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HomeMy WebLinkAboutItem 3.2Item 3.2 TOWN OF LOS ALTOS HILLS October 2, 2008 Staff Report to the Planning Commission RE: CONDITIONAL USE PERMIT RENEWAL FOR AN EXISTING/ PREVIOUSLY APPROVED WIRELESS COMMUNICATIONS FACILITY. THE FACILITY CONSISTS OF A GROUND EQUIPMENT CABINET AND TWO PANEL ANTENNAS MOUNTED TO AN EXISTING 55' TALL MONOPOLE. LANDS OF CALIFORNIA DEPARTMENT OF TRANSPORTATION (APPLICANT: T - MOBILE); 2350 OLD PAGE MILL ROAD; FILE # 87 -08 -CUP FROM: Nicole Horvitz, Assistant Planner 4 APPROVED BY: Debbie Pedro, AICP, Planning Director -,e RECOMMENDATION: That the Planning Commission: Forward a recommendation to the City Council that the Conditional Use Permit be extended for ten (10) years, subject to the amended Conditions of Approval in Attachment 1. On February 5, 1997, the City Council approved the installation of three wireless communications facilities: Pacific Bell Mobile Services (now T -Mobile), Cellular One (now AT&T), and Sprint Spectrum (now Sprint PCS) on a single monopole located at the Caltrans maintenance yard at 2350 Page Mill Road. GTE Mobile Communications (now Verizon Wireless) and Metro PCS were also approved to be co -located on the monopole on October 21, 1998 and January 10, 2002 respectively. In January 2005, T -Mobile purchased the subject wireless facility operating under the name Pacific Bell Wireless from Cingular. Conditions from the original approval in 1997 and the subsequent permit renewal stipulate that the Conditional Use Pemtit must be renewed within five (5) years from the date of the approval. On April 18, 2008, the applicant submitted an application for the Conditional Use Permit renewal which included a request to replace and upgrade the existing antennas and equipment cabinet. (Attachment 2). DISCUSSION The existing wireless communications facility consists of a 55' steel monopole at the south end of the Caltrans property. Two (2) T -Mobile flush mounted panel antennas Stall Report to the Planning Commission October 2, 2008 Page 2 of 5 (51"h x 13"w x 3"d) are currently mounted on the pole at 46' from grade. The applicant is proposing to upgrade the existing antennas and replace them with two (2) flush mounted panel antennas of a similar size (55.9"h x13.3"w x3.15"d). The existing equipment cabinet at the base of the pole will also be replaced with one which is approximately the same size. In addition to upgrading the existing antennas and ground cabinet, the applicant is proposing to install six (6) 15 gallon oleanders along Page Mill Road to help screen the site. (Condition of approval #4). Pursuant to Government Code Section 65964(b) the duration of time for any permit renewal for a wireless telecommunications facility should be a minimum of 10 years Staff Report to the Planning Commission October 2, 2008 Page 3 of 5 (currently 5 years). Staff has amended condition of approval # 2 in Attachment 1 to comply with State Law. Wireless Communications Facilities Policy The facility is consistent with the Town's Wireless Communications Facilities Policy. This is a non-residential site, a co -location project, and visual impacts are minimized by the location of the antennas and the extensive landscape screening shielding the view of facility from residential properties north of the project site. The Policy requires that a 3-5 year Master Plan be included with the application. A 3-5 year Master Plan showing existing T -Mobile facilities and the coverage in the Los Altos Hills and Los Altos areas is included as Attachment 4. The facility is operating in compliance with conditions of the approved Conditional Use Permit and the Wireless Communications Facilities Policy. The applicant has submitted a report demonstrating that the proposed facility will operate within federal RF emissions standards and guidelines. (Attachment 3) Extension of the Use Permit will allow continued operation of the facility for an additional ten (10) years at which time subsequent Planning Commission/City Council review will be required. CEQA STATUS The proposed application is exempt from California Environmental Quality Act (CEQA) pursuant to Section 15301(a) of the CEQA Guidelines. ATTACHMENTS 1. Original Conditions of Approval (January 10, 1997) with amended conditions # 2 and #4 2. Applicant's statement requesting permit renewal 3. Radio Frequency emissions report by Hammett & Edison, Inc. dated March 27, 2008 4. T -Mobile 3-5 Year Antenna Master Plan 5. Photo Simulations 6. Wireless Communications Facilities Policy 7. Site Development Plans Attachment 1 CONDITIONAL USE PERMIT FORA WIRELESS COMMUNICATIONS FACILITY LANDS OF CALIFORNIA DEPT. OF TRANSPORTATION(T-MOBILE) 2350 PAGE MILL ROAD; FILE # 87 -08 -CUP PLANNING DEPARTMENT 1. Any changes or revisions to the telecommunications facility or its use shall require an amendment to the applicable conditional use permit(s). Additionally, the Planning Director may schedule a review or revocation hearing before the Planning Commission regarding the use permit, if any condition of approval is not being met or the facility is being used inconsistent with the approved use or in violation of Town development codes. 