Title
PLN21-0527 - Certificate of Approval - Citywide - Applicant: City of Alameda. Public hearing to consider a Certificate of Approval to allow rehabilitation and retrofit of historic streetlights throughout the City. This project is exempt from the California Environmental Quality Act (CEQA) pursuant to CEQA Guidelines Section 15331 - Historic Resource Restoration/Rehabilitation, which applies to maintenance, repair, rehabilitation, restoration, or reconstruction of historical resources in a manner consistent with the Secretary of the Interior’s Standards
Body
To: Chair Saxby and Members of the Historical Advisory Board
BACKGROUND
On November 18, 1987, the City Council approved the designation of 1,297 historic streetlights located throughout the City of Alameda as Historic Monuments. These streetlights range in age from one hundred years to fifty-four years of age. They represent a historical era in the City in which the city was known as one the best illuminated cities on the west coast (Exhibit 1).
The Public Works Department currently manages the maintenance and replacement of the City’s street, parking lot and park pathway lights. Public Works staff are proposing replica designs for the replacement of smooth-pole pendant and octo-fluted pendant historic streetlights. The replica designs include a new pole and fixture assembly to closely match each of the historic streetlights “in-kind.” Pursuant to Alameda Municipal Code Section 13-21.5 a Certificate of Approval by the Historical Advisory Board is required for alterations to Historic Monuments.
The smooth-pole pendant and octo-fluted pendant streetlights are located on various streets throughout the City, as detailed in the 1987 Historical Nomination Report. The existing streetlights are well past their useful life and in disrepair. Many poles are missing, having been knocked down by vehicles. Staff is seeking approval of two replacement design details: smooth-pole pendant and octo-fluted pendant. This request follows a similar Certificate of Approval approved by the Historical Advisory Board in 2012 to allow the retrofit and replacement of approximately 700 16-flute poles in phases throughout the City. The work on the 700 16-flute poles approved in 2012 was completed in 2014.
DISCUSSION
The proposed streetlight replacement designs for the smooth-pole pendant and octo-fluted pendant historic streetlights, Exhibit 2, pages 1 and 2 respectively, preserve the historic character of the streetlights. 20’ tall tapering poles, each with a curved 4’ arm supported by a thin, flat, curving bracket that holds the lamp head with its tear drop globe. The octo-fluted pole has eights sides and spearhead finial top. The smooth pole with no flutes and ball top. Both with custom cast decorative nut covers to match existing.
The designs specify cast aluminum versus steel, the existing material. To prevent rust, steel must be galvanized, which involves dipping the steel into a large kettle of molten zinc to apply a protective coating. This process emits zinc chloride and ammonium chloride into the atmosphere. Aluminum does not require galvanization and is 100% recyclable (galvanized steel is not). Aluminum also has a slightly longer life span than steel. Staff believe this material change from does not impact the historic significance of the streetlights while allowing use of a material aligned with the City’s zero waste and sustainability goals. As described in the nomination report, the original post top lights were cast iron, which were later replaced by steel.
A sample smooth pole and fixture assembly is installed at Santa Clara and 4th. The color of the sample assembly is RAL6005 green. This is the City standard green and the color approved in 2012 by the HAB for the 16-fluted pendent historic streetlights. Staff recommends applying the same RAL6005 green color consistent with the previous HAB approval.
The replacement fixtures for both poles will be light-emitting diode (LED), a cost effective, energy efficient light source. The existing fixtures were retrofitted to LED in 2015. The retrofit project replaced the incandescent bulbs with LED; however did not replace the housing. It became clear during that retrofit that the metal clasps holding the globe are fatigued and near failure point. The LEDs installed in 2015 and those specified in the proposed replacement designs have a correlated color temperature (CCT) of 3000 Kelvins, which is a warm white glow that is safe for people and wildlife and consistent with the International Dark-Sky Association and the City’s Dark Skies Ordinance for LED color temperature.
Consistent with the previous HAB approval for the 16-fluted pendent historic streetlights, the goal for this replacement project is to preserve the historic character of the streetlights. As the existing steel is significantly rusted and beyond repair, fabrication of new cast aluminum poles to match the existing poles is the appropriate option. The new poles are expected to last 60 years.
The remaining historic streetlights in the 1987 Historical Nomination Report that require an approved replacement design are the Post Top Globe (103), Post Top Trident (1) and Concrete Post Top (1). Staff continues to maintain these lights in existing condition and will return to the HAB with a proposed design for replacement.
