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VII. 2. Review Zoning Standards Related to Electronic Signs
CITY OF HOPKINS Memorandum To: Planning & Zoning Commission From: Jason Lindahl, City Planner Date: December 17, 2019 Subject: Electronic Sign Regulations _____________________________________________________________________ Proposed Action None – this item is for review and discussion only. During the meeting, staff will review the attached sign regulations and memos from the League of Minnesota Cities regarding electronic signs and seek feedback from the Planning & Zoning Commission about potential zoning changes. Attachments • Letter from Zion Lutheran Church – Outdoor Digital Sign Ordinance • City Code Section 570 – Signs • League of Minnesota Cities Memo – Sign Ordinances and the First Amendment • League of Minnesota Cities Memo – Regulating Dynamic Signs Background The City’s sign regulations were last updated in 2005. Prior to this update, a lawsuit was filed against the City of Hopkins challenging the constitutionality of the sign ordinance. The constitutionality issues were primarily related to First Amendment free speech issues (see legal authority below). In that case, the judge issued a preliminary injunction preventing the City from enforcing the sign ordinance. In response, the City Council instituted an emergency interim ordinance preventing the erection of any sign over six square feet for the period of the interim ordinance. In August of 2005, the City Council approved a new, comprehensive, constitutionally sound ordinance regulating the construction, installation and maintenance of signs. This same ordinance remains in effect today. Hopkins regulates signs in three sections of the City Code. Section 570 – Signs (attached) contains the overall sign construction, installation and maintenance regulations for the community. In addition, the City has specific sign regulations for both Downtown and West Mainstreet. These regulations are detailed in Section 556.04 Downtown Overlay District – Signs and Section 557.04 West Mainstreet Overlay District – Signs. Downtown is defined as the area on the south side of First Street North to the north side of First Street South and the west side of 6th Avenue to the east side of 13th Avenue. The West Mainstreet overlay district applies to Mainstreet properties from the west side of 13th Avenue to Shady Oak Road Zoned B-3, General Business. This memo focuses on the City’s electronic sign standards that are included in Section 570 - Signs. Legal Authority Zoning Code amendments are legislative actions in that the City is creating new standards to regulate the development of certain types of uses and/or structures. Under the law, the City has wide flexibility to create standards that will ensure the type of development it desires; however, zoning regulations must be reasonable and supported by a rational basis relating to promoting public health, safety and welfare. Within the category of zoning code amendments, the regulation of signs is unique in that it entails constitutionally protected First Amendment free speech issues. To help inform the Planning & Zoning Commission on these issues, attached please find an information memo from the League of Minnesota Cities titled Sign Ordinances and the First Amendment. This document details First Amendment principles to consider, regulatory provisions to both include and avoid and common issues for cities to consider when updating their sign regulations. It actually cites Hopkins’ sign ordinance as a model for other cities to use when updating their regulations. As a “housing keeping” item, in 2017 City staff asked the City Attorney to review the sign ordinance to determine compliance with constitutional law principles and recent case law. The City Attorney’s legal analysis focused on content neutrality and staff discretion. Generally, it found the current sign ordinance in compliance with the law. As part of that analysis, the City Attorney did offer some recommendations related to abandoned signs and removal of unlawful signs. Staff anticipates addressing these broader issues as part of the overall zoning code update in 2020. Electronic Sign Regulations Electronic signs (also known as dynamic signs) include signs that appear to have movement or change without changing or removing the signs physical components. These signs are allowed in Business and Institutional district provided they do not change more than once every 24 hours. Hopkins’ current sign regulations do not address typical modern elements of electronic signs including text size, mode, brightness and operation. The primary concerns with electronic signs are their potential to distract passing drivers and impact on adjacent properties. In 2007, the League of Minnesota Cities produced a resource memo titled Regulating Dynamic Signs (attached) which summarized the findings of a broader research study on dynamic signs conducted by SRF Consulting for the City of Minnetonka. That memo provides information on the framework, tools and aspect of regulating electronic signs. As part of the Planning & Zoning Commission meeting, staff will review this information and discuss how it could apply in Hopkins. ZION Lutheran …a place to belong Church Randall A. Neal Senior Pastor Howie A. Krienke Assistant Pastor Daniel E. Schultz Associate Pastor Brice Petersen Director of Parish Music Paula Hance Director of Zion Early Childhood Center Bonnie Shelton Office Manager Carol Kline Administrative Assistant Rick Tupa Property Engineer 241 5th Ave. N. Hopkins, MN 55343-7376 952-938-7661 Fax: 952-938-7662 www.zionhopkins.org A congregation of The Lutheran Church- Missouri Synod August 15, 2019 City of Hopkins, Minnesota Jason Lindahl, City Planner 1010 1st St. S Hopkins, MN 55343 RE: Outdoor Digital Sign Ordinance – Hopkins, MN We are requesting consideration for a revision to Hopkin’s outdoor message sign ordinance. It is apparent from driving around the Twin Cities electronic digital signs have become quite common. Our current outdoor digital message sign in front of the church along 5th Ave. N. has been in operation since February 5, 2016. Under the current ordinance we are able to change the sign once per day. We would like to be to change the message more frequently. It appears many/most of the signs throughout the Cities have a message change cycle rate somewhere in the 1-2 