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HomeMy WebLinkAboutLGS-001-20Clarington Staff Report If this information is required in an alternate accessible format, please contact the Accessibility Coordinator at 905-623-3379 ext. 2131. Report To: General Government Committee Date of Meeting: October 5, 2020 Report Number: LGS-001-20 Submitted By: Reviewed By: File Number: Rob Maciver, Director of Legislative Services Andrew C. Allison, CAO Report Subject: Nuisance Lighting Recommendations: 1. That Report LGS-001-20 be received; Resolution#: GG-365-20 By-law Number: 2020-070 2. That the By-law attached to Report LGS-001-20, as attachment 2, be approved; and 3. That all interested parties listed in Report LGS-001-20 and any delegations be advised of Council's decision. Municipality of Clarington Report LGS-001-20 Report Overview Page 2 This Report provides information on an amendment to Clarington's Property Standards Bylaw 2007-070, for the inclusion of a nuisance lighting provision, in response to Council's request. 1. Background 1.1 At the September 14, 2020 Joint Committees meeting, Council considered correspondence from Raymond Kiomall requesting Council to enact a by-law to regulate nuisance lighting and referred the correspondence to staff to report back. 1.2 Issues regarding nuisance lighting are seldom brought to the attention of the Municipal Law Enforcement Division. Over the past five years, our dispatch records reflect that only two concerns have been brought forward related to residential lighting being a nuisance for residential areas. 1.3 Current Municipal regulatory by-laws do not address nuisance lighting for residential lighting. 1.4 During the September 14, 2020 Joint Committee meeting, Council did raise questions regarding residential lighting issues and commercial lighting issues. According to the Municipal Law Enforcement Division dispatch records, approximately five concerns have been reported concerning commercial lighting. As was conveyed to Council by the Acting Director of Planning Services, commercial lighting is regulated through the site plan process and as well, the Property Standards By-law 2007-070 also addresses light trespass from Commercial Properties. See Attachment 1. 2. Discussion 2.1 Mr. Kiomall's correspondence referred to the Town of Ajax's Property Standards Bylaw and suggested that Clarington enact similar regulations. Staff reached out to the Town of Ajax and confirmed that their Property Standards By-law 46-2017 states as follows: Exterior lighting fixtures shall be installed and maintained so as to prevent the light source from shinning directly into a dwelling unit 2.2 Ajax enforcement staff indicated they infrequently have to rely on this regulation but admitted that it has proven useful when it was appropriate to apply it. They further noted that the regulation purpose is specifically for direct lighting and is not intended for light trespass. Municipality of Clarington Page 3 Report LGS-001-20 2.3 Should Council choose to enact a regulation to regulate direct lighting as a nuisance (not light trespass) emanating from residential properties, staff recommends that the Property Standards By-law be amended to include the same clause as is used by the Town of Ajax (stated in 2.1 above). 3. Concurrence Not applicable. 4. Conclusion Should Council wish to regulate direct lighting emanating from residential properties, it is respectfully recommended that the By-law attached to this Report as attachment 2 be approved. Staff Contact: Duncan Anderson, Manager of Municipal Law Enforcement, 905-623-3379 ext. 2110, danderson@clarington.net Attachments: Attachment 1 — Lighting in Commercial and Industrial Developments Attachment 2 — Draft By-law 2020-XX Interested Parties: Raymond Kiomall Attachment 1 to Report LGS-001-20 clabooff MEMO If this information is required in an alternate format, please contact the Accessibility Coordinator at 905-623-3379 ext. 2131. To: Mayor and Members of Council From: Faye Langmaid, Acting Director of Planning and Development Services Date: September 17, 2020 File No: PLN 7.26 Re: Lighting in Commercial and Industrial Developments At the Joint Committee meeting of the September 14t", Councillor Neal raised regarding lighting requirements/standards for commercial and industrial developments. This memo has been prepared in response to those concerns. Council approved Lighting Guidelines in March 2010. The purpose of the Lighting Guidelines is to provide effective measures to mitigate the impacts of excess and unnecessary external lighting. The guidelines are used as part of the site plan approval process for new development applications for commercial, industrial, institutional and multi -unit residential developments. The guidelines were introduced to address concerns about direct glare and light trespass. They are not intended for