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TOWN OF LOS ALTOS HILLS January 7, 2010
Staff Report to the Planning Commission
RE: CONDITIONAL USE PERMIT RENEWAL AND MODIFICATION FOR AN
EXISTING/PREVIOUSLY APPROVED WIRELESS COMMUNICATIONS
FACILITY. LANDS OF CALIFORNIA DEPARTMENT OF TRANSPORTATION
(APPLICANT: VERIZON WIRELESS); 2350 OLD PAGE MILL ROAD; FILE #
133 -09 -CUP
FROM: Nicole Horvitz, Assistant Planner
APPROVED BY: Debbie Pedro, AICP, Planning DirectoV
RECOMMENDATION: That the Planning Commission:
Forward a recommendation to the City Council to approve the requested modification and
renewal of the Conditional Use Permit from 5 years to 10 years in compliance with
Government Code Section 65964(b), subject to the conditions in Attachment 1.
BACKGROUND
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 63' tall monopole located at
the Caltrans maintenance yard located at 2350 Page Mill Road. GTE Mobile
Communications (now Verizon Wireless) was approved to co -locate on the monopole on
October 21, 1998 and Metro PCS was approved on January 10, 2002.
As part of this Use Permit renewal, the applicant is requesting to replace four (4) existing
antennas on the facility with six (6) new antennas to improve the overall Verizon
network. (Attachment 2)
DISCUSSION
The existing wireless communications facility consists of a 63' tall steel monopole at the
south end of the Caltrans property. Four (4) Verizon flush mounted panel antennas (6' h x
1' w) are currently mounted on the pole at 41' from grade. The applicant is proposing to
replace the existing antennas with six (6) panel antennas (48"h x 13"w x 7.1"d) which
will extend 3' away from monopole. New coax cable will also be installed inside the pole
to connect to the existing ground equipment.
Staff Report to the Planning Commission
Lands of Caltrans (Verizon Wireless)
January 7, 2010
Page 2 of 5
Condition of approval #3 from the original conditions required that the monopole be
painted to the satisfaction of the Planning Director prior to final inspection. It appears that
the pole needs to be repainted to a darker color to blend in with the surrounding
landscaping. The applicant has agreed to paint the monopole and antennas in a color that
would be acceptable to the Town.
In order to have all the antennas on the pole match in color, staff recommends condition
of approval #4 requesting that the applicant contact all co -located wireless carriers on the
monopole and coordinate painting all of the antennas with the same color.
The applicant has agreed to install one (1)-36" box evergreen tree with a minimum height
of 10' at installation along Old Page Mill Road to help screen the view of the monopole
from off site. (Condition of approval 94)
Pursuant to Government Code Section 65964 (b) the duration of time for any permit
renewal for a wireless telecommunications facility shall be a minimum of 10 years
(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 in the vicinity of the site.
The Policy requires that a 3-5 year Master Plan be included with the application. A 3-5
year Master Plan showing existing Verizon facilities and the coverage in the Los Altos
Hills and Los Altos areas is included as Attachment 4.
CONCLUSION
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
radio frequency (RF) emissions 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.
c
S
? Staff Report to the Planning Conunission
Lands of Caltrans (Verizon Wireless)
January 7, 2010
Page 3 of 5
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, 4 & 5
2. Applicant's Statement Requesting Permit Renewal
3. Radio Frequency emissions report by Hammett & Edison, Inc. dated July 24, 2009
4. Verizon 3-5 Year Antenna Master Plan
5. Photo Simulations
6. Wireless Communications Facilities Policy
7. Site Development Plan
Staff Report to the Planning Commission
Lands of Caltrans (Verizon Wireless)
January 7, 2010
Page 4 of 5
ATTACHMENT 1
CONDITIONAL USE PERMIT
FOR A WIRELESS COMMUNICATIONS FACILITY
LANDS OF CALIFORNIA DEPT. OF TRANSPORTATION (VERIZON)
2350 PAGE MILL ROAD; FILE # 133 -09 -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 five 5) 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 applicant shall contact all co -located wireless carriers on the monopole, in an
effort to coordinate painting all the antennas on the monopole the same color.
5. The applicant shall install one (1) - 36" box evergreen tree, with a minimum
height of 10' at installation to provide screening along Old Page Mill Road prior
to final inspection. The species and location of tree shall be approved by the
Planning Director prior to installation.
6. 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 of plans for building plan check.
Staff Report to the Planning Commission
Lands of Caltrans (Verizon Wireless)
January 7, 2010
Page 5 of 5
7. Not later then 30 days after installation and initial operation of the antenna
facility, and on or prior to January 1St of each year thereafter, testing of radio
frequency emissions shall be conducted 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.
ENGINEERING DEPARTMENT:
8. Any, and all, changes to the proposed Site Plan shall first be approved by the
Town Engineering Department.
9. 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.
