RPVCCA_CC_SR_2014_09_02_04_Citywide_Outdoor_Lighting_RegsCITY OF
MEMORANDUM
RANCHO PALOS VERDES
TO:
FROM:
DATE:
SUBJECT:
HONORABLE MAYOR & CITY COUNCIL MEMBERS
ELOPMENT DIRECTOR
SEPTEMBER 2, 2014
CODE AMENDMENT INITIATION REQUEST (CAIR) TO IMPROVE
CITYWIDE OUTDOOR LIGHTING REGULATIONS FOR EXTERIOR
LIGHTING (CASE NO. ZON2014-00320)
Reviewed By: Carolynn Petru, Acting City Manager®
Project Manager: Leza Mikhail, Associate Planne~
RECOMMENDATION
Direct Staff to initiate a Code Amendment to improve the City's existing Development Code
Standards for non-residential exterior lighting on private property including, but not limited
to, specifying that light fixtures are to be fully shielded so the light source is not visible from
any adjacent property, establishing acceptable color temperatures for exterior lights,
imposing restrictions on exterior light emissions based on lumens instead of wattage, and
addressing the glare of exterior lights to vehicles on public rights-of-way.
BACKGROUND
At the October 25, 2011 Planning Commission meeting, the Planning Commission
requested a Staff Report of how exterior lighting for proposed non-residential development
projects is reviewed by Staff and how conditions of approval are applied in order to avoid
and/or minimize exterior lighting impacts.
On January 24, 2012, the Planning Commission was presented with a Staff Report that
explained the typical exterior lighting conditions that are applied to non-residential projects
throughout the City. The report described how non-residential lighting is reviewed before
and after non-residential projects are constructed. During the meeting, the Planning
Commission created a sub-committee, composed of Commissioners Gerstner, Leon and
Tomblin, to work with Staff in reviewing the City's current outdoor lighting requirements as
well as lighting standards used by other similar cities for the purpose of determining
whether amendments to the City's Development Code should be considered.
On August 14, 2012, the Planning Commission was presented with a compilation of
outdoor lighting requirements for other Southern California cities that were considered to
4-1
GAIR-Outdoor Lighting
September 2, 2014
be similar to Rancho Palos Verdes' semi-rural and/or coastal character. As a result of the
discussion that ensued, the Planning Commission directed Staff to gather information from
the International Dark-Sky Association, review Portland, Maine and other municipalities
that have recently established guidelines for regulating exterior lighting, and report back to
the Planning Commission with the additional information. In addition, the Planning
Commission directed Staff to provide the Planning Commission with the code language
used by the other City's on the Palos Verdes Peninsula.
On February 25, 2014, the Planning Commission reviewed the additional information
compiled by Staff and directed Staff to bring a code amendment initiation request to the
City Council to improve the City's current exterior outdoor lighting requirements for non-
residential private projects throughout the City. The Planning Commission requested that
the City Council direct the Planning Commission to take a broad look at lighting within the
City in all. aspects and how it affects both public and private property (see attached
February 25, 2014 Minutes).
DISCUSSION
Pursuant to Development Code Section 17.68.030.B, ''An amendment to any part of [the
Development Code]. .. may be initiated by the Director or Planning Commission, upon
petition to the City Council. The City Council shall review the petition to determine if the
requested amendment ... is necessary or desirable."
As noted in the Background Section of this report, the Planning Commission has been
interested in the City's current process for reviewing exterior lighting on non-residential
projects. As a result of reviewing the City's current process, the Planning Commission
directed Staff to conduct research on a number of Cities that are semi-rural in nature or a
coastal city, similar to Rancho Palos Verdes. After considering the research, the Planning
Commission agreed that the City's lighting requirements should be geared toward
prescriptively designed lighting, as opposed to performance related terminology which is
outlined in the City's current Municipal Code (attached).
Over the last two years, ·several non-residential projects have been constructed within the
City, most notably Chase Bank, Palos Verdes Art Center, Pt. Vicente Veterinary Clinic, St.