2. The use permit shall expire ten (10) years from the date of approval. Renewal of the permit must be requested in writing, with appropriate fees, prior to the expiration date. 3. The monopole shall be painted to the satisfaction of the Planning Director, prior to final inspection of the facility. The equipment units/shelters shall be painted a color, to be determined by the Planning Department, to blend with the surrounding environment prior to final inspection of the facility. 4. The landscape screening as shown on sheet Ll shall be installed prior to final inspection ofthe facility. 5. The applicant shall submit a signed agreement to the Town, agreeing that, should the use be discontinued by the carrier, all facilities will be removed not later then 90 days after discontinuance of the use or abandonment. The agreement shall be drafted by the City Attorney, and must be signed by the applicant and submitted to the Town prior to acceptance ofplans for building plan check 6. Not later then 30 days after installation and initial operation of the antenna facility, and on or prior to January 1" of each year thereafter, testing of radio frequency emissions shall be conduced by qualified professionals and the reports of such testing shall be provided in writing to the Planning Department, with comparison of applicable Federal emissions standards. If at any time the emission levels are shown not to comply with Federal standards, the use permit shall be scheduled for a revocation hearing before the Planning Commission. Staff Report to the Planning Commission October 2, 2008 Page 5 of 5 ENGINEERING DEPARTMENT: 7. Any, and all, changes to the proposed Site Plan shall first be approved by the Town Engineering Department. 8. Any, and all, areas on the project site that have the native material disturbed shall be protected for erosion control during the rainy season and shall be replanted prior to final inspection. 9. The applicant shall inform the Town of any damage and shall repair any damage caused by the construction of the project to pathways, private driveways, and public and private roadways, prior to final inspection and shall provide the Town with photographs of the existing conditions of the roadways and pathways prior to acceptance ofplansfor buildingplan check CONDITION NUMBERS 5 and 9 SHALL BE COMPLETED AND SIGNED OFF BY THE PLANNING DEPARTMENT AND THE ENGINEERING DEPARTMENT PRIOR TO ACCEPTANCE OF CONSTRUCTION PLANS FOR PLAN CHECK BY THE BUILDING DEPARTMENT. April 18, 2008 RECEIVED APR 13 2008 Attachment 2 Town of Los Altos Hills 26379 Fremont Road TOWN OF LOS ALTOS HILLS Los Altos Hills, CA 94022 Re: Proposed modification to existing T -Mobile site and renewal of Use Permit 68412 -CUP 2350 Old Page Mill Road T -Mobile respectfully requests the renewal of the above mentioned conditional use permit application and modification to the wireless telecommunications facility associated with the permit. The proposed scope of work consists of replacing one equipment cabinet and two antennas with similar equipment and antennas as part of a technology upgrade. Please do not hesitate to contact me with any questions regarding this application at 530.219.8903 or Sincerely`' Alex Morin Attachment 3 RECEIVED T -Mobile • Base Station No. SF04629A 2350 Page Mill Road • Los Altos Hills, California APR is 2008 Statement of Hammett & Edison, Inc., Consulting Engineers TOWN OF LOS ALTOS HILLS The firm of Hammett & Edison, Inc., Consulting Engineers, has been retained on behalf of T -Mobile, a personal wireless telecommunications carrier, to evaluate the proposed modifications to its existing base station (Site No. SF04629A) located at 2350 Page Mill Road in Los Altos Hills, California, for compliance with appropriate guidelines limiting human exposure to radio frequency ("RF") electromagnetic fields. Prevailing Exposure Standards The U.S. Congress requires that the Federal Communications Commission ("FCC") evaluate its actions for possible significant impact on the environment. In