HomeMy WebLinkAboutDTS-06-034 - Downtown Lighting Improvements1
K rrc��R REPORT
Development&
Technical Services
Report To: Chair Weylie and Members of the Development and Technical
Services Committee
Date of Meeting: June 12, 2006
Submitted By: John McBride
Prepared By: John McBride
Ward Involved: Ward 1 Bridgeport Centre
Ward 6 - West Victoria Park
Date of Report: June 6, 2006
Report No.: DTS 06 -034
Subject: DOWNTOWN LIGHTING IMPROVEMENTS
RECOMMENDATIONS:
"That Council reaffirm the lighting levels approved in the On Lighting Downtown report
of 1999; and further,
That twenty four high pressure sodium fixtures on King St between Gaukel St and
Francis St be converted to metal halide fixtures at a cost of approximately $30,000 and
funded from the existing metal halide conversion account; and further,
That additional intersection lighting be installed at King and Queen Sts, King and Ontario
Sts, King and Gaukel Sts, King and Water Sts and King and Francis Sts at a cost of
approximately $10,000 and funded from the existing metal halide conversion account;
and further,
That Facilities Management be directed to complete an external lighting study for City
Hall and Your Kitchener Market, at a cost of approximately $10,000 and funded from the
Safe and Healthy Community Advisory Committee budget; and further,
That a future report be brought back to the Development and Technical Services
Committee to address streetscape improvements on King St from Frederick St to Francis
St as well as potential changes to the fagade loan program."
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EXECUTIVE SUMMARY:
The On Lighting Downtown report, which was adopted by Council in Nov 1999, established a
new standard for including both pedestrian scale and non pedestrian scale lighting throughout
the core.
The one caveat was that lighting improvements were to be undertaken in conjunction with road
reconstruction which created an inconsistent, fragmented and slow resolution of lighting
deficiencies in the Downtown. Compounding this was a maintenance program that was
dependant on the reporting of non functioning lights before they were replaced.
As a result, a working group was formed to identify and help resolve the following issues
• Maintenance of the existing street lights
• The appropriateness of light levels identified in the On Lighting Downtown report
• Immediate improvements that can be made
• Interim improvements that can be made
• Longer term or ultimate improvements and timing of same
• Private property involvement
• Potential lighting events
Two new maintenance programs have been instituted with Kitchener Wilmot Hydro. Effective in
March of this year, Kitchener Wilmot Hydro has started to patrol all lighting in the Downtown
every two weeks. This will ensure that failed lights are repaired in a timely manner.
The second change will be the introduction of a group relamping program every two years. This
will ensure that acceptable light levels are maintained and bulbs are replaced before light
degradation occurs.
In order to immediately improve existing light levels in the core, arrangements were made with
Kitchener Wilmot Hydro to clean and relamp all metal halide (MH) decorative fixtures as of April
of this year.
One of the fundamental questions that the working group asked itself is whether the light levels
established in the On Lighting Downtown report were still valid today.
As part of the group relamping, the actual bulb was changed from a frosted coating to a clear
coating which increased light levels by approximately 10 %. There was unanimous agreement
by the working group that lighting levels in the portion of the Downtown that has been rebuilt as
per the On Lighting Downtown standards are appropriate.
In the area of King St between Gaukel St and Francis St, there are approximately 24 fixtures
that still have high pressure sodium (HPS) lamps (yellow light). These will be converted to MH
(white light) so that the entire length of King St from Madison to Victoria will be all MH. These
improvements will cost approximately $30,000 and will be funded from our existing metal halide
conversion account. Once this portion of King St is rebuilt and the proper poles and lights are
installed, approximately $11,000 of this initial cost will be recouped.
The preferred interim improvement involves increasing the light levels at intersecting cross
streets. It is proposed that two additional MH lights be installed atop traffic control signals on
diagonally opposing corners. The initial cost to install additional lights at five intersections is
approximately $10,000 and the recouped savings from the reuse of these lights will be
approximately $5,000. Funding for these improvements will be taken from our existing metal
halide conversion account.
