Guidance Note

CONTROLLING LIGHT POLLUTION AND

REDUCING LIGHTING ENERGY CONSUMPTION

© Crown copyright 2007

RR Donnelley 3/07

w w w . s c o t l a n d . g o v . u k
 Guidance Note
CONTROLLING LIGHT POLLUTION AND
REDUCING LIGHTING ENERGY CONSUMPTION

March 2007
 © Crown copyright 2007

Scottish Executive
St Andrew’s House
Edinburgh
EH1 3DG

Produced for the Scottish Executive by RR Donnelley B50120 03/07

Published by the Scottish Executive, March, 2007

Further copies are available from

Blackwell’s Bookshop
53 South Bridge
Edinburgh
EH1 1YS

100% of this document is printed on recycled paper and is 100% recyclable

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 Guidance Note

CONTROLLING LIGHT POLLUTION AND

REDUCING LIGHTING ENERGY CONSUMPTION

CONTENTS

INTRODUCTION 2
BACKGROUND TO GUIDANCE NOTE 2
COLLABORATIVE WORKING BETWEEN ORGANISATIONS 2
OBTRUSIVE LIGHT AND ENERGY EFFICIENCY 2
APPLICABLE LIGHTING SITUATIONS 3
PURPOSE OF GUIDANCE NOTE 3
APPLICATION OF GUIDANCE NOTE 4
WHAT IS OBTRUSIVE LIGHT? 4
BASIC LIGHTING ENERGY PRINCIPLES 6

REQUIREMENT FOR A LIGHTING POLICY 8

LIGHTING POLICY 8
EXAMPLE OF SHORT LIGHTING POLICY STATEMENT 8

LIGHTING DESIGN PROCESS 10

OPERATIONAL STATEMENT 11

INSTALLATION OF THE LIGHTING DESIGN 12

MEASURES TO MINIMISE USE OF ENERGY 13

CONCLUSION 14

ENQUIRIES 15

GLOSSARY 16

ANNEXES 17
A LIGHTING DESIGN PROCESS 17
B LIGHTING DESIGN CHECK LIST 31
C LIGHTING INSTALLATION CHECK LIST 32

REFERENCES 33

SELECTED BIBLIOGRAPHY 34

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 INTRODUCTION

BACKGROUND TO GUIDANCE NOTE

1. This Guidance Note has been prepared to support the Partnership Agreement1
commitment to reduce light pollution and save energy by specifying appropriate
lighting standards. This Guidance Note is also referenced to in the Lighting
Environmental Protection Regimes Annex of The Scottish Executive’s Planning
Advice Note 51: Planning Environmental Protection and Regulation.2 There are no
specific legislative controls on light pollution, but the Scottish Executive are
considering adding artificial light pollution to the list of Statutory Nuisances under
Part III of the Environmental Protection Act in 2007 when a suitable legislative
vehicle becomes available. This has been done for England and Wales, commencing
April 2006.

COLLABORATIVE WORKING BETWEEN ORGANISATIONS

2. Environmental Protection Regimes operate alongside the land use planning system
which aims to ensure that development takes place in suitable locations and is
sustainable, while also providing protection from inappropriate development.
Planning Advice Note 51 summarises the statutory responsibilities of the
environmental protection bodies, as well as informing these bodies about the
planning system. To minimise any overlap or duplication of controls it is essential
that planning authorities and the protection agencies understand each other’s role
and work together so that the controls are applied in a complementary way. This is
important because many environmental protection decisions are based on
quantitative standards whereas planning decisions have to take into account a
much wider range of material considerations and the weight to be accorded them. It
has been documented in the Institution of Lighting Engineer’s 2006 Annual
Conference that close working between planners and local authority lighting
engineers is having an impact in reducing the amount of light pollution. It is
recommended that collaborative working takes place between the relevant local and
central government organisations responsible for lighting, planning and
environmental issues.

OBTRUSIVE LIGHT AND ENERGY EFFICIENCY

3. Light in itself is not a pollutant and in the context of this document the term
Obtrusive Light has been used throughout. Obtrusive lighting installations have a
negative impact on the appearance of the night-time environment and can lead to
complaints about the quality of their installation. In recent years there have been
concerted campaigns, led mainly by the Campaign for Dark Skies to reduce the level
of Light Pollution that can be seen above all our major cities. The application of the
recommendations in this Guidance Note, along with the use of modern lighting units
can help reduce this light obtrusion into our night skies.

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CONTROLLING LIGHT POLLUTION AND

REDUCING LIGHTING ENERGY CONSUMPTION

4. Poor lighting designs can result in a waste of valuable energy which is at odds with
the Scottish Executive’s climate change policy3 of reducing the country’s overall
energy usage. It is therefore essential that lighting installations are both efficient in
their application and in their use of energy. This Guidance Note is intended to
encourage developers, architects and lighting designers to consistently provide non
obtrusive and energy efficient lighting designs.

5. Well designed lighting installations can provide very positive benefits to

communities through the reduction in the perceived risk of crime, the enhancement
of general public safety and generally adds to the feeling of well-being of a
community through the positive message that well maintained lit areas provide.
However the converse is equally true and care should be taken in the design of new
and refurbished lighting installations to maximise the aforementioned benefits from
good design practice.

6. Obtrusive Lighting is presently not classed as a Statutory Nuisance in Scotland,

although in England and Wales it now can be. There are plans however to add light
pollution to the statutory nuisance regime in Scotland in the near future, which
should be taken into account when considering the guidance on Applicable Lighting
Situations referred to in paragraph 7.

APPLICABLE LIGHTING SITUATIONS

7. This Guidance Note relates to all exterior lighting situations no matter the size or
location of the lighting project or whether it is a stand alone project or part of an
overall development. Potential developments and lighting situations include but are
not limited to:
N Industrial Developments
N Retail Developments
N Housing Developments
N Transport Interchanges
N Roads and footpaths (either stand alone or as part of an overall development)
N Exterior Sports Grounds and Arenas
N Feature Lighting for Civic Enhancement, including both man made structures
and naturally occurring ones
N Illuminated Advertisements
N Refurbishment of existing lighting installations, both large and small

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 PURPOSE OF GUIDANCE NOTE
8. This Guidance Note provides guidance on the factors that require to be considered
and the actions to be undertaken to ensure that non obtrusive and energy efficient
exterior lighting installations are provided and operated throughout Scotland.
9. The Guidance Note is not intended to provide detailed guidance relating to the
design, installation or operation of any particular lighting situation, but to provide
general guidance that should be followed by developers, architects, lighting
designers and those involved in the design, delivery and operation of lighting
infrastructures whether as stand-alone projects or as part of an overall
development. Recommendations are also included for local authorities with respect
to developing a lighting policy and inclusion of self certified documents
recommended in this Guidance Note with the consent management process.

