South Northamptonshire Council

LIGHT POLLUTION

Supplementary Planning Guidance

Light Pollution

Supplementary Planning Guidance

LIGHT POLLUTION
Introduction The problems and issues associated with the provision of outdoor lighting are becoming more widely recognised as a source of pollution. Obtrusive lighting can be damaging and be both an environmental and intrusive visual nuisance arising predominantly from glare and light spillage. Light pollution in the countryside can lead to a suburban feel, losing the sense of distinctiveness associated with the countryside. Whilst the importance of artificial lighting for security, pedestrian and traffic safety, in promoting access to sport and recreation and for enhancing historic and architecturally important buildings is recognised, lighting can have a marked impact on the night time scene, significantly changing the character of the locality and altering wildlife and ecological patterns. On the widest scale, dark skies and views of the stars are now becoming a thing of the past except in the remotest of areas. What is light pollution? Light pollution is the term used to describe the brightening of the night sky as a result of upwardly directed light which is then reflected off dust and water droplets in the sky.

Light Pollution

Supplementary Planning Guidance

Light pollution can occur as:

sky glow - the orange glow visible around urban areas resulting from the scattering of artificial light by dust particles and water droplets in the sky; glare - the uncomfortable brightness of a light source when viewed against a dark sky; light trespass - light spillage beyond the boundary of the property on which a light is located.

Problems of excessive artificial lighting There is growing recognition of the potential problems arising from artificial light within the environment. An increasing amount of exterior lighting is being allowed to shine above the horizontal and a significant proportion of this artificial light ends up in the sky where it does nothing to increase vision or security, but wastes electricity, money and finite resources. There is no doubt that lighting is necessary for our daily lives, but a lot of external lighting is poorly designed and misdirected and some is even unnecessary. Problems can arise from:

poorly designed street lighting in villages and towns; increasing ribbons of road lights cutting through our countryside; illuminated shop windows and advertising signs left on overnight;

Light Pollution

Supplementary Planning Guidance

badly designed lighting in car parks and shopping centres; domestic security lighting which is poorly angled thereby flooding the neighbourhood in light and accentuating the darkness of the surrounding areas; badly floodlit sports facilities, such as golf driving ranges, or motorway service areas which bathe rural areas in brightness; new housing estates or shopping complexes with discordant lighting, often much more intrusive than neighbouring lighting; and excessive lighting of churches and other architecturally interesting buildings.

The key issues that cause the problems in any lighting scheme are the levels of light produced, poor direction and excessive hours of use. By establishing the objectives of any lighting scheme and agreeing guidelines a compromise can be met to reduce the impact of any scheme and potentially save energy and expense to the applicant. Planning Policies Whilst not all forms of lighting require planning permission, local planning authorities can influence the public to protect the unlit countryside and to reduce light pollution by including policies in their local plans. At present, national planning guidance, structure and local plan policies do not adequately address the issue of pollution from domestic or recreational lighting.

Light Pollution

Supplementary Planning Guidance

National Planning Policy Guidance on Planning and Pollution Control 1994 (PPG23) permits local planning authorities to incorporate policies regarding lighting within their local plans. Paragraph 2.18 states that planning authorities should take account of, in preparing Local Plan policies, ... the possible impact of potentially polluting development on land use, including the effects on health, the natural environment, or general amenity, resulting from releases from water, land or air, or on noise, dust, vibration, light or heat ... With regard to recreation, PPG17 on Sport and Recreation (1991) states in paragraph 31: The local planning authority should seek adequate information as a basis for making decisions on applications involving the installation of floodlights. It may be possible to grant permission subject to conditions, for example limiting the hours during which the lights may be switched on, or requiring the installation of some sort of shielding. In this way recreation can be encouraged wherever possible, and not stifled by lack of information about the effects of a particular development. Although the South Northamptonshire Local Plan does not have any specific policies regarding lighting, some control can be exerted by ensuring that applications are consistent with Policy G3
which includes the following criteria: PLANNING PERMISSION WILL NORMALLY BE GRANTED WHERE DEVELOPMENT : (D) WILL NOT UNACCEPTABLY HARM THE AMENITIES OF ANY NEIGHBOURING PROPERTIES;

