MPC STAFF REPORT
WIRELESS TELECOMMUNCATIONS FACILITY
August 30, 2011
MPC FILE NO. T-110411-35511-2
WTF SUMMARY
Report Status
Initial Report
MPC Project Planner
Jack Butler, MPC Project Planner
Petitioner, Property
Owner, Agent
Information
Housing Authority of Savannah, Property owner
Hayden Horton, National Wireless Construction, Petitioner
Jonathan Yates, Agent
Street Address: 11 Wagner Street
Property Identification Number: 2-0041 -05-005
Property Description
Property Size: 9,312 Square Feet (0.21 acres)
Existing Use: Residential (vacant)
Proposed Use: Wireless Telecommunications Facility
Existing Zoning
IL (Light Industrial) and RM-25 (Residential-Multifamily, 25 units per
acre)
Recommendation
It is recommended that the MPC approve the development of a
freestanding non-concealed monopole with the following conditions:
1) all antennae shall be internal; 2) a top-mount flange shall be
provided for future expansion; 3) all feed lines shall be located
within the barrel of the support structure; 4) aircraft hazard lighting
and reflective tape on the monopole in 10-foot intervals starting at
20 feet above ground level.
It is recommended that the MPC approve the following variances:
1) a reduction in the required setback of 11 feet.
2) a reduction in the number of required collocation positions to four
(from the five required by the ordinance).
To:
Metropolitan Planning Commission
From:
MPC Staff
Date:
August 30, 2011
Subject:
Petition of National Wireless Construction
Jonathan Yates, attorney Hellman and Yates (agent)
WTF – 11 Wagner Street
Aldermanic District: 2
County Commission District: 2
MPC File No. T-110411-35511-2
Jack Butler, MPC Project Planner
ISSUE: In accordance with Article J (Wireless Telecommunication Facilities) of the
Savannah Zoning Ordinance, the applicant is seeking approval to erect a 142-foot
monopole Wireless Telecommunications Facility (“WTF”) at 11 Wagner Street.
FACTS AND FINDINGS:
1. Public Notice: As required, all property owners within 200 feet of the subject
property were sent notices of the proposed action and postings were placed on the
site. Notice was also sent to neighborhood associations, local governing officials, to
the FAA, Hunter Army Air Field, Savannah-Hilton Head International Airport and to
Chatham County Mosquito Control.
2. Authorization of Co-applicants: As required, the applicant has provided signed
authorization from the land owners, support structure owners and facility owners
allowing the application.
3. Existing Development Pattern: The proposed tower site is located on property
zoned IL (Light Industrial) and RM-25 (Residential Multifamily, 25-units per acre) and
designated for Traditional Commercial development on the Tricenntenial
Comprehensive Plan Future Development Map. The development pattern in the
surrounding area is characterized by commercial, civic and residential uses.
MPC File No. T-110411-35511-2
National Wireless Construction, 11 Wagner Street
August 30, 2011
Page 3
4. Existing Land Use Pattern:
The land uses and zoning districts surrounding the subject property include:
Location
Land Use
Zoning
North
Residential
RM-251
East
Residential
IL2
South
Vacant
IL
West
Residential
[1] Residential-Multifamily – 25 Units per Acre
[2] Light Industrial
IL and RM-25
5. Evidence of Need Report: For all WTF’s, a report certified by a radio frequency
engineer shall be provided that demonstrates that no existing WTF can
accommodate the applicant’s proposed facility due to technical or physical
circumstances, or that existing facilities would prohibit personal wireless services in
the area to be served by the proposed WTF. If a facility type other than concealed
attached is proposed, the report must also demonstrate that existing WTF’s and/or
buildings and structures within the Geographic Search Area [GSA] cannot be
reasonably made to accommodate the applicant’s need.
The required Evidence of Need report, as summarized below, is attached to this staff
report and is made a part hereof:
a. A map of the GSA shown
at right (red pin) includes
the
location of
the
proposed
WTF
and
illustrates the lack of
alternative sites in the
area.