10. This document is not intended to cover the problems associated with poorly
installed domestic security lighting which is covered as part of a document
published by the Department for Environment, Food and Rural Affairs.4

APPLICATION OF GUIDANCE NOTE

11. Developers, architects, lighting designers and lighting installation contractors
should apply the guidance provided within this document. It is essential that
developers, architects and lighting designers ensure that the lighting design
process, operational statement and installation records to record compliance are
prepared for provision to each local authority in accordance with their relevant
consent management process. Local authorities staff have a central coordinating
role in having this Guidance Note adopted as part of the overall design process.

WHAT IS OBTRUSIVE LIGHT?

12. There are five effects associated with obtrusive light and these are as described in
paragraphs 13 through to 17.

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CONTROLLING LIGHT POLLUTION AND

REDUCING LIGHTING ENERGY CONSUMPTION

13. Sky Glow, can occur in two different forms:

Sky Luminance Site Aura

Sky Luminance occurs when direct upward light reacts with and is diffused through
clouds, mists, and airborne particles that exist in the atmosphere. The area and
brightness of the resultant sky luminance is entirely dependent upon the presence
and quantity of these various diffusing elements and the level of upward light being
distributed from the luminaire.

Site Aura occurs in the same way as sky luminance but is related to those lighting
effects caused by indirect light reflection local to the lighting installation and is
normally restricted to a dome of light issued upwards from the locality of the surface
being illuminated.

14. Light Presence

Where light emitted from a light source or that projected on to an area or building,
can be viewed from outside the area it was provided for, and causes minimal visual
discomfort but fails to reach an intrusive level, then this is termed “light presence”.
This light presence may draw attention to the existence of a lighting installation, or
structure that was previously inconspicuous by day.

Light Presence

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 Glare Intrusion

15. Glare
This is perhaps the most serious form of obtrusive light and can cause a general
visual discomfort, which can seriously impair vision with poorly designed lighting
installations. The impact of glare is dependent upon the quantities and directional
nature of the glare source, the physiological status and age of the person affected,
the general nature of the area in which the glare effects occur, and the surrounding
levels of ambient lighting.

16. Intrusion
Light trespassing into an area beyond the intended illuminated subject areas, such
as into adjacent residential properties. Light intrusion may be the result of a single
source or multiple light sources acting together, none of which need be a source of
glare. The same measured value of light intrusion is likely to be less of a problem in
a well lit urban area than in a previously unlit rural situation.

17. Flicker
The periodic, often deliberate, flickering of light used for advertising and attraction-
seeking purposes can prove to be distracting and like glare, promote degrees of
irritation, annoyance and distress. The rate of flicker and the duration of exposure
can cause over-stimulation of electrical activity to the human brain. Over exposure
to and excessive stimulation by flicker and similar lighting such as strobe lighting
has been known to induce attacks in people who suffer with epilepsy or migraine.

BASIC LIGHTING ENERGY PRINCIPLES

18. The unit into which the lamp is fitted is called a luminaire and all luminaires are
required to comply with the relevant European standards. However, in terms of light
distribution there can be a wide variance in the light distribution characteristics of
differing luminaires and this is an important factor in delivering the required lighting
performance and subsequently its energy efficiency: All luminaires used in any
lighting scheme should be of a consistent type throughout.

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REDUCING LIGHTING ENERGY CONSUMPTION

19. In general, the closer the light appearance is to white light then the greater is the
energy required to provide the same light output (lumen). However, the whiter the
light the greater the visual recognition, and this can result in lower quantities of light
being necessary to provide the same task illumination.

20. Although not directly associated with this Guidance Note it is important that health
and safety matters are considered for all installations, particular the maintainability
of the lighting installation.

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 REQUIREMENT FOR A LIGHTING POLICY

LIGHTING POLICY
21. To assist developers, architects, lighting designers and local authority staff in
applying a consistent approach to the provision of lighting it is recommended that
local authorities document their lighting policy. This policy can be a short statement
embracing the principles of this Guidance Note or a more detailed document that in
addition to embracing the principles of this Guidance Note provides further details
about the Local Authority’s Lighting Policy.

22. Where a local authority already has a documented lighting policy the policy should
be modified to make reference to this Guidance Note.

23. The Lighting Policy or parts thereof should be referred to or included within relevant
local authority public documents.

24. Further guidance about the development of a lighting policy is detailed in the
Institution of Lighting Engineers publication - TR24 “A practical guide to the
development of a public lighting policy for Local Authorities” (1999),5 the previously
mentioned document published by the Department for Environment, Food and Rural
Affairs4 and the UK Roads Liaison Group document “Well-lit Highways”.6

EXAMPLE OF SHORT LIGHTING POLICY STATEMENT

25. Where a local authority does not have a formal lighting policy then the following
bullet points provide a basic lighting policy statement that can be readily applied.
N The lighting design shall comply with the lighting levels, uniformity and other
parameters of current and relevant lighting standards and higher than
recommended lighting levels should be avoided.
N In addition to selecting suitable lighting quality objectives that comply with
current standards the lighting appearance shall be commensurate with the
ambient luminance of the surrounding area. Four environmental zones are now
internationally recognised, see Annex A Stage 7, and the design will require to
show that control of overspill light is limited to the level required by the
particular environmental setting. The local authority may be able to provide
guidance on the selection of an applicable Environmental Zone necessary to
comply with their night-time environmental strategy plan.
N The lighting design should follow the lighting design process described in this
Guidance Note and the relevant information should be recorded and passed,
where requested, to the local authority in accordance with their consent
management process. The information recorded should be of a good standard
to enable the lighting submission proposal to be evaluated. All lighting
proposals should be submitted with a completed Lighting Design Check List as
provided in Annex B.