Findings for Approval: Pursuant to Alameda Municipal Code 13-21.5 the HAB shall determine whether to issue a Certificate of Approval for alterations of a Historical Monument, with or without conditions of approval, based on whether plans and specifications meet the standards established by the HAB and the Secretary of the Interior’s Standards for Rehabilitation and Guidelines for Rehabilitating Historic Buildings.
"Rehabilitation" is defined as "the process of returning a property to a state of utility, through repair or alteration, which makes possible an efficient contemporary use while preserving those portions and features of the property which are significant to its historic, architectural, and cultural values." (NPS.gov)
The Secretary of Interior Standards for Rehabilitation are as follows:
1. A property will be used as it was historically or be given a new use that requires minimal change to its distinctive materials, features, spaces, and spatial relationships.
This project consists of the replacement of historic streetlights with replica streetlights with modern materials. No new use is proposed.
2. The historic character of a property will be retained and preserved. The removal of distinctive materials or alteration of features, spaces, and spatial relationships that characterize a property will be avoided.
The overall height, the shrouds and the detailing of the arms are being preserved to the extent possible in this project. In addition, the proportions or spatial relationships of these elements are being preserved to the extent possible as well.
3. Each property will be recognized as a physical record of its time, place, and use. Changes that create a false sense of historical development, such as adding conjectural features or elements from other historic properties, will not be undertaken.
No conjectural features or architectural elements from other historic properties are proposed for this project.
4. Most properties change over time; those changes that have acquired historic significance in their own right shall be retained and preserved.
There are no alterations to the historic streetlights that have acquired historic significance over time.
5. Distinctive features, finishes, and construction techniques or examples of craftsmanship that characterize a property shall be preserved.
Fabrication of the aluminum poles ensures the flutes, proportions and decorative nut covers of the light poles are being preserved to the extent possible. The shrouds and arms are being preserved to the extent possible, while ensuring that they are safely constructed.
6. Deteriorated historic features will be repaired rather than replaced. Where the severity of deterioration requires replacement of a distinctive feature, the new feature will match the old in design, color, texture, and, where possible, materials. Replacement of missing features will be substantiated by documentary and physical evidence.
Unfortunately, repair of the historic streetlights is not feasible as much of the existing steel is significantly rusted and structurally compromised. There are also a number of missing pole locations, having been knocked down by a vehicle. However, a significant effort has been made to have the proposed streetlights match their historic predecessors in terms of design and texture.
7. Chemical or physical treatments, if appropriate, will be undertaken using the gentlest means possible. Treatments that cause damage to historic materials will not be used.
No chemical or physical treatments are proposed for this project.
8. Significant archeological resources affected by a project shall be protected and preserved. If such resources must be disturbed, mitigation measures shall be undertaken.
Minimal ground excavation for pole foundations will be part of the project. If any archeological resources are discovered, all required state and local mitigation measures will be undertaken.
9. New additions, exterior alterations, or related new construction will not destroy historic materials, features, and spatial relationships that characterize the property. The new work shall be differentiated from the old and will be compatible with the historic materials, features, size, scale and proportion, and massing to protect the integrity of the property and its environment.
No additions for habitable space are proposed for this project.
10. New additions and adjacent or related new construction will be undertaken in such a manner that, if removed in the future, the essential form and integrity of the historic property and its environment would be unimpaired.
No adjacent new construction shall be undertaken as part of this project.
CLIMATE IMPACT
The replacement fixtures are specified to be energy-efficient lighting fixtures. The aluminum poles are 100% recyclable.
ENVIRONMENTAL REVIEW
This proposed project is Categorically Exempt from additional environmental review pursuant to California Environmental Quality Act (CEQA) Guidelines Section 15331 - Historical Resource Rehabilitation, which applies to maintenance, repair, rehabilitation, restoration, or reconstruction of historical resources in a manner consistent with the Secretary of the Interior’s Standards.
RECOMMENDATION
Hold a public hearing and then approve Certificates of Approval PLN21-0527 to allow the rehabilitation and retrofit of historic streetlights per findings contained in the draft Resolution.
Respectfully Submitted:
Erin Smith, Public Works Director
Allen Tai, City Planner
Exhibits:
1. Historical Monument Nomination Report
2. Replacement Pole Designs for Smooth-Pole Pendant and Octo-fluted Pendant
3. Draft Resolution