City of Sacramento
Law and Legislation Committee Report
915 I Street Sacramento, CA 95814
www.cityofsacramento.org
File ID: 2025-01064 10/14/2025
Railyards SPD - Subdistrict 2 - Static Digital Signs for Large Entertainment Venues (M25-009) File ID: 2025-01064
Location: Sacramento Railyards Special Planning District - Subdistrict 2, District 4 Recommendation: 1) Review an ordinance amending subsection 15.148.193.F of the Sacramento City Code, relating to signs in the Railyards; and 2) pass a Motion forwarding the ordinance to City Council for consideration.
Contact: Matthew Sites, Senior Architect, AIA, LEED AP, (916) 808-7646, [email protected]; Bruce Monighan, Urban Design Manager, (916) 808-5260, [email protected]; Community Development Department Presenter: Matthew Sites, Senior Architect, AIA, LEED AP, (916) 808-7646, [email protected], Community Development Department Attachments:
1-Description/Analysis
2-Ordinance, Clean
3-Ordinance, Redline
4-Staff Presentation
Description/Analysis
Issue Detail: On April 8, 2025, City Council recognized the strategic and economic importance of establishing a Railyards special sign district by passing a motion directing the Interim City Manager or designee to prepare for City Council consideration an ordinance establishing a Railyards special sign district to address gaps in the urban fabric and complement adjacent special planning districts.
Staff is bringing forward a separate ordinance that deletes and adds City Code section 15.148.193 to create the Railyards special sign district with five subdistricts, one of which is subdistrict 2, the Sacramento Shops Historic District, which embodies the history, structure and namesake of the Railyards. The rehabilitation and repurposing of these existing historic structures into new activated uses requires a fresh yet thoughtful approach to signage.
The proposed ordinance amends City Code section 15.148.193.F., which addresses subdistrict 2 in the Railyards special sign district, to allow the use of static digital displays that are intended to
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support the adaptive reuse of historic buildings (such as the Paintshop Building) within the Sacramento Shops Historic District. The proposed amendment would allow limited special signage for large entertainment venues, defined as permanent buildings or structures primarily used for entertainment and capable of accommodating more than 2,000 people.
While digital signs are currently prohibited within historic districts, the proposed amendment would allow digital in format limited to static display only, meaning content would not update every few seconds (as with typical digital signs), but no more than once per day. This approach offers flexibility in time, place, and manner of signage while ensuring compatibility with the historic character of the district and maintaining reversibility.
The proposed amendment language is consistent with existing City Code section 15.148.920 (“Signs for Large Entertainment Venues”), but applies exclusively to historic structures within the Sacramento Shops Historic District of the Railyards Special Planning District - subdistrict 2. Illumination levels are also addressed in the proposed amendment to complement the character of the historic district.
Staff is requesting the Law and Legislation Committee accept and forward the proposed amendment to City Council for adoption.
Policy Considerations: The proposed amendment to signage within the Railyards special sign district, subdistrict 2, Sacramento Shops Historic District would allow limited digital signage within the district while preventing uncontrolled proliferation of digital signs and respectfully promoting new technology to increase economic vitality for businesses, consistent with the following 2040 General Plan goals and policies.
Goal LU 2.4. City of Distinctive and Memorable Places. Promote community design that produces a distinctive, high-quality built environment whose forms and character reflect Sacramento’s unique historic, environmental, and architectural context, and create memorable places that enrich community life.
Policy LU 2.4.1. Unique Sense of Place. The City shall promote quality site, architectural, and landscape design that incorporates those qualities and characteristics that make Sacramento desirable and memorable including: walkable blocks, distinctive parks and open spaces, tree-lined streets, and varied architectural styles.
The Railyards is one of the last large downtown infill sites on the west coast, which makes it unique and an opportunity to apply distinct solutions for City integration. The utilization of limited digital signage in a static format selectively within the Sacramento Shops Historic District for large entertainment venues could benefit a building like the Paintshop as it is converted into one of these venues.
GOAL HCR 2.1 Identification and Preservation of Historic and Cultural Resources. Identify and
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preserve the city’s historic and cultural resources to enrich our sense of place and our understanding of the City’s prehistory and history.
HCR 2.1.14 Adaptive Reuse. The City shall encourage adaptive reuse of historic resources when the original use of the resource is no longer feasible.
