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HomeMy WebLinkAboutA002 - Council Action Form dated July 14, 1998 ITEM # 374 DATE 07/14/98 COUNCIL ACTION FORM SUBJECT: DISCUSSION OF ISSUES TO BE ADDRESSED IN A LIGHTING ORDINANCE FOR PRIVATE PROPERTY AND MOTION TO DIRECT THE CITY ATTORNEY TO PREPARE A DRAFT ORDINANCE. ACTION FORM SUMMARY: This is a discussion of lighting issues proposed by the Lighting Task Force and City staff preliminary to preparation of a Lighting Ordinance for the City of Ames. Approval of the lighting issues as recommended and direction should be given to the City Attorney and staff to prepare a Lighting Ordinance. BACKGROUND: The City Council directed City staff to research and identify lighting standards for the purpose of preparing a lighting ordinance for private property for the City of Ames. Staff researched the literature available on outdoor lighting, and acquired model lighting ordinances and several adopted lighting ordinances from around the country. A Lighting Task Force also was formed to review some of the outdoor lighting literature, the model ordinances and the existing ordinances. The members of the Lighting Task Force were Royce Bitzer, Bill Lee, Dave Oesper, and Rick Thompson. Eden Schmitt served as the staff member who worked with the task force. The task force met six times. At these meetings they reviewed the available lighting material; made an outdoor lighting tour, visiting several sites in the community to measure the level of lighting at night; and came to a consensus about the lighting issues that they felt should be included in a lighting ordinance for the City of Ames. The group developed a statement of need and purpose, goals to be accomplished with a lighting ordinance and a list of items that should be addressed in a lighting ordinance. A compilation of those issues is attached to this Council Action Form. The title of that attachment is "Outline of Issues to be Addressed in a Lighting Ordinance for the City of Ames". Also attached is information from the outdoor lighting tour, including the locations visited, light level readings at the various sites, and general observations. The third attachment to this Council Action form is an information sheet called "Recommended Lighting Levels for Exterior Lighting". The lighting levels given on this information sheet come from the recommended levels in the IESNA Lighting Handbook (IESNA is the Illuminating Engineering Society of North America). The Lighting Task Force has suggested that any established lighting levels be based on these IESNA Standards (see Attachment II). Their recommendation is to not exceed twice the "initial" IESNA recommended levels. These lighting levels also can be compared to the readings that the task force made at the various locations around the City. r Staff would like to discuss with the City Council the lighting issues that were identified by staff and the Lighting Task Force. If the City Council concurs with these recommendations then the Council should direct the City Attorney and staff to prepare a Lighting Ordinance for the City of Ames. ALTERNATIVES: 1. The City Council can direct the City Attorney and staff to prepare a Lighting Ordinance for the City of Ames that is consistent with the lighting issues addressed by the Lighting Task Force. 2. The City Council can make modifications to the lighting issues addressed by the Lighting Task Force and direct the City Attorney and staff to prepare a Lighting Ordinance for the City of Ames. 3. The City Council can decide not to proceed with a Lighting Ordinance. 4. The City Council can refer the lighting issues back to City staff for additional information. MANAGER'S RECOMMENDED ACTION: It is the recommendation of the City Manager that the City Council adopt Alternative #1. COUNCIL ACTION: Attachment h\bpo\caf\1ighting714 Attachment 1 OUTLINE OF ISSUES TO BE ADDRESSED IN A LIGHTING ORDINANCE FOR THE CITY OFAMES STATEMENT OF NEED AND PURPOSE: Good lighting at night benefits everyone in the community. It increases safety, security, and visibility, allows for the enjoyment of the night sky, and enhances the nighttime character of the city. New lighting technologies have produced lighting that is extremely powerful, and this type of lighting may be improperly installed so as to create problems with excessive glare, light trespass, and high energy use. Excessive glare can cause discomfort, impair visibility, and may cause safety problems. Light trespass onto adjacent and surrounding property reduces privacy and interferes with the enjoyment of one's property. Excessive energy use is wasteful. There is a need for a lighting ordinance that recognizes the benefits of outdoor lighting