minute range. We would like to be able to change the message on our sign at a similar rate. Thank you for your consideration of this request. Rev. Randall Neal, Pastor Eagan – allows changes no more than once per 1 minute Maplewood – each display must be maintained for 2 minutes New Hope – change no more than once every five seconds Redwood Falls – each display must be maintained for 8 seconds HopkinsCityCode (Zoning) 570.00 Replaced8-16-05) Section570 - Signs Preamble: TheCityCouncil findsthatthelackofacomprehensive, constitutionallysoundordinance regulating signs intheCityofHopkins constitutesan emergencythreatening publichealth, safety andwelfarebecause, amongother concerns, (1) signscouldbeerected withoutregardtothe manner inwhichthesizeorlocation ofthesignorsignsinterferes withtrafficsightlines, endangering ordistracting driversandpedestriansalike, therebycausingtraffichazards and; (2) signscould beconstructed inamannerorfromsuchmaterials asarestructurally unsound vulnerable tocollapse, endangering persons orpropertyinthevicinityofthesigns. Thefollowingordinanceisadopted asSection570oftheHopkins CityCode: 570.01Findings, purposeandeffect. Subd. 1. Findings. TheCityCouncilhereby findsas follows: a. Exterior signshaveasubstantial impact onthecharacter andqualityoftheenvironment. b. Signsprovideanimportantmediumthroughwhichindividualsmayconveyavarietyof messages. c. Signscancreatetraffichazards, aesthetic concerns anddetriments topropertyvalues, thereby threateningthepublichealth, safety andwelfare. d. Thecity'szoningregulationshave, sinceasearlyas1966, includedtheregulationof signsinanefforttoprovide adequatemeans of expressionandtopromotetheeconomic viability ofthebusiness community, while protectingtheCityandits citizens froma proliferation ofsignsofatype, size, locationandcharacterthatwouldadversely impact upontheaesthetics ofthecommunity and threatenthehealth, safetyandwelfareofthe community. Theregulationof thephysical characteristics ofsignswithintheCityhashad apositive impactontrafficsafetyandtheappearanceofthecommunity. Subd. 2. Purpose andintent. Itisnotthepurposeorintentofthissignordinance toregulatethe message displayedonanysign; nor isit thepurposeorintentofthisordinancetoregulateany buildingdesign oranydisplay notdefinedasasign, oranysignwhichcannotbeviewedfrom outsideabuilding. Thepurposeandintent ofthisordinanceisto: Section 570 Page1 HopkinsCityCode (Zoning) 570.01 Subd. 2 Replaced8-16-05) a. Regulate thenumber, location, size, type, illumination andotherphysical characteristics ofsignswithinthecityinordertopromote thepublichealth, safetyandwelfare. b. Maintain, enhance andimprovetheaestheticenvironmentofthecityby preventing visualclutterthatisharmfultotheappearanceofthecommunity. c. Improve thevisualappearanceoftheCitywhileproviding foreffective meansof communication, consistent withconstitutional guaranteesandtheCity’sgoals of publicsafetyandaesthetics. d. Provide forfairandconsistent enforcement ofthesignregulationssetforherein under thezoningauthorityoftheCity. Subd. 3. Effect. Asignmaybeerected, mounted, displayedormaintainedinthecityifitisin conformance withtheprovisions ofthis ordinance. Theeffectofthisordinance, asmore specifically setforthherein, isto: a. Allowawidevarietyofsigntypesincommercial zones, andamorelimited variety ofsignsinotherzones, subjecttothestandardssetforthinthissign ordinance. b. Allowcertain small, unobtrusivesignsincidental totheprincipaluseofasitein allzoneswhenincompliance withtherequirements ofthissignordinance. c. Prohibitsignswhose location, size, type, illumination orotherphysical characteristics negatively affecttheenvironmentandwhere thecommunication canbeaccomplished bymeanshaving alesserimpactontheenvironmentand thepublichealth, safetyandwelfare. d. Providefortheenforcementofthe provisions ofthissignordinance. 570.03. Severability. Ifanysection, subsection, sentence, clause, orphrase ofthisSignOrdinanceisforanyreasonheldtobe invalid, suchinvalidity shallnotaffectthevalidity orenforceability oftheremainingportionsofthis SignOrdinance. TheCityCouncilherebydeclares thatitwouldhaveadoptedtheSignOrdinance in each section, subsection, sentence, orphrase thereof, irrespective ofthefactthatanyoneormoresections, subsections, sentences, clauses, orphrases bedeclaredinvalid. Section 570 Page2 HopkinsCityCode (Zoning) 570.05 Subd. 1 Replaced8-16-05) 570.05. DefinitionsSubdivision 1. Thefollowingwords andphrases, whenusedinthisSection570, shall havethefollowingmeanings, unlessthecontextclearlyindicatesotherwise: Subd. 2 “Abandoned sign” - anysignand/oritssupportingsignstructurewhichremainswithouta messageorwhosedisplaysurface remains blankforaperiodofone (1) yearormore, oranysignwhich pertainstoatime, eventorpurpose whichnolongerapplies, shallbedeemedtohavebeenabandoned. Signsapplicabletoabusinesstemporarily suspendedbecause ofachange inownershipormanagement of suchbusinessshall notbedeemedabandonedunless thepropertyremainsvacant foraperiodofone (1) year ormore. Anysignremaining afterdemolitionofaprincipalstructureshallbedeemedtobe abandoned. Signswhicharepresentbecause of beinglegallyestablished nonconformingsignsorsigns whichhaverequiredaconditionalusepermitoravariance shallalsobesubjecttothedefinition of abandoned sign. Subd. 3 “Awning” - aroof-likecover, oftenoffabric, plastic, metalorglassdesignedandintendedfor protection fromtheweatherorasadecorativeembellishment, andwhichprojectsfromawallorroofofa structure primarily overawindow, walk, orthelike. Anypartofanawningwhichalsoprojectsovera doorshallbecounted asanawning. Subd. 4 “Awningsign” - abuilding signorgraphicprinted on orinsomefashionattacheddirectlytothe awning material. Subd. 5 “Balloonsign” - asignconsistingofabagmadeoflightweightmaterialsupportedbyhelium, hot, orpressurized airwhichisgreaterthantwenty-four (24) inches indiameter. Subd. 6 “Buildingsign” - anysignattachedorsupported byanyBuilding. Subd. 7 “Cabinetsign” - anywallsignthatis notofchannel orindividuallymounted letterconstruction. Subd. 8 “Canopy” - aroof-likecover, oftenoffabric, plastic, metal, orglassonasupport, whichprovides shelter overadoorway. Subd. 9 “Canopysign” - anysignthatispartoforattached toacanopy, madeoffabric, plastic, or structuralprotectivecoveroveradoororentrance. Acanopysignisnotamarqueeandisdifferentfrom service areacanopysigns. Section 570 Page3 HopkinsCityCode (Zoning) 570.05 Subd. 10 Replaced8-16-05) Subd. 10 “Changeable