The long term solution to lighting improvements is to implement the recommendations of On
Lighting Downtown. A consultant will be hired to help develop a streetscape design for King St
with the intention that funding be provided in 2007 to rebuild King St between Frederick St and
Francis St. Initial estimates for the rebuilding of King St are in the order of $3 mill but will be
refined as the streetscape design is developed.
As part of the review of lighting at City Hall and Your Kitchener Market, it is proposed to hire a
lighting consultant to review existing conditions, conduct photometric studies and provide
recommendations including required lighting enhancements, revisions to current energy costs
and estimated construction costs. The necessary funding to conduct this review (estimated to
be approximately $10,000), will be charged to the Safe and Healthy Community Advisory
Committee budget.
The expansion of parking on the Centre Block will include additional lighting in the area that was
grass which will improve the illumination of this property until such time as development occurs.
Other examples of lighting improvements on private property include storefronts leaving their
lights on and installing lights over doorways, alcoves, adjacent alleys and display windows. The
KDBA and the Safe and Healthy Community Advisory Committee are developing a pilot
program along King St to provide examples of how minor changes such as these can provide a
very positive improvement.
Planning Staff will be asked to consider incorporating window, doorway and in -store lighting into
the site plan and /or fagade loan program to ensure that adequate lighting on private property is
in place, especially for any City supported improvements.
BACKGROUND:
A number of concerns have been brought forward recently regarding lighting in the Downtown,
particularly along the King St corridor. Some of the concerns raised have been centred on the
level of comfort felt by pedestrians while walking in the Downtown at night. The concerns have
focused on maintenance issues, overall light levels, "holes" in the street lighting and how best to
address "dark" areas. The Kitchener Downtown Business Association (KDBA) requested that
the City undertake a review of lighting in the Downtown and also arranged a bus tour of a street
in Guelph where lighting improvements had recently been completed.
REPORT:
Lighting in the Downtown core is a combination of various styles and types, some dating back to
the 1970's. They include cobra head fixtures, older coach style decorative lights, high pressure
sodium (HPS) light sources (yellow light), metal halide (MH) light sources (white light) as well as
some streets with pedestrian scale lights.
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The On Lighting Downtown report, which was adopted by Council in Nov 1999, established a
new standard for including both pedestrian scale and non pedestrian scale lighting throughout
the core. The design elements allowed for the proper spacing of poles, lower fixture heights
and the provision of more uniform light levels that illuminate not only the roadway, but the
adjacent pedestrian areas as well.
The one caveat was that lighting improvements were to be undertaken in conjunction with road
reconstruction. This approach has created an inconsistent, fragmented and slow resolution of
lighting deficiencies in the Downtown as only a handful of streets have been rebuilt so far.
Appendix A illustrates the work that has been completed to date, as well as improvements
scheduled for this year and beyond. Compounding this was a maintenance program that was
dependant on the reporting of non functioning lights before they were replaced.
As a result, a working group was formed to identify and help resolve these issues. It included:
• Marty Schreiter — Kitchener Downtown Business Association
• Nancy Finkle — Kitchener Downtown Business Association
• Glen Woolner - Downtown Advisory Committee
• Dennis Schnarr - Safe and Healthy Community Advisory Committee
• Tony Frensch - Kitchener Wilmot Hydro
• Larry Duthie - - Kitchener Wilmot Hydro
• John MacDonald — John MacDonald Architect
• Silvia Wright — Manager Downtown Community Development
• Rod Regier — Executive Director Economic Development
• Larry Lynch- Manager Engineering Rehabilitation
• Eric Saunderson — Design and Construction Project Manager
• Julie Dean — Safe City Coordinator
• John McBride — Director of Transportation Planning
The issues identified included:
• Maintenance of the existing street lights
• The appropriateness of light levels identified in the On Lighting Downtown report
• Immediate improvements that can be made
• Interim improvements that can be made
• Longer term or ultimate improvements and timing of same
• Private property involvement
• Potential lighting events
Lighting solutions can not be totally achieved by one improvement alone. It will be a
combination of street lighting, fagade lighting, storefront window display lighting, doorway and
alcove lighting and contributions from both the private and public sector that will create a more
safe and inviting atmosphere in the Downtown.
