City Of Piedmont Council Agenda Report

Transcription

1 City Of Piedmont Council Agenda Report DATE: July 15, 2013 FROM: SUBJECT: Kate Black, City Planner Kevin Jackson, Assistant Planner Consideration of a request by AT&T regarding a possible new wireless communication facility at Hampton Field and a possible new communications tower or parapet on the City Hall/Fire Department building. RECOMMENDATION: Open the public hearing concerning AT&T s requests, take testimony from members of the public, ask questions of AT&T representatives, and in its role as property owner inform staff and the wireless communication company as to whether the Council is interested in considering an offer by AT&T to lease a portion of Hampton Field and/or the roof of the City Hall/Fire Department building for new and/or replacement wireless sites. INTRODUCTION: The purpose of this report is to introduce a request from AT&T Wireless to construct two new wireless communication facilities on City properties: a new tower at Hampton Field and a new tower atop the City Hall/Fire Department. In its role as property owner, the Council is asked to provide staff and the wireless companies with direction as to whether it is interested in considering said proposals. BACKGROUND: City staff regularly receives inquiries from wireless communications companies about upgrading or adding equipment at existing wireless facilities and occasionally about constructing new facilities. At existing sites, these applications are normally processed by staff and the Planning Commission through a building permit or a combination of a design review and/or wireless communications facility application followed by a building permit. Current locations of wireless communication facilities belonging to three wireless companies within the City of Piedmont include: Antennas on top of the Fire Department roof (Zone B): AT&T and Sprint Antennas within the steeple at the Piedmont Community Church (Zone D): T-Mobile Freestanding pole with antennas at the Corporation Yard (Zone B): T-Mobile Freestanding pole with antennas in the Lower Grand Avenue median (Zone B): AT&T Antennas on the PG&E Tower at the corner of Sandringham Road and Estates Drive (Zone A): AT&T and T-Mobile. Page 1 of 21

2 Recently, AT&T asked staff about the possibility of installing a new wireless communications facility at Hampton Field and constructing a new tower atop the City Hall/Fire Department building. Both proposals are further described below. HAMPTON FIELD AT&T is interested in constructing an antenna tower and associated ground-mounted equipment within the vegetation behind the backstop of the baseball diamond at the southern corner of Hampton Field near the intersection of Hampton Road and La Salle Avenue. AT&T has stated that the facility is needed to improve the services provided to existing and new customers in that area of the city. If the Council is interested in leasing City land for this purpose, a lease agreement between the City and AT&T would need to be developed and approved through an ordinance by the City Council. Additionally, applications for Variance, Design Review and Wireless Communications Facility would be required and would be reviewed by the Planning Commission and City Council. The Council may also direct the Parks and Recreation Commissions to review the proposal. No formal application for such a facility has been submitted, but photo simulations have been provided to indicate the concept, as shown in Exhibit B, pages The photographic simulations portray both artificial trees and monopoles. To represent sample installations, AT&T has also submitted photographs of fake tree wireless equipment elsewhere in California (Exhibit C, pages 17 19). Staff has discussed the following design options with the representatives of AT&T: A monopole for antennae versus a fake tree. A dark color for the pole and antennae so as to minimize visual prominence. The installation of the ground-mounted equipment within a below grade enclosure behind the retaining wall that faces the street corner. Issues for Council Consideration Benefits and drawbacks of a facility include, but are not limited to, the following issues for Council consideration: Chapter 17G of the Municipal Code gives preference to the location of wireless communications facilities on City-owned land in Zone B, such as Hampton Field, rather than in any other zone in the immediate service area, such as the single-family residential zones that surrounds the field (Zones A and E). There are few non-single family residential sites in the surrounding area that could accommodate wireless equipment to improve coverage and capacity in this area of the city. Once a wireless communications facility site has been established, it would be subject to the provisions of 47 U.S.C. 1455, a federal regulation that governs modifications to existing wireless communications sites. Basically, the collocation of new equipment, removal of existing equipment, and replacement of existing equipment are allowed without discretionary review by a local jurisdiction so long as the modifications do not substantially change the physical dimensions of such tower or base station. If the modifications do not change the physical dimensions (envelope), then federal law mandates approval of the addition or modifications. Thus, the lease would need to clearly define the physical dimensions of the 3- dimensional area of the tower and base, but with the recognition that most any change within those dimensions would not be subject to discretionary review by the City. A master plan for Hampton Field has been developed and approved but a minor plan modification, such as adding wireless communication equipment, should be easily Page 2 of 21