copysign” - asignorportionthereofwithcharacters, letters, orillustrations that canbechangedorrearranged without altering thefaceorthesurface ofthesign. Changeable copysigns donotincludesignsuponwhichcharacters, lettersorillustrationschangeorrearrange onlyonceina 24- hourperiod. Subd. 11 “Commercial Speech” – speechadvertising abusiness, profession, commodity, serviceor entertainment. Subd. 12 “Elevation” - theviewoftheside, front, orrearofagivenstructure(s). Subd. 13 “Elevation area” - theareaofallwallsthatfaceanylotline. Subd. 14 “Erect” - activityofconstructing, building, raising, assembling, placing, affixing, attaching, creating, painting, drawing oranyotherwayofbringingintobeingorestablishing. Subd. 15 “Flag” - anyfabricorsimilarlightweightmaterial attachedatoneendofthematerial, usuallyto a stafforpole, soastoallow movementofthematerialbyatmospheric changesandwhichcontains distinctive colors, patterns, symbols, emblems, insignia, or other symbolicdevices. Subd. 16 “Flashingsign” - adirectly orindirectlyilluminatedsignwhichexhibitschanginglightorcolor effect byanymeans, soastoprovideintermittentilluminationwhichincludestheillusionofintermittent flashinglightby means ofanimation. Alsoanymode oflighting whichresembles zooming, twinkling, or sparkling. Subd. 17 “Freestandingsign” - anysignwhichhassupportingframeworkthatisplacedon, oranchored in, thegroundandwhichisindependent fromanybuilding orother structure. Subd. 18 “Grade” - gradeshallbeconstruedtobethefinalgroundelevationafterconstruction. Earth mounding criteriaforlandscapingandscreeningisnotpartofthefinalgradeforsignheightcomputation. Subd. 19 “Groundsign” - anyfreestandingsignwithitssignfacemounted onthegroundormounted ona baseatleastaswide asthesignandwhich hasatotalheightnotexceeding eight (8) feet. Subd. 20 “Height ofsign” - theheightofthesignshallbecomputedastheverticaldistancemeasured fromthebaseofthesignatgradetothetopofthehighestattachedcomponent ofthesign. Section 570 Page4 HopkinsCityCode (Zoning) 570.05 Subd. 21 Replaced8-16-05) Subd. 21 “Illuminatedsign” - anysignwhichcontains anelementdesigned toemanate artificial light internallyorexternally. Subd. 22 “Interiorsign” - asignwhichislocatedwithintheinteriorofanybuilding, orwithinanenclosed lobbyorcourtofanybuilding, andasignforandlocatedwithintheinnerorouterbody, courtorentrance ofanytheater. Subd. 23 “Legallyestablished nonconforming sign” - anysignanditssupportstructurelawfullyerected priortotheeffective dateofthisordinance whichfailstoconform totherequirements ofthisordinance. Asignwhichwas erectedinaccordance withavariancegrantedpriortotheadoptionofthisordinance andwhichdoesnotcomplywiththisordinanceshall bedeemedtobealegalnonconforming sign. Asign whichwasunlawfullyerectedshallbedeemedtobeanillegalsign. Subd. 24 “Marquee” - anypermanentroof-like structureprojecting beyondatheater buildingorextending alongandprojecting beyondthewallofthatbuilding, generallydesignedandconstructedtoprovide protection fromtheweather. Subd. 25 “Marqueesign” - anybuilding signpainted, mounted, constructedorattachedinanymanner, on a marquee. Subd. 26 “Monument sign” - anyfreestanding sign withits signfacemountedonthegroundormounted onabaseatleastaswideasthesignandwhichhasa heightexceeding eight (8) feet. Subd. 27 “Multipletenantsite” - anysitewhichhasmorethanone (1) tenant, andeachtenanthasa separate groundlevelexterior publicentrance. Subd. 28 “Non-commercial speech” – disseminationofmessagesnotclassified asCommercial Speech whichinclude, but arenotlimitedto, messagesconcerningpolitical, religious, social, ideological, public serviceandinformational topics. Subd. 29 “Off-premisesign” – acommercialspeech signwhichdirectstheattentionofthepublictoa business, activityconducted, orproductsoldoroffered atalocationnotonthesamelotwheresuchsign islocated. Forpurposesofthissignordinance, easements andotherappurtenances shallbeconsidered to beoutsidesuchlot andanysignlocatedorproposed tobelocatedinaneasementorotherappurtenance shall beconsidered anoff-premise sign. Section 570 Page5 HopkinsCityCode (Zoning) 570.05 Subd. 30 Replaced8-16-05) Subd. 30 “On-premisemessages” – identify oradvertise anestablishment, person, activity, goods, productsorserviceslocatedonthepremises wherethesignis installed. Subd. 31 “ Owner” – Inthecaseofalot, thelegalownerofthelot asofficiallyrecordedbyHennepin County, andincludingfeeowners, contractfordeedpurchasers andgroundlessees. Inthecaseofasign, theownerofthesignincludinganylessees. Subd. 32 “Polesign” - seePylonSign. Subd. 33 “Portablesign” - anysignwhichismanifestlydesigned tobetransported, includingbytraileror onitsownwheels, eventhoughthewheels ofsuchsignmaybe removed andtheremainingchassis or support isconvertedtoanother signorattachedtemporarilyorpermanently tothegroundsincethis characteristic isbasedonthedesign ofsuchasign. Subd. 34 “Portecochere” - aroofedstructureorroof-likecover, extendingfromtheentranceofabuilding andwhichprovidesshelteroveradoorway. Subd. 35 “Projectingsign” - anysignwhichisaffixedtoabuildingorwallinsuch amannerthatits leadingedgeextends morethantwo (2) feetbeyondthesurfaceorsuchbuilding orwallface. Subd. 36 “Publicnotices” - officialnotices postedbypublicofficers, employees ortheiragentsinthe performance oftheirduties, orasdirectedbysuchofficers, employees oragents. Subd. 37 “PublicStreetRightofWay” - Theentirerightofwayofanypublicstreet. Subd. 38 “Pylonsign” - anyfreestanding signwhichhasitssupportive structure(s) anchored inthe ground andwhichhasasignfaceelevatedabovegroundlevelbypole(s) orbeam(s) andwiththearea belowthesignfaceopen. Subd. 39 “Residentialdistrict” - anydistrict zonedforresidential uses. Subd. 40 “Roof” - theexteriorsurface anditsupporting structure onthetopofabuildingorstructure. Thestructuralmake-upofwhichconformstotheroofstructures, roofconstructionandroofcovering sections oftheUniform BuildingCode. Subd. 41 “Roofline” - theupper-mostedgeoftherooforinthecaseofanextendedfacade orparapet, the upper-mostheightofsaidfacade. Section 570 Page6 HopkinsCityCode (Zoning) 570.05 Subd. 42 Replaced8-16-05) Subd. 42 “Roofsign” - anysignerectedandconstructed whollyonandabovetheroofofabuilding, supported bytheroofstructure, andextendingvertically abovethehighestportionoftheroof. Subd. 43 “Roofsign, integral” - anybuilding signerectedorconstructedasanintegraloressentially integral partofanormalroofstructureofanydesign, sothatnopartofthesignextends verticallyabove the