10. 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 of plans for building plan check.
CONDITION NUMBERS 6 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.
Attaclunent 2
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TOM OF 1
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Proiect Description
Nature of Request
Crown Castle of behalf of Verizon Wireless seeks approval of a Conditional Use Permit,
and maintain our facility by removing and replacing (4) panel antennas and adding (2)
additional panel antennas for a total of (6) new antennas. Verizon Wireless also proposes
to add (10) new coax lines to be housed within the existing monopole.
Property Description
The subject property is located at 2350 Page Mill Rd Los Altos Hills, Ca 94022. The
property is located within the jurisdiction of the town of Los Altos Hills.
Proiect Description
The (e) facility is a (63') sixty three foot monopole, wherein Verizon Wireless currently
has (4) panel antennas at (41') forty one feet and (4) omni "whip" antennas installed at
(63') sixty three feet on the monopole which is operated by Crown Castle. We are
proposing to remove the (4) Omni antennas and replace our existing panel antennas with
(4) new panel antennas as well as add an additional (2) panel antennas at (41') forty one
feet (See page A-2) on the existing monopole. The proposed installation will not increase
the overall height or diameter. The proposed coaxial cable will be housed within the
existing monopole frame to mitigate any potential visual impact. The purpose of these
"antennas" will be to enhance the overall Verizon network.
Statement of Operations
The existing Crown Castle communication facility only requires electrical services and
telephone services which are readily available to the building/site. No nuisances will be
generated by the proposed facility modifications, nor will the facility injure the public
health, safety, morals or general welfare of the community. Verizon technology does not
interfere with any other forms of communication devices whether public or private. The
814025
Crown Castle
Representing Verizon Wireless
additions/maintenance of this facility will actually enhance wireless communications for
residents or motorists traveling by providing seamless service to numerous customers.
As mentioned before, upon completion of construction, fine-tuning of the Crown Castle
facility may be�necessary, meaning the site will be adjusted once or twice a month by a
service technician for routine maintenance. No additional parking spaces are needed at
the project site for maintenance activities. The site is entirely self -monitored and
connects directly to a central office where sophisticated computers alert personnel to any
equipment malfunction or breach of security.
Because Crown Castle facility will be un -staffed, there will be no regular hours of
operation and no impact to existing traffic patterns. An existing dirt road will provide
ingress and egress allowing access to the technician who arrives infrequently to service
the site. No on-site water or sanitation services will be required as a part of this proposal.
Zoning Analysis
The proposed equipment modification will be located on an (e) Cellular facility.
Therefore, the "usage" is allowed, as we are merely "upgrading" the facility to eliminate
the need for an additional cell site in the area.
As mentioned above, the proposal includes the placement of electronic equipment which
Crown Castle / Verizon has designed in the "least visual obtrusive manner".
Compliance with Federal Regulations
Crown Castle will comply with all FCC rules goveming construction requirements,
technical standards, interference protection, power and height limitations, and radio
frequency standards. In addition, the company will comply with all FAA rules on site
location and operation.
814025 Crown Castle
Representing Verizon Wireless
Attachment 3
Verizon Wireless - Base Station No. 116514 "Highway 260/Pagep iLj-,0 0 2HOR
Crown Castle Site No. 677182 0 2350 Page Mill Road o Los Altos Hills, California
T OWU OF LOS ALTOS HILLS
Statement of Hammett a Edison, Inc., Consulting Engineers
The firm of Hammett & Edison, Inc., Consulting Engineers, has been retained on behalf of Verizon
Wireless, a personal wireless telecommunications carrier, to evaluate proposed modifications to its
existing base station (Site No. 116514 "Highway 280/Pagemill," Crown Castle No. 877182) 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
ANSI/IEEE 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
Approx. Frequency
Occupational Limit
Public Limit
Broadband Radio (`BRS")
2,600 MHz
5.00 mW/cm2
1.00 mW/cm2
Advanced Wireless ("AWS")
2,100
5.00
1.00
Personal Communication ("PCS")
1,950
5.00
1.00
Cellular Telephone
870
2.90
0.58
Specialized Mobile Radio ("SMR")
855
2.85
0.57
Long Term Evolution ("LTE")
700
2.33
0.47
[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
HAmmETT & EDISON, INC. VW9999500
i
CONSULTING ENGINEERS
SAN FRANCISCO Page 1 of
11
Verizon Wireless • Base Station No: 116514 "Highway 280/Pagemill"
Crown Castle Site No. 877182 2350 Page Mill Road • Los Altos Hills, California
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
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 near 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 Verizon, including zoning drawings by Smithco, dated May 21,
2009, that carrier presently has installed six Andrew directional panel antennas on a 63 -foot pole
located at 2350 Page Mill Road in Los Altos Hills. It is proposed to retain those antennas, three each
of Models 932LG65VTE-M and 854DG85VTEXY for PCS and cellular service, respectively, and
install three Andrew Model LNX-6512DS-T4M antennas for LTE service.. The antennas would be
mounted, with up to 11° downtilt, at an effective height.of about 41 feet above ground and would be
oriented in groups of three (one of each model) toward 30°T, 160°T, and 270°T. The maximum
effective radiated power in any direction would be 2,040 watts, representing simultaneous operation at
640 watts for PCS, 1,000 watts for cellular service, and 400 watts for LTE service.