municipal street lighting or residential development. The guidelines can be found hers. Lighting plans are required as part of the site plan approval process. Applicants are required to submit a Photometric Lighting Plan, prepared by a qualified design professional. The standard requirement is for full cut-off lights (e.g no light trespass across the property boundary). These are lights designed and/or shielded in such a way that all the light rays emitted by the fixture are project below the horizontal plane. In other words, as much as possible the light shines down, rather than in a larger circumference or up into the sky. The guidelines establish a set of maximum illumination values for different lighting zones. The zones range from lighting requirements for sensitive land uses, for example agricultural and natural areas which require low level illumination to urban uses, such as commercial plazas, dealerships, and institutional uses where higher level illumination is permitted. Page 11 The Corporation of the Municipality of Clarington, 40 Temperance Street, Bowmanville, ON L1 C 3A6 1-800-563-1195 1 Local:905-623-3379 1 info@clarington.net I www.clarington.net Once the Site Plan is approved, the Owner enters into a Site Plan Agreement. The owner agrees to install the lighting in keeping with the approved Photometric Lighting Plan. Once all the new site lighting has been installed on the subject lands, the owner agrees to obtain a letter from the project's lighting engineer certifying that the lighting has been installed in accordance with the approved drawings, prior to release of the landscape securities. In the case of Owasco, site plan approval was issued in July 2018. The municipality does retain landscape securities. These securities will not be released until the certification from the consulting engineer has been received. If you have additional questions, please contact Cynthia Strike. cc: n /eGreentree, Clerk Duncan Anderson, By-law Enforcement Andy Allison. CAO Page 12 The Corporation of the Municipality of Clarington, 40 Temperance Street, Bowmanville, ON L1 C 3A6 1-800-563-1195 1 Local:905-623-3379 1 info@clarington.net I www.clarington.net Lighting Guidelines 1 Planning Services Department Corporation of the Municipality of Clarington APPROVED BY COUNCIL ON MARCH 22, 2010 PREFACE In 2005, the area municipalities of Durham Region began the process of formalizing the review criteria of lighting systems for new development and redevelopment proposals subject to site plan approval. The municipalities, comprising representation from the Durham Regional Planning Department, Town of Ajax, Township of Brock, Municipality of Clarington, City of Oshawa, City of Pickering, Township of Scugog, Township of Uxbridge, and Town of Whitby, formed a committee, known as the Inter -municipal Lighting Committee, in order to develop a set of Lighting Guidelines. Lumetech Engineers Inc. was retained to provide expert advice and assist in the development of the technical data. The Durham Region Astronomical Association (DRAA) also provided input and advice for the Guidelines. The purpose of the Lighting Guidelines is to provide a set of effective standards, consistent across the Durham Region, that are designed to mitigate the impacts of excess and unnecessary external lighting. These Guidelines are intended to be used as part of the site plan approval process for new development applications. Proponents installing new lighting systems or retrofitting existing systems as part of the site plan process should refer to these Guidelines and ensure that they are in compliance with all requirements herein. TABLE OF CONTENTS 1. PURPOSE......................................................................................................................................... 1 2. BACKGROUND................................................................................................................................ 1 3. SCOPE.............................................................................................................................................. 2 5. LIGHTING FIXTURE REQUIREMENTS............................................................................................ 3 5.1 ACCEPTABLE FIXTURES.....................................................................................................................................4 5.2 PROHIBITED FIXTURES.......................................................................................................................................4 6. ILLUMINATION REQUIREMENTS................................................................................................... 5 7. SUBMISSION REQUIREMENTS & STANDARDS............................................................................ 