SR-091608-7FCity Council Meeting: September 9, 2008
Agenda Item: ~-~
To: Mayor and City Council
From: Jim Hone, Fire Chief
Subject: Adoption of Solar Photovoltaic Installation Standards
Recommended Action
Staff recommends that the City Council adopt the attached resolution making findings of
local climatic, geological and topographical conditions as required to adopt local
amendments to the California Building Standards Code, for introduction and first
reading the attached proposed ordinance that establishes standards to ensure public
safety for all structures equipped with solar photovoltaic systems.
Executive Summary
The Office of the State Fire Marshal, along with local fire departments and the solar
photovoltaic industry, has developed a guideline for installing solar photovoltaic("PV")
systems that adequately provide for fire safety and suppression.. The attached
proposed ordinance contains no revisions to the substance of this guideline, but the
guideline language has been modified to pertain specifically to Santa Monica and to
convert the guideline into the format of an ordinance.
In addition, the proposed ordinance would delete an existing section of the Building
Code which contains a previously adopted local amendment to the California Building
Code pertaining to solar PV installations that has been deemed obsolete by Santa
Monica Building Department staff.
There.is no immediate impact on the General Fund associated with this item outside of
costs associated with updating the codes book.
Background
In July 2007 CAL FIRE/Office of the State Fire Marshal established a Task Force to
develop this guideline, working with the California Solar Energy Industries Association
(CALSEIA). Members of local fire service agencies and the solar PV industry worked
together to develop a guideline that would ensure fire service access to perform rescue
and fire suppression operations on buildings with installed PV systems.
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Discussion
Over the last several years, interest in and adoption of renewable energy strategies and
general green building principles has increased exponentially. New technologies that
address these issues have developed and entered-the-marketplace-more rapidly than -
building standards codes are able to adapt. While solar PV technology is by no means
new, the speed with which it is being installed has posed particular challenges for local
jurisdictions unfamiliar with solar. At the same time, the lack of a unified and consistent
approach to permitting and inspecting solar installations across jurisdictions increases
costs for solar installers and would-be solar owners.
Building Standards
Structural and electrical safety considerations for solar PV installations are clearly
addressed by the California Building Standards Code (CBSC). In the interest of
facilitating the installation and inspection process, the Santa Monica Building and Safety
Department has prepared a guideline that summarizes .what information needs to be
shown on plans for a solar PV system, what steps an installer needs to take to prepare
for an inspection, and what corrections are commonly encountered by inspectors. This
guideline will save staff time during plan check and inspection, will save contractor time
on approvals, and will encourage consistent improved communication between solar
installers and staff.
Fire Safety Standards
In contrast, heretofore there has been no guidance from the State as to fire safe solar
PV installations. Approval and jurisdiction has been left up to the local fire departments,
and in most areas, the fire department has not had input into the approval process for
solar PV installations. Even where fire departments have had input to the process,
standards and requirements vary widely across jurisdictions. Anecdotal evidence from
staff research suggests that such requirements range from requiring no plan review and
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only final electrical inspection for systems under 600 volts to requiring four-foot setbacks
from all edges, eaves, and ridges as well as quick disconnects on the actual solar
panels so that they might be removed in case of a fire.
Recognizing the need for a consistent standard, the Office of the State Fire Marshal
created a Task Force to develop guidelines with the input of local fire departments and
the solar industry. Santa Monica Fire Department staff were on this Task Force and
were instrumental in reaching a consensus position, balancing fire safety and
suppression concerns with opportunities for clean, distributed renewable energy. The
solar photovoltaic installation guidelines developed by the. Task Force establish new
regulations in an area of building standards that state law does not currently address.
While the guidelines are intended to be incorporated .into the next version of the
California Building Standards Code in 2010, the proposed ordinance would implement
the guidelines in Santa Monica ahead of that schedule.
Fire Safety Concerns
Ventilation and roof access are the two primary fire safety concerns pertaining to solar
PV installations. Firefighters need to have access to key areas of a roof and to be able
to walk a clear pathway on sound structural members. Firefighters also need to be able
to vent hot gases from specific portions of the roof without having to move or cut
through solar panels, a hazard in and of itself. While no one can predict exactly where
a roof will require venting, the guidelines establish layout and setback requirements for
different common roof types to ensure adequate access and ventilation for most
situations.