Light Pollution

Supplementary Planning Guidance

(E) IS NEITHER OF A HAZARDOUS NATURE NOR LIKELY TO CAUSE PROBLEMS OF POLLUTION, NOISE ..... OR FUMES. Planning applications - Where it is proposed to incorporate lighting in development sites, applicants are encouraged to submit details of lighting schemes, including light scatter diagrams, as part of the planning application in order to demonstrate that the proposed scheme is appropriate in terms of its purpose in its particular setting. In doing this it aims to minimise potential pollution from glare and spillage to neighbouring properties, roads and countryside. It may be necessary to condition a planning approval to allow the local planning authority to monitor the development and enforce the condition if necessary. In the case of Listed Buildings, consent may be required for external lighting. Advice should be sought from the Planning Department prior to installation. Lighting Out Crime - Prevention and Security Safety - It is assumed that a generous use of artificial lighting, whether it be street lighting or domestic security lighting, will reduce the risk of crime. However, a study in West Sussex in 1992 showed that whilst lighting can reduce the fear of crime, bright, poorly positioned, misdirected lights and security lighting can assist would-be burglars to find easy access points and can create deeply shadowed areas for concealment.

Light Pollution

Supplementary Planning Guidance

The Department of the Environments Circular 5/94 Planning Out Crime states: Those installing security lighting need to strike a balance between their desire to increase the security of their properties and the possible effect that unnecessarily obtrusive and glaring light, due to badly installed or designed lighting fixtures, may have on neighbours. Care should be taken to ensure that the intensity and focus of security lighting respects the amenity of others. Further advice on planning out crime is available in the Supplementary Planning Guidance entitled Crime Reduction in Residential Areas. This can be obtained, free of charge, from the Policy Unit, Planning and Development Department, South Northamptonshire Council. Floodlighting for sports pitches and courts In South Northamptonshire, careful consideration will need to be given to any proposals for the provision of floodlit sports facilities in areas of special landscape value and also where they immediately adjoin housing.

Improved facilities for the local community - The ever increasing interest in sport has prompted many sports centres and schools to install floodlighting to enable extra activities to take place after dark. The inclusion of floodlights to upgrade sports facilities enables a pitch or court to be used during the winter evenings and provides an opportunity for the community to utilise the facilities and in doing so, will be contributing financially towards the maintenance costs.

Light Pollution

Supplementary Planning Guidance

Design - It is recommended that operators should commission a professionally produced design, including light scatter diagrams, that will accurately predict the performance of the scheme, both inside and outside the pitch area, before any equipment is procured. This will avoid expensive mistakes and also provide the planning officers with the necessary details needed when considering the planning application. Guidance - Northamptonshire County Council has produced a guidance note on the provision of floodlit all-weather pitches for secondary schools. This guidance states that: It must be recognised that the taller the mast the greater the scope for directing the light downwards, thereby controlling light spillage. Although it is common for three columns to be erected on each side, the actual number will be dependent upon the type and standard of the sporting activities proposed. A balance needs to be sought between the night-time needs for floodlighting and the day-time appearance of the columns themselves. To avoid light spillage, the main beam angle of all lights should not exceed 70 from the vertical. Light shields should be fitted to avoid both upward glare and the direct illumination of areas beyond a distance of 10 metres from the pitch. The power of each lamp should normally be limited to 1kw with internal louvres fitted and asymmetric beams utilised that permit the front glazing of the unit to be kept at or near parallel to the surface being lit.

Light Pollution

Supplementary Planning Guidance

In circumstances where housing immediately adjoins a proposed

floodlit pitch it is unlikely the planning permission would be granted. The degree of adverse effect for properties further away will be a subjective judgement in each case, having regard to the measures which can also be taken to mitigate the impact of the development. Planning applications for all sports related lighting schemes submitted to the Council are determined in the light of this guidance. Time limits - Strong floodlighting used for sport pitches can create a genuine disturbance to neighbours and therefore it is generally accepted that floodlights should not be used between the hours of 10.00 p.m. and 9.00 a.m. The County Council state that the use of school pitches should be restricted to no later than 9.30 p.m. in residential areas and 10.00 p.m. elsewhere on Mondays to Saturdays, and 8.00 p.m. on Sundays (all areas). For further technical advice regarding sports floodlighting, guidance can be obtained from the Sports Council and also the Chartered Institute of Building Services Engineers (CIBSE). See the
end of this guidance for useful contact addresses.

Advertisements In order to draw attention to some advertisements, signs are often illuminated either internally or externally. In these cases care should be taken to ensure that they are not positioned where they may affect the clarity of traffic signs or disturb those living close by. Planning permission is not required for certain categories of illuminated advertisements displayed on business premises. The Town and Country Planning (Control of Advertisement) Regulations 1992 states luminance values and criteria for such proposals.

