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Neighborhood Lighting Utility Board
Master Plan
Revised October 1998
Note: This is an html version of the Neighborhood Lighting Utility Board Master Plan, and does not include any original language that has since been stricken from the record as part of the 1998 update process.
Table of Contents
EXECUTIVE SUMMARY
SECTION 1
HISTORY OF NEIGHBORHOOD STREET LIGHTING IN UPPER ARLINGTON
SECTION 2
BOARD'S GOALS & RESPONSIBILITIES
A. Board Responsibilities
B. Board's Goal
SECTION 3
MASTER PLAN GOAL
SECTION 4
PLAN COVERAGE
SECTION 5
DESIGN ELEMENTS
A. Standard Neighborhood Light Design for Residential Streets
B. Alternative Designs Procedures
SECTION 6
CONSTRUCTION CONTRACTS
SECTION 7
INSTALLATION COSTS
SECTION 8
INSTALLATION COST SHARING
SECTION 9
INSTALLATION COST PAYMENT
SECTION 10
MAINTENANCE COSTS
SECTION 11
SPECIAL ASSESSMENT PROCEDURES
SECTION 12
EASEMENTS
SECTION 13
SCHEDULING
EXECUTIVE SUMMARY
Residential neighborhood lights existed for many years in the older area of the City south of Lane Avenue. When this old Series System was turned off due to age and condition, Residents realized that the lights were a significant benefit to the community because they added neighborhood charm and ambiance, provided public convenience and safety benefits and enhanced property values.
The City of Upper Arlington created the Residential Street Light Utility Board to encourage and expedite the development of a City-wide system of neighborhood lights on residential streets. This Board is responsible for establishing and maintaining a Master Plan for the rehabilitation of existing street lights, the installation of new lights and the operation and maintenance of all lights on residential streets.
The following sections of this Neighborhood Lighting Utility Master Plan detail the history and a City-wide process for providing lights on residential streets in Upper Arlington. Basically, the Plan requires that Residents who want lights must successfully petition for a special assessment to cover installation costs and agree to pay an annual maintenance/replacement charge. In order to meet the Residents' wishes and minimize installation and operation costs, the standard design follows the lower voltage lines and fluorescent bulbs design.
SECTION 1 - HISTORY OF NEIGHBORHOOD STREET LIGHTING IN UPPER ARLINGTON
The original lighting system was installed in 1916 and consisted of concrete columns with Ionic Capitals and round globes. These original poles and globes were an artistic feature during the original development of Upper Arlington by the King Thompson Company. Today, only one original post still exists at First Community Village.
These original lights were replaced in the late 1920's with cast-iron Arcadian style poles with an eight sided lantern type luminaire. The Residents paid for this new system primarily through a special assessment. This Series System, which eventually included over 600 poles, used 200 watt incandescent bulbs. Over the years few changes occurred except some Cobra-head type lights were installed in certain higher volume traffic areas and over one-third of the original poles and luminaires were replaced with less expensive alternatives when the originals were damaged beyond repair.
Although the City significantly grew in size, it wasn't until 1968 that it began to light arterial streets outside the Series System. The lighting of other major thoroughfares and collector streets continued on a limited basis until 1988. All of these lights used the Traditional luminaire on a wooden pole and were installed at City expense. Much of the City has never had residential street lights.
Although the deterioration of the old Series System was apparent for some time, a replacement plan was not prepared until 1988. However, reaction to the original plan was not favorable (e.g., Residents in the old Series System objected when they learned the new lights would be at least four times as bright as the old lights, and Residents in other parts of the City objected to the City spending approximately $3,000,000.00 to light only one part of the City). In the Spring of 1989, the City Manager commissioned a study of the old Series System by an electrical engineer who determined that the combination of high voltages and the deteriorated wiring made the system unsafe. As a result of this study, the Series System was de-energized on May 11, 1989.
A comprehensive City-wide Neighborhood Lighting Master Plan was prepared in May 1990 and after considerable input from Residents, City Council revised the plan in 1991 to provide:
(a) The City would install neighborhood lightings on all arterial streets and pay approximately 8% for cost of lighting all other (residential) streets with the remaining costs paid via a special assessment on property owners.