Solar Industry Concerns
The main concern with setbacks and layout requirements for the solar industry would be
limitation of the available area for solar panels. In many cases, only one roof pitch
might be south-facing and hence appropriate for solar. If the setbacks are too large,
this might preclude many potential solar PV installations simply to provide an extra
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measure of protection for the already unlikely occurrence of a fire. Furthermore, the
concern has been raised that one set of standards for layout and setbacks cannot
adequately address the countless roof shapes and orientations found in the field.
Proposed Process
The proposed ordinance would implement the criteria set forth in the guidelines from the
State Fire Marshal's Task Force as requirements in Santa Monica. The generic
language of the guidelines would be amended to address circumstances specific to
Santa Monica. The requirements will be considered ministerial, whereby any solar
installations conforming to those standards would receive Fire Department approval.
When faced with a challenging or complex roof layout, a solar installer that cannot meet
the requirements established in the ordinance may submit. an alternate .means of
compliance for Fire Department approval.
Section 08.24.080
This Section. of the Electrical Code is a local amendment to the California Building Code
which was adopted on October 8, 2002. The section creates an additional requirement
to provide disconnecting means immediately adjacent to the combiner box when array
are combined to create an output of more than 50 volts or 10 amperes. Building
Department staff have determined that this requirement does not necessarily improve
safety of solar PV installations and is not consistent with typical installation practice.
Furthermore, although the requirement is limited to outputs of a certain voltage or
current, virtually all PV circuits would trigger this requirement. It is proposed that this
section be deleted in it's entirety from the Municipal Code.
Alternatives
Now that the State Fire Marshal has developed guidelines for fire safe solar PV
installations, the City has an established basis for evaluating solar PV installations. The
City could propose and develop its own fire safe solar guidelines, however this would
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involve significant duplication of the State's efforts, as Santa Monica Fire Department
staff gave critical guidance and input to the State guidelines.
Environmental Analysis
The City's adoption of local amendments to the California Building Standards Code is
exempt from the provisions of the California Environmental Quality Act (CEQA)
pursuant to CEQA Guidelines, Section 15061(b)(3) [project is exempt when it can be
determined with certainty that there is no potential for causing a significant effect on the
environment]. The proposed ordinance establishes standards for the design and
construction of solar photovoltaic installations which, ih part, incorporate the most
current and applicable seismic atteriuation methods and fire life safety design
regulations into the City's building standards, based on the unique geological;
topographical and climatic conditions of the City (as detailed in the resolution
accompanying the ordinance). The standards are designed to provide consistent
access pathways and ventilation opportunities thereby protecting the occupants of these
structures and the public from safety risks, preventing damage to the structures, and
minimizing the demand on emergency fire services.
Public Outreach
Through the Solar Santa Monica program, the City communicates with most of the
major installers of solar PV installations in the city. This program also coordinates
outreach and education to Santa Monica residents about the benefits of energy
efficiency and renewable energy. Information about fire safe solaP installations can
easily be included in these efforts.
Financial. Impacts & Budget Actions
There is no direct budget nor financial impact to the City of adopting the local
amendments to the 2007 California Building Standards Code. As a result of the
modified standards for fire and life safety, the approval of this ordinance may increase
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costs of construction of solar photovoltaic installations, but establishing consistent
standards should reduce the costs associated with the permit approval process.