John Fisher and the Marymount parking lot that have raised the issue to Staff and the
Planning Commission of appropriate exterior lighting. After analyzing the exterior lighting
installed at these projects, Staff and the Planning Commission identified the portions of the
City's Development Code that fall short on reducing lighting impacts related to glare and
the degradation of the dark-sky, rural character of the City. Given the current Code's
shortcomings on exterior lighting standards, Staff worked closely with the applicants of the
abovementioned projects to ensure that the exterior lighting of said projects are fully
shielded so as to reduce the impacts of light glare to adjacent residents and motorists. This
process involved ensuring that the lighting plans submitted by the applicants included the
right fixtures with the right shielding, as well as making adjustments to the installed lighting
after it is installed (see attached typical conditions). While these efforts have eliminated the
halo effect of unnecessary light pollution, Staff has found that the topography of a project
site may make the elimination of all lighting impacts next to impossible. Furthermore, this
process requires applicants to go back and make changes to installed lighting which is
costly to applicants. Staff and the Planning Commission agree that the Code should be
4-2
CAIR-Outdoor Lighting
September 2, 2014
changed to specify the appropriate fixtures in advance.
Additionally, Staff has found that in some cases the color of new lights tends to be a
brighter white color. The bright white lights are likely a result of State-mandated energy
efficiency lighting requirements that were implemented in the last several years and the
new lighting technology that has evolved as a result. More specifically, the State of
California requires exterior lighting to be high efficacy fluorescent or LED lighting, unless
the lights are installed with a photo and motion sensor. Although bright white lights are the
most common color of fluorescent or LED lights, the lighting industry has produced other
color temperatures that continue to meet the Uniform Building Requirements for safety and
efficiency. As such, on occasion, Staff has requested applicants to change the light source
to a warmer/yellow color light bulb through the typical 6-month review process on larger
projects.
While Staff and the Planning Commission believe that the current code does help eliminate
some lighting impacts related to height, number of fixtures and impacts of glare at a
property line, the existing code should be updated to include lighting specifications to help
r.educe lighting impacts before exterior lights are installed. Doing so will eliminate or
minimize applicants having to make costly adjustments after the lighting is installed. As
such, the Planning Commission is recommending that the City Council initiate a code
amendment to update and improve the City's exterior lighting standards for private non-
residential projects. Examples of some potential code changes include, but are not limited
to, the following:
• Specify that light fixtures are to be fully shielded so the light source is not visible
from any adjacent property; and,
• Light fixtures that are installed for public safety purposes are to be fully shielded so
the light source is not visible from any adjacent property, to the maximum extend
feasible; and,
• Establish acceptable color temperatures for exterior lights; and,
• Impose restrictions on exterior light emissions based on lumens instead of wattage;
and,
• Add specific regulations to prevent the glare of exterior lights to vehicles on public
rights-of-way.
ADDITIONAL INFORMATION
Public Notice:
A Code Amendment Initiation Request does not require a public notice. However, if the
City Council initiates the Code Amendment, Staff will send a public notice to all property
owners of non-residential properties throughout the City as well as residents within a 500
foot radius of each affected non-residential property.
Planning Commission Review
If the City Council initiates the Code Amendment, as recommended by Staff, the formal
Code Amendment language will be presented to the Planning Commission for review and
4-3
GAIR -Outdoor Lighting
September 2, 2014
consideration at a noticed public hearing. The Planning Commission's recommendation will
then be forwarded to the City Council for a final decision. Staff anticipates returning the
City Council with a formal Code Amendment between March and May of 2015.
FISCAL IMPACT
Should the City Council approve the initiation request, Staff would process the request as a
Citywide application. The Staff time associated with the processing of this proposed Code
Amendment is estimated to be approximately 80 hours, including the time already spent
conducting previous research. This process would be considered an Advanced Planning
Project and is accounted for in the Community Development Department's budget. As
such, no budget adjustment would be required.
ALTERNATIVES
The following alternatives are available for the City Council's consideration:
1. Deny the GAIR, and direct Staff to take no further action on the matter. If this alternative
is chosen, Staff would continue with the current process ofreviewing exterior lighting on
non-residential project based on current Code and review practices; or,
2. Initiate the Code Amendment and provide direction with regards to specific
amendments.