(b) Estimated average costs were $1,895 per property, or $280.00 a year for ten years; with the City assuming all costs to maintain and operate all neighborhood lighting.
(c) Design elements included Barrington type poles, Edgewater type luminaries, and mercury vapor lights. However, recognizing that the Residents did not want the notable increase in the intensity of light in the original plan, the proposed light levels were reduced to the same level as the old Series System.
Information on this Plan and a survey response card were mailed to Residents in the old Series System in the Fall of 1991. However, apparently the cost was too high and confusion remained about the brightness level because the Residents turned this Revised Plan down and thus it was not implemented.
Subsequently, City Council directed staff to explore other ways of providing residential street lights. Some Residents developed an alternative plan using low-voltage lines from houses and fluorescent bulbs that were about as bright as the old incandescent bulbs. In August, 1993, City Council approved a pilot project using this low voltage design on Kensington and Southway Drives. The Residents on these streets voluntarily paid the installation costs of approximately $750.00 per household to refurbish and refit 20 of the old lights with the low voltage design. They also agreed to pay the nominal operating costs.
This project worked and received a favorable response from the Residents not only because of the costs, but also because it was similar to the old Series System.
In 1994, City Council appointed a Resident Consultation Group to make an in-depth study of the options including an evaluation of the pilot project and to make recommendations on how that (or another system) could be offered to the Residents. After much testimony and public hearings, this Group prepared a comprehensive report which recommended the low voltage/fluorescent bulb plan be used and that a Resident Street Light Utility be formed to implement the process.
Pursuant to these recommendations, City Council established the Neighborhood Lighting Utility Board (originally named the Residential Street Light Utility Board) in the Fall of 1994.
Although charged to implement the recommendations of the prior Residential Consultation Group, the Board, City Staff and consulting engineers explored various construction alternatives before approving the use of fluorescent bulbs powered by 110 volt mini-circuits, the use of a citizen-initiated special assessment process to pay for the cost of installation and with all maintenance costs paid by the Residents with lights and electricity costs to power the lights paid by the City.
This Master Plan incorporates this history and the Board believes it meets the Residents' wishes and thus offers the best opportunity to have neighborhood lights on residential streets in the City, since:
1. there is a difference between roadway lighting and neighborhood lighting, and state-of-the-art recommended brightness values for roadway lighting need not apply - and indeed are often inappropriate - for neighborhood lights on the City's typically narrow and less traveled streets;
2. the Residents in the old Series System turned down brighter lights and more expensive lights and repeatedly expressed their desire for a less expensive system similar to the old Series System;
3. severe budget restraints make it highly unlikely the City could contribute significantly to pay for lights on any residential streets in the foreseeable future, and;
4. the Residents wanting lights must voluntarily request and pay for them via a special assessment.
SECTION 2 - BOARD'S GOALS & RESPONSIBILITIES
A. Board Responsibilities:
The Board is responsible to oversee and coordinate the planning, installation, maintenance and operation of all lighting on residential streets in the City including any parts on private property; to maintain this Master Plan and to assure its policies are uniformly applied and that equal City support and assistance is offered for all such lights on a City-wide basis.
B. Board's Goal:
The Board's goal is to encourage and expedite the development of a City-wide system of lights on residential streets by offering a high quality, user-friendly, aesthetically pleasing system at the most reasonable cost possible. To this end, the Board has adopted the Resident Consultation Group's recommendations for Residential Street Lights usinge Arcadian (Barrington) style poles, lantern type luminaries, fluorescent bulbs and lower voltage underground wiring.
SECTION 3 - MASTER PLAN GOAL
The goal of the Master Plan is to be user-friendly, both as to Residents and to the City, which includes the following elements:
A. A residential street lighting system ats the lowest, most reasonable cost to the Residents with the highest quality possible.
B. A plan that minimizes as much as possible the hassles to homeowners.
C. A plan that maximizes fairness to all Residents and to the City.
D. A plan that can be implemented as quickly as possible so lights can be installed on residential streets as expeditiously as possible.
E. A plan that gives control of the system and responsibility for the long-term maintenance to the City rather than to Residents.