Light Pollution

Supplementary Planning Guidance

In Conservation Areas, planning permission is required for illuminated advertisements and may not always be acceptable. Advice should be sought from the Councils Development Control Section prior to installation. Guidance - South Northamptonshire Council has, in its Local Plan, policies to guide the use of advertisements. The main policies that relate to lighting are as follows: POLICY AD9 - PLANNING PERMISSION WILL NOT NORMALLY BE GRANTED FOR ILLUMINATED SIGNS WHERE THEY COULD CAUSE CONFUSION WITH TRAFFIC SIGNS OR INTERFERE WITH RESIDENTIAL PRIVACY. Careful consideration will need to be given to the location and design of the light-fittings themselves, which can have a more damaging visual effect on the local environment than the sign they illuminate. POLICY AD12 - PLANNING PERMISSION WILL NORMALLY BE GRANTED FOR DISCRETE EXTERNALLY ILLUMINATED SIGNS, ALTHOUGH THE LEVEL OF SPOTLIGHTING OR FLOODLIGHTING WILL BE A DETERMINING FACTOR. Further information can be found in the supplementary planning guidance entitled Advertisements. This can be obtained, free of charge, from the Policy Unit, Planning and Development Department, South Northamptonshire Council.

Light Pollution

Supplementary Planning Guidance

A positive approach to the problem of excessive lighting Effective illumination should be well directed and almost invisible from a distance. The lighting scheme should not exceed that which is required for the satisfactory undertaking of the task involved. Proper design and planning - It is possible to reduce many of the negative effects of lighting through proper design and planning, using lighting only where and when necessary, using an appropriate strength of light and adjusting light fittings to direct the light to where it is required. Illuminance should be appropriate to the surroundings and character of the area as a whole. Avoid over lighting and use shields, reflectors and baffles to help reduce light spill to a minimum. Use specifically designed equipment that once installed minimises the spread of light above the horizontal.

Direction of light - Direct light downwards wherever possible to illuminate its target, not upwards. Many floodlit buildings are lit from the ground with the beams pointing into the sky. This often leads to columns of stray light pointing up into the sky creating vast amounts of light pollution and wasting energy. Provide lighting that does not glare on approach and which places light onto the ground and not into the sky where it is wasted. In other cases, simply lowering the angle of the beam will stop light from overshooting the building into the sky.

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Light Pollution

Supplementary Planning Guidance

To keep glare to a minimum, ensure that the main beam of all lights directed towards any potential observer is kept below 70. It should be noted that the higher the mounting height, the lower the main beam angle can be. In places with low ambient light, glare can be very obtrusive and extra care should be taken in positioning and aiming. Wherever possible use floodlights with asymmetric beams that permit the front glazing to be kept at or near parallel to the surface being lit.

70 degrees

less than 70 degrees

Amount of light - Rural lighting should be kept to a minimum necessary for safety. Highway authorities should be encouraged to apply this principle when building new roads or bypasses in the open countryside or upgrading existing installations with the use of low energy, light efficient fittings. Care should be taken where and when they are lit.

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Light Pollution

Supplementary Planning Guidance

Sensor switches - For domestic and small scale security lighting there are two options. The use of Passive Infra Red Sensors (PIR) or all-night lighting at low brightness. If correctly aligned and installed, a PIR Sensor that switches on lighting when an intruder is detected, often acts as a greater deterrent than permanently floodlit areas, which also allow the potential intruder to look for weaknesses in security i.e. open windows etc.

Types of lamps - Low pressure sodium (LPS) street lamps which scatter their orange light all around, including skywards, are a common sight along many streets and in residential areas. An increasingly popular alternative, however, is the full cut-off, high pressure sodium (HPS) lamp, although these are more expensive to install. Full cut-off lamps prevent any light from being emitted above the horizontal and the HPS creates a bright pinkish white light which is carefully directed to avoid light trespass. In a recent survey, 85% of drivers stated that they prefer the light from HPS lamps. HPS lamps are the preference for lighting sports pitches for the same reasons. Wasted energy - Switch off lights when not required for safety or security. Much energy is consumed and vast amounts of greenhouse gases are produced due to the wastefulness of all night shop advertising and display lighting, building illumination, upward floodlighting and permanent domestic and industrial security lights.

