HomeMy WebLinkAboutStaff Report 2601-5795CITY OF PALO ALTO
CITY COUNCIL
Special Meeting
Tuesday, January 20, 2026
Council Chambers & Hybrid
5:30 PM
Agenda Item
10.SECOND READING: Ordinance of the Council of the City of Palo Alto Repealing and
Replacing Section 18.40.250 (Lighting) of Chapter 18.40 (General Standards and
Exceptions) and Amending Chapters 18.10, 18.12, 18.28 and Section 18.40.230 of Title
18 (Zoning) of the Palo Alto Municipal Code to Adopt New Outdoor Lighting Regulations
(REINTRODUCED FIRST READING: December 8, 2025; PASSED:6-1, Lythcott-Haims, no)
City Council
Staff Report
Report Type: CONSENT CALENDAR
Lead Department: City Manager
Meeting Date: January 20, 2026
Report #:2601-5795
TITLE
SECOND READING: Ordinance of the Council of the City of Palo Alto Repealing and Replacing
Section 18.40.250 (Lighting) of Chapter 18.40 (General Standards and Exceptions) and Amending
Chapters 18.10, 18.12, 18.28 and Section 18.40.230 of Title 18 (Zoning) of the Palo Alto Municipal
Code to Adopt New Outdoor Lighting Regulations (REINTRODUCED FIRST READING: December 8,
2025; PASSED:6-1, Lythcott-Haims, no)
BACKGROUND
The City Council heard this item on December 8, 2025 for a reintroduced first reading and
approved the below motion on a 6-1, Lythcott-Haims, no vote.
MOTION: Councilmember Stone moved, seconded by Councilmember Reckdahl to adopt the
proposed ordinance with staff’s recommended changes and include the following changes:
1) Amend Section 18.40.250(e)(4)(A), removing the curfew start time of 12:00 a.m. and
adding a curfew start time of 11:00 p.m.
2) Amend Section 18.40.250(c)(3) to remove the phrase “If a building permit is required” to
apply the ordinance to all new installation, replacement, or modification of outdoor
luminaires.
3) Amend Section 18.40.250(L)(1), removing the words “two years” and replacing it with the
words “one year”, shortening the compliance period for adjustable existing lighting
fixtures to one year.
4) Amend Section L(2)(A) and (B) and L(3) to remove the retrofit requirement.
5) Refer to the Utilities Department to evaluate electric efficiency incentives related to
voluntary retrofits of existing fixtures.
6) Request staff to evaluate objective standards as an alternate to cost of the lighting study.
7) Under the business curfew, retain the 2-hour-after closure and limit the after-vacancy to
one hour.
8) Outdoor space above ground floor Section F(4)(B) revised to be consistent to other
curfews in this ordinance.
MOTION PASSED: 6-1, Lythcott-Haims no
The ordinance was updated to reflect the City Council’s direction and is now before the City
Council for a second reading.
ATTACHMENTS
APPROVED BY:
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Ordinance No. _____
Ordinance of the Council of the City of Palo Alto Repealing and Replacing Section
18.40.250 (Lighting) of Chapter 18.40 (General Standards and Exceptions) and
Amending Chapters 18.10, 18.12, 18.28 and Section 18.40.230 of Title 18
(Zoning) of the Palo Alto Municipal Code to Adopt New Outdoor Lighting
Regulations
The Council of the City of Palo Alto ORDAINS as follows:
SECTION 1. Findings and Declarations. The City Council finds and declares as follows:
A. The term “dark sky” generally refers to achievement of significant reduc on in light
pollu on so that the sky returns or becomes closer to its natural nigh me darkness.
B. Adhering to Dark Sky principles, which promote responsible outdoor ligh ng prac ces,
can significantly reduce light pollu on and mi gate its harmful effects. These principles
emphasize using light only if it is needed, direc ng so that it falls only where it is needed,
having ligh ng only when it is necessary and no brighter than necessary, and using
warmer lights.
C. On January 29, 2024, the City Council selected four City Council priori es, one of which
is the Climate Change & Natural Environment – Protec on & Adapta on, and included
an objec ve to “approve a bird safe glass and wildlife light pollu on protec ons
ordinance.”
D. On February 14, 2024, and July 18, 2024, the Architectural Review Board conducted
study sessions and provided feedback on the concepts of the DarkSky regula ons and
dra ordinance.