highestportion oftheroofandsothatnopartofthesignisseparatedfromtherestoftheroofbya spaceofmorethansix (6) inches. Subd. 44 “Rotatingsign” - asignorportion of asignwhichturnsaboutonanaxis. Subd. 45 “Shimmeringsigns” - asignwhichreflectsanoscillatingsometimes distortedvisualimage. Subd. 46 “Sign” – anyletter, wordorsymbol, poster, picture, statuary, readingmatterorrepresentation in the natureofadvertisement, announcement, messageorvisualcommunication, whether painted, posted, printed, affixedorconstructed, includingallassociatedbrackets, braces, supports, wiresandstructures, whichisdisplayedforinformational orcommunicativepurposes. Subd. 47 “Signface” - thesurface ofthesignupon, against, orthrough whichthemessageofthesignis exhibited. Subd. 48 “Signstructure” - anystructureincludingthesupports, uprights, bracingandframeworkwhich supports oriscapableofsupportinganysign. Subd. 49 “Site” - alot orcombinationofcontiguous lots whichareintended, designated, and/or approved tofunctionasan integrated unit. Subd. 50 “Stringer” - alineofstring, rope, cording, oranequivalent towhichisattachedanumberof pennants. Subd. 51 “Suspendedsign” - anybuildingsignthatissuspended fromtheunderside ofahorizontal plane surfaceandisconnected tothissurface. Subd. 52 “Totalsitesignage” - themaximum permittedcombinedareaofallfreestandingandwall identification signs allowedonaspecificproperty. Section 570 Page7 HopkinsCityCode (Zoning) 570.05 Subd. 53 Replaced8-16-05) Subd. 53 “Visible” - capableofbeingseenbyapersonofnormalvisualacuity (whether legible ornot) withoutvisualaid. Subd. 54 “Wall” - anystructurewhichdefinestheexteriorboundariesorcourts ofabuildingorstructure andwhichhasaslopeofsixty (60) degreesorgreater withthehorizontalplane. Subd. 55 “Wallsign” - anybuildingsignattachedparallel to, butwithintwo (2) feetofawall, paintedon the wallsurfaceof, orerectedandconfinedwithinthelimitsofanoutsidewallofanybuildingor structure, whichissupportedbysuchwallorbuilding, andwhichdisplaysonlyone (1) signsurface. Subd. 56 “Windowsign” - anybuildingsign, pictures, symbol, orcombination thereof, designedto communicateinformation about anactivity, business, commodity, event, sale, orservice, thatisplaced inside awindowor uponthewindowpanesorglass andisvisiblefromtheexteriorofthewindow. Thedefinitions setforthinthisSection570.05areinadditiontothedefinitions setforthinSection 515.07, whichshallapplytothisSection 570, exceptthatintheeventofaconflict betweentheSections, thedefinitioninSection 570shall apply. 570.07. Permitrequired. Nosignshallbeerected, altered, reconstructed, maintained ormovedinthecitywithoutfirstsecuringa permitfromthecity. Thecontent ofthemessageor speechdisplayed onthesignshallnotbereviewedor considered indetermining whether toapproveordenyasignpermit. Applicationforapermitshallbein writingaddressed tothezoningadministratorandshallcontainthefollowinginformation: a. names andaddresses oftheapplicant, ownersofthesignandlot; b. theaddressatwhichanysignsaretobeerected; c. thelot, blockandadditionatwhichthesignsaretobeerectedandthestreet onwhich theyaretofront; d. acompletesetofplansshowing thenecessary elevations, distances, sizeanddetailsto fullyandclearlyrepresent theconstructionandplaceofthesigns; e. thecostofthesign; f. typeofsign (i.e. wallsign, monumentsign, etc.); g. certificationbyapplicantindicatingtheapplication complieswithall requirements ofthesignordinance; and Section 570 Page8 HopkinsCityCode (Zoning) 570.07 (h.) Replaced8-16-05) h. iftheproposedsignisalongstatetrunkhighwayorinterstatehighway, theapplication shallbeaccompanied byproof thattheapplicanthasobtained apermitfromthestatefor thesign. Thezoningadministrator shallapproveordeny thesignpermitinanexpeditedmanner nomorethan30 daysfromthereceiptofthecompleteapplication, includingapplicablefee. Allpermitsnotapproved or deniedwithin30daysshallbedeemedapproved. Ifthepermitisdenied, theissuingauthorityshall prepare awrittennotice ofdenial within10daysitsdecision, describingtheapplicant’sappealrights under Section525.15, andsenditbycertified mail, returnreceipt requested, totheapplicant. 570.09. Exemptions. Thefollowingsignsshallnotrequire apermit. Theseexemptions, however, shallnotbeconstrued as relievingtheowner ofthesignfromtheresponsibility ofitserectionandmaintenance, anditscompliance withtheprovisionsofthisordinance oranyother laworordinance regulatingthesame. a. Thechangingofthedisplay surfaceonapaintedorprintedsignonly. Thisexemption, however, shall applyonly toposterreplacement and/oron-sitechangesinvolvingsign paintingelsewherethandirectlyonabuilding. b. Signssix (6) squarefeetorlessinsize. 570.11. Fees. Signpermitfees aresetbyChapterX. 570.15. Violations. Violation ofthissection isamisdemeanor. Eachdaythattheviolationcontinues isaseparateoffense. 570.17. Size. Nosignshall exceed250squarefeetinarea. Section 570 Page9 HopkinsCityCode (Zoning) 570.19 Replaced8-16-05) 570.19. Regulations. Subd. 1. General. Exceptashereinafterprovided, nosignsshallbeerectedormaintainedatanyangletoa buildingorstructurewhichsignextendsorprojectsover thesidewalk, street orhighway. Nosignwhich iserectedormaintained flatagainstanybuildingorstructureshallextend orprojectmorethanfifteen inches overthesidewalk, streetorhighway. Subd. 2. Exceptions. Theprovisionsofthissubsectiondonotprohibit: a. theerectionandmaintenanceofsigns, eitherilluminatedornotilluminated, whichareon thesidesofamarqueewhichisfirmlyattached toandapartofatheatre , providingsuch signs areanintegralpartofthemarquee anddonotprojectaboveorbelowthemarquee; or b. theerection andmaintenance of signs, notilluminated, whichareattached tothemarquee andwhichdonotprojectmorethan16inchesabovethemarquee. 570.21. Belowmarquee. Nosign, either illuminatedornotilluminated, may projectbelowamarquee. 570.23. Electrical signs. Electrical signsmustbeinstalledinaccordance with thecurrentelectricalcodeandaseparatepermitfrom thebuildingofficialmust beobtainedpriortoplacement. 