ATTACHMENTS
• February 25, 2014 P.C. Minutes
• January 24, 2011 P.C. Staff Report
• Sample of Typical Conditions of Approval
• Current Municipal Code
4-4
February 25, 2014 P.C. Minutes
4-5
the pub earing to the March 11th meeting so that the Planning Commission can
discuss the olution and allow the public to comment on it as well.
NEW BUSINESS
4. Outdoor lighting
Associate Planner Mikhail presented a brief staff report, stating that for the reasons
outlined in the staff report staff is requesting the Planning Commission request staff to
petition the City Council to initiate a code amendment to improve the City's existing
lighting regulations to address issues as noted in the staff report.
Chairman Emenhiser opened the public hearing.
Diane Smith felt that with the new types of lighting available today the City needs to
update its outdoor lighting code, and explained her issues with the lighting at
Marymount College. She felt if the City's code could be amended to clearly regulate
exterior lighting to avoid light pollution and nuisance to residents, it may help the
predicament caused by Marymount's parking lot lights that she currently experiences.
Chairman Emenhiser closed the public hearing.
Commissioner Gerstner moved staff's recommendation, adding that staff seek
direction from the City Council not in a narrow way but rather have the City
Council direct the Commission in a broader manner to take a broad look at
lighting within the City in all aspects and how it affects both public and private
property. Seconded by Commissioner Tomblin. Approved, (7-0).
5. Case No. ZON2014-00046: 32639
Commissioner Nelson recused themselves from this item and
left the dais. ~~"1:,
·~
Commissioner Lewis disclosed th~t~I years ago during his campaign for City
Council the applicant hosted one of his ev~Notwithstanding that, he felt he can be
fair and impartial in hearing this item. ,,,
···"':~~
Senior Planner Schon born presented the staff report, summa r . . the need for the
consistency finding as explained in the staff report. He explainedt ·n looking at
vacating this particular easement, staff has contacted the various utility' . , anies who
have all indicated they have no infrastructure facilities nor do they plan in the . re to
provide for any infrastructure within the easement. He stated staff feels the ease'·
Planning Commission Minutes
February 25, 2014
Page 20 4-6
January 24, 2011 P.C. Staff Report
4-7
CITY OF
MEMORANDUM
RANCHO PALOS VERDES
TO: CHAIRMAN AND MEMBERS OF THE PLANNING COMMISSION
FROM: JOEL ROJAS, AICP, COMMUNITY DEVELOPMENT DIRECTOR
DATE: JANUARY 24, 2011
SUBJECT! DISCUSSION ON EXTERIOR LIGHTING CONDITIONS
Project Manager: Leza Mikhail, Associate Planner
RECOMMENDATION
Receive and file a report and discussion on exterior lighting conditions that are applied to
non-residential projects throughout the City.
BACKGROUND
At the October 25, 2011 Planning Commission meeting, the Planning Commission
requested that Staff prepare a discussion regarding Conditions of Approval that are applied
to non-residential development projects in order to avoid and/or minimize exterior lighting
impacts. In requesting this discussion, the Planning Commission referred to two (2)
recently approved development projects (Pt. Vicente Animal Hospital and Chase Bank)
whereby conditions of approval intended to regulate exterior lighting pursuant to the City's
Development Code were applied. A discussion of Staff's process in reviewing non-
residential lighting plans and imposing applicable conditions of approval is provided below.
DISCUSSION
The City's "Environmental Protection" Section of the Development Code (Chapter 17.56)
includes development standards for outdoor lighting throughout the City. Included in this
chapter, Section 17 .56.040 (attached) outlines outdoor lighting requirements and limitations
specifically for non-residential uses (i.e. commercial buildings, institutional buildings, etc.).
These development standards apply to all non-residential properties where new
development projects are proposed, or where existing lighting is proposed to be updated or
changed.
