city-wide basis. 1) Leave policy as currently written. 2) Discuss the issues identified 1-9 above and provide direction to the staff so standards can be prepared which reflect Council's desires. Addressing each of the issues, the Engineering Department recommends residential warrants that include intersections, between intersections at intervals of 300 feet, and at the ends of long cul-de-sacs. These should apply to both new and existing developments. Developers should pay the full capital cost of the light system they install, as well as operation and maintenance through the warranty period. Standard lights should be required. In future developments, where developers wish to install non-standard lights or a lighting plan contrary to policy, the City might approve the plan but should refuse to take over the development's lighting system - instead insisting the system remain the responsibility of the development's residents through their homeowner's association. Warrants should be the same for existing subdivisions and new subdivisions. Lighting requests in existing subdivisions should require a petition signed by 60% of the residents within 100 feet, on both sides of the street, of the proposed light. The residents affected by the proposed light should be responsible for its purchase. The City will pay operation and maintenance from the time the light is energized. The Planning Commission has requested a meeting with staff on this subject for November 17th. The results of this meeting will be presented to Council. Likewise, the results of the Council meeting of November 21st will be brought back to the Planning Commission. Currently the City spends approximately $40,000 per year on street lighting. Several cost estimates for lighting are attached. For existing residential neighborhoods the cost estimates reflect lights purchased by residents for which the City pays the operation and maintenance. Staff acknowledges that in any given year only a fraction of these lights will be placed, so the figures are intended solely for comparison between warrant alternatives. Staff has provided cost estimates for lighting sections of county road due for improvement. In the case of CSAH 42, CSAH 21, and CSAH 18 these costs could vary significantly depending on the difficulties encountered bringing underground power to the light system. In the case of CSAH 44 almost no cost shall be incurred by the City. The reason why has implications for older neighborhoods in Prior Lake. Power ACTION REQUIRED: BBAGE. WRT poles line CSAH 44. NSP plans to move, not remove, these poles as part of the improvement plan. Where overhead power is available a cobra-head mast arm may be hung from an existing pole. These lights cannot be purchased; and, unless a transformer must be installed, little or no initial cost falls to the City. These power poles line the older streets of Prior Lake. Cost estimates for lighting collector streets in the five year CIP have also been included, as has an estimate of the increase in operation and maintenance payed by the City and for residential lights coming on line in new developments. - STREET LIGHTING EXECUTIVE S1JlGfARY For new developments, we found that the majority of surveyed communities approve street lights for intersections, cul-de-sacs, and every 200 to 400 feet between intersections; while Prior Lake approves street lights for intersections only. Prior Lake also differs from the surveyed communi ties in that it assumes the operation and maintenance costs immediately upon installation of the street light, while other cities require the developer to pay these costs for a prescribed time period. In other cities the placement of street lights in existing neighborhoods is usually handled by petition, unless the city engineer finds that traffic volume or accident history clearly warrants the placement. Where the street lighting plan is found lacking compared to other neighborhoods, or to new developments, it is not the policy of any surveyed city to place lights without prompting from affected neighbors; unless, as noted above, traffic volume or traffic safety warrant. If a light is warranted and approved most the surveyed cities would pay for installation, operation, and maintenance. The survey shows that unwarranted street lights are generally discouraged, but might be accepted provided the affected neighbors agree to pay some or all of the associated costs. All the cities we surveyed insist on standard lights, for which a majority have a maintenace agreement with the utility. Electric utilities recommend 100 to 150 watt high pressure sodium lamps for residential lighting. STREET LiGHTiNG BACKGROUND: The current city policy regarding the placement of street lighting reads as follows: As developer proj ects occur, the required to pay the