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N The proposed lighting equipment shall comply with current standards and to
the greatest extent possible, the luminaries and their settings should be
optically set to direct light only to where it is required and to minimise
obtrusive effects and where necessary additional shielding should be
considered.
N The installer of the proposed lighting shall comply with the approved design and
no changes shall be permitted to this design unless the installer submits a
revised lighting design submission proving that the change does not lessen the
light quality objectives achieved by the original approved design. It is the
responsibility of the developer to ensure that the lighting being installed in the
development does not cause obtrusive light.
N To minimise obtrusive light a condition shall be attached to lighting consents
that requires the developer to comply with this Guidance Note.
N The lighting design shall consider measures that ensure that the lighting
installation is resistant to vandalism and can be readily maintained throughout
its intended life.
N In architectural lighting situations the lighting infrastructure shall not detract
from the day-time appearance of the structure and wherever possible shall be
located so that as far as is practicable it is concealed from view.
N Lamps burning during daylight hours are a waste of energy and the public shall
be provided with the necessary information on reporting such faults with Local
Authority owned lighting.
N To minimise the spares holding of the Local Authority the designer may be
required to select lighting equipment from a Local Authority approved range of
lighting materials.
N Where possible, consideration should be given to switching off lighting when it
is not required and the developer should prepare a Lighting Operational
Statement as recommended within this Guidance Note.

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 LIGHTING DESIGN PROCESS

26. To develop a design that considers the overall night-time environment it is essential
that the lighting designer follows a common design process. This design process
should be followed for all lighting designs and the outputs readily available for the
local authority to evaluate the lighting design. The lighting design process that
should be followed by the lighting designer is contained in Annex A and a Lighting
Design Check List is contained in Annex B and these should be available with the
consent submission.

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OPERATIONAL STATEMENT

27. The consent submission should contain an operational statement that details how
the lighting installation or how each different lighting situation submitted will be
operated. The purpose of this is to ensure that the developer and the lighting
designer have considered operational regimes that can provide energy savings. For
example in a retail development the operational statement would confirm that the
access road lighting would be group switched from a photocell but that the car park
areas will be switched off/dimmed from an hour after the retail centre closes to an
hour before the retail centre opens. The lighting designer should consider the use of
the car park areas when the retail centre is closed in terms of both retail centre
security and public safety when determining which lighting units should be
switched off/dimmed.

28. The operational statement shall provide details of how the lighting will be maintained
in terms of gaining access to each luminaire. The purpose of this part of the
operational statement is to ensure that the lighting designer has fully considered
the maintenance issues. For example a simple statement could be that all road and
car park luminaries would be maintained from a tower wagon and that footpath
columns would be hinged. The lighting operational statement shall indicate the
proposed lighting maintenance regime required to address circumstances that are
wasteful of energy.

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 INSTALLATION OF THE LIGHTING DESIGN

29. It is important to realise that the overall performance of any lighting installation
depends on both the equipment used and on its correct setting up. Any changes,
substitutions or errors can have a profoundly negative impact on the resulting
lighting installation performance. The designer will produce a scheme using
specified luminaires with a unique distribution, optical settings, lamps, mounting
heights and aiming angles and it is therefore essential that the luminaire used in the
installation complies precisely with the light output characteristics of the luminaire
specified in the original design for the final results to be acceptable. Even
superficially similar luminaires can have markedly different optical performances
and in all situations the luminaire selected by the designer and approved by the
local authority shall be used. Other parameters of the design such as the mounting
height of the luminaire, the spacing between columns and any luminaire tilt or any
luminaire lamp position are equally critical in obtaining the design performance
envisaged and if not complied with by the installer they also may have a detrimental
impact on the overall lighting performance.

30. To enable the developer to self certify that the lighting installation complies with the
lighting design the developer shall require the installer to complete a Lighting
Installation Check List as included within Annex C.

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MEASURES TO MINIMISE USE OF ENERGY

31. It is clearly important that the lighting designer considers the overall energy
requirements of the installation in the final design. In addition to ensuring that the
design limits obtrusive light and complies with the appropriate lighting design
standards, it is important that the lighting designer should consider the electrical
distribution design to take into account operational requirements and ensure the
utilisation of energy efficient equipment.
A number of energy efficiency measures are listed below.
N Full consideration and preparation of the Operational Statement.
N Ensure that modern and energy efficient luminaires are used throughout.
N Ensure the use of luminaires that distribute light efficiently and that the correct
optic and lamp positions are selected and adhered to for the required design.
N Electronic lamp control equipment can provide more energy efficient
installations than that provided by standard wire wound ballast units.
N Ensuring that the specified capacitor is used to maximise power factor
correction.
N An electrical design that allows sections of lighting not operationally required to
be switched off or dimmed.
N The use of energy efficient LED light sources should be considered where
possible.
N Further energy saving measures are detailed on both the UK Road Lighting
Board and the Institution of Lighting Engineers websites.

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 CONCLUSION

32. Minimising obtrusive light and reducing lighting energy usage are important
environmental factors and compliance with this Guidance Note should result in the
provision of a lighting design that minimises both obtrusive light and reduces the
energy required to provide the necessary level of lighting for any installation. The
key responsibility lies with those designing any lighting to ensure that obtrusive
light is not caused by their lighting design. The developer also has the responsibility
that the lighting installer installs what is detailed in design. As concluded in PAN 51
it is the responsibility of planning authorities and the environmental protection
bodies to collaborate in the task of protecting the environment, and to apply controls
so that duplication is minimised and overlap is avoided whenever possible.

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ENQUIRIES

33. General Enquiries about this Guidance Note and requests for further copies should
be addressed to Scottish Executive, Enterprise Transport and Life Long Learning,
Transport Group Bus, Freight and Roads, Area 2-F, Victoria Quay, Edinburgh EH6 6QQ
or by contacting telephone number 0131 244 0848.

34. Technical enquiries about this document should be addressed to Transport

Scotland, Buchanan House 58 Port Dundas Road, Glasgow G4 0HF or by contacting
telephone number 0141 272 7380.