6 7.1 GUIDING STANDARDS.........................................................................................................................................6 7.2 LIGHTING FIXTURE SUBMISSION REQUIREMENTS.........................................................................................6 7.3 LIGHTING PLAN SUBMISSION REQUIREMENTS...............................................................................................7 7.4 UNIFORMITY RATIOS...........................................................................................................................................7 8. QUALIFIED DESIGNER SIGNOFF................................................................................................... 8 APPENDIX 1: LIGHTING ZONES........................................................................................................... 9 APPENDIX 2: DEFINITIONS................................................................................................................. 10 TABLE OF FIGURES Figure1: Urban Sky Glow Effect...........................................................................................................................................1 Figure2: Lighting Plan Section.............................................................................................................................................2 Figure3: Full Cut-off Fixture..................................................................................................................................................3 Figure4: Full Cut-off Wall Mount...........................................................................................................................................4 Figure 5: Full Cut-off Light Standard.....................................................................................................................................4 Figure6: Prohibited Wall Mount............................................................................................................................................4 Figure7: Prohibited Sag Lens Light......................................................................................................................................4 Figure 8: Shoppers Drug Mart Full Cut-off Lights..................................................................................................................5 Figure9: Lighting Fixture Examples......................................................................................................................................6 Figure10: Parking Lot Lighting Plan.....................................................................................................................................7 MUNICIPALITY OF CLARINGTON LIGHTING GUIDELINES 1. PURPOSE The purpose of these guidelines is to provide a set of effective standards designed to limit the impacts of excess and unnecessary external lighting. Specifically, these guidelines are intended to be used as part of the site plan approval process for new development applications. These guidelines are not intended to regulate lighting for single family dwellings (including single detached dwellings, semi-detached dwellings, linked dwellings, and street townhouse dwellings) or municipal street lighting. Figure 1: Urban Sky Glow Effect PAGE 1 2. BACKGROUND Excessive and unnecessary site lighting can have a number of detrimental environmental and safety impacts. Specifically, excessive lighting can be inefficient in terms of energy consumption, as well as create glare levels that can be a detriment to drivers, pedestrians and neighbouring properties. From an environmental perspective, the over lighting of towns and cities creates a phenomenon known as Urban Sky Glow (refer to Figure 1), that renders the night sky effectively unviewable to town and city dwellers. Furthermore, poor outdoor lighting design can create light trespass which is a nuisance that can negatively affect the enjoyment of a person's property. The uneven application of lighting standards can create issues around transition; moving from an under lit area to an over lit one. This can have a significant effect on the night vision of drivers, cyclists and pedestrians. These guidelines are designed to mitigate these issues through introducing standards that will address concerns about direct glare and light trespass. In addition, these standards factor in safety issues, such as those addressed by Crime Prevention Through Environmental Design (CPTED) principles and, in particular, safety issues that pertain to shadowing, peripheral visual detection and clarity of vision, with respect to seeing other people and objects. MUNICIPALITY OF CLARINGTON LIGHTING GUIDELINES 3. SCOPE The scope of the lighting guidelines is to create a set of standards that are applicable for land uses across Clarington. These guidelines are intended to address, but are not limited to: • Lighting for buildings and structures, including building entrances, canopies or overhangs; • Parking lot lighting; • Pedestrian and landscape lighting; • Recreational area lighting; • Display, service and advertising lighting; • Wall mounted lighting; • Security lighting; • Ornamental/decorative lighting; • Lighting in heritage areas. 