city a fee to lighting as determined by the city current rate is $300.00 per light. developer is install street engineer. The On existing streets the addition of lighting is based on two criteria. One is that the street lighting is done at maj or intersections where higher volumes of traffic exist. No lighting will be provided between intersections. The second criteria is that when unusual circumstances exist where accidents commonly occur and\or poor vertical\horizontal alignment exists, additional lighting can be provided. As requests for additional lighting are made the City Engineer may add additional lighting according to policy. In cases where lighting is denied an appeal can be made through the City Manager. The cost of operating and maintaining lighting is born by the Street Department. This policy was implemented due to the rising cost of lighting. The council adopted a policy that in areas where existing lights did not conform to the above policy, those lights would remain in place rather than be removed. In cases of higher jurisdictions, such as county roadways, the intersections are referred to the county for review regarding lighting requirements. In the case of denial by the county the city may install the lighting. wi th an eye toward a more lighting policy, we surveyed their policies. Many of the presented below. comprehensive and effective street several local communities regarding ideas obtained from this survey are NEW DEVELOPMENTS: Of interest in this survey was the way cities handle street light placement in new developments specifically, where will lights be allowed and who will pay for them. Generally, the cities contacted for our telephone survey approve lights for intersections, at the end of cul-de-sacs, and at intervals ranging from 200 to 400 feet between intersections. Additionally, lights might be approved for sharp curves, at the top and bottom of hills, and near heavily wooded areas. In its present form, Prior Lake policy warrants lights only for intersections and as traffic safety requires. The policy excludes lights between intersections and at the ends of cul-de-sacs. Prior Lake requires developers to pay for the installation of street lights in their developments. Either the developer or the electric utility creates a plan, which the developer submits to the city for review as part of the subdivision review process. Generally, in new sudividions, electric utilities install lights concurrently with other utilities - ideally in the same trench. Currently, the city bears the costs of operation and maintenance for the majority of the street lighting within the city limits. It appears that in our case this obligation starts immediately. For example, in September NSP billed Prior Lake for 9 new lights in the Cardinal Ridge development, a development that is far short of completion. In contrast, most of the communities surveyed require the developer to pay for the operation and maintenance of the street light until the development has reached some prescribed level of occupancy, or until a certain time period has passed (usually two to three years) . Since most requests for additional lighting generate from security concerns, a disclaimer written into the policy statement and asserting that street lights are not for the deterence of criminal activity might be appropriate. Or, rather than provide street lighting, the city might encourage the developer to install ornamental lighting hooked up to homeowner electrical service; or the homeowners themselves might lease security lights from the power companies, for which they are billed directly. If street lighting is allowed where it has no merit the city might consider assessing the residents of the development for operation and maintenance. The surveyed communities practice any or all of these strategies to defray the costs of street lighting. Summarizing the information obtained from our survey on new developments: 1) Most the surveyed cities approve lights for intersections, cul-de-sacs, and every 200 to 400 feet between intersections. 2) Current Prior Lake policy approves street lights for intersections only. 3) Most the surveyed cities require the developer to pay for street light installation, as does Prior Lake. 4) Most the surveyed cities require the developer to pay operation and maintenance costs using one of three criteria: A) Until the development reaches a prescribed level of occupancy. B) Until the project is accepted by the city. C) For two or three years. 