CITY OF MENIFEE
SUBJECT: Outdoor Welcome Monument Advertising Displays
MEETING DATE: August 19, 2026
TO: Mayor and City Council
PREPARED BY: Kimberly Luna, Associate Planner
REVIEWED BY: Orlando Hernandez, Community Development Director APPROVED BY: Armando G. Villa, City Manager
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RECOMMENDED ACTION
1. Review and discuss outdoor welcome monument advertising displays and provide direction to City staff.
DISCUSSION
Background
On March 5, 2025, the City Council discussed the possibility of outdoor welcome monument advertising displays as a future agenda item and requested staff bring back additional information for consideration. Following the direction from Council, staff began to explore the use of outdoor advertising displays, including digital billboards, also known as electronic messaging centers (EMCs), throughout the City of Menifee. Staff investigated the City’s current restrictions on billboards, the City’s existing inventory of billboards, Caltrans regulations, and constitutional constraints, and formed an analysis for the Council to review and discuss.
City of Menifee Policy and Inventory
Within the City’s boundaries, billboards are considered “Off-Site Commercial Signage.” These signs are regulated by the Planning and Zoning Ordinance No. 2019-289, under Chapter 9.220 of the Menifee Municipal Code (Sign Regulations). Currently, the City prohibits billboards, and any existing billboards are considered nonconforming and are regulated by the nonconforming sign section of the Municipal Code. Section 9.220.170 (Nonconforming Signs) allows a legal nonconforming sign to remain in use provided no additions or enlargements are made thereto, and no substantial alterations are made.
Additionally, the City’s General Plan Community Design Element under the “Corridors and Scenic Resources” section prohibits billboards under the following policy:
CD-4.6: Prohibit outdoor advertising devices (billboards, but not on-site signs
City of Menifee Staff Report
Outdoor Advertising Displays
August 19, 2026
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identifying a business on the same property as the sign) within 660 feet of the nearest edge of the right-of-way line of all scenic corridors as depicted on Circulation Element Exhibit C-8 and the entire length of I-215; city Community Information Signs or other city-sponsored signs are not subject to this requirement.
Existing Billboard Inventory
Staff conducted a “windshield survey” of existing billboards along I-215 and State Route 74 (Hwy 74) and found Menifee has a total of thirteen billboards all located in the northern region of the City with two fronting I-215 and the remaining off Highway 74. Table 1 provides an inventory of the existing billboards in the City and a map of the billboard locations is attached.
TABLE 1 – CURRENT BILLBOARD INVENTORY
Number Location Sign Type Caltrans Permit County Permit 1 East of I-215
APN: 329-020-012
Double-Sided,
Traditional 37913 None
2 East of I-215
APN: 329-020-030
Double-Sided,
Traditional 37620 None
3 Hwy 74
APN: 329-020-025
One-Sided,
Traditional 28697 None
4 Hwy 74
APN: 329-240-055
Double-sided,
Traditional 34002 None
5 Hwy 74
APN: 329-233-034
Double-sided,
Traditional 27129 None
6 Hwy 74
APN: 329-211-028
One-Sided None None
7 Hwy 74
APN: 329-173-006
Double-sided,
Traditional 28696 None
8 Hwy 74
APN: 329-173-011
Double-sided,
Traditional 34416 None
9 Hwy 74
APN: 329-141-008
Double-sided,
Traditional 35019 None
10 Hwy 74
APN: 329-141-003
Double-sided,
Traditional 34456 None
11 Hwy 74
APN: 331-180-012
Double-sided,
Traditional S08-0151 None
12 Hwy 74
APN: 331-190-029
Double-sided,
Traditional 35724 None
13 Hwy 74
APN: 331-220-042
Double-sided,
Traditional None None
Further research is necessary to determine whether any of the existing billboards possess valid County permit documentation, which is essential to establish whether they qualify as legal nonconforming or illegal nonconforming structures. A preliminary records search using the Riverside County Parcel Reports did not yield any permit information for the existing billboards.
However, additional review of historical permit records and coordination with Riverside County may be required to make a final determination on the legal status of each billboard.