3 accommodated if Council is interested in pursuing the proposal. Indeed, modifying the plans for a wireless site may present the opportunity for the plans for a remodeled park and those for a new wireless communications facility at the park to be optimally integrated to benefit both wireless communication service and the users of Hampton Field as the plan is being implemented. Should the City show willingness to lease part of its publicly-owned land for the benefit of AT&T, the company may be willing to provide financial support towards the implementation of the Hampton Field Master Plan. Wireless communication service should improve for AT&T customers in the area. A lease agreement with AT&T would provide the City with revenue for the term of the lease. CITY HALL/FIRE DEPARTMENT BUILING Existing Conditions There currently exists on the roof of the Fire Department a cable-supported steel tower to which is attached communication antennae owned by the City, AT&T and Sprint. The rooftop of the City Hall/Fire Department building is generally perceived as being at its maximal use in regards to space and structural loading. A reasonable expectation is that to attach additional equipment to the existing tower and/or the construction of a new tower would require a complete engineering study. The ground-mounted equipment owned by AT&T and Sprint that is associated with their antennae on the tower is located within the easternmost garage space at the back of the Fire Department along Magnolia Avenue. Proposal AT&T has expressed interest in constructing a new tower atop the rear of the Fire Department building. As seen in the attached draft photo simulation provided by AT&T (Exhibit D, page 21), the tower would be an addition to the architecture of the building and house within its interior space the communication antennae of AT&T and possibly those owned by other wireless companies and the City. Alternatively, AT&T is interested in pursuing the option of constructing a parapet that might obscure or partially obscure the existing and proposed antennas on the roof. Photo simulations of the parapet have not been provided. Ground-mounted equipment would either remain in the Magnolia Avenue garage space or be relocated to the base of the tower interior. A lease agreement between the City and AT&T would need to be developed and approved through an ordinance by the City Council. Staff has recommended to AT&T that it consider coordinating this project with Verizon, which has recently inquired about adding its wireless communications equipment to City Hall or elsewhere in the Civic Center. Sprint, which currently has equipment on the existing tower, may be interested in locating within the new tower or may wish to stay on the existing tower. The cost of constructing the tower would need to be borne by the wireless company or companies. Such a facility would require applications for Variance and Design Review that would be reviewed by the Planning Commission and Wireless Communications Facility that would be reviewed by the Planning Commission and City Council. As surprising as the photo simulation may be concerning a new tower on this building originally designed by Albert Farr, the attached photograph (Exhibit A, page 7) from the City s Historical Photo Archive, shows that the City Hall/Fire Department building originally had towers, one presumably to dry the fire hoses and the other to provide a place for an emergency alert bell. Page 3 of 21

4 No plans or application for a facility as described above have been submitted but staff has discussed the following design criteria with the representatives of AT&T: A tower or parapet on the City Hall/Fire Department building would need to be an exemplary architectural addition so that, as required by the Design Review Guidelines, it would look as if it were erected during the original construction. An optimal design would allow for the placement of all current and future antenna and cables within the tower or behind the parapet so that the equipment would be screened from view and so that the existing less-than-handsome steel tower could be removed. Issues for Council Consideration Benefits and drawbacks of a facility include, but are not limited to, the following issues for Council consideration: Chapter 17G of the Municipal Code gives preference to the siting of wireless communications facilities on City-owned land in Zone B, such as City Hall, Fire Department and Veteran s Hall in the Civic Center, rather than in any other zone in the immediate service area, including the single-family residential properties to the north and west, the PUSDowned properties to the north and south, and the commercial properties to the east and north. An expanded lease agreement with AT&T and a new lease agreement with any company (such as Verizon) wanting to introduce new equipment should provide the City with additional revenue for the term of the lease. An architecturally integrated tower should provide the opportunity to enhance the appearance of the building and screen from view the existing communication equipment. A welldesigned tower may provide the visual prominence that City Hall deserves. The project should result in the structural strengthening of the City Hall/Fire Department building. Wireless communication service should improve in the service area for users of companies introducing upgraded or new equipment. As noted above, the collocation of new equipment, removal of existing equipment, and replacement of existing equipment are allowed without discretionary review by a local jurisdiction so long as the modifications do not substantially change the physical dimensions of such tower or base station. With the physical dimensions of a new tower clearly defined by its exterior walls, no equipment could be introduced to the exterior of the building without the City applying discretionary review. During construction, there may be interruptions to the work spaces of employees within the Fire Department and City Hall, and increased traffic congestion in the Civic Center area. STEPS TO FOLLOW COUNCIL S STATED INTEREST Should the Council indicate an interest in pursuing either proposal further, staff has informed AT&T that several additional steps would follow: 1. Comprehensive Wireless Communications Facility, Variance and Design Review applications will need to be prepared and submitted by AT&T. These will be reviewed per Chapters 17 and 17G of the Municipal Code. Story poles as required under the City s Story Pole policy will be required at this stage. The Planning Commission will take action on the applications for Variance and Design Review. 2. The first public hearing of the application for Wireless Communications Facility will held by the Planning Commission and will result in a recommendation to the City Council for Page 4 of 21

