BOROUGH OF POOLE

LOCAL ECONOMY OVERVIEW GROUP

29 APRIL 2004

TRANSPORTATION AND LOCAL PLAN POLICIES IN RELATION TO LIGHT POLLUTION

1 Matter for Consideration

1.1 The issue of light pollution and its possible control through planning and transportation policies following a petition from the Poole Canford Heath Townswomen’s Guild.

2. Recommendation

2.1 That Members note the planning and transportation policies already in place to address light pollution.

  1. Background

3.1A petition was submitted by Cllr Mrs Moore to the Council meeting on 16 December 2003 from Poole Canford Heath Townswomen’s Guild. The petition stated: ‘This organisation should take a stand against the environmental and economic problems caused by light pollution’. The matter was passed to the Environment Overview Group for consideration.

3.2 The petition was considered at the Environment Overview Group meeting on 29 January 2003 where it was agreed that the petition be noted and that the Local Economy Overview Group be asked to consider the issue to strengthen Transportation and Local Plan policies.

  1. Planning Policy

4.1Sustainability is the overriding principle in land use planning and this embraces the economic, social and environmental impacts. The protection of the natural and built environment is an essential part of sustainable development.

4.2National and regional planning policy do not address the issue of light pollution. The only reference to the impact of light from development is included in Planning Policy Guidance Note 17 on Planning for Open Space, Sport and Recreation relating to floodlighting at sports facilities. The erection of floodlights generally requires planning permission and conditions can be attached to regulate the hours during which the lights are switched on and the installation of shielding can overcome detrimental effects.

4.2Poole Local Plan First Alteration which was adopted on 30 March 2004 as part of the statutory development plan for Poole contains a section relating to the impact of development on the Natural and Built Environment. The plan explains that development can have an adverse impact on the environment at all levels from global to local. Policy NE1 in the Plan is aimed at reducing the impacts of development which may be detrimental to people or the environment. The policy in the Plan seeks the protection of the natural and built environment from pollution and reads:

NE1 POLLUTION AND NOISE

Planning permission will not be granted for development which would be detrimental to the natural or built environment by virtue of noise, light, smoke, fumes, dust, or other emissions unless measures are included which alleviate or prevent the potential impact.

4.3This is now the statutory policy to ensure the protection of the environment where new development might cause light pollution. The policy should provide the necessary powers to ensure the polluting consequences of development can be assessed and mitigated against.

4.4Planning policy does not directly control pollution but seeks to minimise the impact of pollution resulting from development. Planning policy only applies to proposals where planning permission is required and not in circumstances where lighting is to be added to existing buildings. Assessing light pollution impacts is likely to require specialist technical expertise.

4.5Lighting will only fall under planning control where it constitutes development which is defined as: ‘the carrying out of building, engineering, mining or other operations in, on, over or under the land, or the making of any material change in the use of any buildings or other land’ (Town and Country Planning Act 1990 Section 55). The carrying out of any works required for the maintenance or improvement of a road on land within the boundaries of a road by a local highway authority does not constitute development and is therefore outside the remit of planning control. Thus street lighting does not normally require planning permission.

4.6Conditions can be attached to planning permissions to minimise light pollution through limiting the intensity or hours of lighting. However, light pollution can be derived from security lighting and halogen lights on houses over which there is not normally any planning control.

5.0 Transportation Policy in relation to Light Pollution

5.1 The aim of street lighting generally is to ensure:

  • the night-time safety of road users and members of the community.
  • the reduction of crime, or fear of crime.
  • the provision of public lighting that is cost effective, including energy conservation and sustainability.

5.2 ‘Skyglow’, the familiar orange glow above urban areas, is the result of poor

optical control within the street lighting lanterns. This is most apparent when combined with atmospheric pollution and high humidity which refracts the emitted light in all directions. Whilst it is not possible to totally eliminate this type of light pollution, the installation of modern lanterns, with more efficient optical control, can reduce it considerably. All new and replacement installations within the Borough are designed tominimise light pollution.

5.3 The Crime and Disorder Act 1998 requires local authorities to develop and

implement strategies for community safety through improved road and footpath lighting. There is a considerable network of public footpaths throughout the Borough which remain either unlit or partially lit due to funding constraints. This does lead to conflict where some residents prefer darkness and can lead to complaints of light pollution. Light trespass/pollution can be limited again with optically efficient lanterns but highway and public safety are the paramount objectives. All new and replacement installations not only minimise light pollution but promote public safety and, where applicable, aid CCTV coverage.

5.4Cost effective lighting is a principal aim. The more that light is controlled the less it is spread and therefore the distance between lighting units is reduced. For even stricter control on light pollution than standard replacements give, approximately 50% more lighting units would be required resulting in more energy consumption and more pressure on budgets. Within existing budget constraints it will take 15 years to replace the existing stock of worst performing lanterns (i.e. those greater than 20 years old).

6.0 The Streetscape Manual and Lighting for the Regeneration of Central Poole

6.1The Masterplan for the Poole Bridge Regeneration Initiative provides the development framework for Central Poole for the next 20 years. It includes the need for a coherent strategy for the design of the streetscape around the new roads and development. The Council has commissioned the Streetscape Manual to meet this end. TheStreetscape Manualsets out a Core strategy including a strategy for lighting. Guidance in the strategy is applied to distributor roads, feeder roads, access roads, Poole Town Quayside and Hamworthy Quayside.

6.2The core strategy for lighting proposes a ‘Pools of Light’ concept with zones of light of different colour and intensity. The lighting has been divided into ‘high level’, ‘pedestrian level’ and ‘focal lighting’ to give a hierarchy of spaces. The concept is to provide an art work, to connect feature guiding people and linking areas and to give safety and security.

6.3The lighting strategy includes the use of lighting to reduce crime whilst minimising light pollution. The first element of the strategy is: ’to provide safe well lit streets with minimal lighting without disturbing wild life or residents through light pollution’. The strategy includes:

  • ‘Consideration to light pollution (overspill) and methods of pollution control must be demonstrated in the lighting design, including the installation of Pools of Light’ and
  • ‘The lights must be optically controlled so as to project light down to the street only and avoid light pollution.

7.0The Police’s Perspective on Lighting

7.1 The police consider lighting in relation to crime prevention on specific sites. They do not support lighting which spills out but prefer light to be cast downward to maximise the illumination where necessary but minimise light pollution.

7.2 The police look for lighting to be directed from above human face level to avoid shadows and low level bollard lighting is not recommended. Evenness of spread of light is considered as important as intensity. Well- lit access ways and entrances are particularly important for the avoidance of crime.

8.0Conclusions

8.1 The Council has in place statutory policy to control light pollution from new development. The new Streetscape Manual provides strong guidance for development in the Central Area of Poole on this subject. These should provide the necessary framework for the assessment and control of light pollution. The policies, strategies and organisations concerned with minimising light pollution all focus on the same outcomes. The Council is addressing the minimisation of light pollution as follows:

  • Poole Local Plan First Alteration (Adopted 2004) includes policy NE1 whereby new development must protect the natural and built environment from pollution including light pollution.
  • Unless lighting constitutes development, there is no planning control. However, conditions can be attached to planning permissions for new development to limit the intensity and hours of lighting.
  • There are minimum statutory requirements for street lighting with which Transportation Services must comply with the aims of safety, crime reduction and cost efficiency.
  • The Streetscape Manual for the Regeneration Area makes considerable reference to the issue that light pollution should be minimised in the streetscape designs.

DAVID RALPH

Head of Strategic Planning Services

If you have any queries on this report, please contact

Sue Thurley, Strategic Planning Services, on 01202 633329