City of Menifee Staff Report
Outdoor Advertising Displays
August 19, 2026
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Caltrans Outdoor Advertising Permit Requirements
Caltrans regulates the placement of outdoor advertising displays which are visible from California Highways. Permits from Caltrans are required, and these billboards must conform to the California Business and Professions Code (Outdoor Advertising Act) Section 5200 et seq. and Section 21466.5 of the Vehicle Code. These codes contain regulations for all billboards and specific regulations pertaining to “changeable electronic messages” (digital signs) regarding location, proximity to other electronic messages (digital and traditional), frequency of message changes, illumination and prohibition of animation. For an outdoor advertising display application to be considered for a permit adjacent to an interstate or primary highway, the following criteria must be met:
Display Location
•Must be outside the right-of-way of any highway.
•Must be outside of any stream or drainage channel.
•There must be existing business activity within 1,000 feet of the proposed display location on either side of the highway.
•Location of property where display is to be placed must be zoned industrial or commercial. •Must have current property owner consent to place the display at desired location. •Must have written permission (building permit) from the local government having jurisdiction where the display is to be located.
•Location may not be adjacent to a landscaped section of a freeway. •Location may not be adjacent to a scenic highway.
Display
•Display must be 500 feet from any other permitted display on the same side of any highway that is a freeway.
•Display must be 300 feet from any other permitted display on the same side of any primary highway that is not a freeway in an unincorporated area. •Display must be 100 feet from any other permitted display on the same side of any primary highway that is not a freeway and is within the limits of an incorporated city. •Display must be 500 feet from an interchange; intersection at grade or safety roadside rest if the highway is a freeway and the location is outside the limits of an incorporated city and outside the limits of an urban area.
•An electronic changeable message center display must meet the above spacing requirements and be 1,000 feet from another electronic message center display. •Maximum height for the advertising display area is 25 feet in height and 60 feet in length, not to exceed an overall maximum of 1,200 square feet.
Constitutional Constraints
Jurisdictions cannot regulate the content of speech on authorized sign types. The City can, however, regulate the time, place and manner (size, height. etc.) in which signs are allowed.
Billboards in Other Jurisdictions
Staff reviewed ordinances from other jurisdictions within the Inland Empire (see Table 2 on the following page). Many jurisdictions do not allow traditional or digital billboards. For the cities that do allow billboards, they have moved away from allowing traditional billboards and put a limit on the number of digital billboards allowed.
City of Menifee Staff Report
Outdoor Advertising Displays
August 19, 2026
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TABLE 2 – BILLBOARDS ALLOWED IN OTHER JURISDICTIONS
Jurisdiction Billboards Allowed
City of Menifee No
City of Perris Yes - Only electronic billboards (6 max) City of Murrieta No new billboards allowed, only existing billboards are subject to relocation/reconstruction agreements
City of Temecula No
City of Lake Elsinore No
City of Riverside No
City of Corona No
City of Moreno Valley No
City of Yucaipa Yes - Only electronic billboards (3 Max) County of Riverside No
Several California jurisdictions have utilized negotiated agreements with billboard operators to facilitate the installation of digital billboard signage while securing public benefits for their communities.
For example, the City of Perris entered into a relocation agreement with a sign company that provided for the removal of 32 existing static billboards located throughout the City in exchange for the installation of six new digital billboard structures. As part of the negotiated agreement, the City also secured a public benefit in the form of complimentary advertising time on the two digital freeway-oriented billboards, allowing the City to promote public service announcements, community events, emergency notifications, and other municipal messaging at no cost.
Similarly, the City of Yucaipa entered into a Development Agreement with a sign company to authorize the construction and operation of three digital billboards. In exchange, the agreement required the sign company to provide an ongoing public benefit to the City through annual revenue sharing. Specifically, the City receives the greater of $50,000 per year or 12 percent of the gross advertising revenue generated by each digital billboard, thereby creating a recurring source of municipal revenue while allowing the digital signage to operate.
The City of Murrieta also utilizes relocation agreements to relocate and rebuild billboard structures. In a recent agreement between the City of Murrieta and a sign company, the City secured several public benefits, including a one-time payment of $250,000 for each digital billboard, annual revenue sharing equal to the greater of $100,000 per year or 25 percent of the gross advertising revenue, complimentary public service announcement time on each digital billboard, and the donation of a digital monument sign for City Hall.