4. AUTHORITY The Planning Act, through Bill 51, allows for lighting studies to be requested as part of the municipal site plan process. As such, applicants will be required to submit information from a qualified lighting design professional with respect to any proposed external lighting as part of the site plan process. The required information will include: • Light fixture (luminaire) design sheets, containing: o Lamp (bulb) types; o Fixture specifications (full cut-off required); • Lighting Plan in foot candle values showing photometric data (refer to Figure 2), containing: PAGE 2 o Pole specifications such as height, spacing and placement; and o Photometric information, showing areas of illuminance illustrated with isometric lines. b,l b.l b.l b.l b.l 1.1 .1n b b•1 b•1 b•1 b•1 b•1 1� .Y*' ,n R7�' � n7.1 '�Y nt-1 `fit r `�► b.z z b.z b.z 1.2 b.z b.z b.z b.2 b.z 1.2 b.z E MP b,3 b.3 b. b.3 b.3 b.3 b.3 b.3 1.3 ba b.3 b,4 3 b. b.4 b.4 1.4 b.4 1.3 b. �s b.s 1.6 t n , `4. nb `4. b.7 6 1.6 1.7 b.e b.��e----�� b.e b.7 .6 bb. b. 1 9 b.9 to 1.z 1.3 W e �59 0 41 6 i 1 1.1 1.6 32.2 -�,5 i2,1 .4 .0 I 1 1.1 .0 i3.6 4.6 33. d .7 A 1.1 i2.2 .5 i 2 .2 .4 4.8 1.1 4.4 .4 .1 t.z �.5 Figure 2: Lighting Plan Section MUNICIPALITY OF CLARINGTON LIGHTING GUIDELINES 5. LIGHTING FIXTURE REQUIREMENTS A wide number of lighting fixture designs and lamp types exist today. Light sources, or lamps, are available in a variety of styles. Each lamp type has different attributes and can be installed where most suitable. For example, metal halide lamps and LED lamps produce a white light which is ideal when colour rendering is required for purposes such as security. High pressure sodium, on the other hand, produces a yellowish light that is ideal when colour rendering is not required. This is an appropriate, energy efficient lamp for purposes such as ornamental or accent lighting. Apex PAGE 3 The issue of light fixture design refers to the nature of the fixture itself. The standard requirement is for full cut-off lights. These are lights that are designed and/or shielded in such a way that all of the light rays emitted by the fixture are projected below the horizontal plane. In technical terms, there should be no light emission at the vertical angle of 90 degrees or greater above the nadir (the point at ground level directly below the source of light), and no more than 10% at the angle of 80 degrees above the nadir (refer to Figure 3). -------------------------- --------------- 90° .......ram Hadir Figure 3: Full Cut-off Fixture MUNICIPALITY OF CLARINGTON LIGHTING GUIDELINES Light fixture designs which cannot meet these standards, such as those with sag lenses or wall mount lights that shine horizontally, are prohibited. 5.1 ACCEPTABLE FIXTURES Figure 4: Full Cut-off Wall Mount LA Figure 5: Full Cut-off Light Standard PAGE 4 Examples of full cut-off fixtures and prohibited fixtures are provided below. 5.2 PROHIBITED FIXTURES Figure 6: Prohibited Wall Mount Figure 7: Prohibited Sag Lens Light MUNICIPALITY OF CLARINGTON LIGHTING GUIDELINES 6. ILLUMINATION REQUIREMENTS In addition to setting standards for acceptable lamps and fixture types, these guidelines have established a set of maximum illumination values for different Lighting Zones. The illumination requirements are expressed in the form of tables pertaining to each Lighting Zone's maximum illumination at the property line (refer to Appendix 1). The lighting zones are intended to recognize that not all areas can achieve the same lighting levels. At the pre - consultation stage, the applicant will work with the Planning Services Department to determine which Lighting Zone the proposal falls under. Four Lighting Zones have been established. Lighting Zone 1 is the most stringent and includes environmentally sensitive and open space areas. The majority of development proposals will be designated as part of Lighting Zone 2. Locations with unique constraints and dense development may be classified as Lighting Zone 3. The Lighting Zone 4 designation is reserved for those sites with extreme constraints, requiring special consideration. Lighting Zone 4 will typically constitute development within downtown areas. Non -essential external lighting is encouraged to be switched off during non -operating hours, or placed on senor -activated timers (where lighting does not serve security purposes). PAGE 5 The land uses that these guidelines will apply to are: • Commercial uses such as plazas, retail outlets, car dealerships, offices, personal service uses, and others; • Industrial uses such as