Docket 93-62, effective October 15, 1997, the FCC adopted the human exposure limits for field strength and power density recommended in Report No. 86, "Biological Effects and Exposure Criteria for Radiofrequency Electromagnetic Fields," published in 1986 by the Congressionally chartered National Council on Radiation Protection and Measurements ("NCRP"). Separate limits apply for occupational and public exposure conditions, with the latter limits generally five times more restrictive. The more recent standard, developed by the Institute of Electrical and Electronics Engineers and approved as American National Standard ANSMEEE C95.1-2006, "Safety Levels with Respect to Human Exposure to Radio Frequency Electromagnetic Fields, 3 kHz to 300 GHz," includes similar exposure limits. A summary of the FCC's exposure limits is shown in Figure 1. These limits apply for continuous exposures and are intended to provide a prudent margin of safety for all persons, regardless of age, gender, size, or health. The most restrictive FCC limit for exposures of unlimited duration to radio frequency energy for several personal wireless services are as follows: Personal Wireless Service Ap or�quencv Occupational Linul Public Limit Personal Communication ("PCS") 1,950 MHz 5.00 mW/cm2 1.00 mW/cm2 Cellular Telephone 870 2.90 0.58 Specialized Mobile Radio 855 2.85 0.57 [most restrictive frequency range] 30-300 1.00 0.20 General Facility Requirements Base stations typically consist of two distinct parts: the electronic transceivers (also called "radios" or "channels") that are connected to the traditional wired telephone lines, and the passive antennas that send the wireless signals created by the radios out to be received by individual subscriber units. The transceivers are often located at ground level and are connected to the antennas by coaxial cables about 1 inch thick. Because of the short wavelength of the frequencies assigned by the FCC for r� HAMMEIT&EDISON, INC. TM04629596 X1. • eausmrNG ENGMEEss r., vusxauvsco Page I of 4 T -Mobile • Base Station No. SF04629A 2350 Page Mill Road • Los Altos Hills, California wireless services, the antennas require line -of -sight paths for their signals to propagate well and so are installed at some height above ground. The antennas are designed to concentrate their energy toward the horizon, with very little energy wasted toward the sky or the ground. Along with the low power of such facilities, this means that it is generally not possible for exposure conditions to approach the maximum permissible exposure limits without being physically very new the antennas. Computer Modeling Method The FCC provides direction for determining compliance in its Office of Engineering and Technology Bulletin No. 65, "Evaluating Compliance with FCC -Specified Guidelines for Human Exposure to Radio Frequency Radiation," dated August 1997. Figure 2 attached describes the calculation methodologies, reflecting the facts that a directional antenna's radiation pattern is not fully formed at locations very close by (the "near -field" effect) and that at greater distances the power level from an energy source decreases with the square of the distance from it (the "inverse square law"). The conservative nature of this method for evaluating exposure conditions has been verified by numerous field tests. Site and Facility Description Based upon information provided by T -Mobile, including zoning drawings by Delta Groups Engineering, Inc., dated March 11, 2008, that carrier presently has installed two directional antennas on an existing 55 -foot steel pole located in the Caltrans maintenance yard at 2350 Page Mill Road in Los Altos Hills. T -Mobile proposes to replace the existing antennas with two RFS Model APXI6DWV--I6DWV directional panel antennas. The antennas would be mounted at an effective height of about 48 feet above ground and would be oriented with up to 40 downtilt toward 120°T and 3000T. The maximum effective radiated power in any direction would be 1,730 watts, representing the simultaneous operation of two PCS channels at 480 watts each and two AWS channels at 385 watts each. Presently located or proposed to be located on the same pole are similar antennas for use by AT&T Wireless, MetroPCS, Verizon Wireless, and Sprint Nextel, other wireless telecommunications carriers. For the purposes of this study, the transmitting facilities of those carriers are assumed to be as follows: Carrier Antenna Model Honk Senice Mminnuan FRY AT&T Andrew DB806 57 feet cellular 1,500 watts Metro Powerwave 7721.02 52 PCS 1,890 Verizon Andrew 731DG65 411/2 { cellular 