570.25. Unauthorizedsigns. Thefollowing signs areunauthorized signs andareprohibitedbythisSection: a. Anysign, signal, markingordevicewhichpurportstobeorisanimitation ofor resemblesanyofficialtraffic controldeviceorrailroadsignorsignal, oremergency vehiclesignal, orwhichattemptstodirect themovementoftrafficorwhichhides from viewor interfereswiththeeffectiveness ofanyofficialtraffic-controldevice orany railroad signorsignal. b. Alloff-premise signs. c. Signspainted, attachedorinanyothermanneraffixedtotrees, rocks, orsimilarnatural surfaces, orattachedtopublicutilitypoles, bridges, towers, orsimilarpublicstructures. d. Portable signs. e. Changeable copysigns. Section 570 Page10 HopkinsCityCode (Zoning) 570.27 Revised7-27-06) 570.27. Setbacks. Subd. 1. Signsshallconformtothefollowingsetbackregulationsforthezoningdistrictinwhichthe signs arelocated except asotherwise specified in thissection. B-1 B-2 B-3 B-3 Residential Abutting CountyRoad LotLineFront 10' 1 ' 1 ' 10' 5' LotLineSide 5' 0' 0' 5' 5' LotLineRear 5' 5' 10' 10' 5' I-1 I-2 LotLineFront 10' 10' LotLineSide 10' 10' LotLineRear 10' 10' LotLineRear - abutting RDistrict 20' 20' Institutional Institutional Abutting County Road LotLineFront 5' 10' LotLineSide 5' 5' LotLineRear 5' 10' AddedOrd. 06-969) 570.29. Area. Theareawithin theframeofasignshallbeusedtocalculate thesquare footageexceptthatthewidthofa frameexceeding12inchesshallconstitutesign face, andifsuchlettersorgraphicsbemounteddirectly onawallorfasciaorinsuchwayastobewithoutaframethedimensionsforcalculating thesquare footageshallbetheareaextendingsixinchesbeyondtheperipheryformedaroundsuchlettersorgraphics inaplanefigureboundedbystraightlinesconnectingtheoutermostpointsthereof. Eachsurfaceutilized todisplayamessageortoattractattentionshallbemeasuredasaseparatesignandshallbecalculatedin the overallsquare footage. Symbols, flags, pictures, wording, figuresorotherformsofgraphics painted onorattachedtowindows, walls, awnings, free-standingstructures, suspendedbyballoons, orkitesoron persons, animals, orvehiclesareconsideredasignandareincludedincalculatingtheoverallsquare footage. Section 570 Page11 HopkinsCityCode (Zoning) 570.31 Replaced8-16-05) 570.31. Canopies, marquees andfixedawnings. Canopies, marqueesandfixedawningsareanintegral partofthestructuretowhichtheyareattached. Theyareallowedin theBusinessandIndustrialDistrictsif theymeetfollowingrequirements andthe applicable squarefootagerequirements. a. anawning, canopy ormarqueemaynotproject intothepublicright-of-waynearer than30inchestothestreet curborcurbline; b. awnings, canopiesormarquees mayhavenopartofthestructureotherthan supportsnearerthegroundsurfacethan sevenfeet; c. thearchitecturalstyleoftheawning, canopyormarqueemaybeconsistent with thebuildingbeingserved; d. awnings, canopyormarquees projecting intotherequired yardsmaynotbe enclosed exceptwithatransparentmaterialpermitting throughvision; and e. awnings, canopiesormarquees builtoverthe publicright-of-waymustbeincludedina liabilityinsurance policyholding thecity freeofallresponsibility. 570.33. Illumination External illumination forsignsshallbesoconstructedandmaintained thatthesource oflightisnot visiblefromthepublicright-of-wayorresidentialproperty. 570.35. Height. Thetopofasign, including itssuperstructure, ifany, shallbenohigherthantheroofofthebuilding to whichsuchsignmaybe attachedor35feetaboveground level, whicheverheightisless. Signs, including anysuperstructure standing orerectedfreeofanybuilding orotherstructure, shallnotexceedanoverall heightof35feetfromgroundlevelandshallbelocatedonlandinanareawhichislandscaped orifsuch landispartofanapproved parkingarea, itshall besurfacedorpavedasrequiredinthezoningcode. 570.37. Retroactive effect. Thissignordinance shallapplytoallsignapplicationsappliedforand/orpendingpriortoitsenactment. 570.39. Non-commercialspeech. Notwithstanding anyother provisionsofthissignordinance, allsignsofanysizecontainingNon- CommercialSpeechmaybepostedfromAugust1inanygeneralelectionyearuntilten (10) days following thegeneralelectionandthirteen (13) weekspriortoanyspecial electionuntilten (10) days followingthespecial election. Section 570 Page12 HopkinsCityCode (Zoning) 570.41 Revised 7-27-06) 570.41. Permitted signsbydistrict. Subd. 1. ResidentialDistricts a. Withinresidential zoningdistricts, signs are permitted asfollows: District Maximumsignareaofsinglesign Totalareaofallsigns R-1, R-2 8squarefeetpersurface 16squarefeet R-3, R-4, 12squarefeetpersurface 24squarefeet R-5, R-6 b. Thefollowing typesofsigns arenotpermitted in residentialzoningdistricts: 1. Awning signs; 5. Marqueesigns; 2. Balloonsigns; 6. Pole signs; 3. Canopysigns; 7. Pylonsigns; and 4. Flashingsigns; 8. Shimmeringsigns. Subd. 2. Business Districts a. Withinbusinesszoningdistricts, signsarepermittedasfollows: District Maximumsignareaofsinglesign Totalareaofallsigns B-1, B-2 60squarefeet 2squarefeetperfrontfootofbuilding abuttingapublicright-of-way50feetor more inwidth. B-3, B-4 80squarefeet 3square feetperfrontfootof lot (narrowest footageonacornerlot) abuttingpublicright-of-way 50feetormoreinwidth. Subd. 3. IndustrialDistricts a. Withinindustrialzoningdistricts, signsarepermittedasfollows: District Maximumsignareaofsinglesign Totalareaofallsigns I-1, I-2 250squarefeet 4squarefeetperfrontfootoflot plus1squarefootperfootof sideyardabuttingapublicright- of-wayof 50feetormore. Leastwidthoffrontageshall beconsidered frontyard. Subd. 4. Institutional Districts a. Withininstitutional zoningdistricts, signsarepermittedasfollows: District Maximumsignareaofsinglesign Totalareaofallsigns Institutional 60squarefeet 3square feetperfrontfootoflot narrowestfootage onacorner lot) abuttingpublicright-of-way 50feetormoreinwidth. AddedOrd. 06-969) Section 570 Page13 HopkinsCityCode (Zoning) 570.42 Revised 4-28-11) 570.42. Permittedsigns: Business Parkdistrict. Subd. 1. WallSigns. Eachtenant otherthan thosein multi-tenant buildingsmayhaveoneflatwallsign, notextending morethan18inchesfromtheface ofthebuilding, exceptthatsuchsignagemayextend fromthefaceoftheroofoveracovered walk. Suchwallsignsshallnotexceed15% oftheareaofthe walltowhichthesignisattached, toamaximum of96squarefeet. Subd. 2. Monument signs. Usesotherthanthoseinmulti-tenant buildingsmayhaveamonumentsignthat shallnotexceed80square feetpersurface area, and15feetinheight, andissetbackaminimum20feet fromthepropertylines. Subd. 3. Multi-tenantsigns. Eachtenantinamulti-tenantbuildingmayhaveaflatwallsign, not extendingmorethan 18inchesfromthefaceofthebuilding. Theaggregate areaofsuchsignsshallnot exceed5% oftheareaofthewalltowhichtheyareattached. Subd. 4. Multi-tenantmonument signs. One monument signshall bepermittedforeachmulti-tenant building provided thesurfaceareaofthesigndoesnotexceedtwo squarefeetperfrontfootoflot. Signs shallnotbeover150squarefeet, or20feetinheight, andshall besetback20feetfromtheproperty lines. (AmendedOrd. 