E. On August 14, 2024, the Planning and Transporta on Commission reviewed the dra
ordinance, provided feedback and recommended that staff return with more
informa on, con nuing the hearing to a date uncertain.
F. On October 30, 2024, the Planning and Transporta on Commission recommended that
City Council adopt the ordinance.
G. The ordinance aligns with Dark Sky principles and is intended to reduce light pollu on at
night, protec ng wildlife and suppor ng a sustainable and resilient community.
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SECTION 2. Section 18.40.250 (Lighting) of Chapter 18.40 (General Standards and
Exceptions) of Title 18 (Zoning) of the Palo Alto Municipal Code is repealed in its entirety and
replaced with a new Section 18.40.250 (Lighting) to read as follows:
18.40.250 Lighting
(a) Purpose. The intent of this section is to establish exterior lighting standards to
reduce light pollution. Exterior lighting of parking areas, pathways, and common open
spaces, including fixtures on building facades and free-standing lighting should aim to:
(1) Reduce light pollution and its adverse effects on the environment, wildlife habitat,
and human health through implementing Dark Sky Principles of responsible outdoor
lighting that are useful, targeted, low level, controlled, and warm colored;
(2) Minimize the visual impacts of lighting on abutting or nearby properties and from
adjacent roadways;
(3) Provide safe and secure access on a site and adjacent pedestrian routes;
(4) Achieve maximum energy efficiency; and
(5) Complement the architectural design of the project.
(b) Definitions. For purposes of this chapter, the following words and phrases are defined as
follows:
(1) “Correlated Color Temperature” or “Color Temperature” means a specification of
the color appearance of the light emitted by a light source, measured in Kelvin (K).
Warmer color temperatures are a lower number, and cooler color temperatures are
a higher number.
(2) “Fully Shielded” means a luminaire constructed and installed in such a manner that
all light emitted, either directly from the lamp or a diffusing element, or indirectly by
reflection or refraction from any part of the luminaire, is projected below the
horizontal plane extending from the bottom of the lamp.
(3) “Glare” means light entering the eye directly from a luminaire or indirectly from
reflective surfaces that causes visual discomfort or reduced visibility to a person.
(4) “Lamp” means, in generic terms, a source light, often called a “bulb” or “tube.”
Examples include incandescent, fluorescent, high-intensity discharge (HID) lamps,
and low-pressure sodium (LPS) lamps, as well as light-emitting diode (LED) modules
and arrays.
(5) “Light pollution” means the material adverse effect of artificial light, including, but
not limited to, glare, light trespass, sky glow, energy waste, compromised safety and
security, and impacts on the nocturnal environment, including light sources that are
left on when they no longer serve a useful function.
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(6) “Lumen” means the common unit of measure used to quantify the amount of visible
light produced by a lamp or emitted from a luminaire (as distinct from “Watt,” a
measure of power consumption).
(7) “Luminaire” means outdoor illuminating devices, lamps, and similar devices,
including solar powered lights, and all parts used to distribute the light and/or
protect the lamp, permanently installed or portable.
(8) “Seasonal ligh ng” means ligh ng installed and operated in connec on with holidays
or tradi ons within the me period specified in Sec on 18.40.250(d)(4). String
ligh ng used outside these periods is not considered seasonal ligh ng and shall be
subject to requirements in Sec on 18.40.250(f)(6).
(9) “String lighting” means light sources connected by free-strung wires or inside of
tubing resulting in several or many points of light.
(c) Applicability. Except as otherwise provided in subsections (d) and (e)(4)(A) below, the
outdoor lighting standards and guidelines set forth in this Section shall apply to the
following projects:
(1) All newly constructed structures and buildings; or
(2) Structures or buildings proposing a Substantial Remodel, as defined in Section
16.14.070; or
(3) New installation of outdoor luminaires, replacement of existing outdoor luminaires,
or modifications to the lighting type or system.
(4) All existing outdoor light fixtures installed prior to the effective date of this
ordinance shall conform to the provisions of this ordinance according to the
compliance schedule set forth in Section 18.40.250(l).
(d) Exemptions.