5) Prior Lake begins payment of operation and maintenance costs immediately upon installation. - EXISTING DEVELOPMENTS: In developing a comprehensive street lighting policy for existing developments the city tackles many of the same problems encountered with new developments. The merit of a placement must be evaluated, and the costs must be determined and applied to the appropriate body. Addi tionally, to streamline the process, a paticular method of citizen initiative might be sanctioned. It is not the policy of any surveyed city to place street lights without prompting from affected neighbors, unless traffic volume or traffic safety clearly warrants. Placements that do not have this immediacy are generally addressed through the petition process. The surveyed cities have general criteria for existing developments identical to those for new developments. These might include intersections, ends of cul-de-sacs, and between intersections at prescribed intervals. Additionally, in existing developments, an accident history of the area in question might be considered. A minimal plan might include lights for intersections only, yet many intersections do not have sufficient traffic to warrant street lighting. In those cases, a minimum ADT might be applied that would exclude lights where traffic volume is low. Occasionally the surveyed cities place lights for security. The majority, though, reject such placements - instead recommending yard or security lights. Application of costs for new street lights in existing neighborhoods can be handled in different ways. In Chanhassen, if the light costs less than $2,000 the city assumes the cost. For more expensive lights the city assesses the affected neighbors. In both cases the city pays the electrical and maintenance costs. Burnsville assigns the cost of the light at the direction of the city council, which usually takes the form of a charge against all property benefitting from the lighting. Burnsville establishes these rates based on what charges it incurs from the power company. In Chaska, if the light placement is clearly warranted, the installation will be done at city expense upon approval by the city council. If, from time to time, residents consider their lighting to be inadequate, standard lights might be installed at the residents' expense. To handle lighting requests from residents in existing developments a standardized petitioning process would be recommended. If a majority of the residents can be brought to support a lighting placement, say 60%, the matter would be brought before the city council. The majority of communities surveyed handle requests in this manner. Unfortunately, with petitions, a handful of residents often force their preferences on the neighborhood as a whole. When peti tioners arrive at a neighbor's door, they have already spent time with the issue. They arrive prepared, and can often subtly coerce their neighbors to sign something the neighbors might not otherwise support. Linda Gloor, with the city of Burnsville, cited this as the reason Burnsville will soon experiment with a ballot process. Burnsville's pilot program requires 10% of the affected residents, by petition or letter, to initiate the ballot process. The city then sends form letters to all affected residents exlaining what lighting is proposed and where it will go. Ballots must be returned by a certain date; ballots not returned will count against the proposed lighting. If 60% of the dispatched ballots return marked yes, the matter goes before the city council, where passage requires a 4/5 vote. Summarizing the information obtained from our survey on existing developments: 1) possible criteria for street light warrants: A) Traffic volumes B) Accidents C) Security 2) Citizens of the communities surveyed may petition their cities for additional street lighting. 3) If the light is warranted and approved, most the cities surveyed would pay installation, operation, and maintenance. 4) For lights that are not warranted by traffic safety several options are employed: A) Affected ci tizens pay for installation, the ci ty pays for operation and maintenance. B) Affected ci tizens pay for installation, operation, and maintenance. C) The light is rejected LIGHTS: 100 to 150 watt high pressure sodium bulbs are recommended for residential use. Bulbs of higher wattage provide a less appealing lighting color and generally are reserved for commercial zones. Additionally, bulbs of lower wattages are more efficient. All the cities surveyed insist on a standard light, usually a cobra head or shoe-box style. Presently, the majority of street lights in Prior Lake's residential neighborhoods are 100 or 150 watt cobra head fixtures some mounted on wood utility poles, some on fiberglass poles. POSSIBLE RECOMMENDATIONS: I. Basis of street light warrants A. ADT B. Traffic accidents c. Security II. Payment for warranted light A. City B. Affected residents 1. Define affected residents radius of specified length from light?) . 2. Assess affected residents for light cost, be it contributions in aid of construction for a leased light or the price of a purchased light. City pays operation and maintenance. 