1,500 PCS 1,500 Sprint Nextel Andrew MB48RR65 331/2 { SMR 1,500 PCS 1,500 34 HAMMEIT & EDISON, INC. coms�n.rwc aucauaras TM04629596 f4v SAN taAIA%ll Page 2 of T -Mobile • Base Station No. SF04629A 2350 Page Mill Road • Los Altos Hills, California Study Results The maximum ambient RF level anywhere at ground level due to the proposed T -Mobile operation by itself is calculated to be 0.0030 mW/cm2, which is 0.30% of the applicable public exposure limit. The maximum calculated cumulative level at ground for the simultaneous operation of all five carriers is 4.0% of the public exposure limit; the maximum level at the second -floor elevation of any nearby building' is 6.0% of the public exposure limit. It should be noted that these results include several "worst-case" assumptions and therefore are expected to overstate actual power density levels. No Recommended Mitigation Measures Due to their mounting location, the T -Mobile antennas are not accessible to the general public, and so no mitigation measures are necessary to comply with the FCC public exposure guidelines. It is presumed that the several carriers will, as FCC licensees, take adequate steps to ensure that their employees or contractors comply with FCC occupational exposure guidelines whenever work is required near the antennas themselves. Conclusion Based on the information and analysis above, it is the undersigned's professional opinion that the T -Mobile base station located at 2350 Page Mill Road in Los Altos Hills, California, will comply with the prevailing standards for limiting public exposure to radio frequency energy and, therefore, will not for this reason cause a significant impact on the environment. The highest calculated level in publicly accessible areas is much less than the prevailing standards allow for exposures of unlimited duration. This finding is consistent with measurements of actual exposure conditions taken at other operating base stations. Located a least 190 feet away, based on aerial photographs from Terraserver. FIAMMETT & EDISON, INC. X k # MNSInnNGENMTEER.S 2f kYGf SAN FlUNOSCO TM04629596 Page 3 of T -Mobile • Base Station No. SF04629A 2350 Page Mill Road • Los Altos Hills, California Authorship The undersigned author of this statement is a qualified Professional Engineer, holding California Registration Nos. E-13026 and M-20676, which expire on June 30, 2009. This work has been carried out by him or under his direction, and all statements we true and correct of his own knowledge except, where noted, when data has been supplied by others, which data he believes to be correct. March 27, 2008 HAMMETT & EDISON, INC ,' "_ mNsu�.rwcsw©wsms TM04629596 sANPMN O Page 4 of FCC Radio Frequency Protection Guide The U.S. Congress required (1996 Telecom Act) the Federal Communications Commission ("FCC") to adopt a nationwide human exposure standard to ensure that its licensees do not, cumulatively, have a significant impact on the environment. The FCC adopted the limits from Report No. 86, "Biological Effects and Exposure Criteria for Radiofrequency Electromagnetic Fields," published in 1986 by the Congressionally chartered National Council on Radiation Protection and Measurements ("NCRP"). Separate limits apply for occupational and public exposure conditions, with the latter limits generally five times more restrictive. The more recent standard, developed by the Institute of Electrical and Electronics Engineers and approved as American National Standard ANSI/IEEE C95.1-2006, "Safety Levels with Respect to Human Exposure to Radio Frequency Electromagnetic Fields, 3 kHz to 300 GHz," includes similar limits. These limits apply for continuous exposures from all sources and are intended to provide a prudent margin of safety for all persons, regardless of age, gender, size, or health. As shown in the table and chart below, separate limits apply for occupational and public exposure conditions, with the latter limits (in italics and/or dashed) up to five times more restrictive: Frequency Electromagnetic Fields (f is frequency of emission in MHz) Applicable Electric Magnetic Equivalent Far -Field Range Field Strength Field Strength Power Density (Wh) (V/m) (Alm) (mwlana) 0.3— 1.34 614 614 1.63 1.63 100 100 1.34— 3.0 614 823.8/f 1.63 2.191f 100 180/f, 3.0— 30 1842/f 823.8/f 4.89/f 2.19/f 900/f 18011 30— 300 61A 17.5 0.163 0.0729 1.0 0.2 300— 1,500 3.54fr 1.59ff ff/106 '&238 f/300 f11500 1,500— 100,000 137 61.4 0.364 0.163 5.0 1.0 1000 Occupational Exposure 100 PCS 3rE 10 �\ Cell FM ao3 E I- \� 0.1— 0.1 Public Ex sure 0.1 1 10 100 103 104 t05 Frequency (MHz) Higher levels