HCR 2.1.11 Compatibility with Historic Context. The City shall review proposed new development, alterations, and rehabilitation/remodels for compatibility with the surrounding historic context. The City shall pay special attention to the scale, massing, and relationship of proposed new development to surrounding historic resources.
The Sacramento Shops Historic District epitomizes the Railyards identity and serves as a reminder of the past while offering the opportunity to adaptively reuse the existing structures. New uses of these historic spaces require signage commensurate with the use, such as a music venue marquee sign while still being true to the historic form and structure details.
Goal HR-1: Provide for the public use and enjoyment of historic resources within the Plan Area.
Policy HR-1.1: Allow a mixture of public oriented, cultural, and commercial-recreational uses that reinforce the Sacramento Shops Historic District as a regional destination and that promote viable reuse of the historic district.
Policy HR-1.4: Preserve and rehabilitate the Southern Pacific Depot complex in a manner that will enhance its civic significance in the downtown and Railyards area and in conformance with the City of Sacramento’s SITF site plan.
The Sacramento Shops Historic District reflects the character and legacy of the Railyards while offering opportunities for adaptive reuse of its historic structures. As these spaces are repurposed for new functions-such as music and entertainment venues-some uses will require signage that is appropriate to their scale and visibility needs yet still respects the architectural integrity and historic character of the buildings. The proposed ordinance aims to strike a thoughtful balance between modern functional requirements and historic preservation. It allows for limited, static digital signage that complements the historic setting while supporting public access, engagement, and the long-term viability of these landmark structures.
Economic Impacts: Not applicable.
Environmental Considerations: The Community Development Department, Environmental Planning Services Section has determined, pursuant to California Environmental Quality Act (CEQA) Guidelines section 15061(b)(3) that the proposed ordinance is exempt from CEQA. The ordinance to
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allow for limited digital signage within the historic district while continuing to protect the historic integrity of the district and its contributing resources is covered by the common-sense exemption (§15061(b)(3)). With the review protections described in the ordinance and the ability for modifying and removing the signage, the ordinance would not result in a significant effect on the environment and as such is exempt from CEQA. The Railyards Specific Plan Update, KP Medical Center, MLS Stadium, and Stormwater Outfall Subsequent EIR which was certified by the City Council on November 11, 2016 (Resolution No. 2016-0379) included discussion of allowing for provision of tenant signage on walls in addition to the prior allowed signs within the Central Shops District.
Sustainability: No sustainability considerations apply to the request.
Commission/Committee Action: On June 18, 2025, the Preservation Commission passed a motion forwarding a recommendation to City Council to adopt an ordinance amending section
15.148.193 of the Sacramento City Code (Railyards Special Planning District) to allow static digital signage for large entertainment venues within the Sacramento Shops Historic District (Subdistrict 2).
Rationale for Recommendation: This amendment would allow for limited static digital signage within the Sacramento Shops Historic District while continuing to protect the historic integrity of the historic district and its contributing resources.
Financial Considerations: None.
Local Business Enterprise (LBE): No goods or services are being purchased under this report.
Background: In 2022, the Paintshop Building was approved for an adaptive reuse as a 5,000-seat live entertainment venue, which requires signage to advertise performances and events. This presents a unique challenge when such uses are located within historic buildings. Traditionally, entertainment venues used static marquee signs with interchangeable letters to promote upcoming acts. However, the buildings within the Sacramento Shops Historic District were originally industrial and not designed for entertainment purposes, meaning they lack precedent for such signage.
Staff has taken into consideration the following U.S. Secretary of the Interior’s Standards for the Treatment of Historic Properties (Rehabilitation Treatment) and National Park Services Preservation Brief while developing this sign code:
1. Standard 2 - Historic Character
"The historic character of a property shall be retained and preserved. The removal of historic materials or alteration of features and spaces that characterize a property shall be avoided." · Implication: Static digital signs would not obscure, damage, or detract from character-
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defining features of the building or site.
2. Standard 9 - New Additions
"New additions, exterior alterations, or related new construction shall not destroy historic materials that characterize the property."
· Implication: Static digital signs would be reversible and should not require major alterations to historic materials (e.g., drilling into masonry).