We believe that a plan has been developed that will address all these issues, as follows.
Maintenance of existing street lights
The maintenance of street lights throughout the City is based on a regularly scheduled
relamping program every 5 years. This ensures that the light output from the lamp is
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maintained at a reasonable level and minimizes the number of light failures and has proven to
be the most cost effective approach to street lighting maintenance.
When decorative lights were first installed in the core, arrangements were made with Kitchener
Wilmot Hydro to repair any failed lights as soon as they were reported in an effort to minimize
the number of lights that were out at any one time. This approach created two problems.
The first was that we were dependant on merchants, the public or staff to report failed lights.
While arrangements were made for Bylaw Enforcement or Security staff to patrol and record
lights that were out three or four times per year, this approach did not result in a timely
reporting of light failures.
The second issue is that MH lights (white light) produce a reasonable light level for
approximately two years. After that point the light level diminishes, and while the light remains
on, the amount of useable light is not sufficient. Therefore, if a light did not fail within the first
two year time frame, it wasn't replaced. This resulted in a number of lights in the core, that
while on, didn't produce adequate light levels.
To address these issues two new maintenance programs have been instituted with Kitchener
Wilmot Hydro. Effective in March of this year, Kitchener Wilmot Hydro has started to patrol all
lighting in the Downtown every two weeks. This will ensure that failed lights are repaired in a
timely manner.
The second change will be the introduction of a group relamping program every two years. This
will ensure that acceptable light levels are maintained and bulbs are replaced before light
degradation occurs.
In order to immediately improve existing light levels in the core, arrangements were made with
Kitchener Wilmot Hydro to clean and relamp all MH decorative fixtures as of April. This is
complete and noticeable improvements have been achieved.
Appropriate Light Levels
One of the fundamental questions that the working group asked itself is whether the light levels
established in the On Lighting Downtown report were still valid today.
The On Lighting Downtown standards were based on the premise that sufficient light levels are
required within the right of way, both road and sidewalk, to ensure good recognition for
pedestrians and motorists of other users on the street. Part of creating a comfortable
pedestrian environment is having sufficient light levels to allow a person to clearly see and
recognize someone approaching them. It will also, to a certain extent, help to illuminate
doorways, entrances and alcoves on private property.
With too bright a light, the eye adjusts accordingly which in turn makes unlit areas appear even
darker. This is in fact counter productive to what we are trying to do. The goal is to ensure that
there is sufficient light on the street while at the same time not making it so bright that you can't
see into other areas. A comfortable pedestrian environment should allow you to see into both.
Comparisons by the working group were made to a street in Guelph which has extremely bright
street lights over both the road and sidewalk. Many in the group found it too bright and
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everyone agreed that the impact on the side streets was negative and that they appeared
considerably darker because of the greater contrast in light levels.
As part of the group relamping, the actual bulb was changed from a frosted coating to a clear
coating which increased light levels by approximately 10 %. A night tour was arranged with the
majority of the working group present as well as Councillors Weylie and Vrbanovic. The group
toured King St between Cedar St and Eby St which has been rebuilt with the proper pole
spacing, fixture height and light levels that are compliant with the On Lighting Downtown
standard. There was unanimous agreement by the working group that lighting levels in this part
of the Downtown are appropriate and provide clear recognition while at the same time
maintaining an appropriate contrast between lit and unlit areas.
This level of lighting will be extended along King St and the side streets as they are rebuilt and
the approved standard is implemented.