35. A copy of this Guidance Note is also available on The Scottish Executive website at
www.scotland.gov.uk.

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 GLOSSARY

36. Lighting Units and Terms

lumen A unit of light (luminous flux) emitted from a point source of one
candela intensity, usually expressed in kilolumens - (kLm).
candela A unit of luminous intensity radiated in a particular direction.
illuminance The quantity of luminous flux incident upon a unit area,
expressed as lumens per square metre or lux.
luminance The luminous intensity (or brightness) of a surface or source
expressed in terms of surface area, i.e. candelas per square metre.
reflectance The reflection factor (or index) of a surface or material.
inter-reflection The result of various reflections.

efficacy In lighting terms - the value of light obtained per unit of electrical
energy input, i.e. lumens per watt.
wattage The nominal load rating of a lamp (excludes any allowances for
associated operating gear losses).
luminaire The total package of lantern, lamp and all associated integral
items of operating control gear.
projector A special luminaire designed to provide a concentrated pattern of
light.
skylight The variable brightness value of daytime sky caused by sunlight
scattered by particles of dust and vapour in the earth’s
atmosphere (skylight can reach values in excess of 2000
candelas per square metre).
moonlight The luminous flux emitted by the moon received at the earth’s
surface at an average value of between 0.2 and 0.4 lux (a rural
surface under moonlight conditions will have an average
brightness of about 0.002 candelas per square metre i.e. 1/500
cd/m2).
sky glow The variable brightness value of night-time sky caused by
upward components of light from direct and inter-reflected light
off the earth’s surface (the brightness of sky glow is dependent
on the amount of upward light and the presence and density of
atmospheric particles and their distance above ground level).
aura The hemisphere of light rising up from ground level encircling a
light source or lighting array caused by low level mist and fog
particles.

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 Guidance Note

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ANNEX A – LIGHTING DESIGN PROCESS

Introduction to the Lighting Design Process

Applications for external lighting installations are often presented to local authorities in formats that
make it difficult to appraise the overall lighting design, both visually and technically.

To improve the quality of both the design and of the information provided with the application a
structured lighting design process should always be employed. When employing this design process
detailed consideration should be taken to ensure that obtrusive light is minimised and that measures
are taken to minimise the use of electrical energy. The lighting design process detailed in Table A1 can
be employed for both large and small scale lighting designs. The stages in this process indicated as
essential, are those that should be undertaken as the absolute minimum in order to achieve a compliant
lighting design and provide the documentation essential for the submission assessment. By following
this design process the lighting designer is encouraged to appraise any potentially negative effects of
obtrusive light in conjunction during the development of the lighting design. This is in preference to the
appraisal being carried out as a discrete study after the design has been finalised when it is often too
late to make any alterations.

The lighting design process draws on technical information explained in other publications listed in the
Bibliography and the stages of the design process form the index to this Annex. The design process
follows the chronological order usual to a lighting designer’s design stage methodology plan. Generally
within each stage there is an explanation of the importance for the inclusion of each stage in the
lighting design process and details of the lighting designers action and output required.

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 TABLE A1 LIGHTING DESIGN PROCESS

Stage Requirement Stage Name

1 Essential Statement of Client Needs/Operational Statement

2 Essential Site Survey

3 Essential Critical Viewpoints

4 Desirable Existing Lighting Conditions

5 Desirable Baseline Conditions

6 Essential Task Analysis

7 Essential Establishment Environmental Setting

8 Essential Lighting Design Objectives

9 Desirable Lighting Design Methodology

10 Essential Calculated Predictions

11 Essential Obtrusive Light Calculation

12 Essential Comparing Design with Baseline Values

13 Desirable Designer’s Critique

14 Desirable Viewpoint Visualisation

15 Desirable Virtual Walkthrough

16 Desirable Surface Colour Schedule

17 Essential Luminaire Schedule

18 Essential Energy Usage

19 Essential Schedule of Luminaire Profiles

20 Essential Layout Plan

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STAGE 1 - STATEMENT OF CLIENT NEEDS/OPERATIONAL STATEMENT

(ESSENTIAL)
As part of this design process the lighting designer should establish and document
the precise design requirements along with any local design constraints and to the
greatest extent possible confirm the developer’s overall lighting requirements. As
part of this process the lighting designer should consider all the information
required to prepare the operational statement described in paragraphs 27 and 28 of
this Guidance Note. Any general lighting policy requirements of the local authority
should also be determined at this stage and if necessary a preliminary submission
should be made if the lighting project is large, or of an unusual nature or associated
with a listed building or conservation area. Other affected external parties and
special interest groups should be consulted at this stage.

The output of this process should list any issues that require to be addressed by the
lighting design and by the operational statement. An operational statement should
be provided with the submission.

STAGE 2 - SITE SURVEY (ESSENTIAL)

It is not unknown for a lighting design, for reasons of economy, to be conducted
without the lighting designer ever having visited the development site. Even with a
site survey it is not always possible to immediately identify all the potential lighting
problems of an installation. Failure to carry out a site survey can create serious
deficiencies in the lighting designer’s overall understanding of the lighting
environment and of what property and land will be impacted on by the proposed
lighting installation. This lack of a site survey may place a risk on the designer with
respect to the Construction Design and Management (CDM) obligations and to other
health and safety legislation duties.

The site survey is the starting point for a baseline study from which various visual
and technical elements may be identified. This survey should include the location
and identification of all existing lighting equipment in the area, in terms of
equipment type and their wattages. This information is required to complete the
requirements of Stages 3, 4 and 5. Additionally the survey should record site access
restrictions which could have an effect or constraint on the intended lighting design
and on the subsequent maintenance of the lighting equipment.

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 STAGE 3 - CRITICAL VIEWPOINTS (ESSENTIAL)
All new lighting installations will be overlooked by various parties and it is therefore
essential that the lighting designer selects and considers the relevant viewpoints of
these parties. When the lighting statement is carried out in conjunction with a
landscape impact assessment then it is important to maintain the same critical
landscape viewpoints from where the magnitude of the day-time visual impact of the
new development will be quantified in non technical terms. By following the process
in Stage 11 the lighting designer can quantify the visual aspects of the lighting in
terms of the four or five measured or calculated light control values. However,
luminaire orientation can sometimes provide different night-time visual priorities to
those produced by day-time visual aesthetic techniques and it may be necessary to
identify additional viewpoints or alternative installation options to address these
night-time sensitive locations.