are allowed for short periods of time, such that total exposure levels averaged over six or thirty minutes, for occupational or public settings, respectively, do not exceed the limits, and higher levels also are allowed for exposures to small areas, such that the spatially averaged levels do not exceed the limits. However, neither of these allowances is incorporated in the conservative calculation formulas in the FCC Office of Engineering and Technology Bulletin No. 65 (August 1997) for projecting field levels. Hammett & Edison has built those formulas into a proprietary program that calculates, at each location on an arbitrary rectangular grid, the total expected power density from any number of individual radio sources. The program allows for the description of buildings and uneven terrain, if required to obtain more accurate projections. �'•�HAMMErr & EDISON, INC. FCC Guidelines " consucrwc srJcwsrres '�r.9h awtan. . Figure I RFR.CALCTM Calculation Methodology Assessment by Calculation of Compliance with FCC Exposure Guidelines The U.S. Congress required (1996 Telecom Act) the Federal Communications Commission ("FCC") to adopt a nationwide human exposure standard to ensure that its licensees do not, cumulatively, have a significant impact on the environment. The maximum permissible exposure limits adopted by the FCC (see Figure 1) apply for continuous exposures from all sources and are intended to provide a prudent margin of safety for all persons, regardless of age, gender, size, or health. Higher levels are allowed for short periods of time, such that total exposure levels averaged over six or thirty minutes, for occupational or public settings, respectively, do not exceed the limits. Near Field. Prediction methods have been developed for the near field zone of panel (directional) and whip (omnidirectional) antennas, typical at wireless telecommunications base stations, as well as dish (aperture) antennas, typically used for microwave links. The antenna patterns are not fully formed in the near field at these antennas, and the FCC Office of Engineering and Technology Bulletin No. 65 (August 1997) gives suitable formulas for calculating power density within such zones. 180 0.1 x P For a panel or whip antenna, power density S = 9 x n x DZ h' to mW/mm2 aw 0.1x16xgxP., and for an aperture antenna, maximum power density Smas = n x hr , in mW/cm where Ogw = half -power beamwidth of the antenna, in degrees, and Pnet = net power input to the antenna, in watts, D = distance from antenna, in meters, It = aperture height of the antenna, in meters, and n = aperture efficiency (unitless, typically 0.5-0.8). The factor of 0.1 in the numerators convects to the desired units of power density. Far Field. OET-65 gives this formula for calculating power density in the far field of an individual RF source: 2.56x1.64x100xRFFZ xERP power density $ = 4 x n x DZ , in mW/mm2 where ERP = total ERP (all polarizations), in kilowatts, RFF = relative field factor at the direction to the actual point of calculation, and D = distance from the center of radiation to the point of calculation, in meters. The factor of 2.56 accounts for the increase in power density due to ground reflection, assuming a reflection coefficient of 1.6 (1.6 x 1.6 = 2.56). The factor of 1.64 is the gain of a half -wave dipole relative to an isotropic radiator The factor of 100 in the numerator converts to the desired units of power density. This formula has been built into a proprietary program that calculates, at each location on an arbitrary rectangular grid, the total expected power density from any number of individual radiation sources. The program also allows for the description of uneven terrain in the vicinity, to obtain more accurate projections. HAMMETT& EDISON, INC "v m�usu�.rwc wcweass Methodology lap,I snNFa mm Figure2 lop AZT 4,1 'Mill, i _tli AILASM 1 M •+ • _ Attachment 5 Attachment 6 TOWN OF LOS ALTOS BILLS Policy Re: Wireless Communications Facilities Code Sections Section 10-1.703(h)(2) of the Zoning Ordinance allows service uses, including "communications facilities", to be permitted in the Town if a Conditional Use Permit is granted by the Planning Commission and City Council. Section 10-1.1107(1) of the Code outlines findings which must be made toapprovea use permit, including the proper location of the use or facility relative to others in the vicinity, the adequacy of the site to accommodate the use, and that the facility or use will not have an adverse effect on adjacent properties. Intent: The purpose of this policy is to outline the desired criteria for siting of wireless