F. A plan that encourages installation of residential neighborhood lights, maximizes uniformity and facilitates ease of maintenance for the City.
G. A plan that emphasizes voluntary actions rather than compulsion and which minimizes conflict, both Resident-to-Resident and Resident-to-City.
H. A plan that avoids complexities and that shares information with the citizens to the maximum extent possible.
SECTION 4 - PLAN COVERAGE
A. All streets not classified as arterial in C.O. Chapter 311 of the City of Upper Arlington's Traffic Code are covered by this Master Plan. (C.O. § 311.02 - Schedule II - Street Designations).
B. Lights will only be installed on residential streets pursuant to a voluntary special assessment petition by the Residents.
SECTION 5 - DESIGN ELEMENTS
A. Standard Neighborhood Light Design for Residential Streets:
1. POLE: 12' high Arcadian (Barrington) style. Where possible, existing cast iron poles will be reconditioned; otherwise new cast iron or aluminum poles will be used.
2. LUMINAIRE: Edgewater type, acrylic lenses with no optics. (Diffuser and/or refracting panels can be used in appropriate circumstances to minimize light trespass.)
3. BULB: Fluorescent, 1600-2400 initial lumens, color range 2700-2900 degrees Kelvin.
4. SPACING: 100'-150' apart; with sensitivity to not placing poles closer than 5' to a driveway or directly across from a driveway; placement of poles also sensitive to maximizing access to power sources; in old Series System placements should follow prior system as closely as feasible.
5. POWER SOURCE: Lower voltage systems will be used wherever possible to minimize costs. The revised standard system includes using 110 volt mini-circuits starting from a nearby electric pole. However, other power sources may be used based on cost savings and/or engineering considerations.
B. Alternative Designs:
While placing a high priority on a uniform design to maximize aesthetic values and reduce installation, maintenance and operating costs, in appropriate circumstances the Board may consider and present alternative designs and construction methods for City Council approval.
SECTION 6 - CONSTRUCTION CONTRACTS
Specifications for the bidding process will maximize the Board's goals and wherever possible use general rather than specific terms. Appropriate value will be put on the contractor's ability to minimize the intrusion/damage to private property and whenever possible perform the work to the owner's satisfaction. Mediation will be encouraged for any complaints not resolved by negotiations with the contractor, but will not prohibit other actions.
SECTION 7 - INSTALLATION COSTS
Current estimates of costs are included as Appendix C.
SECTION 8 - INSTALLATION COST SHARING
Costs for the installation, maintenance and replacement of lights on residential streets will be borne by the Residents in the special assessment areas, unless otherwise by law. Pursuant to the special assessment process and co-extensive with the benefits conferred, total costs will be divided by parcel number (with condominiums paying one-half), and all assessments may be adjusted by equity. Property owners whose property is addressed on streets where the City will install or has installed arterial streetlights, will not be assessed. No equity will be provided for previous assessments in the old Series System; however, the City will remove the old Series System where it exists, saving the poles that may be refurbished.
School, City-owned and commercial property on residential streets within the assessment areas will be individually reviewed by the Board to determine the special benefit conferred upon them by the special assessment project. The general formula for these properties (subject to a review for fairness) will be that their shares per street will be one-half the assessment of the sum of the residential property owners on the opposite side of the street. Such Assessment shares for school, City-owned and other tax-exempt property will be made by voluntary contributions. All other assessment shares will be subject to law, subject to appeal to the Board, and subject to the Assessment Equalization Board procedures provided for in the Ohio Revised Code.
SECTION 9 - INSTALLATION COST PAYMENT
Property owners may pay the special assessment in full when billed. However, provisions will also be made to allow the assessment to be paid in 20 annual installments with appropriate interest, subject to financing mechanisms to be decided by City Council. Pursuant to law, property owners may ask, and City Council may allow the assessment to be deferred until the property is sold or transferred if timely payment would impose financial hardship.