warehousing, manufacturing, fabrication, aggregate extraction and processing uses; • Institutional uses such as, places of worship, schools (public and private), hospitals, and government facilities; • Recreational uses such as golf courses, driving ranges, soccer pitches, domes and baseball diamonds and ski hills; • Residential uses with three or more units (save and except for street townhouses) and retirement homes. Figure 8: Shoppers Drug Mart Full Cut-off Lights MUNICIPALITY OF CLARINGTON LIGHTING GUIDELINES 7. SUBMISSION REQUIREMENTS & STANDARDS When requested, site plan applications should be accompanied by a lighting plan and lighting fixture details that demonstrate that the proposal meets the guidelines. The following submission requirements and standards will apply: Unacceptable Unshielded Fixtures Acceptable "Full cutor I~" Full cutoff or shielded Fixtures I "Colonial -type" fixtures Figure 9: Lighting Fixture Examples PAGE 6 7.1 GUIDING STANDARDS • Light fixtures should be positioned across a site so as to give a uniform distribution of light over the relevant area. This assists in the avoidance of the creation of "hot spots" (areas of over -illumination that make adjacent areas seem darker); • The conservation of energy should be encouraged; • Lamps shall be located in such a way as to direct light away from neighbouring properties; • Except where lighting is strictly ornamental, photometric performance (the glare, intensity and uniformity of the light produced) will be a more important factor in assessing the suitability of proposed lighting than aesthetics; • Only down -lighting or back lighting will be permitted for on -site signage; • Areas as identified as unsafe or provide security concerns may require additional lighting based on CPTED principles. 7.2 LIGHTING FIXTURE SUBMISSION REQUIREMENTS • Detail specifications, including lamp type, fixture type, lumens rating of lamp, wattage, colour, etc. shall be submitted; • Only full -cut off fixtures shall be accepted; • Fixtures shall be positioned such that they focus light down, preventing light from emitting above the horizontal plane (90 degree position relative to the ground) and preventing light trespass. MUNICIPALITY OF CLARINGTON LIGHTING GUIDELINES 7.3 LIGHTING PLAN SUBMISSION REQUIREMENTS • The illumination levels shall be expressed in foot candles and in the form of isolux curves showing the predicted lighting levels at the property line and throughout the development site; • Pole specification such as height, spacing, foundation details, and placement shall be provided. Pole heights will generally be between 6.0 metres (for smaller, pedestrian scaled development) and 7.5 metres for larger scale development. Municipal recreation uses, such as baseball diamonds, are not regulated by these guidelines; • Lot boundaries must be shown; • Location of all structures must be shown; • Location and height of all proposed luminaires, including wattage, and lamp type must be shown; • The illumination levels at all property lines should strive to achieve `01 foot candles; • A photometric diagram showing the predicted lighting levels from each of the proposed light sources shall be provided; PAGE 7 • The lighting plan is to be signed by the qualified lighting design professional responsible for the plan; • Five (5) copies of the lighting plan and fixture details are to be included in the final submission. 7.4 UNIFORMITY RATIOS In lighting design the average maintained illuminance and uniformities are calculated. The uniformity ratio is computed to make sure that certain minimum levels are achieved in the design, creating uniform lighting across a site. For outdoor lighting applications, Average to Minimum ratio is considered essential in order to control the creation of "hot spots", which are areas with very high illumination that are surrounded by darker areas. As part of a lighting plan submission, designers are required to submit the Average to Minimum ratio, which is to be designed in accordance with the Illuminating Engineering Society (IES). \ �� Lumlmin SN1e1Je - Pn� B'+�AN sL Nunicipef aan;na Lat SIT16GI Oly Ldbe 1i,e0Qellelrt 11-11 LLP 9eSGIl -F ^ 1 Type C-3.150 DINGLE 14000 0.700 OHO-R3_1-H150 (OHOOROUP) V 11 TyP BS250 SINGLE 23M a700 GHO R5-1-H250 IGN0 GRGUP) LOT 3 i E6 z �\ E_K tau 016 7� 1 in 0.