and provides clear guidelines for its installation so that it will enhance and compliment the City's character. Appropriately regulated, and properly installed outdoor lighting will contribute to the safety and welfare of all the residents and visitors to the City of Ames. The GOALS of this lighting ordinance are as follows: • To control or minimize glare; • To minimize up light; • To limit hours when light is on, as appropriate; • To minimize or eliminate light trespass; • To require cut-off light fixtures; • To provide variable standards for different types of uses; • To maintain safety, security and visibility; • To allow lighting as an aesthetic feature or design element; and • To establish maximum light levels for different purposes and uses. The following items and issues should be addressed or included in the lighting ordinance: 1. Historic lighting may be exempted from the full cut off requirement and considered on its own merits. 2. Any lighting source producing less than 1800 lumens shall be exempt from the regulation. A 100 watt incandescent light bulb produces about 1700 lumens. 3. Full cut-off lighting fixtures shall be required. The definition for full cut-off lighting that no light shall extend above the horizon. The purpose for full cut-off devices is to control glare by directing light well below the horizon. The intent is to shield the light source from the viewer's direct. line of sight and to illuminate only the area where the light is needed. Installation of full cut-off lighting should be done in a manner so that it will continue to meet the full cut-off definition. 4. Developers shall submit lighting plans for all exterior lighting as part of site plan approval or before they decide to change the lighting on their site. The lighting plans shall be approved by the City prior to the installation of the lighting. These lighting plans should show the type and location of pole mounted fixtures and/or building mounted fixtures and a photometric report, which could be a light level grid or Iso-Illuminance circles. The photometric report will indicate minimum, maximum, and average footcandle levels and the distribution of lighting within the lighted area on the site. The photometric report will also include the amount of light in the uplight zone (90 to 180 degrees above nadir) and the glare zone (75 to 90 degrees above nadir) for each luminaire in its installed position. This type of report may be prepared at no cost by the luminaire manufacturer or by an electrical engineer, who is designing the lighting for a large project. 5. Standards shall be provided to address all nonexempt outdoor lighting fixtures to prevent light trespass onto adjacent and nearby property. These standards (maximum lighting levels at the lot line) may vary by the zoning and/or the use of adjacent property. 6. All existing lighting may remain and would be "grandfathered", however, if the existing lighting is removed and replaced with new luminaires, it would have to meet the lighting ordinance requirements. 7. Light color should not be addressed in the ordinance. Although some lighting ordinances address light color,the Lighting Task force felt this would be too restrictive. 8. Height limitations for lighting fixtures and light poles should not be necessary, if other lighting standards are in place that address maximum light levels, the prevention of glare and standards for light trespass. 9. Nuisance lighting should be prohibited. This type of lighting might include: laser source light or similar high intensity light for outdoor advertising or entertainment, when projected above the horizontal; searchlights for advertising purposes; and other similar type lighting. 10. The lighting ordinance shall include a provision that nonessential outdoor lighting fixtures shall be turned off within apartment, commercial, industrial zones between certain hours — e.g. between 11:00 p.m. and sunrise with certain exceptions such as: commercial and industrial uses where the use continues after 11:00 p.m., security and safety purposes, and recreational uses that continue after 11:00 p.m. 11. Lighting for outdoor advertising should include a requirement that lighting fixtures shall. be mounted on the top of the sign structure and that bottom mounted lighting shall not be used. Outdoor advertising signs that are internally lighted should have a dark background or conform to a minimum lamp wattage to minimize the detrimental effects. Illumination of outdoor advertising for businesses or facilities that are not open shall be turned off between 11:00 p.m. and sunrise. 