Residential properties close to new developments should always form the most
important viewpoint and there are recommended illuminance levels on the night-time
light levels that impinge on these properties. However, distant viewpoints, with a clear
view of the development may require the need for glare limiting measures. It is often the
magnitude of this light intensity, which provides the major source of complaint. If there
is only one critical viewing direction then the lighting designer can use this to direct light
away from the affected observer but not to the detriment of other viewpoints.

From each critical viewpoint the importance of each of the 5 light limitation values,
viz. overspill; sky glow; light into bedroom windows; line of sight (source) intensity
and overall building brightness, will vary relative to each of the different viewpoints
and human interest. The inclusion of a Table of Importance in the lighting design
submission, example shown in Table 3.1 below, will demonstrate the designers
approach to visual risk analysis.

TABLE 3.1 EXAMPLE TABLE OF IMPORTANCE

Viewpoint at Overspill Sky Glow Light into Source Building
Windows Intensity Luminance

Location 1 Medium Low High High Medium

Location 2 High Low Low High Low

Location 3 High High Nil High Low

Location 4 High High Nil High Nil

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STAGE 4 - EXISTING LIGHTING CONDITIONS

The assessment or measurement of existing lighting conditions has to consider both
the lighting situation immediately adjacent to the application site and the general
ambient luminance of the local area.
Existing Lighting Situation
Some light limitation values are based on maximum permissible limits. Lighting
effects are accumulative and if an adjacent residential window illuminance has
already reached its maximum recommended limiting value, then the new
development should show that it has been designed to provide for a zero increase in
illumination on that property. It is therefore inappropriate in an application to merely
state that the limit will not be exceeded without stating the existing baseline criteria.
The lighting designer should assume that there is no record kept of existing
illuminance values and undertake the design relative to site measured or calculated
levels.
Existing Ambient Luminance
Unless the local authority has produced a night-time environmental strategy plan it
is necessary for the lighting designer to assess the existing ambient luminance
condition of the area (see Stage 7) so that the control of stray light from the new
design can be shown to be commensurate with and not exceeding existing
conditions.

STAGE 5 - BASELINE CONDITIONS

To support the requirement of Stage 4 a baseline table showing calculated or
measured values at defined locations should be prepared. If there is no existing
lighting in the area prior to the new development being implemented there is no
need to establish the baseline measurements.

When measurements, or calculations, are undertaken, values of illuminance should

show whether they have been measured horizontally or vertically, providing their
height from ground level.

STAGE 6 - TASK ANALYSIS (ESSENTIAL)

Most tasks have a particular lighting quality objective published as a recommended
value but it is sometimes necessary to compare that task with other similar
operations where there are no specific task recommendations. The essential point
at this stage is to show that the lighting design quality objectives are not
excessively high by comparing the design objectives with other similar task lighting
recommendations.

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 An example of this can be found in the lighting for sports grounds where there are
different lighting levels recommended for the playing of individual games.
Applications often show the average illuminance that the design has achieved
without declaring the playing requirement and thereby possibly using more energy
than is needed.

The submission should clearly state the lighting quality objectives that have been
complied with and the publication from which the lighting quality objectives were
selected as detailed in Stage 8.

STAGE 7 - ESTABLISH ENVIRONMENTAL ZONE (ESSENTIAL)

The lighting designer shall require to determine the relevant environmental zone
either by making reference to the local authority’s lighting policy or by self
assessment. Nationally recognised environmental zones are defined as follows,
together with typical topographical areas:
E1: Intrinsically dark Areas National Scenic Areas
E2: Areas of low district brightness Rural or small village locations
E3: Areas of medium district brightness Urban or small town locations
E4: Areas of high district brightness Large town or city centre with high levels of night
time activity

The lighting designer should clearly indicate which zone has been selected together
with the justification for selecting that zone.

STAGE 8 - LIGHTING DESIGN OBJECTIVES (ESSENTIAL)

This should take the form of a short section where the designer creates a technical
picture of the predicted “lighting technical parameters” which the development will
be designed to achieve. The lighting quality will be described in terms of illuminance
(volume) and sometimes luminance (brightness) and should be compared with a
professionally published recommended lighting quality objective.

The lighting designer has access to many sources of published data and should
state the source document(s) from which the data used in his design has been
extracted. A good design will compare lighting quality recommendations with other
publications and equivalent task related recommendations when an exact task fit
has not been found in published data.

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 Guidance Note

CONTROLLING LIGHT POLLUTION AND

REDUCING LIGHTING ENERGY CONSUMPTION

STAGE 9 - LIGHTING DESIGN ITERATIVE METHODOLOGY

There is often more than one method of achieving the same lighting quality
objectives and the lighting designer will often consider these different methods as a
general assessment at the pre-design stage. The various options are often not
considered worthy of documenting and only one option is normally presented in the
application to assist in simplifying the approval stage. However, it is now important
to show alternative considerations where there are electrical energy implications
and this point is reinforced later (see Stage 13 - Designer’s Critique).

For larger projects small areas are sometimes used for trial calculations to
demonstrate typical lighting levels for different options. For each option the designer
should be assessing the likely implications of potentially obtrusive situations. CIE
Report 150:2003 has a section showing a matrix of known pitfalls and the benefits
of different design options as a generalised flowchart.

This iterative process of design and appraisal can identify at an early stage any
perceived weaknesses in the design, preventing the abortive work that could result
should the obtrusive light reduction process be conducted at the end of the design
process. Again the process of change as the design progresses is not often
documented to avoid presenting a perceived weakness in the design methodology
but if this is documented correctly it can show the local authority that external
concerns have been allowed for and how the design has been constrained to
accommodate the concerns.

STAGE 10 - CALCULATED PREDICTIONS (ESSENTIAL)

It is essential that all applications contain details of the light level calculations
showing a horizontal grid of predicted values of not only for the task area but also
for the overspill area beyond the site limits. There are many computer programmes
available which can perform these two simple tasks but only a few have integrated
the processes necessary to calculate potential obtrusive light impact values as
outlined in Stage 11. In order to assist in visual recognition of the task area
horizontal light overspill, relative to surrounding properties, the computer software
should be able to import suitable mapping of the adjacent area and display this in
conjunction with horizontal predictions.