When a new non-residential project or modification to an existing non-residential project is
proposed whereby an applicant is proposing to install new or updated exterior lighting, Staff
requires the applicant to prepare and submit a conceptual lighting plan for Staff's review to
ensure that all proposed exterior lighting is in compliance with the development code
standards related to outdoor lighting for non-residential uses. Said lighting plan is typically
required to include the location, height, number of lights, wattage, estimates of maximum 4-8
illumination on site and spill/glare at property lines and must show that it is in conformance
with the standards outlined in the Development Code (Section 17.56.040 of the RPVMC).
Staff imposes conditions of approval to address exterior lighting to a development project
as part of the planning entitlement process. This applies to projects reviewed by both the
Director and the Planning Commission. Conditions of approval that are typically imposed
are attached to this memo for the Planning Commission's review. It is important to note
that a majority of these conditions of approval stem from the current requirements of the
Development Code (attached) and include a requirement to submit a final site lighting plan
for review prior to Building Permit Issuance while limiting maximum heights and wattages
for exterior lighting. When considering development projects, Staff and/or the Planning
Commission may also choose to impose additional conditions of approval to mitigate
potential lighting impacts that are specific to the proposed project and are considered on a
case-by-c~se basis. Examples of these additional conditions, such as light timing
conditions or post installation reviews, are also attached to this memo.
As noted above, Staff typically imposes a condition of approval that requires an applicant
to submit a final lighting plan prior to Building Permit issuance. Once an applicant has
submitted a final lighting plan for review during the Building and Safety stage, Staff verifies
that the lighting plan is in compliance with the Development Code and any applicable
Conditions of Approval imposed on the planning entitlement. In addition, once submitted
into Building and Safety for Plan Check review, the lighting plan is also required to meet
the requirements of the most recently adopted edition of the California Building Code.
While the Development Code does not explicitly require light fixtures to be shielded, the
Code does prohibit a light source from being directed toward or resulting in direct
illumination of another parcel. As such, Staff typically imposes a condition of approval that
requires a light fixture to be shielded in order to minimize any impacts of direct illumination
or glare onto neighboring properties or the public rights-of-way. In addition, Staff will
typically review the type of lighting fixture that is proposed at both the conceptual stage and
final review stage of a lighting plan to check for light fixture shielding. Notwithstanding this
review, it is not uncommon for some direct illumination or glare issues to be revealed once
the lighting is installed and powered up. In order to address any unanticipated lighting
impacts that may occur once a light fixture is installed, Staff typically imposes a condition of
approval that allows the Director or the Planning Commission to require further
modifications to lighting fixtures in order to mitigate any impacts. An example of this is what
occurred with the Pt. Vicente Animal Hospital project. In this case, the lighting plans were
reviewed and the proposed shielding was thought to be adequate. However, once the
lighting was installed and turned on, Staff noticed more glare and direct illumination of
other properties than expected. As a result, the property owner voluntarily reduced the
lighting wattage, provided a perforated cover around the light source and fully shielded the
back portions of the light fixture to reduce direct illumination and glare impacts to Villa
Capri residents and the public right-of-way. With these adjustments, the lighting was re-
evaluated and determined to be in compliance with the Development Code requirements.
While the lighting fixtures for the Pt. Vicente Animal Hospital had to be modified after
installation, in other cases, Staff has been able to require modification at the planning
stage to address potential impacts. For example, with the parking lot lighting for the St.
John Fisher Master Plan project, Staff required that the applicant use fully shielded fixtures 4-9
so that the fixtures emit no light in the area above the
lowest point of the light fixtures. These types of light
fixtures only emit light from the bottom or end of the
fixture, so that the actual light source is embedded within
the fixture. These type of lights ensure that light is only
directed toward its intended surface. The picture to the
right of this paragraph illustrates the difference between
an unshielded light fixture verses a shielded light fixture.
Examples of these light fixtures can currently be found in
the recently constructed St. John Fisher parking lot.