The
proposed
WTF
replaces the Cell on
Wheels (COW) that has
been located on the
Housing
Authority
Property on Wheaton
Street since the original
WTF location on Stubbs
Tower was demolished in
November of 2007.
MPC File No. T-110411-35511-2
National Wireless Construction, 11 Wagner Street
August 30, 2011
Page 4
b. The color plot shown below demonstrates the existing coverage of all
WTFs owned by the applicant within the GSA, once the COW on Wheaton
Street is removed. The map also indicates the proposed tower location
(designated 410-345) and the former location of Stubbs Tower
(designated 410-127) that was replaced by the COW.
The green areas are adequate coverage. The blue areas are degraded
coverage. Yellow areas are severely degraded coverage. As shown,
extensive areas of degraded coverage and some areas of severely
degraded coverage exist within the area of the proposed facility.
MPC File No. T-110411-35511-2
National Wireless Construction, 11 Wagner Street
August 30, 2011
Page 5
c. The color plot shown below demonstrates the coverage of all WTF’s
owned by the applicant within the GSA, with the addition of the proposed
facility.
The proposed facility is shown (labeled 410-345) is at the center. The green areas are
adequate coverage. The blue areas are degraded coverage. Yellow areas are severely
degraded coverage.
As evidenced, the proposed tower dramatically reduces the average degradation and
justifies the selection of this location for a new facility.
MPC File No. T-110411-35511-2
National Wireless Construction, 11 Wagner Street
August 30, 2011
Page 6
6. Site Plan: For freestanding WTF’s, or when a proposed WTF will create a site
modification, a site plan certified by a Georgia-licensed professional engineer shall
be submitted. The site plan standard has been met. The plan shown below includes
the following:
(1) Existing and Proposed Access.
Access to the proposed tower site will be from Wagner Street as
shown above.
MPC File No. T-110411-35511-2
National Wireless Construction, 11 Wagner Street
August 30, 2011
Page 7
(2) Landscape Plan.
Ordinance landscape requirements include a 15-foot planted
perimeter consisting of a row of evergreen trees a minimum of 10
feet in height at the time of planting with a minimum two-inch
caliper, spaced a maximum of 12 feet apart; and, a row of
evergreen shrubs a minimum of two feet tall at the time of planting,
planted four feet on center. Within a year of planting, the trees and
shrubs shall achieve 80 percent opacity of the security barrier
and/or equipment enclosure. Existing trees and vegetation may be
used as an alternative or in combination with new plantings to
achieve the opacity requirement subject to approval of the Planning
Commission upon a recommendation of the Director of the City
Department of Park and Tree or his or her designee. An easement
may be required to ensure that vegetation remains intact.
The applicant’s proposal (shown below) is to preserve as many of
the existing mature trees on the site as possible and to surround
the ground installation with a hedge of Leyland Cypress. The
proposed landscaping plan exceeds the requirements of the
ordinance.
MPC File No. T-110411-35511-2
National Wireless Construction, 11 Wagner Street
August 30, 2011
Page 8
(3) Drainage.
Drainage plans for the site are adequate to protect the existing and
proposed use, and will be reviewed by the City Engineering
Department prior to the issuance of a building permit. No additional
impervious surface will be created by the project.
(4) Utilities.
All equipment related to the facility will be concealed inside an
eight-foot opaque board privacy fence surrounding the base of the
proposed tower.
(5) WTF Plan including:
a. A diagram of the proposed facility and antenna(s), including
elevation of the antenna and/or antenna support structure (total
142-foot height includes the base, the antenna support structure,
and lightning rod).
MPC File No. T-110411-35511-2
National Wireless Construction, 11 Wagner Street
August 30, 2011
Page 9
b. Plan views of the security barrier and equipment compound are
shown below.
c. Mounting location of antenna support structure or building,
including height (AGL). See diagram above and explanation
below.
d. Identification of all mounting frames, arms, brackets or other
devices or equipment used to hold antennas and other
equipment in place. The proposed tower will use internallymounted antennae.
e. Drawings of the proposed facility, including antennas, support
structures/mounts, equipment shelters, feed lines and security
barrier. See diagram above and explanation below.
f. Certification that the structure will be able to accommodate
additional facilities as identified in Section 6.9. The tower design
is certified by a licensed Georgia engineer.