Calculated assessments are normally based on laboratory measured intensity

values radiating at various angles from the luminaire. Each luminaire has a unique
photometric fingerprint of light distribution and calculated predictions are only
correct for the particular luminaire make and type selected for the calculation. As

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 indicated in paragraphs 29 and 30 care should therefore be taken at the installation
checking stage to ensure that the same make and type of luminaire is installed as
that proposed in the original design.

Substitute luminaires cannot therefore be assumed to produce the same fingerprint

and consent should always be conditional on the luminaire type, mounting height,
quantity, lamp type and wattage and luminaire orientation being as used in the
prediction being maintained through to installation.

STAGE 11 - OBTRUSIVE LIGHT CALCULATIONS (ESSENTIAL)

The ILE Guidance notes and the CIE Report 150 provide lighting designers with
national and internationally recognised technical limitations on obtrusive light
levels. The design should therefore be carried out in conjunction with the monitoring
of these calculated limits as an iterative process as the design progresses and not
at its end when it may be too late to influence the final design. However, regardless
of this point in time no application should be accepted which does not clearly outline
the calculated values for all, or at least the first three, of the following items.

A Direct line of sight of the light emitted from luminaires is probably the principal
source of obtrusive lighting complaints as it can produce the offensive glare effect
that is referred to in the Introduction. This is light radiated directly from the
luminaire where the limits quoted by the ILE and CIE relate to intensity values from
individual luminaires when viewed from external view points into the site.

It is normal practice to calculate that the design mitigates the recommended limiting
values, shown in the table below, from the critical viewpoints identified at Stage 3.
Source Intensity E1 E2 E3 E4
Pre Curfew (cd) 2500 7500 10000 25000
Post Curfew (cd) 0 500 1000 2500

B Light intruding in through property windows can be predicted by calculating

values on a vertical grid representing a window, or series of windows. The
recommended limits are additive to what is already being experienced, pre
development. If the pre development limits, shown in the table below, are already
exceeded, the new design will require to show, by calculations, that zero light
intrusion will be provided by the new development.
Intrusion Control E1 E2 E3 E4
Pre Curfew (LUX) 2 5 10 25
Post Curfew (LUX) 1 1 2 5

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 Guidance Note

CONTROLLING LIGHT POLLUTION AND

REDUCING LIGHTING ENERGY CONSUMPTION

Both A and B above are essential elements in proving that the new development
proposal will mitigate the majority of residents’ concerns and in the case where the
development requires the use of all night lighting the more onerous “post curfew”
limiting values should be chosen as the maximum limit.

C The upward light ratio will vary between individual luminaires depending on the
respective tilt angles and light distribution in their intended installed arrangement.
Since the upward light ratio calculation is done for the complete installation the
proposal application should state the individual luminaire elevations against which
the calculation is based. Many quality luminaires produce a 0% upward light ratio at
zero degrees of tilt but will produce an upward light ratio of 2.5% with 10º of tilt.
Some luminaires can produce as much as 50% upward light ratio at tilt angles
greater than 40º and if this was the case then the lighting installation could rightly
be classed as being an obtrusive and inefficient lighting solution.

Sky Glow Control E1 E2 E3 E4

Upward Light Ratio 0% 2.5% 5% 15%

It should be remembered that the purpose of any lighting installation is to illuminate

an area and will normally be projected downwards on to the desired area, be it road
or area lighting. It is how this downward light is managed and its effects mitigated
and controlled that are important: there will always be a degree of reflected upward
light. Although the evaluation covers the direct upward component of light from the
complete installation it does not include the light reflected upwards from the
ground. Neither the ILE nor the CIE have defined or quantified this reflective element
since no two developments have the same ground cover. As a general rule the darker
the building or ground cover surfaces are, the lower the upward reflected component
and conversely the lighter and wetter the building or ground cover then the higher
the upward reflected component will be.

D The effect of glare, as viewed by an external observer, can be controlled by

limiting the viewed intensity as described in A, however, sometimes it is necessary
to carry out a second glare assessment with sports lighting to protect the interests
of spectators and players. This calculation process is additional to that already
carried out in A and is not a substitute evaluation.

E An additional glare evaluation may be required to protect the interest of all

road users, including pedestrians and cyclists. The term Threshold Increment (TI)
has been used in street lighting quality assessment calculations for at least 15

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 years but its use is now being extended to ensure that vehicle drivers are not
subjected to a threshold increment level greater than 15% from non-street lighting
installations situated adjacent to a public highway. Again this is an additional
assessment and is not a substitute for the requirements described in A and should
be carried out as a cumulative process with the existing street lighting provision
included in the calculation.

F Building luminance is normally only carried out for structures, which are
architecturally transformed at night by the application of illuminating techniques.
Different surface textures and colours reflect light in different proportions and any
luminance calculation should include for a schedule of surface colours and
reflection factor characteristics to be assumed in the calculation process.

G The calculation of the combined effects of direct and upward reflected light is
generally unnecessary, and as stated in C, there are currently no national or
international recommended limits on measuring success or failure with a proposed
lighting design. It can, however, be used to good effect to demonstrate a visual
comparison between the old and new lighting installation techniques. It can also be
used to demonstrate the difference in upward reflections where new lighting has
been designed in conjunction with landscaping techniques that soften their effect
by reducing the area allocated to hard landscaping.

STAGE 12 - COMPARING DESIGN WITH BASELINE (ESSENTIAL)

A robust design methodology will carry out those assessments (Stage 11) as part of
an iterative process during the formulation of the design. This iterative process
involves providing trial assessments of the likely outcome of different lighting
arrangements in small trial pockets within very large projects. In this way the
impact assessment, in technically calculated magnitudes, can be formulated as the
overall design progresses.

Since some of the light spill control values are based on cumulative lighting results,
it is important to carry out calculations or take varied measurement assessments of
the existing lighting arrangement to show that the new design overspill does not
impinge or provide excess values when added to the existing arrangement.