Attachments:
'-------"'U~nsh"elded ___ .-----·
-------~ ( -----......... _... . .... ----::------
.----··--;?;! \~\-----:-----.. _ / I \ ,,,_
, \
Shielded
• Typical.Conditions of Approval for non-residential outdoor lighting
• RPV Development Code Section 17.56.040 (Outdoor lighting for non-residential uses)
4-10
Typical Conditions of Approval for
Non-residential outdoor lighting
159
4-11
OUTDOOR LIGHTING CONDITIONS OF APPROVAL
Below is a list of "typical" outdoor lighting conditions of approval that apply to all lighting
plans submitted to the City for review and approval:
Typical Outdoor Lighting Conditions of Approval
1. All exterior lighting shall be in compliance with the standards of Section 17.56.040 of
the Rancho Palos Verdes Development Code.
2. Prior to Building Permit Issuance, the applicant shall submit a final site lighting plan,
prepared by a lighting contractor, for the review and approval of the Community
Development Director. The lighting plan shall include the location, height, number of
lights, wattage, estimates of maximum illumination on site with no spill/glare at the
property line. The plans shall also demonstrate that all lighting fixture on the building
and throughout the entire project site shall be designed and installed so as to contain
light on the subject property and not spill over or be directed toward adjacent
properties or public rights-of-way.
3. Exterior lighting fixtures in the landscape area shall be low, downcast, bollard-type
fixtures, not to exceed forty-two 42") inches in height. Parking lot lighting shall not
exceed ten feet (1 O') in height, as measured from the surface of the parking lot and
shall employ downcast and shielded lumieres.
4. No one light fixture shall exceed 1,200 watts, and the light source shall not be
directed toward or result in direct illumination of an adjacent parcel of property or
properties other than upon which such light source is physically located. All exterior
lighting shall be arranged and shielded so as to prevent direct illumination of abutting
properties and to prevent distraction of drivers of vehicles on public rights-of-way.
5. No outdoor lighting shall be permitted where the light source or fixture, if located on a
building, is above the line of the eaves. If the light source or fixture is located on a
building with no eaves, or if located on a standard or pole, the light source or fixture
shall not be more than ten (10) feet above existing grade, adjacent to the building.
Additional I Optional Outdoor Lighting Conditions of Approval
(Subterranean Parking Garage Condition)
6. Interior lighting within a subterranean garage shall be screened and shielded so as to
contain light within the garage and not create glare for nearby downslope residences.
(Light Timing Condition -Case-by-case review)
7. With the exception of approved security lighting, all exterior lighting shall be
extinguished by _____ _
8. With the exception of approved security lighting, all parking lot lighting shall be
extinguished by _____ _
4-12
(Balcony and Common Area Condition -Case-by-case review)
9. Exterior lighting fixtures on balconies and common exterior walkways shall be
downcast, shielded and shall be equipped with light sensors so that they will only be
illuminated -------
(Post Installation Reviews)
10. Prior to issuance of the first Certificate of Occupancy, or final of a building permit,
whichever occurs first, and within two (2) weeks of installation/use of all site lighting,
the applicant shall request that the Director or his designee conduct an inspection of
the site to ensure that there is no spill-over of light onto adjacent properties or cause
a negative impact to adjacent properties or public rights-of-way. Upon determination
by the Director that any installed lighting creates an impact, the property owner shall
modify said lighting to the satisfaction of the Director.
11. After installation of lighting, but prior to issuance of the Certificate of Occupancy for a
building or parking lot, the property owner shall request that the City conduct an
inspection of the site to ensure that there is no spill-over of light onto adjacent
properties and all potential lighting impacts have been adequately resolved.
12. The effectiveness of the exterior lighting conditions of approval contained herein shall
be subject to review and modification, as deemed necessary and appropriate by the
final deciding body, (some period of time) after issuance of a final Certificate of
Occupancy for (some portion of a project) . The (deciding body) shall review
the applicant's compliance with the conditions of approval, and determine if the
conditions are accomplishing their intended purposes. Notice of said review hearing
shall be published and provided to owners of a property located within a 500' radius,
to persons requesting notice, to all affected homeowners associations, and to the
property owner in accordance with the Rancho Palos Verdes Development Code
Section 17.80.090. At that time, the (deciding body) may add, delete, or modify
the conditions of approval as deemed necessary and appropriate by the (deciding
body) . As part of the review, the (deciding body) may impose more restrictive
standards and conditions to mitigate any impacts resulting form the operation of the
Project.