The applicant has designed the tower in accordance with the standards
necessary according to the Hierarchy by Facility Type, by Type of Facility,
Visibility of Facility, lighting, signage and other standards as described
above and in Section 6 of the Wireless Telecommunications Facility
Ordinance.
Whereas no tall buildings or other structures (such as water towers)
currently exist in proximity to the proposed tower location, collocation is
not a viable option.
Because the facility will use internally mounted antennae, which limits the
amount of equipment that can be housed inside the barrel of the antenna
mast, and because dense vegetation in the area makes the lowest (95foot) position on the facility non-viable for wireless carriers seeking to
collocate, the applicant is requesting a variance to permit four positions on
the proposed WTF, rather than the five that would ordinarily be required
on a 142-foot facility.
Antennae will initially be located at heights of 135 feet and 125 feet, with
positions for collocations at approximately 115 and 105 feet. All of the
antennae will be internal. Through the use of breakpoint technology in the
design, the fall zone for the proposed facility is contained within the site.
As noted in the landscape section above, the proposed structure is
located near the center of the proposed site, approximately 45 feet from
the northern and southern property lines and approximately 50 feet from
MPC File No. T-110411-35511-2
National Wireless Construction, 11 Wagner Street
August 30, 2011
Page 10
the western and eastern property lines. The equipment necessary for the
safe operation of the facility is to be located within a secure enclosure
adjacent to the tower, and the tower site itself will be screened and
secured by an eight-foot opaque fence. The nearest structure to the facility
is located 65 feet to the north of the WTF, at 15 Wagner Street.
The WTF Plan has been attached to this report and is made a part hereof.
7.
Lighting and Signage: Generally, lighting is not required on WTF’s 199 feet or
lower in height. However, in accordance with the pending text amendment
recommended by the MPC on August 9th, staff is recommending nighttime
aircraft hazard lighting (red only) with screening to limit downward visibility of the
light and that the WTF be wrapped with reflective tape at 10-foot intervals
beginning at 20 feet above ground level.
Signs on the site of the proposed WTF are limited to those needed to identify the
WTF, the owner, the party responsible for the operation and maintenance
(including address and telephone number), to warn of danger, and to comply with
applicable federal regulations. Proposed signage does not exceed the limitations
prescribed by the Ordinance.
8.
Visual Impact Analysis: For all freestanding non-concealed WTF’s, a visual
impact analysis shall be performed. The analysis shall include the following:
(1) Line-of-Sight Analysis.
(2) Photo Simulations.
(3) Balloon Test (if required).
The applicant has performed a visual impact analysis for the proposed site. The
results of the analysis have been attached to and made a part of this report.
Photo simulations of the proposed tower are included below.
MPC File No. T-110411-35511-2
National Wireless Construction, 11 Wagner Street
August 30, 2011
Page 11
MPC File No. T-110411-35511-2
National Wireless Construction, 11 Wagner Street
August 30, 2011
9.
Page 12
Documentation: For all WTF’s, copies of all applicable licenses or approvals, if
available, as required by the FCC and any other agency of the government with
authority to regulate WTF’s. The applicant has provided documentation
submitted with the initial application:
(1) A letter from the Federal Aviation Administration [FAA] establishing the
maximum antenna support structure height.
(2) A copy of Form 600 on file with the Federal Communications
Commission [FCC].
(3) Evidence of compliance with applicable FAA requirements under 14
C.F.R. s. 77, as amended, which may be a copy of the FAA Notice of
Proposed Construction.
(4) A Memorandum of Agreement from the Historic Preservation Division
of the Georgia Department of Natural Resources addressing concerns
raised in regards to impact on historic properties (a vacant house and
shed) to be demolished during construction.
Additionally, a curriculum vitae was provided for the radio frequency engineer
who certified all documentation provided.
For cellular towers under 200 feet in height, no FAA or FCC approval is required,
however the applicant has provided an FAA letter of Finding of No Hazard for the
proposed structure. Submitted information will be retained as part of the
permanent file.