SECTION 10 - MAINTENANCE COSTS
This Board will propose an annual fee (subject to approval by City Council) to be paid by Residents within each assessment project area to cover the reasonable and necessary costs for current and long-term maintenance. To the extent possible, such fees will be modeled after/collected with the stormwater fee. All funds so collected, and all earnings on such funds, will be separately accounted for and used exclusively by the Residential Street Light Utility for no purpose other than the maintenance/replacement of the neighborhood lights constructed and/or administered under this Master Plan.
Electricity for the residential neighborhood lights will be billed by the electric company at a bulk rate charge. Because the fluorescent bulbs are extremely efficient, these nominal power costs will be paid by the City from general revenue funds.
SECTION 11 - SPECIAL ASSESSMENT PROCEDURES
The special assessment petitioning process requires approval of property owners with 60% of the front footage abutting a street or 75% of an area to be assessed. Corner lots will be assigned to the street which bears the house address for purposes of determining cost sharing and frontage percentages.
The old Series System was treated as one unit in the petitioning process (see Appendix D). Residents adjacent to the old Series System were given the opportunity to join in this initial project since treating the entire old Series System as one assessment area and one large construction project would produce cost and time savings and would minimize the disruptions to Residents.
The same petition process will be available to all of the community's Residents outside the initial Series System replacement project area. The Board will determine the efficacy of proposed special assessment areas based on size, number of Residents, street pattern, engineering standards and costs, with the goal of facilitating/assisting the Residents who want lights to obtain lights.
SECTION 12 - EASEMENTS
Since the revised standard design involves using 110 volt mini-circuits starting from a nearby electric pole, any permanent easement or license needed to allow the installation and maintenance of the lower voltage lines and system will be as Resident-friendly as possible, but also comply with law.
SECTION 13 - SCHEDULING
A schedule of the typical steps and timing based on the Series System special assessment area is in Appendix B. Shorter time lines may well be expected for smaller projects. Other special assessment areas in the City will be implemented on a first come, first serve basis following similar timetables.
Neighborhood Lighting Utility
Rules and Regulations
Organization
A. Officers – The officers shall be the Chairman and Vice Chairman. The officers shall be elected at the first meeting following the first day of September of each year, and shall serve for one year. Officers may be elected for more than one term. All members shall be eligible for election as officers.
A vacancy in any officer position shall be filled by election of the Utility. Such election shall be only for a term to complete the term of the officer who is no longer serving.
1. Chairman – The Chairman shall preside at all meetings of the Utility. The Chairman shall establish the agenda for all meetings and present that agenda to all members prior to each meeting.
The Chairman may appoint Ad Hoc Committees and appoint the chairman of any such committee.
2. Vice-Chairman – The Vice-Chairman shall, in the absence of the Chairman, possess all the powers and perform all the duties of that office. The Vice-Chairman shall perform such other duties as the Chairman may designate.
B. Meetings
Regular Meetings – Regular meetings shall be convened in accordance with a schedule set by the Utility. All meetings shall be held in a location designated by the Chairman or by vote of the Board.
Special Meetings – the Chairman may call such special meetings at any time and place as shall be prudent to conduct the business of the Utility.
C. Quorum – A majority of the members of the Utility shall constitute a quorum for the transaction of business.
Maintenance Policy
A. Funding and Fees – The maintenance of the neighborhood lights shall be funded through an annual fee upon all residents in the areas with lights. The monies so collected shall be kept in a separate fund which shall only be used for the purpose of maintaining the lights, poles, wiring and necessary infrastructure. All interest earned by this fund shall be retained within the fund.
The initial maintenance fee shall be $35.00 per year per resident and will be collected initially in 1999. To the extend possible this fee will be collected in connection with the stormwater
maintenance fee. The amount of the fee will be reviewed annually by the Utility based on actual expenses and the need for future major repairs. The fee may be adjusted as needed with approval of the Utility and City Council.
B. Maintenance and Repairs – The actual maintenance and repair work shall routinely be performed by the Service Division but may be contracted to outside firms if necessary for timely completion.
Initially, bulbs and ballasts will be covered by warranties during the warranty period and will be replaced by the contractor upon notification by the Service Division.
The Service Division shall keep records of all occurrences of outages and/or complaints of failures in the system and the time required for correction. Cost of the repairs shall be charged against the special maintenance fund. A monthly report of maintenance activity and the cause or causes of failures shall be prepared and provided to the Utility. A quarterly report of the status of the maintenance fund shall also be provided to the Utility.