11-1026) Subd. 5. Canopies andAwnings. Thedesignofcanopiesshall beinkeepingwiththeoverall building design intermsoflocation, size, andcolor. Nocanopieswithvisiblewallhangersshallbepermitted. Signage oncanopiesmay besubstitutedforallowedbuildingsignageandshallbelimitedto25% ofthe canopy area. Internallyilluminatedcanopiesmustbecompatiblewiththeoverallcolorschemeofthe building. 570.43. Non-conforming signs: compliance. It isrecognizedthatsignsexistwithinthezoningdistrictswhichwerelawfulbeforethissignordinance wasenacted, butwillbeprohibited underthetermsofthissection. Itistheintentofthissignordinance thatnonconforming signsshallnotbeenlargeduponor expanded , norbeusedasgroundsforadding other signs orusesprohibitedelsewhere inthesamedistrict. Itisfurthertheintentofthissignordinance topermitlegalnonconforming signsexistingon theeffectivedateofthissignordinancetocontinueas legalnonconforming signsprovidedsuchsignsaresafe, aremaintained soasnottobeunsightly, and havenotbeenabandonedorremoved subjecttothefollowing provisions: a. Nosignshall beenlarged oralteredinawaywhichincreases itsnonconformity b. Iftheuseofthenonconforming signorsignstructureisdiscontinued foraperiodof one year, thesignorsignstructureshallnotbereconstructed orusedexceptinconformity withtheprovisionsofthisordinance. c. Shouldsuchnonconforming signorsignstructurebedamagedorstructurebedestroyed byanymeanstoanextent greaterthanfifty (50) percentofitsmarketvalueandall requiredpermitsforitsreconstruction havenotbeenapplied forwithin180daysofwhen thesignorsignstructure wasdamaged, itshallnotbereconstructedorusedexceptin conformitywiththeprovisions ofthisordinance. Section 570 Page14 HopkinsCityCode (Zoning) 570.43 (d.) Replaced8-16-05) d. Shouldsuchsignorsignstructure bemoved foranyreasonforanydistancewhatsoever, itshall thereafter conformto theregulationsforthezoningdistrictinwhichitislocated afteritismoved. e. Noexisting signdevoted toausenotpermittedbythezoningcodeinthezoningdistrict in whichitislocatedshall beenlarged, expandedormovedexceptinchangingthesignto asignpermittedinthezoningdistrictinwhichisitlocated. f. Whenabuildinglosesitsnonconforming statusallsignsdevotedtothestructureshallbe removed andallsignspainted directlyonthestructureshallberepaintedinaneutral colororacolorwhichwillharmonize withthestructure. 570.45. Substitution Clause. Theownerofanysign whichisotherwise allowedby thissignordinancemaysubstitutenon-commercial speechinlieuofanyothercommercialspeechornon-commercial speech. Thissubstitutionofcopymay bemadewithout anyadditionalapprovalorpermitting. Thepurposeofthisprovisionistoprevent any inadvertent favoring ofcommercial speechovernon-commercialspeech, orfavoringofanyparticular non-commercial speech overanyothernon-commercialspeech. Thisprovision prevails overanymore specific provisiontothecontrary. Section 570 Page15 INFORMATION M EMO Sign Ordinances and the First Amendment Learn how to design a sign ordinance for your city that meets the requirements of the First Amendment for protecting various forms of speech. RELEVANT LINKS: I. First Amendment principles The First Amendment protects signs as speech, and courts will look very closely at any attempts to regulate signs. There are a few rules for regulating signs: • Do not regulate based on content. • Do not favor commercial speech (advertising) over noncommercial speech. • Restrictions on signs must accomplish a substantial government interest and be no broader than necessary. The main substantial governmental interests recognized by courts are traffic safety and aesthetics. II. Drafting a sign ordinance See sample sign ordinance, City of Hopkins. With the First Amendment rules for regulating signs in mind there are several steps cities can take when drafting ordinances. There are things every sign ordinance should probably contain and provisions all sign ordinances should avoid. A. Provisions to include 1. Statement of purpose This section tells why the ordinance was drafted and how it should be applied. It should state clearly that it is not intended to have content-based restrictions and should not be applied that way. It provides a quick clear statement of government purposes and how the ordinance fulfills those purposes rather than needing to review your legislative record if challenged. 145 University Ave. West www.lmc.org 3/7/2007 Saint Paul, MN 55103-2044 (651) 281-1200 or (800) 925-1122 © 2013 All Rights Reserved This material is provided as general information and is not a substitute for legal advice. Consult your attorney for advice concerning specific situations. RELEVANT LINKS: 2. Substitution clause A substitution clause provides that for every sign that is allowed, any non- commercial message could be legally substituted. This ensures that non- commercial speech is never discriminated against based on content because it will always allow a noncommercial message on any sign. Many ordinances inadvertently define signs in terms of advertising and may incidentally seem to allow only commercial messages. A substitution clause may correct these mistakes by providing a catch-all allowance of noncommercial messages notwithstanding other provisions. 3. Severability clause A severability clause provides that if any provision of the ordinance is found to be invalid, the remainder of the ordinance stands on its own and is still valid. This clause may prevent a flaw in part of the ordinance from invalidating all of it. 4. Election season pre-emption Minn. Stat. § 211B.045. Your ordinance should contain acknowledgement of election season preemption required by state law. Under this law municipalities must allow noncommercial signs of any size during election season, from 46 days before the state general primary until ten days after the state general election. 5. Content-neutral regulations Regulations should be objectively based on time, place, and manner, not content. Examples include regulations based on size, brightness, zoning district, spacing, and movement. B. Provisions to avoid 1. Unfettered discretion Avoid discretionary approval by the city. Having discretion creates the potential for favoring some messages or messengers over others, whether or not that discretion is actually abused. Permit requirements should be transparent and objective. 