Immediate Improvements
In addition to the cleaning and relamping of all MH lights and the repair of inoperative lights
other immediate improvements can be made. Predominately in the area of King St between
Gaukel St and Francis St, there are approximately 24 fixtures that still have HPS lamps (yellow
light). These will be converted to MH (white light) so that the entire length of King St from
Madison to Victoria will be all MH. Even though we recognize that the portion of King St
between Frederick St and Francis St still has the incorrect pole spacing, fixture height and a
variety of light styles, they will all provide the white light which permits far better colour rendition
and visual recognition of persons and objects. These improvements will cost approximately
$30,000 and will be funded from our existing metal halide conversion account. Once this
portion of King St is rebuilt and the proper poles and lights are installed, approximately $11,000
of this initial cost will be recouped.
Interim Improvements
The section of King St between Frederick St and Francis St has pole and fixture spacing
approximately twice the distance of that proposed in the On Lighting Downtown study. This
area has some of the oldest lights in the core, some dating back to the 70's. We debated at
length how best to improve lighting in this area without expending considerable amounts of
funds, knowing full well that they would be lost once the road is rebuilt.
The installation of additional poles and fixtures, building mounted lights, uplighting, downlighting
and tree mounted lights washing facades were all considered. All of these approaches involve
considerable expense and many of them also require legal agreements or easements with
private property owners.
For this reason the preferred interim improvement involves increasing the light levels at
intersecting cross streets. It is proposed that two additional MH lights be installed atop traffic
control signals on diagonally opposing corners. This will double the existing light levels where
the greatest interaction between vehicles and pedestrians occurs as well as help increase light
levels along the adjacent sidewalks. Intersections to be included are King St at Queen St,
Ontario St, Gaukel St, Water St and Francis St. and it is proposed to have this work completed
over the summer months.
Once King St is rebuilt and the proper street lighting installed, these intersection upgrades can
be salvaged and reused elsewhere. The initial cost to install additional lights at the five
intersections is approximately $10,000 and the subsequent reuse of the lights will recoup
$5,000 or half of the initial investment. Funding for these improvements will be taken from our
existing metal halide conversion account.
Long Term Improvements
The long term solution to lighting improvements is to implement the recommendations of On
Lighting Downtown. The past practice has been to only make lighting improvements at the time
of road reconstruction. This has resulted in a fragmented approach to lighting in the core. A
number of initiatives are currently being undertaken to help define the look and feel of the
Downtown. These include the Who Are You program as well as the development of the
Downtown Urban Design Study.
Staff are prepared to take the results of these two programs and hire a consultant to help
develop a streetscape design for King St with the intention that funding be provided in 2007 to
rebuild King St between Frederick St and Francis St. Initial estimates for the rebuilding of King
St are in the order of $3 mill but will be refined as the streetscape design is developed.
Potential funding sources may include, EDIF, gas tax funds or the reprioritization of other capital
projects. A separate report on this initiative will be brought to Council for consideration before
any work proceeds.
Private Property Involvement
For the purpose of this report, private property is defined as any property outside of the right of
way and includes both private and City property. Street lighting is intended to illuminate the
road and sidewalk and contribute somewhat to adjacent private property. However, we have
examples on King St where developments are set back from the sidewalk and do not have
sufficient lighting to provide the comfortable pedestrian environment that we are trying to
achieve on the street. City properties include the City Hall rink/ fountain area, the Your
Kitchener Market Piazza as well as the Centre Block. Considerable improvements can be made
at the pedestrian level, but we could also take advantage of impressive architecture by using
lighting to accent the features of these buildings.
As part of the review of lighting at City Hall and Your Kitchener Market, it is proposed to hire a
lighting consultant to review existing conditions, conduct photometric studies and provide
recommendations including required lighting enhancements, revisions to current energy costs
and estimated construction costs. The necessary funding to conduct this review (estimated to
be approximately $10,000), will be charged to the Safe and Healthy Community Advisory
Committee budget.