2 12. Maximum lighting levels should be established for various types of uses and locations including: parking lots, building exteriors, loading and unloading areas, storage yards, outdoor retail areas, and service stations/convenience stores. These maximum lighting levels should be based on illuminance levels established in the IESNA Lighting Handbook. The Lighting Task Force suggested that they not exceed twice the initial IESNA recommended levels. 13. Lighting on towers shall be prohibited except as required by the F.A.A. h\ems\mi sc\J ightingoutl ine 3 Attachment II Information Sheet Number 77 (October 1996) International Dark-Sky Association 3545 N.Stewart,Tucson,AZ 85716-1241 USA SaveOurSky@aol.com http://www.darksky.org Recommended Lighting Levels for Exterior Lighting The Illuminating.Engineering Society of North America (IESNA, or IES) gives in current IES publications quite a number of recommended illumination levels for outdoor lighting. We summarize some of these recommendations below, and in some cases the original tables have been simplified. Some of these illumination levels are currently under discussion by IES technical committees. It is important to note that these values are recommendations, not standards. Standards are set at the federal, state, county, or community level. The IES does not set standards, though IES recommendations are often used by those who set standards. In fact, recommended illuminance levels are to some degree arbitrary. On p. 93 of the 1993 edition of the IESNA Lighting Handbook, it states that It remains to be determined whether the added accuracy in predicting visual performance will be utilized in the illuminance selection procedure. A model of visual performance, no matter how accurate, is only part of illuminance selection. The cost of equipment and energy will always be an important part of the Society's decision. If electric energy prices were to double, recommended illuminance levels would certainly become lower. Further, there are other, perhaps more important, lighting design factors that the practicing illuminating engineer must consider in setting illuminance levels. In all outdoor lighting applications, many factors come into play and should be considered: minimizing glare, mounting height and spacing, lighting system depreciation and life-cycle cost, conflict areas (such as between vehicles or between vehicles and pedestrians), access control and vandalism prevention, as well as the mix of commercial, industrial, and residential properties near the area to be illuminated. For example, in the presence of glare, one needs more illumination to try to overcome the adverse impact of the glare; without glare, lower illumination levels are possible, with an actual improvement in visibility. The key is that all outdoor lighting should be carefully done, with consideration given to all the relevant factors. We give below a summary of the lighting illuminance levels in footcandles, as that is the most common unit used in the United States. However, lux is the preferred international unit, and the IES does officially recommend its use in the United States. A level of ten lux is about one footcandle (10.76 Ix = 1 fc, exactly). Roadway Lighting (for asphalt pavement; levels should be about one-third lower for concrete) Average Maintained Uniformity Expressway: Major divided highway. Illuminance (fc) (Avg/Min) Expressway 1.1 3/1 Major: Principal network for through traffic. Arterial. Major road 1.2 3/1 Collector: The streets between Major and Local. Collector road 0.8 4/1 Local road 0.4 6/1 Local: Access roads to residential properties. Parking Lots Horizontal Illuminance Level of Activity: (Footcandles) Uniformity Avg Min Ratio High Major League Athletic Events 3.6 0.9 4/1 Major Cultural or Civic Events Regional Shopping Centers Fast Food Facilities Medium Community Shopping Centers 2.4 0.6 4/1 Cultural, Civic, or Recreational Events Office Parking Airports, Commuter Lots, etc. Residential Complex Parking Hospital Parking Low Neighborhood Shopping 0.8 0.2 4/1 Industrial Employee Parking Educational Facilities Churches IES also states that the "Low" values are appropriate wherever there is a requirement to maintain security at any time in areas where there is a low level of nighttime activity. Recommendations for other outdoor lighting levels (footcandles) Building exteriors Entrances Active (pedestrian and/or conveyance) 5 Inactive (normally locked, infrequently used) 1 Vital locations or structures 5 Building surrounds 1 Floodlit Buildings and Monuments Dark surroundings Bright surroundings Light surfaces 5 15 Medium light surfaces 10 20 Medium dark surfaces 15 30 Dark surfaces 20 50 Loading and Unloading Platforms 20 Service Stations Approach 1.5 3 Driveway 1.5 5 Pump Island 20 30 Service Areas 3 7 Storage Yards Active 20 Inactive 