2. Exemptions or favoritism Avoid exempting certain groups or messages, such as church signs or official flags, from permit requirements. This could be content-based discrimination. League of Minnesota Cities Information Memo: 3/7/2007 Sign Ordinances and the First Amendment Page 2 RELEVANT LINKS: Exemptions also may “water down” the substantial government interest. For example, if an ordinance prohibits temporary signs but allows a long list of exemptions, it suggests the city is not really concerned about temporary signs. Exemptions may be based on valid time, place, or manner restrictions, such as exempting all signs under a certain size from permitting requirements. 3. Over-defining signs Cities may inadvertently treat non-commercial speech differently by defining “sign” as “advertising”. This occasional problem is the combination of a few steps: • Signs are defined as advertising devices. • The ordinance allows signs as defined. • All other signs are prohibited. This arguably prohibits noncommercial speech, which is unconstitutional. III. Common sign ordinance issues A. Off-premises advertising (billboards) Off-premise advertising consists of commercial signs that do not advertise for a business on the same premises as the sign. It is legal to forbid off- premise advertising, so long as the prohibition does not extend to noncommercial messages B. Flags Be cautious of regulations that might favor some types of flags, particularly the United States Flag, over other flags. This is a good place for the substitution clause; if one type of noncommercial flag would be acceptable, any noncommercial flag should be allowed. C. Yard signs City of Ladue v. Gilleo, 512 U.S. 43, 114 S. Ct. 2038 (1994), Some courts have held that yard signs are constitutionally protected and cannot be prohibited. Be especially cautious about provisions that favor some messages over others, such as exemptions for real estate or construction project signs. League of Minnesota Cities Information Memo: 3/7/2007 Sign Ordinances and the First Amendment Page 3 RELEVANT LINKS: D. Electronic signs SRF Consulting Group, “Dynamic Signage: Research Related to Drive Distraction and Ordinance Recommendations”, June 7, 2007. Minn. Stat. § 462.355, subd. 4. Minn. Stat. § 462.357, subd. 1e. Electronic signs present new challenges, as the technology is capable of new levels of brightness, movement, flashing, and potential distraction. Most sign ordinances do not adequately address these issues. The League has commissioned a study on the traffic safety implications of the technology. Cities may wish to consider moratoriums while the study is conducted and then drafting ordinances that apply the information to each community. A moratorium may prevent electronic signs from becoming grandfathered. IV. Further assistance There are exceptions to these general rules about sign ordinances and the First Amendment but they should be approached cautiously and with legal advice. Cities should work closely with their city attorney to draft and review sign ordinances. Paul Merwin, Defense Attorney pmerwin@lmc.org 651.281.1278 Jed Burkett, Land Use Loss Control Attorney jburkett@lmc.org 651.281.1247 You may also contact League staff for assistance and sample ordinances. League of Minnesota Cities Information Memo: 3/7/2007 Sign Ordinances and the First Amendment Page 4 This material is provided as general information and is not a substitute for legal advice. Consult your attorney for advice concerning specific situations. RISK MANAGEMENT INFORMATION REGULATING DYNAMIC SIGNAGE Executive summary Cities have authority and responsibility to regulate dynamic signs as appropriate for each community. There is no single correct approach to regulation. Because the regulation of signs involves the First Amendment, courts hold sign regulations to a higher standard than most land use regulations. Cities still have considerable discretion to regulate, as long as they do so reasonably and without regard to sign content. Introduction In the fall of 2006, a number of Minnesota cities were surprised by the appearance of large electronic billboards akin to giant television screens. These signs are the next generation of sign displays with the ability to feature changing images and movement—known collectively as dynamic signs. Attempts to regulate them resulted in litigation in at least one community- Minnetonka. In developing a regulatory response, Minnetonka partnered with the League of Minnesota Cities to commission a study, conducted by SRF Engineering, on the impact of such dynamic signs on traffic safety. This memorandum discusses the legal framework of regulating dynamic signage in light of the recent litigation and study. More Information FindtheresultsoftheSRFConsulting Group’sresearchondynamic signagein: “Dynamic”Signage:Research RelatedtoDriverDistractionand OrdinanceRecommendations It’savailableintheLandUseareaof theLeaguewebsiteat www.lmc.org. Regulatory framework While the federal and state government can enact and have enacted laws regulating signs, those regulations only provide minimum standards. Courts have explicitly recognized that cities have the ability to regulate signs, including dynamic signs, more restrictively. There is no uniform system of regulation that cities must follow. Each community is different and has different needs that local ordinances may reflect. Such regulations must meet the same basic legal tests for all sign regulation. Most city land use decisions get a very deferential standard of review known as rational basis review. Under this level of review, city decision will be upheld if they have any rational basis. Because sign regulations implicate free speech rights which are protected by the First Amendment, they are subjected to higher levels of scrutiny. The highest level of scrutiny, called strict scrutiny, applies when government tries to regulate based on the content of speech. The only content-based sign regulation that courts have upheld is treating off-premise signs (billboards) differently than on-premise signs that advertise the business on the same property. More Information Learnmoreaboutsignregulations andfreespeechin: SignOrdinancesandtheFirst Amendment It’savailableat www.lmc.org. One distinction that may seem like it is content based, but our federal court of appeals has said is not, is a ban on dynamic signs with an exception for time and temperature displays. The court held that because of their unique nature, allowing only time and temp displays is not a prohibited content-based regulation. It is important