These examples illustrate how local agencies have negotiated agreements that balance the introduction of digital billboard technology with tangible public benefits, including the removal of existing billboards, enhanced public communication opportunities, and ongoing financial contributions that support municipal services and community initiatives.
City of Menifee Staff Report
Outdoor Advertising Displays
August 19, 2026
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Considerations
When evaluating whether to permit billboards within City limits, City Council should consider a balanced approach that addresses public safety, regulatory compliance, economic benefits, and long-term community impacts. The introduction of billboards, whether traditional or digital, requires thoughtful planning to ensure alignment with Menifee’s goals.
Safety
The safety of travelers along the interstate, highways, and public roads must be considered as part of any amendment to an ordinance related to billboards and other signs. Driver distraction by advertising displays which may have changeable electronic messages would need to be considered and restrictions included ensuring that information is presented safely and effectively.
To mitigate these risks, the City may consider limiting billboard types to digital displays only, including restrictions on message frequency, brightness, and display duration to ensure information is presented in a safe matter. Such controls are allowed by the State through the adoption of a City ordinance.
Existing Billboards and Amortization Considerations
As part of its consideration to allow billboard advertising within City limits, the City Council should also evaluate the status of the thirteen existing traditional billboards. One policy option is to include an amortization provision in the ordinance, which would establish a reasonable time frame for the removal of nonconforming billboards.
City Codes and Ordinances Amendments
Permitting new billboards would require updates to existing Municipal Codes to ensure consistency with local goals and standards. Staff has reviewed applicable ordinances and determined that the following sections would require amendments prior to the approval of any billboard installations:
1. Title 9: Planning & Zoning, Chapter 9.220 Sign Regulations
2. Title 6: Health and Sanitation, Chapter 6.01 Dark Sky, Light Pollution
3. General Plan, Design Review Guidelines
These updates would establish appropriate design standards, location criteria, and operational limitations to safeguard the safety of travelers and protect the community’s character.
Economic and Revenue Considerations
Strategically located billboards, particularly along high-visibility corridors such as I-215, presents the City of Menifee with an opportunity to generate a reliable source of revenue through development agreements with outdoor advertising companies. Additional benefits may include free or reduced-cost advertising space for City-led campaigns, emergency alerts, and public service announcements. In cases where digital billboards are proposed, agreements could also include smart infrastructure upgrades that align with Menifee’s innovation and connectivity goals.
However, the City must also consider potential downsides, including the long-term visual impact of billboards on the community's character. Careful negotiation and oversight would be necessary to ensure public benefit outweighs any potential drawbacks.
City of Menifee Staff Report
Outdoor Advertising Displays
August 19, 2026
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TABLE 3: PROS AND CONS OF OUTDOOR ADVERTISING DISPLAYS
Pros Cons
Revenue Generation: Cities can generate
income through development agreements
and permit fees with billboard companies
Visual Blight: Billboards can impact the
scenic quality or aesthetic character of a city
Economic Development: Digital billboards
can promote local business, City services
and events
Driver Distraction: Large or dynamic digital
displays can pose a safety risk by diverting
drivers’ attention from the road
Public Messaging Tool: Digital billboards
can be used to display emergency alerts
(Amber Alerts, traffic updates)
Lighting Impacts: Digital billboards can
contribute to light pollution and energy use
Conclusion
The information presented in this report is intended to provide the City Council with an overview of the regulatory framework and current practices related to outdoor advertising displays in California, including examples of how other jurisdictions have addressed digital billboard signage.
This information is provided to assist the City Council in evaluating potential policy considerations and to obtain direction regarding whether staff should pursue amendments to the City's billboard ordinance. Based on the Council's direction, staff could evaluate potential ordinance modifications and return with any recommended code amendments for future consideration.
STRATEGIC PLAN OBJECTIVE
Thriving Economy
FISCAL IMPACT
There is no fiscal impact associated with the recommended action. Any policy recommendations made by City Council that impact revenue and/or expenditures would be calculated and presented on a later date for further consideration.
ATTACHMENTS
1. Existing Billboard Locations