4-13
Development Code Section 17 .56.040
(Outdoor lighting for nonresidential uses)
4-14
17.56.030
17.56.030 Outdoor lighting for residential uses.
No outdoor lighting shall hereafter be installed or
used in the single-family residential (RS) or multiple-
family residential (RM) zones, except in accordance
with the provisions of this section.
A. Except as hereinafter provided, no out-
door lighting shall be permitted where the light source
is directed toward or results in direct illumination of a
parcel of property or properties other than that upon
which such light source is physically located. Individ-
ual, nonreflector, incandescent light bulbs, not exceed-
ing 150 watts each, or an aggregate of 1,000 watts for
each lot or parcel shall be permitted. On lots exceeding
15,000 square feet, an additional 100 watts in the aggre-
gate shall be permitted for each 1,500 square feet of
area or major fraction thereof, by which the lot or
parcel exceeds 15,000 square feet; provided, that in no
event shall the aggregate exceed 2,000 watts. As used
herein, the term "w~tts" is irrespective of the voltage. If
nonincandescent lighting is used, the wattage of each
nonincandescent light shall be multiplied by the follow-
ing conversion factors to ascertain a standard wattage
that is comparable to the wattage associated with incan-
descent lighting:
Type of Lamp Multiplier
quartz/tungsten-halogen 1.23
mercury 2.4
fluorescent 3.7
sodium vapor HPSV 5.7
sodium vapor LPSV 9.0
metal halide 4.9
incandescent reflector 1.6
B. No outdoor lighting shall be permitted
where the light source or fixture, if located on a build-
ing, above the line of the eaves, or if located on a
standard or pole, more than ten feet above grade.
C. Notwithstanding the requirements of this
section, outdoor lighting may be installed and used in a
manner not permitted by this section upon the issuance
of a conditional use permit pursuant to Chapter 17 .60
(Conditional Use Permits). (Ord. 320 § 7 (part), 1997:
Ord. 78 (part), 1975)
(Rancho Palos Verdes 4-14) 312
17.56.040 Outdoor lighting for nonresidential
uses.
No outdoor lighting shall hereafter be installed in
any nonresidential district, except in accordance with
the provisions of this section.
A. Prior to the issuance of the first certifi-
cate of occupancy, a lighting plan prepared by a light-
ing contractor, which shall include the location, height,
number of lights, wattage, estimates of maximum illu-
mination on site and spill/glare at property lines, and in
conformance with the following standards and criteria,
shall be submitted for approval by the director.
1. No one fixture shall exceed l 200
watts and the light source shall not be directed to~ard
or result in direct illumination of a parcel of property
or properties other than that upon which such light
source is physically located. Wattage for nonincandescent
lighting shall be calculated using the multiplier values
described in Section 17 .56.030(A) of this chapter.
2. No outdoor lighting shall be per-
mitted where the light source or fixture, if located on a
building, is above the line of the eaves. If the light
so~rce or fixture is located on a building with no eaves,
or 1f located on a standard or pole, the light source or
fixture shall not be more than ten feet above existing
grade, adjacent to the building or pole.
3. All estimates or testing shall be
done with the entire facility illuminated.
4. Testing equipment shall be a cali-
brated gossen panalux electronic 2 or an equal ap-
proved by the director.
B. The director may approve deviations
which exceed the standards set forth in Section
17.56:040(A)(l) through (A)(3) of this chapter, when
· the d!fector finds that such deviations are required for
public safety. (Ord. 320 § 7 (part), 1997)
17 .56.050 Residential neighborhood protection.
A. No commercial vehicles weighing in excess of
6,000 pounds shall be parked or stored in any residen-
tial district, except during residential construction or in
conjunction with residential deliveries within the hours
stated in Section 17.56.050(B) of this chapter.
. ~· Deliveries involving commercial vehicles weigh-
mg m excess of 6,000 pounds shall be allowed in resi-
dential districts only between the hours of seven a.m.
and seven p.m., Monday through Saturday.
4-15