Where an existing lighting arrangement has been calculated or measured to be

providing excessively obtrusive light values but does not form part of the new
development it may be judged unfair to over-constrain or penalise the new

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 Guidance Note

CONTROLLING LIGHT POLLUTION AND

REDUCING LIGHTING ENERGY CONSUMPTION

development for a previous generations’ over-lighting techniques. However, it may

be possible to encourage the new development to enlarge the scope of their lighting
assessment to provide alternative arrangements for the existing lighting to reduce
the overall impact when the combined lighting values are found to be over the
obtrusive limit recommendations.

STAGE 13 - DESIGNER’S CRITIQUE

A robust design will have often considered different elements and applications
during the formulation stage, and the application may only have the final version to
approve or reject. In providing a critique the lighting designer can outline some or all
of the lighting options, which have been considered together with the technical
reasons for not progressing with some of these lighting options. This can assist the
local authority in reaching a decision without referring the proposal back to the
lighting designer with the request to try something different.

STAGE 14 - VIEWPOINT VISUALISATION

In addition to the calculations necessary to prove that the design does not produce
obtrusive light towards the critical viewpoints the production of a lit environmental
model can add visual simplicity to what can, for many, be a very complicated and
technical presentation.

There are several visualisation software packages now available, however, the
construction of an electronic model can be an expensive and labour intensive
process and not all projects warrant this additional overhead cost.

STAGE 15 - VIRTUAL WALKTHROUGH

The production of a virtual walkthrough is the “icing on a cake” and can only be
provided as a result of producing an electronic model of the installation as described
in Stage 14. However, its main advantage is that different viewpoints, other than the
critical ones, can be considered and “visualised”.

STAGE 16 - SURFACE COLOUR SCHEDULE

All electronic virtual artwork relies on the construction of electronic model surfaces
and some software produces very lifelike images. Lighting calculation software,
which uses the light distribution fingerprint particular to an individual luminaire
manufacturer’s production model, does not have as wide a range of surface textures
to visualisation software which has no lighting calculation facilities. Lighting
calculation software relies on the designer creating a natural daytime colour match
and a night-time reflection factor to create the model.

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 A general analysis of the electronic model surfaces should be provided in the form of
a schedule containing all the surface colours, in terms of the general colour
description, the red/yellow/blue co-ordinate reference and the light reflection factor
characteristics.

At the application stage this information is not essential to illustrate compliance with
most common light control analysis but it does become important when the
building luminance requires to be analysed. It also becomes important in
demonstrating which version of the colour scheme has been used in the design
calculations, particularly so where building material changes have been made
during the structure design stage.

STAGE 17 - LUMINAIRE SCHEDULE (ESSENTIAL)

The luminaire schedule forms an essential element in both the approval and the
subsequent construction stage of the development. The schedule should contain,
as a minimum, the seven items listed below which determine the luminaire’s
potential performance in terms of the following:-
A Luminaire light distribution type and bowl type (often included in a
manufacturer’s catalogue number).
B Lamp type and wattage.
C Mounting height.
D Orientation direction (between 0º and 359º with 0º relative to a declared
point in the development plan. Some software calculation algorithms use North
and others use East as 0º but all use an anti-clockwise direction as the angle
increases).
E Luminaire tilt (between 0º and 90º and the greater this angle the greater the
potential for producing obtrusive light in the form of viewed intensity and upward
light ratio).
F Lamp position (optic setting).
G Type of control gear.
With some calculation software the orientation and tilt are given as a composite X,Y,Z
co-ordinate relative to the main calculation grid, e.g. on a sports field, and this
sometimes makes it difficult to make a quick visual assessment of the luminaire
orientation and elevation relative to distant property outside the site boundary. Most
software calculation processes have an automatic conversion process and although
the designer may have used an X,Y,Z co-ordinate to accurately aim each floodlight,
relative to the playing surface, the software can automatically convert this

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 Guidance Note

CONTROLLING LIGHT POLLUTION AND

REDUCING LIGHTING ENERGY CONSUMPTION

3-dimensional number into a 2-angle notational representation of the same

positional aim without additional design work. The 2-angle system is easier to
visualise at the application appraisal stage.

STAGE 18 - ENERGY USAGE (ESSENTIAL)

There is currently no government legislation covering the limitations on the
electrical load for external lighting installations, equivalent to that which exists in
Building Regulations for new interior lighting projects. However, there are two values
that can be utilised to indicate the efficiency of a proposed lighting installation.
1. The first and foremost being the electrical load distributed over the area of the
site in watts per square metre. This value is likely to become the key
measurement of the installation efficiency in the same way that the current
Building Regulations attempt to limit the use of less efficient light sources.
2. The second value may be the total lamp lumens per square metre of
development in an attempt to prove that the use of less distribution efficient
luminaires has been mitigated in the design.
Neither of these two methods directly demonstrate obtrusive light mitigation and
should not be used in isolation since their main function is to show an energy
control factor. An example of recent landmark projects results, using luminaires with
high quality light control, are shown in Table 18.1 below. Budget priced luminaires
will often return higher watts per square metre.

Table 18.1 Energy monitor target examples

Road Port Dock Town Square

Average 7.5 lux 25 lux 50.0 lux
Uniformity 0.35 0.3 0.28
Watts/m2 0.2 0.34 1.7

The lighting designer should review the market place to ensure that the most
efficient luminaire, control gear and lamp are employed to minimise the watts/
square metre required to provide the required lighting level.

STAGE 19 - SCHEDULE OF LUMINAIRE PROFILES

On large projects it is often necessary to utilise different types of luminaire to light
specific areas effectively and efficiently, however care should be taken to limit a
proliferation of design types throughout the design.

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 The luminaire schedule should provide pictorial images together with design
reference numbers, manufacturer’s catalogue numbers and a cross reference to the
luminaire schedule prepared as part of Stage 17.

Luminaire manufacturers usually produce composite data sheets for their luminaire
range but this can sometimes be too general to be included in an application and are
not precise enough to itemise exact model and beam distribution proposed for each
luminaire type included in the design.