(1) Full Exemptions. The following are fully exempt:
(A) Lighting for emergency personnel;
(B) Lighting authorized by a special event permit, special or temporary use permit, or
construction permit;
(C) Lighting for Airport Operations. Nothing in this section shall be interpreted to
restrict, limit, or otherwise regulate lighting that, in the reasonable judgment of the
Airport Manager, is prudent or necessary for airport operations, airport safety, or air
navigation in connection with operations at the Palo Alto Municipal Airport;
(D) Lighting for streets, roadways, and public walkways and bikeways.
(E) Lighting for Public Facilities Operations. Nothing in this section shall be interpreted
to restrict, limit, or otherwise regulate lighting that, in the reasonable judgment of
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the City Manager, is prudent or necessary for operations or safety of public facilities
that operate on a 24 hours per day, 7 days a week basis.
(2) Conditional Exemptions. The following are exempt subject to specific conditions:
(A) Illuminated street numbers, subject to Section 18.40.250(g);
(B) Seasonal lighting during the period of October 15 through January 15 of each year,
subject to extinguishment at 12:00 a.m.;
(C) Single family residential sites adjacent to San Francisquito Creek and fronting on
Edgewood Drive, subject to Sections 18.40.250(g) and 18.40.250(e)(4)(A).
(D) Lighting for emergency shelters, subject to PAMC 18.14.060.
(e) Lighting Standards.
(1) Shielding
(A) All outdoor lighting shall be fully shielded and directed to avoid light trespass. No
lighting shall trespass more than 0.1-foot candle as measured at the property
line.
(B) Exceptions for shielding requirements shall be applied to the following types of
lighting:
(i) Low voltage landscape uplighting used to illuminate fountains, shrubbery,
trees, and walkways, outdoor art or public monuments provided that
they use no more than a 10-watt incandescent bulb or LED equivalent or
emit no more than 150 lumens. These luminaires may not direct light
towards the public right-of-way;
(ii) Sidewalk-facing ligh ng for zero lot line developments, provided the
luminaires are motion-activated and automatically extinguish within five
minutes without further activation; or
(iii) String lighting pursuant to Section 18.40.250(f)(5).
(2) Parking Lot Lighting Height.
(A) Exterior lighting fixtures shall be mounted less than or equal to 15 feet from
grade to top of fixture in parking lots in residential development and 20 feet in
parking lots with commercial and mixed-use development.
(3) Illumination Level and Color Temperature
(A) All light sources shall have a correlated color temperature of 2,700 Kelvin or less.
(B) The maximum outdoor light intensity on a site shall not exceed an average value
of 5 foot-candles.
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(4) Lighting Control.
(A) Lighting Curfew. Unlike other provisions in this section, the Lighting Curfew shall
apply to all outdoor luminaires for new and existing buildings and structures,
unless otherwise approved. All outdoor lighting shall be fully extinguished or be
motion sensor operated by 11:00 p.m., two hours after the close of business, or
one hour after when people are no longer present in exterior areas, whichever is
later.
(B) All lighting activated by motion sensor shall be set up to extinguish after no more
than five minutes without further activation.
(C) All lighting shall be automatically extinguished using a control device or system
when there is sufficient daylight available, except for lighting under canopies or
lighting for tunnels, parking garages, or garage entrances.
(D) Exceptions for Lighting Control.
(i) Any lighting at building entrances, parking areas, walkways, and
driveways area;
(ii) Outdoor pathway lights that emit 25 lumens or less; or
(iii) Lighting that illuminates a pedestrian pathway (examples include bollard,
in-place step, or building mounted), provided that such lighting is a
maximum height of four (4) feet above the pathway and fully shielded.
(f) Special Purpose Lighting. The standards in this section shall prevail over any conflicting
standard in subsection (e).
(1) Low Density Residential Lighting. In addition to the lighting standards in the section, the
following lighting requirements shall be applicable to projects in R-1, R-2, RE, RMD, NV-
R1, or NV-R2.
(F) When abutting any residential use, no spillover of lighting to adjacent properties
shall be allowed.
(G) A maximum of 1,260 lumens shall be allowed for each fully shielded outdoor
lighting. No more than 420 lumens shall be allowed for permitted non-shielded
outdoor lighting.
(H) Skylights shall limit illuminance and glare during night hours. Glare shall be mitigated
through the use of translucent glass, shading systems, and interior light placement.
Skylights shall not use white glass.