These documents have been made a part of the permanent record.
10.
Multiple Use and Structural Integrity Standards: When a freestanding WTF is
proposed, it shall be engineered and constructed to accommodate multiple
users. The number of antennae positions required is dependent upon the
proposed height of the facility. The proposed facility will be 142 feet in height
(including 2-foot lighting rod) and would be required to accommodate five users
under the ordinance. However, due to the dense tree cover in the area, which
makes the lowest (95-foot) collocation position non-viable for collocation, and
due to the space limitations within the barrel of the “stealth” designed, internal
antennae system, the applicant is proposing to provide four positions. The
proposed WTF is engineered and constructed to accommodate multiple users,
as required by the ordinance and to meet all building code requirements. Based
on projections in the Wireless Telecommunications Master Plan, more carriers
may eventually need facilities in this area. Therefore staff is recommending that
the applicant be required to install a flange at the top of the 140-foot structure so
that additional carriers may be added to the WTF, if necessary.
11.
Safety Standards: All equipment for the proposed WTF shall be authorized per
the FCC Guidelines for Evaluating the Environmental Effects of Radiofrequency
Radiation. In addition, the petitioner shall submit a written statement which
addresses compliance with FCC regulations regarding susceptibility to radio
MPC File No. T-110411-35511-2
National Wireless Construction, 11 Wagner Street
August 30, 2011
Page 13
frequency interference (RFI), frequency coordination requirements, general
technician standards for power, antennas, bandwidth limitations, frequency
stability, transmitter measurements, operating requirements and any and all other
federal statutory and regulatory requirements relating to RFI.
All equipment for the proposed WTF is authorized per FCC guidelines. The
petitioner has submitted the necessary statement regarding susceptibility to radio
frequency interference. The statement and certification has been made a part of
the permanent file.
12.
Third-Party Review: The Ordinance requires a supplemental third party review
for all new freestanding WTF’s. As required, the proposed tower has been
reviewed by a third party technical expert. His findings are attached to this report
and summarized below:
CityScape, Inc., the MPC’s third-party reviewer, finds that the proposed facility is
necessary to the improvement of wireless communication in the area and meets
the requirements of the Savannah WTF Ordinance in design and intent.
13.
Variance:
The applicant is requesting a variance for a reduction in the required setback. At
142 feet in height, with a breakpoint at the 100-foot level, the setback required
would be 56 feet (ie, the distance from the top of the structure to the breakpoint
plus 10%). The proposed WTF is located near the center of the subject property,
and 45 feet from the nearest property line. The applicant has designed the tower
to utilize breakpoint technology to remain within the subject property in the event
of failure and requests an 11-foot setback variance.
The proposed facility will be 142 feet in height (including 2-foot lighting rod) and
would be required to accommodate five users under the ordinance. However,
due to the dense tree cover in the area making the lowest possible position nonviable, and the space limitations within the barrel of the “stealth” designed,
internal antennae system, the applicant is proposing to provide four positions and
requests a variance of one required collocation position.
MPC File No. T-110411-35511-2
National Wireless Construction, 11 Wagner Street
August 30, 2011
Page 14
ALTERNATIVE RECOMMENDATIONS:
1. Approve the applicant’s request for a 142-foot monopole tower with internally
mounted antennae and four mounting positions, with a top-mount flange for
possible later expansion, along with the required aircraft hazard light and tape,
along with a variance of 11 feet from the 56-foot setback requirement.
2. Deny the petitioner’s request.
RECOMMENDATION:
It is recommended that the MPC approve the development of a freestanding monopole
with the following conditions:
1) all antennae shall be internally mounted;
2) positions shall be available for four wireless telecommunications carriers;
3) a top-mount flange shall be provided for future expansion; and
4) aircraft hazard lighting and install reflective tape on the monopole in 10-foot intervals
starting at 20 feet above ground level.
It is recommended that the MPC approve the following variances:
1) A reduction in the required setback of 11 feet.
2) A reduction in the number of required collocation positions to four positions.