Presently installed on the same pole are similar panel antennas for use by Metro, T -Mobile, and Sprint
Nextel, as well as omnidirectional antennas for use by AT&T, all wireless telecommunications
carriers. For the limited purposes of this study, transmitting facilities for those carriers are assumed to
be as follows:
HAMMETT & EDISON, INC.
CONSUMNG ENGINEERS V W 9999500
SAN FRANCISCO Page 2 of 4
Verizon Wireless • Base Station No. 116514 "Highway 230/Pagemill"
Crown Castle Site No. 377132 -2350 Page Mill Road • Los Altos Hills, California
Carrier
Service
Maximum ERP
Antenna Model
Height
AT&T
Cellular
1,500 watts
Decibel DB806
67 ft
Metro
PCS
1,890
Kathrein 742-213
58
T -Mobile
PCS
1,0001
AWS
1,000 fS
APXI6DWV
49
Sprint Nextel
PCS
1,500
EMS RR9017
32
SMR
1,500
Andrew DB844G65
32
Study Results
For a person anywhere at ground, the maximum ambient RF exposure level due to the Verizon
operation by itself is calculated to be 0.027 mW/cm2, which is 5.0% of the applicable public limit.
The maximum calculated cumulative level at ground, for the simultaneous operation of all five
carriers, is 8.2% of the public limit. The maximum calculated cumulative level at the second -floor
elevation of any nearby building would be 18% 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.
Recommended Mitigation Measures
Due to their mounting locations, the Verizon 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 all the 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
Verizon Wireless 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.
HAMMETT & EDISON, INC.
CONSULTING ENGINEERS VW9999500
SAN FRANCISCO
Page 3 of 4
Verizon Wireless - Base Station No. 116514 "Highway 280/Pagemill"
Crown Castle Site No. 877182.2350 Page Mill Road • Los Altos Hills, California
Authorship
The undersigned author of this statement is a qualified Professional Engineer, holding California
Registration No. E-18063, which expires on June 30, 2011. This work has been carried out by him or
under his direction, and all statements are true and correct of his own knowledge except, where noted,
when data has been supplied by others, which data he believes to be correct.
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HAMMETT & EDISON, INC.
CONSULTING ENGINEERS VW9999500
SAN FRANCISCO Page 4 of 4
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 ANSMEEE 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
(MHz)
(V/m)
(A/m)
(mW/cm2)
0.3— 1.34
614 614
1.63 1.63
100 100
1.34— 3.0
614 823.8/f
1.63 2.19/f
100 180/1
3.0— 30
1842/f 823.8/f
4.89/ f 2.19/f
900/ f2 18011-
80/j'30—
30-300
61.4 27.5
0.163 0.0729
1.0 0.2
300— 1,500
3.544f 1.59ff
Tfn06 Nf1238
f/300 f/1500
1,500— 100,000
137 61.4
0.364 0.163
5.0 1.0
1000
100
10
I
0.1
Occupational Exposure
` PCS
� FM
`s
Public Exposure
0.1 1 10 100 103 104 105
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.
HAMMETT & EDISON, INC.
CONSULTING ENGINEERS FCC Guidelines
- i.
SAN FRANCISCO Figure 1
RFRCALCTM Calculation Methodology
Assessment by Calculation of Compliance with FCC Exposure Guidelines
The U.S. Congress required (1996 Telecom Act) the Federal Communications Cominission ("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.
For a panel or whip antenna, power density S = 180 x 0.1 x Pnac , in mW/cm2,
OBw nxD xh
and for an aperture antenna, maximum power density Smax =
0.1x16x17XP.,,
nxh2
where BBW = half -power beamwidth of the antenna, in degrees, and
Pnet = net power input to the antenna, in watts,
D = distance from antenna, in meters,
h = aperture height of the antenna, in meters, and
77 = aperture efficiency (unitless, typically 0.5-0.8).
The factor of 0.1 in the numerators converts to the desired units of power density.
, in mW/CM2,
Far Field.
OET-65 gives this formula for calculating power density in the far field of an individual RF source:
2.56 x 1.64 x 100 x RFF2 x ERP
power density s = 2 in mW/cm2,
4xarxD
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.
? 1 " CONSULTING ENGINEERS Methodology
SAN FRANCISCO Figure 2
Attachment 5
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Cal Trans Maintenance Yard Site # BUB77182 Looking West from Pagemiil Road
2350 Pagemill Road
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