3. Standard 10 - Reversibility
"New additions and adjacent or related new construction shall be undertaken in such a manner that, if removed in the future, the essential form and integrity of the historic property and its environment would be unimpaired."
· Implication: Static digital signs would be installed in ways that allow for full removal without permanent damage.
National Park Service (NPS) Guidance on Signage:
In its Preservation Brief 25: The Preservation of Historic Signs, the NPS provides additional guidance:
· New signs should be compatible with the historic character of the building. · Internally illuminated signs (including digital) are often inappropriate for historic buildings, particularly if they are overly bright or clash with the aesthetic. · Flashing, blinking, or excessively animated digital signs are generally discouraged.
Overall, digital signs may be allowed under the Standards if they:
· Are reversible and do not damage historic materials.
· Do not detract from or obscure character-defining features. · Are compatible in design, scale, and illumination with the historic property. · Are subtle in animation and lighting, avoiding modern visual clutter.
To support adaptive reuse, a modern interpretation of the marquee-specifically, static digital signage- can offer a practical and historically sensitive solution. While traditional signage often relies on illuminated individual letters to attract attention, it lacks the flexibility to accommodate the constantly changing needs of entertainment programming. A static digital sign serves as a contemporary equivalent to the marquee, offering several benefits: it can be updated instantly without the need for
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ladders or physical tools, it allows for custom graphics (such as artist images or event logos), and it supports the operational needs of a dynamic venue while maintaining compatibility with historic surroundings. Many historic theatres have adopted this type of signage while rehabilitating the building or existing marquees. Most importantly, the brightness of static digital signs will be consistent with standard signage (meeting City standards for digital illumination), and-true to their name-the displayed content will remain unchanged and non-animated for a full 24-hour period, ensuring visual stability and historic appropriateness.
For clarity, any proposed static digital signage will be subject to review by the Preservation Director.
As part of this review, the Director and staff will reference the existing Sacramento Shops Historic District Signage Guidelines, with the most relevant provisions outlined below.
PRINCIPLE: Signage in the Central Shops District (now renamed the Sacramento Shops Historic District) shall be designed to reflect the historical character of this area while creating a lively, vibrant entertainment district.
3) Design signs such that materials, illumination, and size complement the character of the historic resources, yet be of their own time.
7) Provide district identity markers that are pedestrian-scaled and related by design, materials, and location with the character-defining features of the historic district.
ORDINANCE NO.
Adopted by the Sacramento City Council
Date Adopted
AN ORDINANCE AMENDING SUBSECTION F OF SECTION
15.148.193 OF THE SACRAMENTO CITY CODE, RELATING TO
SIGNS WITHIIN THE RAILYARDS
BE IT ENACTED BY THE COUNCIL OF THE CITY OF SACRAMENTO:
SECTION 1.
A. Subsection F of section 15.148.193 of the Sacramento City Code is hereby amended to read as follows:
F. Within subdistrict 2, a large entertainment venue that falls within the parameters of subsection A.5 above is allowed static digital displays subject to the following:
1. A static digital display must be a permanently attached sign.
2. One static digital display per street frontage is allowed per primary use and must be attached to a marquee.
3. A static digital display may extend from the front of the marquee and return to the building.
4. The maximum display area of a static digital display is 150 square feet per marquee side.
5. Static digital displays are for primary users only and must be located adjacent to the primary public entrance. No static digital displays are allowed for other building users.
6. Each static digital display must be integral in design to the architectural style of the large entertainment venue to which it is attached.
7. General advertising for hire is not allowed.
8. Static digital displays must meet the following criteria:
a. A static digital display may show only a single still image per day.
The still images may not be animated (i.e., move or present the appearance of motion) and may not use flashing, scintillating, blinking, or traveling lights or any other means not providing constant illumination.
b. A static digital display must use either an instant transition between still images or a fading transition with a transition time between still images of not less than one second and not more than two seconds. A digital display must not go blank during a transition.
c. The maximum pixel pitch of a static digital display is 8 millimeters. d. Static digital displays must be equipped with a sensor or other device that automatically adjusts the brightness of the display according to changes in ambient lighting to comply with a brightness limitation of 0.3 foot-candles above ambient lighting. Static digital displays must transition smoothly at a consistent rate from the allowed daytime brightness to the allowed nighttime brightness levels, beginning 45 minutes before sunset and ending 45 minutes after sunset. An automatic photometric sensor must be provided for automatic dimming. e. Upon the request of the chief building official or designee, the display owner, at the owner's expense, shall have a city-approved testing agency measure the brightness of a digital display as follows:
Step One. Measure the display's brightness at night and during the day by focusing on the direct center of the display from a point that is 6 feet above grade and 20 feet away from the plane of the display (determined by a line that is within 6 degrees of a line perpendicular to the plane of the display).