(I) Height for Recreational and Security Lighting. Free-standing lighting shall be a
maximum of twelve feet (12’) in height for those that were installed on or after
March 11, 1991.
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(2) Athletic Facilities Lighting. Outdoor athletic facilities shall conform to the following
standards:
(A) Field lighting is provided exclusively for illumination of the surface of play and
viewing stands, and adjacent proximity areas for public safety.
(B) Illumination levels shall be adjustable based on the task (e.g., active play vs. field
maintenance).
(C) Off-site impacts of the lighting will be limited to the greatest practical extent
possible.
(D) Lights shall be extinguished by 10:30 p.m. except when the facilities are being used
for active play and maintenance before or after permitted events, and the lights are
equipped with a timer.
(E) Timers that automatically extinguish lights shall be installed to prevent lights being
left on accidentally overnight.
(3) Automobile Service Station Lighting
(A) Lighting fixtures in the ceiling of canopies shall be fully recessed or mounted directly
to the underside of the canopy. All luminaires shall be located so that no lighting is
directed towards the adjoining property or public rights-of-way.
(B) Luminaires are not permitted on top of the canopy fascia.
(C) The maximum light intensity under the canopy shall not exceed an average foot-
candle of 12.5, when measured at finished grade.
(D) No free-standing lighting shall be higher than 15 feet above finished grade.
(E) The canopy fascia shall not be illuminated.
(4) Outdoor Space Above Ground Floor. These requirements apply to all outdoor spaces
located above ground level, including, but not limited to, roo op gardens, roo op
restaurants or bars, balconies, and decks.
(A) Any lighting shall be shielded from public views and any luminaires shall be fully
shielded and no uplighting shall be permitted.
(B) Lights shall be dimmable to control glare and placed on timers to turn off after 11:00
p.m. or as permitted pursuant to Section 18.40.250(e)(4)(A)
(C) No light trespass shall be allowed more than 0.1 foot-candle as measured beyond
the perimeter of the roof deck or other outdoor space above the ground floor.
(5) String Lighting.
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(A) String lighting color temperature shall not exceed 2,700 Kelvin and no individual
lamp that is part of a string lighting installation shall exceed a rating of 42 lumens.
No string lighting shall be blinking, flashing, or chasing.
(B) For commercial and mixed-use areas, string lighting shall be limited to designated
outside dining or display areas or common open space (i.e. courtyard or patio).
(6) Parklets. Lighting for any parklets shall comply with the lighting standards
established in the Permanent Parklet Program.
(g) Prohibited Lighting. The following types of lighting are prohibited except when used by
emergency service personnel during an emergency:
(1) Outdoor lighting that blinks, flashes, or rotates; or
(2) Searchlights, aerial lasers, or spotlights.
(h) Lighting for Signs. See Chapter 16.20 for lighting requirements for signs.
(i) Additional Provisions and Conflict Precedence. Lighting required by the Building Code, Fire
Code, or state or federal law shall additionally comply with the requirements of this section,
unless these requirements necessarily conflict with the aforementioned Codes and laws. In
the event of a conflict, the standards in the applicable Codes and laws shall prevail.
(j) Hardship Exceptions. The Director may grant an exception from the requirements in Section
18.40.250, if a project applicant provides evidence demonstrating one of the following
hardships:
(1) Implementation of the lighting requirements in this ordinance would impair the
historical integrity and character-defining features of the building and create an adverse
impact to the building’s historical, architectural, and cultural significance; or
(2) Implementation of the lighting requirements in this ordinance would more than double
the cost of the project. This exception shall apply only for replacement of existing
outdoor luminaires or changing the lighting type or system that requires a building
permit.
(k) Public Facilities. Unless exempt under Section 18.40.250(d), Public Facilities, including City-
owned and operated facilities, shall comply with the outdoor lighting standards of this
Section to the extent feasible. The Director may grant adjustments to any applicable lighting
standards for such facilities if the adjustment is necessary for the efficient operation,
maintenance, or safety of the facility, or to ensure public safety and security; and is
consistent with the overall intent and purpose of this Section. A written request for an
adjustment, including supporting documentation, shall be submitted and shall be reviewed
according to the applicable review procedures in PAMC Section 18.77 associated with the
proposed development.