communications facilities, generally including monopoles, related antennas, and equipment shelters. As the Town's land use is virtually entirely residential, wireless communication facilities will be most appropriately located on public or institutional sites existing within the Town. Collocation, location on or near existing buildings, and landscape screening will be desired to minimize the visual impacts of the facilities on neighbors and the public. Policies Priorities for Siting. Wireless communication facilities shall generally be located on properties with priority as follows: a) Town -owned properties; b) Foothill College; c) water tanks; d) other public or quasi -public facilities, such as schools or churches; and e) residential properties of at least ten (10) acres. 2. Siting on Residential Parcels. Wireless communication facilities may be permitted on properties used for residential purposes or vacant parcels intended for residential use if the residential property owner provides written consent and significant visual impacts are mitigated. 3. Collocation. Collocation of wireless communication facilities with other facilities is encouraged to the maximum extent feasible, as long as the collocation is technologically compatible and does not substantially increase visual impacts. The Town will generally require as a condition of approval for any conditional use permit that the applicant permit collocation of other facilities, subject to technological constraints and Town review. Policy Re: Wireless Communications Facilities page 2 3a. Applications for collocation on an existing wireless communications facility shall be subject to an administrative review provided that the following requirement is met: • The collocated antennas and ground equipment shall be mounted or installed within an existing tower, building, or structure where the physical appearance of the existing facility is not altered to accommodate the additional antennas and equipment. 4. Landscape Screening and Color. Landscape screening shall be required by the Town to minimize the visual impacts of wireless communication facilities. Poles, antennas, and equipment buildings should be painted to blend with the surrounding environment and/or buildings to further minimize visual impacts. 5. Environmental Review. A Negative Declaration will typically be prepared for review of proposed wireless communication facilities, with special attention to the visual impacts of the facilities. Categorical exemptions may be used where facilities are collocated with or would be minimal additions to existing structures, with negligible additional visual impact. 6. Antenna Master Plans. Any applicant for a wireless communication facility site shall submit applications, to the best of their knowledge, for all sites anticipated to be required by the carrier for a three (3) to five (5) year period, and the requests shall be reviewed by the Planning Commission and City Council as a master plan application. 7. Term of Permits and Abandonment of Sites. Conditional use permits for wireless communication facilities shall be established for periods not to exceed five (5) years, at which time renewal of the permit must be requested by the applicant. More frequent review of the operation of the permit may be made a condition of approval. Approval will also require a written agreement from the applicant that, should the use be discontinued by the carrier, all facilities will be removed not later than ninety (90) days after discontinuance of the use or abandonment. Such a provision shall also be included in any lease with the Town for use of Town lands for wireless communications facilities. The Town may require bonding or other surety to assure the removal of such facilities. 8. Wireless communication firms shall, at the time of application for permits, demonstrate efforts which have been made to inform neighboring residents of the proposed facilities, such as conducting meetings, or mailing fact sheets and/or letters, etc. to neighbors. 9. The Planning Director is authorized to reduce or waive permit fees for any wireless communications facility that is proven to expand wireless coverage in the Town and is structurally capable of co -location. Policy Re: Wireless Communications Facilities page 10. The Planning Director is authorized to administratively approve portable wireless communications facilities also known as cell on wheels or COWS on certain properties as specified in Policy #1 on a temporary basis. _Approved by City Council: August 21, 1996 Amended September 15, 2005 Amended October 12, 2006