Step Two. Use the following formula to determine the
"measurement distance" (the "display area" in the radicand is in square feet):
𝑀𝑀𝑀𝑀𝑀𝑀𝑀𝑀𝑀𝑀𝑀𝑀𝑀𝑀𝑀𝑀𝑀𝑀𝑀𝑀𝑀𝑀 𝐷𝐷𝐷𝐷
𝑀𝑀
𝑀𝑀𝑀𝑀𝑀𝑀
𝐷𝐷𝑀𝑀
(𝐷𝐷𝑀𝑀
𝑓𝑓𝑀𝑀𝑀𝑀𝑀𝑀) = �𝐷𝐷𝐷𝐷𝑀𝑀
𝐷𝐷𝐷𝐷𝑀𝑀𝐷𝐷
𝐴𝐴𝑀𝑀𝑀𝑀𝑀𝑀
𝑥𝑥 100
Step Three. Use the following formulas to calculate the display's equivalent maximum brightness during the day and at night:
Equivalent Maximum Nighttime Brightness
Bn = 180,000 ÷ D2
Bn = the equivalent maximum nighttime brightness
D = the measurement distance calculated in Step Two
Equivalent Maximum Daytime Brightness
Bd = 3,000,000 ÷ D2
Bd = the equivalent maximum daytime brightness
D = the measurement distance calculated in Step Two
Step Four. Measure the display's brightness at night and during the day by focusing on the direct center of the display from a point that is 6 feet above grade and D feet away (i.e., the measurement distance calculated in Step Two) from the plane of the display as determined by a line that is within 6 degrees of a line perpendicular to the plane of the display. If a brightness so measured exceeds the relevant equivalent maximum brightness calculated in Step Three, then the display's illumination must be adjusted so that it does not exceed that equivalent maximum brightness.
9. The hours of operation for static digital displays are from dawn to midnight.
10. Based on new or updated information or studies, the city council may amend the standards and other provisions in this section to mitigate effects on the visual environment or on residential properties or other sensitive receptors; to reduce driver distractions or other hazards to traffic; or to otherwise protect and promote the public health, safety, and welfare. The city council may apply the amended standards to existing signs and digital displays.
11. Site plan and design review under chapter 17.808 for static digital displays is subject to staff-level review as provided in section 17.812.010.D. Deviations may be approved under section 17.808.120.
B. Except as amended by subsection A above, all provisions of section 15.148.193 remain unchanged and in full effect.
ORDINANCE NO.
Adopted by the Sacramento City Council
Date Adopted
AN ORDINANCE AMENDING SUBSECTION F OF SECTION
15.148.193 OF THE SACRAMENTO CITY CODE, RELATING TO
SIGNS WITHIIN THE RAILYARDS
BE IT ENACTED BY THE COUNCIL OF THE CITY OF SACRAMENTO:
SECTION 1.
A. Subsection F of section 15.148.193 of the Sacramento City Code is hereby amended to read as follows:
F. [Reserved] Within subdistrict 2, a large entertainment venue that falls within the parameters of subsection A.5 above is allowed static digital displays subject to the following:
1. A static digital display must be a permanently attached sign.
2. One static digital display per street frontage is allowed per primary use and must be attached to a marquee.
3. A static digital display may extend from the front of the marquee and return to the building.
4. The maximum display area of a static digital display is 150 square feet per marquee side.
5. Static digital displays are for primary users only and must be located adjacent to the primary public entrance. No static digital displays are allowed for other building users.
6. Each static digital display must be integral in design to the architectural style of the large entertainment venue to which it is attached.
7. General advertising for hire is not allowed.
8. Static digital displays must meet the following criteria:
a. A static digital display may show only a single still image per day.