3. Assess residents for initial costs and operation and maintenance. c. Residents in new developments pay for their street lighting. III. Warrant process A. Initiated by petition. B. Initiated by recommendation of city engineer. ~ ~o ~ \<..f\l=T RESIDENTIAL STREET LIGHTING POLICY BACKGROUND: The City intends that this street lighting policy promote the safe travel of city streets in a manner both fair and affordable to the City and its residents. Residential street lighting promotes pedestrian and traffic safety to the extent that the City shall approve street lighting where warranted by such concerns. Lighting requests shall come either by recommendation of the City Engineer or by resident petition. The capital costs of residential street lighting shall be the responsibility of those residents, or any portion of those residents, determined to be affected by the light. NEW SUBDIVISIONS: In new subdivisions street lights shall be approved for intersections, every 300 feet between intersections when intersections are more than 600 feet apart, and at the ends of cul-de-sacs when the distance from said end to the intersection of the cul-de-sac with the street is greater than 300 feet. The developer shall pay the full capital cost of every light to be installed. The developer shall also pay operation and maintenance for the light system until the City accepts the project, at which time the billing may be transferred to the City. 100 or 150 watt high pressure sodium lights in traditional style shall be the standard for new subdivisions. In cases where developers wish to install more lights than warranted by city policy, or wish to install non-standard lights, monthly operation and maintenance becomes the responsibility of the development's residents through their homeowner's association or similar organization. The City will not take over such non-standard systems. EXISTING SUBDIVISIONS: Where traffic safety clearly warrants, a street light may be placed upon the recommendation of the City Engineer's office. The basis of such warrants shall be a minimum Average Daily Traffic of 2000 vehicles or a layout such that, in the City Engineer's estimation, significant improvement in safety might be obtained by the placement of a street light. Since the benefit of such installations extends to the City as a whole, these will be done at City expense. vJhen residents request additional lighting for their neighborhoods, they must do so by petition - signed by 60% of the neighbors affected by the proposed light. The affected area shall be 100 linear feet on either side of the proposed light, on both sides of the street. The placement of the proposed light shall be specified in the petition. Lights shall be considered only as they meet the following policy for existing subdivisions: intersections, between intersections at intervals of 300 feet when the distance between intersections is greater than 600 feet, and at the ends of cul-de-sacs when the distance from said end to the intersection of the cul-de-sac with the street is greater than 300 feet. If approved, the street light shall be purchased by the affected residents. Payment shall be made prior to the installation of the light. The method of payment shall be as directed by the City Finance Department. In existing developments new lights shall match in style and wattage those already in place. If no lights are currently in place, then 100 or 150 watt high pressure sodium lights in cobra-head or traditional style shall be the standard. Update: 11/09/94 STREET LXGHT COSTS NEWLY ENERGXZED LXGHTS XN NEW RESXDENTIAL DEVELOPMENTS The number of lights needed originates from the proposed policy of lights for intersections, every 300' between intersections where the distance between intersections is greater than 600', and at the ends of cul-de-sacs, where the distance to said end from the intersection is greater than 300'. It is estimated that under the policy draft one new street light will be placed for every eleven new homes. In 1994 an estimated 200 single family building permits will be issued. This would mean another 18 street lights on line over the next year. If the developers pay the full capital costs of these lights, the City would be responsible only for operation and maintenance at a rate of roughly $6.00 per month per light. Our monthly bill would be expected to rise $108 over the next year. STREET LZGBT COSTS COON"l'Y ROADS DOE FOR :IMPROVEMENT The number of lights needed originates from the proposed policy of lights for intersections, every 300' between intersections where the distance between intersections is greater than 600', and at the ends of cul-de-sacs, where the distance to said end from the intersection is greater than 300'. The