Prepared by:
Jim Glew, Fire Marshal
Brenden McEneaney, Green Building Program Advisor
Approved:
Attachments:
Forwarded to Council:
A. Resolution Making Findings of Local Climatic, Geological, and Topographical
Conditions as Required to Adopt Local Amendments to the California Building
Standards Code
B. Proposed Ordinance Establishing Solar Photovoltaic Installation Standards
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CA:flatty\muni\laws\barry\Fire Solar Ordinance 9-9-08
City Council Meeting 9-9-08 Santa Monica, California
ORDINANCE NUMBER (CCS)
(City Council Series)
AN ORDINANCE OF THE CITY COUNCIL OF THE CITY OF
SANTA MONICA ADDING SECTION 8.40.030 TO THE SANTA MONICA MUNICIPAL
CODE TO ESTABLISH SOLAR PHOTOVOLTAIC INSTALLATION STANDARDS TO
ENSURE PUBLIC SAFETY
WHEREAS, in July 2007, the CAL FIRE Office of the State Fire Marshall
established a Task Force to develop guidelines for installing solar photovoltaic ("PV")
systems; and
WHEREAS, members of local fire service agencies and the solar PV industry
worked together to develop guidelines that would ensure fire service access to perform
rescue and fire suppression operations on buildings with installed PV systems; and
WHEREAS, Santa Monica Fire Department staff were on this task force and
were instrumental in developing guidelines that appropriately balance fire safety and
suppression concerns with opportunities for clean, distributed renewable energy; and
WHEREAS, the Office of the State Fire Marshall has stated that these guidelines
are intended to be incorporated into the next version of the California Building
Standards Code in 2010; and
WHEREAS, the State Fire Marshall has encouraged localities to implement these
guidelines in advance of the schedule if warranted based on the local conditions; and
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WHEREAS, Health and Safety Code Section 18938 provides that the triennial
edition of the California Building Standards Code establishes building standards for all
occupancies throughout the State and requires that these standards incorporate the
latest editions of the Technical Codes with necessary California amendments; and
WHEREAS, on July 1, 2007, the State Building Standards Commission approved
and published the 2007 edition of the California Building Standards Code, which
incorporated the various editions of the Technical Codes by reference with necessary
California amendments; and
WHEREAS, Health and Safety Code Sections 18938 and 17958 make the
California Building Standards Code applicable to all cities and counties throughout
California, including the City of Santa Monica, 180 days after publication by the State
Building Standards Commission on January 1, 2008, and
WHEREAS, Health and Safety Code Section 18941.5 provides that the City may
establish more restrictive building standards if they are reasonably necessary due to
local climatic, geological or topographical conditions; and
WHEREAS, at its November 13, 2007 meeting, the City Council considered the
2007 edition of the California Building Standards Code, which incorporates by reference
the various editions of the Technical Codes, and all of the referenced standards, tables,
matrices and appendices of each of these codes therein; and
WHEREAS, on November 27, 2007, the City Council adopted Ordinance Number
2244 (CCS), which adopted by reference certain Technical Codes, the Santa Monica
local amendments to these Technical Codes and the California Building Standards
Code; and
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WHEREAS, based upon the findings contained in the Resolution adopted
concurrently with this Ordinance and findings contained in this Ordinance, the. City
Council has concluded that certain additional modifications and additions to the
California Building Standards Code are reasonably necessary based upon local climatic
conditions,
NOW, THEREFORE, THE CITY COUNCIL OF THE CITY OF SANTA MONICA
DOES HEREBY ORDAIN AS FOLLOWS:
SECTION 1. Section 8.40.030 is hereby added to the Santa Monica Municipal
Code to read as follows:
8.40.030 Solar Photovoltaic Standards
In addition to the local amendments to the California
Fire Code established in Section 8.40.020, the following
local amendments to the California Fire Code shall also
apply:
(a) Applicability
(1) The provisions of this section shall apply to all
new solar photovoltaic systems installed on habitable
buildings.
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(2) The provisions of this section shall not apply to
solar photovoltaic systems installed on non-habitable
structures.
(b) Marking
(1) Main Service Disconnect
(A) Marking ContenUFormat. The main electrical
disconnect shall be marked, in white lettering on a red
background, in all capital letters at least 3/8 of an inch tall.
with the following: "CAUTION: SOLAR ELECTRIC
SYSTEM." The marking shall be made of reflective and
weather-resistant materials.
(B) Location
1: Residential. For residential applications, the
main service disconnect marking shall be placed on the
outside cover of the main service panel.
2. Commercial. For commercial applications, the
main service disconnect marking shall be placed adjacent to
the main service disconnect in a location clearly visible from
the location where the main service disconnect is operated.
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f2) DC Conduit, Raceways, Enclosures, Cable
Assemblies, and Junction Boxes
(A) Marking Content/Format. For equipment
associated with DC power, all conduit, raceways,
enclosures, cable assemblies, combiner boxes and junction
boxes shall be marked, in white lettering on a red
background, in all capital letters at least 3/8 of an inch tall,
with the following: "CAUTION: SOLAR CIRCUIT". The
marking shall be made of reflective and weather`-resistant
materials.