1 Retail Outdoor Lighting Illumination Level of Surrounding Area High Medium Low Seasonal Circulation 10 7 5 Marketing area 30 20 10 Feature display 60 40 20 Auto Lots Circulation 10 7 5 Merchandise 50 30 20 Feature display 75 50 35 IES states that the illuminance in exterior retail selling areas should not exceed 10 times that of the surrounding area. Measurements should be referenced from the roadway. Information Sheet Number 77 (October 1996),p.2 Attachment III 1 Outdoor Lighting Tour NOTE: f.c. is an abreviation February 19, 1998 for footcandles 1.) Location 2.) Light level readings 3.) General comments on brightness, security,unusual features, etc. City Hall parking lot Beneath pole(max.): 4.2 f.c. Between two poles: 1.9 f.c. At center of 4 poles (min.): 1.9 f.c. One fixture is cycling on and'off. Light level is adequate. Seems well-lighted. Apartment house, 705 Clark Ave. Ca. 12 wall-mounted fixtures on garage and 3 sides of house Considerable light trespass on surrounding properties Harsh glare; the excessive light on the sides of the house make its front facade seem too dark Inappropriate lighting for a residential neighborhood. Lighting design inappropriate for a historical area. Apartment house, 9th St. and Kellogg Ave. Good wall-mounted fixture designs--low glare, still some light trespass on neighboring property to the south. Mary Greeley Hospital parking lot Beneath pole (max.): 8.6 f.c. At center of 4 poles (min.): 3.6 f.c. Amoco, 13th St. and Grand Ave. Pump island with 4 luminaires 22 f.c. in center of island, 28 directly beneath one luminaire Light level under island seems adequate. North side of lot may seem dark because the light above the north entrance to the lot is out. Light level is low enough so that it is easy to see objects beyond the pump island when one is standing beneath it. Church of Jesus Christ of Latter-Day Saints parking lot, 2524 Hoover Ave. Center line of lot: 0.7 f.c. Beneath pole (max.): 8.2 f.c. Floodlights to south may make south side of lot seem too dark. Also recheck when pavement is dry. 2 Cub Foods parking lot Beneath pole (max.): 7.5 f.c. At center of 4 poles (min.): 2.1 f.c. Light level seems adequate, but may be some contrast effect due to white metal-halide parking lot lights in the adjacent Wal-Mart parking lot. Wal-Mart parking lot Beneath pole (max.): 3.7 f.c. At center of 4 poles (min.): 1.2 f.c. Although the Wal-Mart parking lot is only half as bright as the Cub Foods lot, it actually seems brighter! Unity Christian Reformed Church, 3626 Ontario St., parking lot and building Oversized ornamental fixtures on wall near door Sidewalk 12 ft. from door: Horizontal illuminance, 6.4 f.c., vertical, 11.E f.c. Parking lot Between 2 poles, at east edge of center median: 3.7 f.c. East edge of lot: Horizontal illuminance, 0.4 f.c., vertical, 1.1 f.c. Considerable glare and light trespass on neighboring homes. Lighting is inappropriate for a residential neighborhood. Department of Transportation, east parking lot Beneath pole (max.): 0.8 f.c. At center of 3 poles (min.) 0.5 f.c. Very high poles keep light levels almost uniform across the entire lot. Light levels are adequate for a parking lot with this function. Casey's, Lincoln Way and Clark Ave., pump island with ca. 20 luminaires Beneath canopy: 55 f.c. Light brighter than necessary. Sidewise glare is distracting and may make it hard for passing motorists to see clearly. When one is standing beneath the canopy and looking outward, it is hard to see some objects beyond the canopy. Ron Willey Ford, display lot Beneath pole (max.): 61 f.c. (= illumination at sunrise or sunset on a clear day!) At center of 4 poles (min.): 3.9 f.c. Illuminance looks surprisingly uniform, considering the max.: min. ratio is over 15 : I! Considerable reflected light shining up into the sky creates local airglow. Is this metal halide lighting bright enough to create an ultraviolet:hazard to someone standing beneath it and looking up into the fixtures? 3 Lowe's Hardware Superstore,parking lot Beneath 2-luminaire pole(secondary maximum): 15.1 f.c. At center of 4 poles (2 with 2 luminaires, 2 with 3 Luminaires): 4.0 f.c. Illuminance at north edge of sidewalk in front of building: ca. 12 f.c. Maximum illuminance, from a 3-luminaire pole with attached floodlight shining toward front of building: 40 f.c. From this spot,the fixtures at the top of the pole are at an ! altitude of 65 degrees. € Intense glare makes it difficult to see across the parking lot. Swift Stop, 1100 block of South Duff Ave.,pump island with multiple luminaires Beneath center of canopy: 76 - 80 f.c. Area seems overlit. Somewhat difficult to see objects beyond canopy. Front of store: 8 f.c. Light level seems adequate here.