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Light Pollution

Supplementary Planning Guidance

Alternative lighting schemes - Local light schemes are an imaginative alternative to the installation of conventional roadway and footway lighting in rural areas. Where there is an accepted need for village lighting, occupiers in houses facing streets are encouraged to mount low-level lights on their own property. The costs of light fittings, bulbs and installation could either be met by the local parish council or perhaps grants could be given to occupiers to purchase and install their own lighting. The costs to the Parish Council could be offset against those which would have been incurred if a traditional public lighting system had been installed and maintained. Grants are available from the Councils Heritage Unit for certain types of environmental enhancement schemes. Streetlighting can be included in these schemes. By correctly fitting energy-efficient lights of an appropriate strength, for example, above a front door, footways can be lit with minimal glare and light trespass into neighbours properties, and with far less visual intrusion than if public lamps and columns were used. There would be less light pollution, disturbance to neighbours and an overall saving in energy. In addition to the other policies referred to in this guidance, the following policy will be used in determining planning applications where lighting is considered to be an important issue: WHERE PLANNING PERMISSION IS REQUIRED FOR AN EXTERNAL LIGHTING SCHEME OR WHERE EXTERNAL LIGHTING IS REQUIRED AS PART OF A DEVELOPMENT PROPOSAL, PLANNING APPLICATIONS WILL NORMALLY ONLY BE FAVOURABLY CONSIDERED WHERE:

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Light Pollution

Supplementary Planning Guidance

(I)

THE LIGHTING SCHEME SHOULD NOT EXCEED THAT WHICH IS REQUIRED FOR THE SATISFACTORY UNDERTAKING OF THE TASK INVOLVED; GLARE AND SPILLAGE IS MINIMISED THROUGH GOOD DESIGN, PARTICULARLY IN AREAS OF OPEN COUNTRYSIDE, ON THE EDGE OF SETTLEMENTS, ADJACENT TO HIGHWAYS OR IN OTHER ENVIRONMENTALLY SENSITIVE SETTINGS;

AND (II)

AND (III) ILLUMINANCE IS APPROPRIATE TO THE SURROUNDINGS AND CHARACTER OF THE AREA AS A WHOLE; AND (IV) THE LIGHTING IS POSITIONED TO MINIMISE THE IMPACT ON THE SURROUNDINGS; AND (IV) THERE IS NO SIGNIFICANT ADVERSE IMPACT ON THE LOCAL COMMUNITY OR ENVIRONMENT The way forward In future, great care should be taken to protect our countryside and night skies and to preserve our finite resources. Light pollution should be minimised by good design and the use of the correct equipment for the task. South Northamptonshire Council will encourage good practice through this guidance and, if necessary, by imposing conditions on planning permissions.

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Light Pollution

Supplementary Planning Guidance

Careful consideration must be given to all floodlighting proposals in the countryside and within and on the periphery of towns. All schemes should demonstrate that the scale of the proposal and the level of lighting will not have a significant adverse environmental impact. Individuals can make an immediate difference by checking existing lighting, repositioning domestic security lighting and perhaps reducing the wattage of the bulb. Remember to switch off lights when they are not required. By acting on this simple advice, we can all help to reduce the nuisance and unnecessary effects of light pollution and aim to minimise wasted energy. Useful contacts The Institute of Lighting Engineers Lennox House 9 Lawford Road Rugby Warwickshire CV21 2DZ Tel: 01788 576492 The Chartered Institute of Building Services Engineers Delta house 222 Balham High Road London SW12 9BS Council for the Protection of Rural England (CPRE) Warwick House 25 Buckingham Palace Road London SW1W 0PP Tel: 0171 976 6433

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Supplementary Planning Guidance

Campaign for Dark Skies (CfDS) British Astronomical Association Burlington House Piccadilly London W1V 9A Tel: 0171 734 4145 Lighting Industry Federation Swan House 207 Balham High Road London SW17 7BQ Tel: 0171 675 5432 English Sports Council - East Midlands Grove House Bridgford Road West Bridgford Nottingham NG2 6AP 0115 982 1887 Crime Prevention Co-Ordinator Northamptonshire Police Headquarters Wootton Hall Northampton NN4 0JQ 01604 703546

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Light Pollution

Supplementary Planning Guidance

Sources of advice
Guidance Note on Light Pollution 1994 - Institute of Lighting Engineers Starry Starry Night - BAA/CPRE Leaflet March 1994 Factfile 2 - Floodlighting for Sport 1993 - Sports Council LG4 Sport - Chartered Institute of Building Services Engineers (CIBSE) Guidance Note on the Provision of Floodlit All-Weather Pitched at Secondary Schools - Northamptonshire County Council - January 1996 Domestic and Commercial Security Lights and the Night-Time Environment 1993 - British Astronomical Association Lighten Our Darkness; lighting our cities - successes, failures and opportunities 1994 - The Royal Fine Art Commission Road Lighting and the Environment 1993 - Department of Transport

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