(B) Location. For equipment serving DC power,
marking shall be placed every 10 feet on all conduit,
raceways, enclosures, and cable assemblies, at turns, above
and below building penetrations, and at all combiner boxes
and function boxes.
(c) Location of DC Conductors
(1) For DC equipment installed on the roof.
conduit, wiring systems, and raceways shall be located as
close as possible to the ridge, hip, or valley and shall run
from the ridge, hip, or valley directly to an outside wall.
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(2) Conduit runs shall take the shortest path from
the array to the DC combiner box.
(3) DC combiner boxes shall be located so as to
minimize conduit runs in pathways between arrays.
(4) DC wiring located inside the building shall be
run in metallic conduit or in raceways and shall be run along
the bottom of load-bearing structural framing members
wherever feasible.
(d) Access. Pathways, and Smoke Ventilation
(1) Residential Buildings - 1 and 2 units
(A) For buildings with hip roof layouts, one (1) 3-
foot wide clear access pathway shall be provided from the
eave to the ridge at a structurally sound location on each
roof slope where modules are installed.
(B) For buildings with a single ridge, two (2) 3-foot
wide clear access pathways shall be provided from the eave
to the ridge at structurally sound locations on each roof slope
where modules are installed.
(C) Modules installed on only one side of a hip or a
valley may be installed directly adjacent to the hip or valley.
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If modules are installed on both sides of the hip or valley,
then modules may not be installed closer that 18 inches to
the hip or valley.
(2) Commercial Buildings and Residential
Buildings with Three or More Units
(A) Access
1. If both axes of the building are greater than
250 feet in length, then modules shall be installed at least 6
feet from the exterior edge of the roof.
2: If either axis of the building is 250 feet or less
in length, then modules shall be installed at least 4 feet from
the exterior edge of the roof.
(B) Pathways
1. Pathways shall be over structural members
and shall run ih straight lines.
2. Pathways shall be provided on both axes of the
roof on the structural member nearest the centerline of each
axis.
3. Straight line pathways not less than 4 feet wide
clear shall be provided to skylights, ventilation hatches, and
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roof. hatches. 4-foot wide pathways shall be provided around
the perimeter of all roof hatches.
(C) Ventilation, Array sections should be no
greater than 150 feet in any dimension. Ventilation shall be
provided between array sections by means of at least one of
the following options:
1. A pathwav at least 8 feet wide.
2. A pathwav at least 4 feet wide that borders on
existing skylights or ventilation hatches
3. A pathwav at least 4 feet wide bordering 4-foot
8-foot clear venting cutouts provided every 20 feet on
alternating sides of the pathwav.
(e) Alternative Means of Compliance.
The Santa Monica Fire and Building Departments
may approve alternative means of compliance as authorized
by and in accordance with California Building Code Section
108.7 for residential buildings or Section 111.2.4 for
occupancies regulated by the Office of the State Fire
Marshall.
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SECTION 2. Any provision of the Santa Monica Municipal Code or appendices
thereto inconsistent with the provisions of this Ordinance, to the extent of such
inconsistencies and no further, is hereby repealed or modified to that extent necessary
to effect the provisions of this Ordinance.
SECTION 3. If any section, subsection, sentence, clause, or phrase of this
Ordinance is for any reason held to be invalid or unconstitutional by a decision of any
court of competent jurisdiction, such decision shall not affect the validity of the
remaining .portions of this Ordinance. The City Council hereby declares that it would
-have passed this Ordinance and each and every section, subsection, sentence, clause,
or phrase not declared invalid or unconstitutional without regard to whether any portion
of the ordinance would be subsequently declared invalid or unconstitutional.
SECTION 4. The Mayor shall sign and the City Clerk shall attest to the passage
of this Ordinance. The City Clerk shall cause the same to be published once in the
official newspaper within 15 days after its adoption. This Ordinance shall become
effective 30 days from its adoption.
APPROVED AS TO FORM:
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MA SHA J0~1J S MOUT IE
City Attorne
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Reference Resolution No.
10339 (CCS)