not to overstate this, however. Regulations that go further and carve out a broader exception for “public information” are likely to be struck down as impermissibly content-based. Sign regulations that are not content based are subject to intermediate scrutiny, which tests whether the regulation is substantially related to a significant government interest. This roughly translates to “regulate for a good reason.” Cities should take care that the scope of the regulation is not excessive when viewed in light of all of the regulatory objectives, and that they do not create exceptions to the regulations that cannot be justified by reference to one or more of the city’s articulated objectives Big-picture regulatory tools The available research on traffic impacts supports significant content-neutral limits or even bans on dynamic signs for safety reasons. The studies confirm that billboards can tend to distract drivers, dynamic features contribute to the distraction, and even short distractions can increase the risk of accidents. This is not surprising as promotional materials put out by sign companies themselves boast the signs’ ability to hold viewer attention as a benefit of dynamic signs. Safety is only one concern. Cities may also regulate signs based on values, preferences, and aesthetics. Not every sign is appropriate in every community or every neighborhood. Not every community wishes to become Las Vegas or even downtown Minneapolis. Cities can take a number of different macro-level approaches to regulation. Some examples include: 1. Complete or near-complete bans that do not allow dynamic signs at all. 2. Allow dynamic signs with restrictions such as minimum display time, allowing only a percentage of a sign to change, or text size limitations. 3. Allow different things in different zoning districts, such as allowing brighter dynamic signs in a downtown business district than in residential neighborhoods. 4. Offering incentive programs to billboard companies to allow dynamic signs in exchange for removal of non-conforming static signs. 5. Encourage dynamic displays. Some communities like the clean, new look of dynamic signs and encourage them to remove old blighted and poorly maintained signs. 2 Regulating sign aspects A content-neutral regulation that regulates dynamic signage will be subject to intermediate scrutiny, so a community must show a regulation is substantially related to a significant government interest. In plain language, you must articulate what problem a regulation is intended to address and how the regulation addresses it. There are at least six aspects of dynamic signs that regulations may address: 1.Duration of messages/ speed of changeover.Studies have described the Zeigarnik effect, a psychological need to see a task through to its end. In the case of dynamic signs, a driver’s desire to read an entire message before it changes or to complete a scrolling message has been shown to negatively impact drivers’ tendencies to maintain a constant speed or remain in a lane. To address these issues, many cities have imposed minimum message durations that might vary depending on community preference and traffic conditions. 2.Motion, animation, and video.Motion can range from simple visual effects to full realistic video. Motion can extend the period of time a driver will keep watching a sign, increasing distractedness. Cities may prohibit motion or limit it either to specific areas or to specific characteristics such as a motion time frame calibrated to traffic speed. 3.Brightness.Brightness can be a safety factor, particularly at night, as sudden brightness can be distracting or diminish night vision. A number of communities limit brightness based on time of day and by color displayed. This can be difficult to quantify and measure. 4.Sign placement and spacing. The number of signs and their location can be a big factor in driver awareness. A large number of signs can increase distractedness. Poorly placed signs may block views or cause distraction in unsafe areas. Cities may impose site standards and spacing requirements. These may present regulatory challenges as spacing may be dependent on the actions of neighboring property owners. 6.Size of signs. Size can have impacts in several ways. Too big, and it obstructs views and distracts. Too small, and it takes longer to read and encourages sign users to sequence messages. Cities may limit dynamic signs or the percentage of a sign that can be dynamic. 7.Text size and legibility.Signs that are difficult to read invite increased driver focus. Regulations can, for example, require minimum sizes based on road speed. The specifics of how to regulate each of these aspects is up to each community. Because review of regulations must face intermediate scrutiny, cities have to take some extra steps when drafting and adopting ordinances. For each aspect regulated, cities should consider adopting findings or local studies that articulate the reason and any support for the regulation. The SRF study and other materials can provide a scientific basis for a number of regulatory steps. In addition, cities may choose more stringent regulation in order to take a conservative approach to protecting safety. 3 Moving forward It is recommended that cities think about dynamic signs as early as possible. Regardless of your city’s approach, it is better to make a rational choice rather than by having dynamic signs arrive before you have thought about the issue. Once the signs are up, Minnesota’s nonconforming use law arguably grants them “grandfathered” status, with a narrow exception for safety. 4 If your city would like more information about regulating dynamic signs, Paul Merwin, LMCIT Senior Land Use Attorney, can provide assistance and refer you to more information and resources. Contact Paul at (651) 281-1278 or pmerwin@lmc.org. Sample Ordinance Viewasamplesignordinancefrom thecityofHopkinsintheLandUse areaoftheLeaguewebsiteat www.lmc.org. Disclaimer:This memorandum is intended as general information only and should not be read as legal advice or as creating an attorney-client relationship. This memo addresses general concerns and has not been reviewed in the context of a specific client or situation. This memo was drafted as a loss control document and is intended to avoid conflicts rather than form an opinion as to the legality or defensibility of any action. Paul Merwin 07/07