The still images may not be animated (i.e., move or present the appearance of motion) and may not use flashing, scintillating, blinking, or traveling lights or any other means not providing constant illumination.
b. A static digital display must use either an instant transition between still images or a fading transition with a transition time between still images of not less than one second and not more than two seconds. A digital display must not go blank during a transition.
c. The maximum pixel pitch of a static digital display is 8 millimeters. d. Static digital displays must be equipped with a sensor or other device that automatically adjusts the brightness of the display according to changes in ambient lighting to comply with a brightness limitation of 0.3 foot-candles above ambient lighting. Static digital displays must transition smoothly at a consistent rate from the allowed daytime brightness to the allowed nighttime brightness levels, beginning 45 minutes before sunset and ending 45 minutes after sunset. An automatic photometric sensor must be provided for automatic dimming. e. Upon the request of the chief building official or designee, the display owner, at the owner's expense, shall have a city-approved testing agency measure the brightness of a digital display as follows:
Step One. Measure the display's brightness at night and during the day by focusing on the direct center of the display from a point that is 6 feet above grade and 20 feet away from the plane of the display (determined by a line that is within 6 degrees of a line perpendicular to the plane of the display).
Step Two. Use the following formula to determine the
"measurement distance" (the "display area" in the radicand is in square feet):
𝑀𝑀𝑀𝑀𝑀𝑀𝑀𝑀𝑀𝑀𝑀𝑀𝑀𝑀𝑀𝑀𝑀𝑀𝑀𝑀𝑀𝑀 𝐷𝐷𝐷𝐷𝑀𝑀𝑀𝑀𝑀𝑀𝑀𝑀𝐷𝐷𝑀𝑀 (𝐷𝐷𝑀𝑀 𝑓𝑓𝑀𝑀𝑀𝑀𝑀𝑀) = �𝐷𝐷𝐷𝐷𝑀𝑀𝐷𝐷𝐷𝐷𝑀𝑀𝐷𝐷 𝐴𝐴𝑀𝑀𝑀𝑀𝑀𝑀 𝑥𝑥 100
Step Three. Use the following formulas to calculate the display's equivalent maximum brightness during the day and at night:
Equivalent Maximum Nighttime Brightness
Bn = 180,000 ÷ D2
Bn = the equivalent maximum nighttime brightness
D = the measurement distance calculated in Step Two
Equivalent Maximum Daytime Brightness
Bd = 3,000,000 ÷ D2
Bd = the equivalent maximum daytime brightness
D = the measurement distance calculated in Step Two
Step Four. Measure the display's brightness at night and during the day by focusing on the direct center of the display from a point that is 6 feet above grade and D feet away (i.e., the measurement distance calculated in Step Two) from the plane of the display as determined by a line that is within 6 degrees of a line perpendicular to the plane of the display. If a brightness so measured exceeds the relevant equivalent maximum brightness calculated in Step Three, then the display's illumination must be adjusted so that it does not exceed that equivalent maximum brightness.
9. The hours of operation for static digital displays are from dawn to midnight.
10. Based on new or updated information or studies, the city council may amend the standards and other provisions in this section to mitigate effects on the visual environment or on residential properties or other sensitive receptors; to reduce driver distractions or other hazards to traffic; or to otherwise protect and promote the public health, safety, and welfare. The city council may apply the amended standards to existing signs and digital displays.
11. Site plan and design review under chapter 17.808 for static digital displays is subject to staff-level review as provided in section 17.812.010.D. Deviations may be approved under section 17.808.120.
B. Except as amended by subsection A above, all provisions of section 15.148.193 remain unchanged and in full effect.
Railyards Special Sign District
M25-005, M25-009, M25-010
Law & Legislation Committee
Date 10/14/25
Vicinity Map
2 Specific Plan:
Railyards
Zone:
Central Business
District (C-3-SPD),
Railyards Special
Planning District
District Boundaries
3 Overlay Existing Railyards Special
Planning District Boundary for
consistency
Five separate subdistricts to
accommodate different uses,
needs, and schedules
Subdistrict 3
Digital Billboards
4 Limited use of Digital
Billboards to support
wayfinding
Subdistrict 2
Static Digital
Marquees
5 Leveraging new technology
thoughtfully within the
historic district
Thank you!
Contact Info:
Matthew Sites, AIA, LEED AP
Senior Architect
Planning Division
City of Sacramento
(916) 808-7646
[email protected]
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