following sections of roadway are county roads due for improvement. Lighting these sections provides benefit to the City as a whole and thus, according to the policy draft, the City pays installation, operation, and maintenance. Two plans are offered: A) where the developers pay to install lights at those locations where residential streets intersect the county road, and B) where the City pays to install all the lights. The costs given here apply to purchased lights with a monthly operation and maintenance agreement. Leased lights require less money "up front" but larger monthly payments. CSAH 21 (FROM CXTY LXMXT TO FXSH POXNT ROAD) These cost estimates are for cobra-head lights on fiberglass poles. Lights needed: 8 Option A: Option B: Monthly O&M (8 lights): $48 Lights paid for by city NA 8 Estimated Cost NA $11,000 CSAH 44 (FROM TH 13 TO CXTY LXMXTS) These cost estimates are for cobra-head mast arms leased from the utility and hung on existing power poles. Lights needed: 8 Virtually no initial cost to the City. Monthly O&M (8 lights): $80 CSAB 21 (FROM 154'l'B TO CSAH 42) These cost estimates are for cobra-head lights on fiberglass poles. Lights needed: 24 Option A: Option B: Monthly O&M (24 lights): $144 Lights paid by City 21 24 for Estimated Cost $28,875 $33,000 CSAH 42 (FROM CSAB 21 TO FERND.ALE) These cost estimates are for double mast arm cobra-head lights on fiberglass poles. Lights needed: 21 Option A: Option B: Monthly O&M (21 lights): $126 Lights paid by City NA 21 for Estimated Cost NA $31,500 Note: Trenching costs to place these lights in the roadway center island could significantly raise this cost. CSAB 18 (FROM CSAB 42 TO CZTT LZMZTS) These cost estimates are for double mast arm cobra-head lights on fiberglass poles. Lights needed: 8 Option A: Option B: Monthly O&M (8 lights): $48 Lights paid for by City NA 8 Estimated Cost NA $12,000 Note: Trenching costs to place these lights in the roadway center islands could significantly raise this cost. EXISTING RESIDENT~ NEIGHBORHOODS LIGHTS NEEDED AND COST SlJMMARY Note: Monthly operation and maintenance for City owned lights was averaged at $6.00 per light. "Lights needed" designates the potential number of light warrants that would meet the plan's criteria for locations, in existing neighborhoods, presently without street lighting. Costs are in dollars. Plan: Intersections only Lights needed: By territory NSP 57 MVEC 59 SPU 17 TOTAL- 133 Estimated Cost: Monthly O&M NSP MVEC SPU TOTAL- $342 $354 $102 $798 Yearly O&M $4104 $4248 $1224 $9576 Lights needed: Plan: Intersections and every 300 feet between intersections. By territory NSP 166 MVEC 180 SPU 39 TOTAL- 385 Estimated Cost: Monthly O&M NSP MVEC SPU TOTAL- $996 $1080 $234 $2310 Yearly O&M $11,952 $12,960 $2808 $27,720 Plan: Intersections, of cul-de-sacs. every 300 feet between intersections, and at the ends By territory NSP 193 MVEC 213 SPU 49 TOTAL- 455 Lights needed: Estimated cost: Monthly O&M NSP MVEC SPU TOTAL- Update: 11/14/94 $1158 $1278 $294 $2730 Yearly O&M $13,896 $15,336 $3528 $32,760 STREET LIGHT COSTS STATE AID ROADWAYS IN 1995 C.I.P. The number of lights needed originates from the proposed policy of lights for intersections, every 300' between intersections where the distance between intersections is greater than 600', and at the ends of cul-de-sacs, where the distance to said end from the intersection is greater than 300'. The following sections of roadways are collectors or will be in the near future. As such, they cross (or will cross) the minimum Average Daily Traffic (ADT) threshold of 2000 vehicles. Benefit can be ascribed to the city as a whole and thus, according to the policy draft, the City pays installation, operation and maintenance. Two plans are offered: A) where the developers pay to install street lights where the collector street intersects residential streets and B) where the City pays to install all the lights. The costs given here apply for purchased lights with a monthly operation and maintenance agreement. Leased lights require less money "up front" but larger monthly payments. STREET: CARR:IAGE HJ:LLS PARKWAY (FROM CSAH 21 TO PJ:KE LAKE TRAJ:L) These cost estimates are for "traditional" style lights. Lights needed: 9 Estimated cost Lights paid for by City Option A: 5 Option B: 9 Monthly O&M (9 lights): $54 $4125 $7425 STREET: PJ:KE LAKE 'l'RAJ:L (FROM CSAH 42 TO CHATONKA) These cost estimates are for "traditional" style lights. Lights needed: 14 Estimated cost Lights paid for by City Option A: 11 Option B: 14 Monthly O&M (14 lights): $84 $9075 $11,550 STREET: FJ:SH POJ:NT RD. (FROM CSAH 44 SOOTH '1'0 TERMJ:NUS) These cost estimates are for cobra-head lights on fiberglass poles. Lights needed: 4 Estimated cost Lights paid for by City Option A: 3 Option B: 4 Monthly O&M (4 lights): $24 $4125 $5500