(l) Existing Nonconforming Lighting. Within one year of [the effective date of this ordinance]:
Where existing outdoor luminaires have the ability to adjust (through existing dimmers,
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directional adjustability, timers, etc.), the requirements under Section 18.40.140(e), except
for the shielding requirements under the subsection 18.40.140(e)(1), shall apply.
SECTION 3. Subsection (e) of Section 18.40.230 (Rooftop Gardens) of Chapter 18.40
(General Standards and Exceptions) of Title 18 (Zoning) of the Palo Alto Municipal Code is
amended to read as follows (additions underlined; deletions struck-through):
(e) Any lighting shall be shielded from public views and have full cutoff fixtures that cast
downward-facing light, or consist of low-level string lights; no up-lighting is permitted. Lights
shall be dimmable to control glare and placed on timers to turn off after 10:00 p.m.
Photometric diagrams must be submitted by the applicant to ensure there are no spillover
impacts into windows or openings of adjacent properties.For lighting requirements, refer to
Section 18.40.250.
SECTION 4. Subsection (g) of Section 18.10.040 (Development Standards) of Chapter
18.10 (Low Density Residential (RE, R-2 and RMD) Districts) of Title 18 (Zoning) of the Palo Alto
Municipal Code is amended to read as follows (additions underlined; deletions struck-through):
(g) Lighting in R-2 District
In the R-2 district, recreational and security lighting shall be permitted only so long as the
lighting is shielded so that the direct light does not extend beyond the property where it is
located. Free- standing recreational and security lighting installed on or later than March 11,
1991, shall be restricted to twelve feet (12') in height. For lighting requirements, refer to
Section 18.40.250.
SECTION 5. Subsection (k) of Section 18.12.040 (Site Development Standards) of
Chapter 18.12 (R-1 Single-Family Residential District) of Title 18 (Zoning) of the Palo Alto
Municipal Code is amended to read as follows (additions underlined; deletions struck-through):
(k) Lighting
Recreational and security lighting shall be permitted only so long as the lighting is shielded so
that the direct light does not extend beyond the property where it is located. Free-standing
recreational and security lighting installed on or later than March 11, 1991 shall be restricted to
twelve feet (12') in height. Direct light from outdoor fixtures shall only fall on the walls, eaves,
and yard areas of the site on which it is located. Outdoor fixtures shall have lens covers or
reflectors that direct the light away from the neighboring properties. For lighting requirements,
refer to Section 18.40.250.
SECTION 6. Subsection (n) of Section 18.28.270 (Additional OS District Regulations) of
Chapter 18.28 (Special Purpose Districts) of Title 18 (Zoning) of the Palo Alto Municipal Code is
amended to read as follows (additions underlined; deletions struck-through):
(n) Light and Glare
Exterior lighting should be low-intensity and shielded from view so it is not directly visible
from off-site. The light emitted from skylights shall be minimal during the night hours. Utilizing
treatments such as translucent glass, shading systems, and interior light placement can reduce
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the night glare. Skylights shall not use white glass. For lighting requirements, refer to Section
18.40.250.
SECTION 7. If any section, subsection, clause or phrase of this Ordinance is for any
reason held to be invalid, such decision shall not affect the validity of the remaining portion or
sections of the Ordinance. The Council hereby declares that it should have adopted the
Ordinance and each section, subsection, sentence, clause or phrase thereof irrespective of the
fact that any one or more sections, subsections, sentences, clauses or phrases be declared
invalid.
SECTION 8. The Council finds that this project is exempt from the provisions of the
California Environmental Quality Act (“CEQA”), pursuant to Section 15061 of the CEQA
Guidelines, because it can be seen with certainty that there is no possibility that the ordinance
will have a significant effect on the environment and Section 15308, as an action by a
regulatory agency to protect the environment.
SECTION 9. This ordinance shall be effective on the thirty-first day following its
adoption.
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SECTION 10. This Ordinance shall not apply to any project application deemed
complete prior to the effective date of this Ordinance.
INTRODUCED:
PASSED:
AYES:
NOES:
ABSENT:
ABSTENTIONS:
NOT PARTICIPATING:
ATTEST:
____________________________ ____________________________
City Clerk Mayor
APPROVED AS TO FORM: APPROVED:
____________________________ ____________________________
Assistant City Attorney City Manager
____________________________
Director of Planning & Development
Services