The expansion of parking on the Centre Block will include additional lighting in the area that was
grass which will improve the illumination of this property until such time as development occurs.
Other City properties that should be reviewed with respect to lighting include the numerous
small parkettes within the Core, the Cenotaph and Speakers Corner.
Other examples of lighting improvements on private property include storefronts leaving their
lights on, at least during the evening hours and installing lights over doorways, alcoves,
•
adjacent alleys and display windows. These are low cost improvements that will not only
provide spillover light onto the sidewalk, but also help to promote products and services. The
KDBA and the Safe and Healthy Community Advisory Committee are developing a pilot
program along King St to provide examples of how minor changes such as these can provide a
very positive improvement.
Planning Staff will be asked to consider incorporating window, doorway and in -store lighting into
the site plan and /or fagade loan program to ensure that adequate lighting on private property is
in place, especially for any City supported improvements.
Potential Lighting Events
Part of the animation related to a lively Downtown is the development of non traditional means
of lighting. These may include one or more of the following approaches:
• Tree Lighting. Historically, Christmas tree lights have been installed on the King St trees
through the winter months. These do add a certain amount of festive feel to the street
but are not without their problems. They are susceptible to vandalism, require regular
maintenance and can interfere with the trees normal "night cycle ". The KDBA has
recently funded the installation of new tree lights as part of their annual budget.
Fagade Lighting. There are a number of buildings in the Downtown that have significant
architectural features that are lost at night. The opportunity exists to work with private
property owners to install fagade lighting that will showcase these buildings. These may
include the St Jeromes building, PUC building, City Hall, and many others. Not only will
it highlight the facades, but also provide vertical visual presence beyond the first storey,
which has typically been the extent of lighting in the past. This initiative would be
developed in partnership with the Downtown Development Section, KDBA, Facilities
Management and the private property owner.
The KDBA is working on developing and installing a lighting event somewhere within the
core that will take advantage of an open space to provide artwork that has a lighting
component. This could take many different forms and will be circulated to the City for
comment prior to installation, if it involves any public land or impacts the right of way.
FINANCIAL IMPLICATIONS:
The immediate cleaning and relamping of all decorative lights in the Downtown has cost
approximately $12,000 and has been funded from our existing maintenance accounts.
The conversion of 24 HPS fixtures to MH will cost approximately $30,000 and will be funded
from our existing metal halide conversion account. Approximately $11,000 worth of lights can
be salvaged and reused elsewhere once this portion of King St is rebuilt.
The proposed interim improvements to add two additional lights at intersections on King St
between Queen St and Francis St will be approximately $10,000. Approximately $5,000 worth
of lights can be salvaged and reused elsewhere once this portion of King St is rebuilt and the
On Lighting Downtown standard is implemented. Funding for these improvements will be taken
from our existing metal halide conversion account.
The lighting study for City Hall and Your Kitchener Market will be approximately $10,000 and will
be funded from the Safe and Healthy Community Advisory Committee budget.
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Other lighting initiatives such as the fagade loan program and the reconstruction of King St will
be brought forward in separate reports where their financial implications will be outlined in detail.
The KDBA has already paid and installed tree lights as part of their annual budget and will also
be funding the lighting event.
COMMUNICATIONS:
Representatives of the Downtown Advisory Committee, the Safe and Healthy Community
Advisory Committee, the Kitchener Downtown Business Association, Kitchener Wilmot Hydro, a
lighting consultant and staff from Economic Development, Engineering, Community Services
and Transportation Planning have been part of the review team and are supportive of the
recommendations outlined in this report.
John P. McBride Director
Transportation Planning
Silvia Wright
Manager of Downtown Development
Larry Lynch
Manager Engineering Infrastructure
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Appendix A — Existing and Proposed Street Lighting Improvements
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