%-f�4'��ff.6 Y1 - FII Ob i�2Eo'- 07 98-`P.4-� Figure 10: Parking Lot Lighting Plan Num nc6ummary Plojed: BeNeny St. Municipal Pal Lot Label CalcType Units Avg Max Min AvglMin MwJMin Lot Illuminance Lux 11.89 50.8 0.8 14.86 63.50 Lott Illuminance Lux 10.88 44.9 2.9 3.75 15.48 Lot3 Illuminance Lux 13.54 25.4 2.2 6.15 11.55 Road Illuminance Lux 11.92 19.5 6.2 1.92 3.15 Calepts Illuminance Lux 0.22 04 1 N A. N.A. CalcPts 1 Illuminance Lux 080 1-1 03 NA. NA. calcPts_2 Illuminance Lux 109 28 03 NA- NA- CalcPts_3 Illuminance Lux 25.95 34.3 1T.6 N.A. N.A. CaICPts 4 Illuminance Lux 4.38 6A 3.0 N.A. N.A. CalcPls 5 Illuminance Lux 25.90 29.8 22.0 N.A. N A. CalcPts_6 Illuminance Lux 240 3-1 10 N A. N A. CalcPts_7 Illuminance Lux 4 00 93 06 N A- N A- CalcPta_6 Illuminance Lux 140 1-6 12 N A- N A. MUNICIPALITY OF CLARINGTON LIGHTING GUIDELINES 8. QUALIFIED DESIGNER SIGNOFF The following statement is to be included on the Lighting Plan and signed by the qualified designer: This drawing indicates all proposed outdoor lighting fixtures for this proposed development. The lighting design is in accordance with the applicable lighting zone as established by the Planning Department, and designed with an Average to Minimum ratio in accordance wit the Illuminating Engineering Society guidelines. This lighting design will not create any objectionable glare for adjacent properties. Signature of Qualified Designer PAGE 8 9. POST INSTALLATION INVESTIGATION After the installation of any new lighting subject to municipal review and approval, the applicant's lighting consultant shall provide a written signoff confirming that the lighting has been installed as per the approved plan. MUNICIPALITY OF CLARINGTON LIGHTING GUIDELINES APPENDIX 1: LIGHTING ZONES PAGE 9 • Open Spaces, Low — Medium Density Low Rural/Suburban Residential, Small Scale Commercial, 0.3 (3 lux) Applications Institutional, Recreational and Industrial Uses Large Scale Commercial, Industrial, LZ3 Medium Urban Recreational, Institutional and Medium — 0.8 (8 lux) High Density Residential Dense Urban Land uses that warrant special LZ4 High Development / consideration. Generally this zone is 1.5 (15 lux) Downtown reserved for properties in the Downtowns Where multiple lighting zones are present on a single lot or development, or if an Environmental Impact Study makes specific recommendations regarding lighting levels, the more restrictive shall apply. 2 The Maximum Illuminance Level at Property Line represents worst case scenarios. Lighting designers will be expected to attempt to achieve minimal or no lighting on or beyond property lines in all lighting zones. MUNICIPALITY OF CLARINGTON LIGHTING GUIDELINES APPENDIX 2: DEFINITIONS Foot Candles: Lumens per square foot. Illuminance: The amount of light that actually falls on an object. It is the density of light on a particular surface — measured in lux or lumens per square foot (foot candles — fc). Lamp: A bulb or other light producing source. Light: Visible wavelength energy that enables you to see. Light Pollution: The overall impact that the lighting of cities and towns has on the night sky. Light Trespass: The projection of light from one site onto another. Lumens: Measurement of the total amount of light emitted by a bulb, known as luminous flux. A 100 watt incandescent bulb will put out roughly 1,800 lumens, while a high pressure sodium street lamp of the same wattage will emit about 8,550 lumens. Luminaire: The lighting fixture itself. It is a combination of the bulb, socket, reflectors or lenses, ballast, and housing. PAGE 10 Luminance The light that the eye sees — i.e., light that has been reflected by a surface. It is measured in Candelas per square foot or metre. Lux: The measure of illuminance, expressed in units of Lumens per square metre. Metal Halide: Produces white light, which the eye sees well for scotopic vision. The yellow light produced by low and high pressure sodium is not seen well by the eye in low light situations. Pole Height: Height of a light standard, measured from the grade (ground level) to the highest point on the luminaire. Qualified Lighting Design Professional: A person with the appropriate qualifications to design lighting systems. This may include those with the L.C. (lighting certification) or Professional Engineers registered in Ontario in Electrical Engineering. Others with similar credentials may be considered Qualified Lighting Design Professionals on a case by case review. Vertical Illuminance: Lighting levels measured on the vertical plane at a height of 1.5m (5ft) above ground level. This is a normalized observer eye height, and represents effects on humans at eye level. Attachment #2 to LGS-001-20 THE CORPORATION OF THE MUNICIPALITY OF CLARINGTON I:yaWGVJI►row.Z0412 Being a by-law to amend Property Standards By-law No. 2007-070 WHEREAS the Council of The Corporation of the Municipality of Clarington deems it desirable to amend Property Standards bylaw 2007-070 NOW THEREFORE be it enacted that By-law 2007-070 be amended as follows: 1. The following new sections are inserted immediately following section 3.68: Nuisance Lighting 3.69 Residential exterior lighting fixtures shall be installed and maintained so as to prevent the light source from shining directly at or into any dwelling unit. 2. This by-law comes into effect on the date of its passing. PASSED this xx day of October, 2020. Adrian Foster, Mayor Anne Greentree, Municipal Clerk