STAGE 20 - LAYOUT PLAN (ESSENTIAL)

This is the last item of the 20-point design process and is essential for presenting
accurate details of the proposed lighting equipment layout. It is not the only
information that should be provided and it is essential that the layout plan be
submitted along with all other information indicated throughout the design process.
The layout plan is another form of visualisation as far as the application is concerned
and it is important to include details of the surrounding landscape, property and
existing lighting arrangements to assist in creating a more comprehensive picture
that indicates that the developer and lighting designer have considered the baseline
lighting conditions and that the new lighting proposal minimises possible obtrusive
light.

The layout plan should show the new column and luminaire positions together with
a reference number for each location necessary to provide a relationship with the
luminaire schedule described in stage 17 and each luminaire orientation should be
shown by an extended line from the mounting location. The location and details
about all other lighting equipment should be indicated on the layout plan together
with any other details that may be specifically required by each local authority.

SUBMISSION STAGE
When the developer/lighting designer has prepared all essential information as
indicated in the design process the Lighting Design Check List in Annex B should be
completed to indicate what is included in the application submission package. The
number of copies required shall be specific to each local authority.

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ANNEX B – LIGHTING DESIGN CHECK LIST
Lighting Design Stages Required by Provided by Designer / Developer Notes
Local Proposal
Authority Designer
Statement of interested parties’ comments ✓
Survey of surrounding night environment ✓
Identification of critical viewpoints ✓
Establishment and calculation of existing lighting ✓
conditions
Summary of baseline measurements and/or ✓
calculations
Analysis of task lighting level ✓
recommendations
Establishment of environmental light control ✓
limits
Statement of new lighting design quality ✓
objectives
Outline of iterative lighting design methodology ✓
Calculated measurement of task working ✓
area(s)
Overspill area(s) ✓
Obtrusive light calculation of property ✓
intrusion
Viewed source intensities ✓
Nominal glare assessment ✓
Direct upward light ratio ✓
Building luminance ✓
Combined upward illuminance grid ✓
Compare design achievement with baseline ✓
values
Designer’s critique of final design constraints ✓
Viewpoint visualisation ✓
Virtual walkthrough of illuminated site ✓
Schedule of model reflection factors ✓
Schedule of luminaire types, mounting height ✓
and aiming angles
Schedule of energy usage and distribution ✓
Schedule of luminaire profiles ✓
Layout plan with beam orientation indication ✓

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 ANNEX C – LIGHTING INSTALLATION CHECK LIST

Environmental and Local Data

Environmental Zone E1 E2 E3 E4

Local Environs Coastal/Rural/Urban/Residential/Mixed/Industrial/ANOB

Development Type Residential/Industrial/Commercial/Car Park/Sports/Other

General Topography Hilltop/Hillside/Essentially Flat/Valley Side/Valley Floor

Nearest Feature Public Path ...m Traffic Route ...m Road Junction ...m
Railway ...km Navigable Waterway ...km Airport ...km

Equipment Details

Posts/Columns Lamps

Mounting Manufacturer Catalogue Tilt (Degrees) ULR (%) Type Wattage RA Index
Height Reference Max Min at Max’m
(m)

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 Guidance Note

CONTROLLING LIGHT POLLUTION AND

REDUCING LIGHTING ENERGY CONSUMPTION

REFERENCES

1 A Partnership for a Better Scotland: Partnership Agreement

http://www.scotland.gov.uk/Publications/2003/05/17150/21958

2 PLANNING ADVICE NOTE 51: Planning, Environmental Protection and Regulation

http://www.scotland.gov.uk/Resource/Doc/152228/0040973.pdf

3 Changing Our Ways: Scotland's Climate Change Programme

http://www.scotland.gov.uk/Publications/2006/03/30091039/0

4 “Assessment of the Problem of Light Pollution from Security and Decorative Lighting”
http://www.defra.gov.uk/environment/localenv/light/pdf/lightpollution-templereport.pdf

5 Institution of Lighting Engineers publication - TR24 “A practical guide to the development of a public
lighting policy for Local Authorities” (1999) Link to Institution of Lighting Engineers Home Page
http://www.insitiuteoflightingengineers.webserverworld.co.uk/index.php?page=home

6. Roads Liaison Group “Well-lit Highways” http://www.roadscodes.org/

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 SELECTED BIBLIOGRAPHY

The following documents provide related information and guidance on good lighting practice for all
forms of lighting installation.

Title Publisher
[1] Understanding and Dealing with Lighting Consultancy And Design Services Ltd
Obtrusive Light Enterprise House, Courtaulds Way,
3rd Edition 2006 Coventry CV6 5NX
(see details at www.lcads.com)
[2] ILE Guidance notes for the reduction Free download at www.ile.org.uk
of obtrusive light
[3] Guide on the limitation of the Society of Light & Lighting
effects of obtrusive light from CIE Publications
outdoor lighting installations 222 Balham High Road
CIE Report 150:2003 London SW12 9BS
[4] Guidelines for Landscape and Landscape Institute and IEMA
Visual Impact Assessment Spon Press ISBN 0-415-23185-x

[5] Lighting Guide No 4 CIBSE Society of Light & Lighting

Sports + others 222 Balham High Road
e.g. Sports Council,
Lawn Tennis Association
[6] The Outdoor Lighting Guide The Institution of Lighting Engineers
2005 ISBN 0-415-37007-8
[7] Lighting Guide No 6 CIBSE Society of Light & Lighting
The Outdoor Environment 222 Balham High Road
1992 London SW12 9BS

[8] Lighting Guide No 1 CIBSE Society of Light & Lighting

The Industrial Environment 222 Balham High Road
1989 London SW12 9BS

[9] PAN 77 Designing Safer Places The Scottish Executive Publications

ISBN: 0-7559-4982-X
ISSN: 0141-514X
March 2006
[10] PAN 51 Planning, Environmental The Scottish Executive Publications
Protection and Regulation
(Revised 2006)
[11] NPPG 11 Sport, Physical Recreation The Scottish Executive Publications
and Open Space (available from website only)
[12] Assessment of the Problem of Light ODPM March ’06 (Now available from the DEFRA website)
Pollution from Poorly Installed Domestic
and Security Lighting

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 Guidance Note
CONTROLLING LIGHT POLLUTION AND
REDUCING LIGHTING ENERGY CONSUMPTION

© Crown copyright 2007

RR Donnelley 3/07

w w w . s c o t l a n d . g o v . u k