C. Response Time Guidelines – Because of the nature of the Neighborhood Lighting System and fact that both the initial capital and the maintenance funds have come directly from the involved residents, every effort should be made to be especially sensitive to the response times involved. The goal should be to complete routine repairs or minor problems including bulbs, ballasts and loose connections within one or two working days (48 business hours), weather permitting.
More complex repairs including burned cable, damaged poles, etc. may take longer. In any case the resident calling in notice of such problem should be called back within 48 business hours and provided with a reasonable estimate of the time required for the repair.
D. Spare Parts and Supplies – In order to support the above response time guidelines the Service Division is authorized to keep on hand an adequate supply of bulbs, ballasts, poles, luminaries and other replacement parts.
E. Maintenance in the Pilot Project Area of Kensington and Southway Drives – As the lights in this area are powered from within the 20 “pole” houses, maintenance inside a “pole” house, between a “pole” house and the street, or of the bulbs and ballasts, shall be performed by the homeowner. Because of this and the Rules and Regulations for the Pilot Project, the annual maintenance fee shall not be collected from the 67 affected homeowners in the pilot area. The pole homes shall be repaid annually by the City for the cost of electricity estimated to have been used.
The above policy shall continue until such time as this system can be brought within the standard operating and maintenance policies for all neighborhood lights.
Sign Policy
A. The Neighborhood Lights are extremely important to the residents of the lighted area because of the efforts and cost involved in acquiring them. Unlike streetlights, the residents with neighborhood lights paid the cost of the development and installation of the lights.
Accordingly no signs of any kind, City or private, shall be affixed to the lights, poles or bases without the express consent of both the Utility and the Service Division.
APPENDIX B:
IMPLEMENTATION STEPS AND SCHEDULE
Usual Steps and Schedule for Lights:
1. Presentation of Master Plan to City Council
2. Publicity, organization of volunteers for petition process and preparation of petitions...1-3 months
3. Petition Drive...1-3 months
4. Presentation of petitions and project to Service Committee of City Council, City Engineer directed by City Council to prepare plans and specifications and an estimate of the project cost...1 month
5. Preparation of plans and specifications...1-5 months
6. Plans and specifications filed in the City Clerk’s Office and available for review for 30 days...1 month
7. Following the 30-day review period, Council adopts a Resolution of Necessity and notice of the passage of the Resolution is served by the City Clerk upon the homeowners to be assessed...1 month
8. With any objections to previous steps resolved,
Council passes an ordinance expressing its intention to proceed...1 month
9. Bids for project are received and analyzed, City Council authorizes execution of a contract and construction commences. If the low bid is 15% over the engineer’s estimate, the homeowners will be contacted and a public hearing held to determine if the improvements should be made...2 months.
10. Construction Period...3-10 months
11. When construction is completed and all costs are known, City Council formally levies the assessment by Ordinance...1 month
12. Project area property owners are given a thirty (30) to forty-five (45) days to pay the assessment in full...1-11/2 months
13. Project area property owners not paying the assessment in fully are certified to the County Auditor, with the payment schedule, in order for the annual amount to be placed on each resident’s tax bill...1-2 months
APPENDIX C:
INSTALLATION COST ESTIMATES
A. Although exact costs can be determined only by putting a given project out for bid, the construction cost estimate for the old series system was as follows:
1. Design Engineering $114,000
2. Construction $1,919,353
3. Construction Contingency $143,951
4. 20 Extra New Poles $16,383
5. Const. Eng. Services $20,000
6. Postage $8.950
7. Interest on Notes $57,500
8. Other Contributions ($63,359)
Total $2,216,779
Cost per Household:$1,349
Cost per Condominium: $675
B. Actual costs were $$2,084,407.31, or $1,266.35 per household (1/2 for condominium owners)
C. By contrast the traditional interconnected system with multiple poles connected together in a single circuit installed on Yorkshire Road in 1996 resulted in a cost of approximately $2,901 per property owner.
NLUB Rules and Regulations, plus Appendices
retyped 3-12-03
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