5 final action. Lease negotiations will occur through the City Administrator s office, and may occur concurrently. 3. As the Hampton Field site involves a park and recreational facility, the City Council may direct the Park Commission and the Recreation Commission to hold hearings to review the project. It may be possible to combine those hearings into a joint hearing. The Commissions would forward their recommendations to the City Council for final action. 4. The City Council will take action on the application for Wireless Communications Facility at a final public hearing. It is possible that Council will take action on the lease at the same meeting or at a different meeting. Should the Council indicate it has no interest in pursuing either proposal, staff will inform AT&T of that decision. CONCLUSION: Piedmont residents benefit from wireless communication services provided by several companies. As wireless communication services evolve, the City should expect to continue receiving applications from wireless companies to add, upgrade and introduce equipment. By locating wireless communications facilities on publically-owned land in Zone B, such as Hampton Field and City Hall, the projects would be in conformance with Section 17G.2 of the Municipal Code and alleviate the need to install wireless facilities in Zones A or E (single-family residential). The leases with the wireless companies that have located equipment on City-owned land and buildings generate revenue for the City. The wireless facilities on City-owned land have functionality and visual impacts that should be considered. ATTACHMENTS: Exhibit A, page 7 Historical photograph of City Hall/Fire Department circa 1910 Exhibit B, page 9 Draft photo simulations submitted by AT&T of faux tree and monopole at Hampton Field Exhibit C, page 17 Photographs submitted by AT&T of faux tree installations elsewhere in California Exhibit D, page 21 Draft photo simulation of new tower on City Hall Fire Department submitted by AT&T Page 5 of 21

6 This page was intentionally left blank. Page 6 of 21

7 EXHIBIT A Page 7 of 21

8 This page was intentionally left blank. Page 8 of 21

9 EXHIBIT B Existing Proposed proposed new AT&T antennas inside new faux cypress Photo simulation as seen looking southeast from Hampton Road Prepared by: WW Design & Consulting, Inc Candelero Court Walnut Creek, CA info@photosims.com CCU0317 Hampton Park 20 La Salle Avenue, Piedmont, CA Page 9 of 21

10 EXHIBIT B Existing Proposed proposed new AT&T antennas inside new faux cypress proposed underground equipment vault entrance Photo simulation as seen looking north from Hampton Rd & La Salle Rd Prepared by: WW Design & Consulting, Inc Candelero Court Walnut Creek, CA info@photosims.com CCU0317 Hampton Park 20 La Salle Avenue, Piedmont, CA Page 10 of 21

11 EXHIBIT B Page 11 of 21

12 EXHIBIT B Page 12 of 21

13 EXHIBIT B Page 13 of 21

14 EXHIBIT B Page 14 of 21

15 EXHIBIT B Page 15 of 21

16 EXHIBIT B Page 16 of 21

17 EXHIBIT C Page 17 of 21

18 EXHIBIT C Page 18 of 21

19 EXHIBIT C Page 19 of 21

20 This page was intentionally left blank. Page 20 of 21

21 EXHIBIT D REV DATE DESCRIPTION Page 21 of 21

22 Item #3 Wireless Communication Facilities on City Property Correspondence Received by 3:30 PM on Monday, July 15 th To the Members of the City Council- I'm a resident of 21 Crest Road (which backs up to LaSalle, across from Hampton Field), and I'm writing to express my extremely strong support for the proposed Hampton Field cell tower. The cell service in our area is TERRIBLE, regardless of provider. This has proven to be a significant problem, in the following ways: - We are unable to reliably communicate with our children via cell when we are home (text and voice) - My cell number is my business phone, and I frequently have missed or lost important calls - Our cell phones are the primary emergency numbers that both my wife and I have provided to our childrens' schools and other organizations. It is a real safety issue not to be able to be reliably reached at home. I've attempted to improve the situation myself by purchasing special equipment from AT&T for hundreds of dollars, but that effort was a failure. Regarding the second proposal of new equipment atop City Hall, I don't have an informed opinion without seeing the case made for it. I will be traveling on July 15, otherwise I would come speak personally to the Council. Regards, Edward Lichty