Distributed Antenna System in Palo Alto

112 Pages·2011·5.58 MB·English

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Architectural Review Board
Staff Report
Agenda Date: August 4, 2011
To: Architectural Review Board
From: Clare Campbell, Planner Department: Planning and
Community Environment
Subject: AT &T DAS Design: Request by AT&T for Preliminary Architectural
Review of design options for prototypes for a proposed Distributed
Antenna System (DAS) to collocate antennas on existing utility poles at
nine locations within the city [(1) Opposite 1221 Waverley/Whitman; (2)
1664 Waverley/Lowell; (3) 179 Lincoln!Emerson; (4) 1401 Emerson!
Kellog; (5) 119 Coleridge/Alma (6) 1865 Bryant/Seale; (7) 135
Rinconadal Alma; (8) 255 N. California/Ramona; and (9) 3 95 Leland/Ash].
RECOMMENDATION
Staff recommends that the Architectural Review Board (ARB) provide comments and feedback
to staff and the applicant regarding the proposed design for the Distributed Antenna System
(DAS) units.
Condltlonru Use Pennit (CUP) and AIchitecturat Review Ibr=tfIei::)AS=installations-attIre-above
listed sites. Initially the project was determined to be subject to a CUP. A determination was
recently made that the project can be considered a "collocation" project and, according to PAMC
18.42.110, only requires approval of Architectural Review applications followed by issuance of
encroachment permits. AT&T has since withdrawn the CUP component of this project since it is
no longer required. Architectural Review focuses only on the aesthetics of a project and the
issues regarding health and appropriateness of land use considered for non-collocation
installations are beyond the purview of the ARB.
AT &T is proposing the installation of an Outside Distributed Antenna System (DAS) throughout
the "flat lands" of Palo Alto. AT&T had been working toward obtaining permits to install
"macro-cell" sites (towers and rooftop installations, faux trees and monopoles) in Palo Alto and
had met with resistance in certain neighborhoods. The City Council conducted a study session on
May 15, 2011; the report, found on the City's website at
http://www.cityofpaloalto.org/depts/pln!news/details.asp?NewsID=1761&TargetID=85 provides
Page 1 of 4
background information including a Frequently Asked Questions. attachment (Attachment C) to
address technical questions. The applicant has also provided some technical information in their
project description letter (Attachment B).
The DAS would be comprised of multiple smaller antennas installations throughout an area to
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provide adequate coverage and or additional capacity for a service provider. AT&T and the City
of Palo Alit) have aft agreement that allov/s A:r&T to 6011ocate the D:A.S antennas on city utility
poles (added to the top); CouncIl approved thIS agreement on July 25, 2011 (CMR #1756). The
pr()p~sed citywide AT&T DAS project involves approximately 80 collocation installations; the
proposed design would allow for multiple wireless communication providers to "collocate"
within the same antennas and equipment boxes. The antennas allow for use by multiple providers
without the necessity of adding antennas. Each equipment cabinet provides eight radio frequency
units or "slots" that would be available to AT&T and other providers. AT&T would use three of
these "slots" within the equipment cabinets, leaving five such "slots" for other wireless providers
to collocate their equipment. An additional cabinet could be mounted to the pole to allow for up
to 16 such "slots" for collocation purposes.
Following this preliminary review, applications for the installation sites will be submitted to the
City for Architectural Review (AR) in four clusters of 18 to 21 pole installations. The nine sites
that were noticed by address as reflected in the subject line of this report would be incorporated
into one of the AR applications. The applicant anticipates conducting outreach meetings prior to
submittal of the formal AR applications. Staff would provide courtesy notices to neighbors
following the submittal of the applications and action on the applications, which would be
reviewed at staff level.
Proj ect Description
The preferred design for the prototype is shown in Figure 1. This design includes an 11 foot pole-
. -lng~ -he--typieal=-dimensioos--M=the=antenna
placement. The photo-simulation does not accurately reflect the 11 foot extension that is detailed
in the dimensioned elevation to the right of the simulation.
Zoning Reguirements
The proposed DAS installations are atop existing utility poles that are located within the City
owned right-of-way (sidewalks). The development standards for wireless communication
facilities (WCF) allow stand alone facilities to be up to 65 feet in height and the proposed design
complies with this height limit. The zoning code also specifies that the equipment shall be the
minimum size needed, screened from public views, and architecturally compatible with the
project site. The antennas are required to be designed to minimize visibility.
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Figure 1: Typical DAS Installation
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Public Comments
Staff received written comments from approximately 30 residents and received numerous phone
calls from residents after the initial submittal of the project in January 2011. The majority of
comments received were not in support of the project, citing the project's possible health issues
tential to values and dislike of the sed
DISCUSSION
Design Alternatives
Staff had requested that the applicant provide alternative design options, other than the original
"T" design submitted. At the time of preparing this report, AT &T had not provided any
additional design solutions for the ARB to review. The two specific design alternatives that staff
requested to see were (1) an installation with ground-mounted equipment and (2) an installation
with the antennas stacked vertically. The applicant plans to present a slide to the ARB showing
an alternative design.
Staff has identified the following discussion topics for the ARB to consider: color selection;
ground level equipment versus pole-mounted equipment; appropriate height of pole-mounted
equipment; antenna alignment; stealth design; and placement on poles near existing trees to
provide screening.
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ENVIRONMENTAL REVIEW
The project is categorically exempt from the provisions of the California Environmental Quality
Act (CEQA) per section 15301.
ATTACHMENTS
Attachment A: Location Map*
Attachment B. Project Description Letter*
Attachment C: WIreless Communications Frequently Asked Questions, 0511612011
Attachment D: Public Comments
Attachment E: Project Plans (ARB members only)*
COURTESY COPIES
AT&T
Prepared By: Clare Campbell, Planner
Manager Review: Amy French, Manager of Current Planning
... .. . ...
Page 4 of 4
Attachment A
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PALO ALTO
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Attachment B
IVHnb V Nguyen Thursday, July 28, 2011
Area Mgr Construction & Engrg,
Distributed Antenna Systems
VP-Antenna Systems Group
AT&T Services, Inc.
AT&T
Designing Palo Alto's DAS
Introduction
In the middle of 2010, AT&T began our work with the City of Palo Alto and its residents on a distributed antenna
system or DAS. In this narrative, I will quickly describe the wireless service gaps in Palo Alto, the process and
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reasoning AT&T went through to develop the DAS design to fill those gaps, and the technical as well as
regulatory influences on the design of the DAS equipment.
To begin with, we will explain the two types of gaps in Palo Alto. The first type is a capacity gap which is
described as a lack of available bandwidth and the second type is a coverage gap which is described as an
absence of wireless signal. To understand a capacity gap, think about it in terms of a freeway: the freeway is the
network that carries your communication and the onramps are cell sites. When the number of cars getting onto
that onramp is more than the onramp can handle, this is analogous to a capacity problem. And to understand
coverage gaps, think about cellular coverage like a blanket, and a coverage gap as simply a hole in that blanket.
The DAS we're proposing is designed to fill both types of gaps.
Whya DAS?
Depending on a variety of factors, inch Iding topography and the size andtype of the servke gap, A I & I's first
y to desigli chid depl6yTnaci bsites inauillaliller
consistent with community values, considering things like other carrier's nearby facilities, public property,
existing poles, etc. Macro sites often provide are the most cost efficient way to cover a gap and provide us with
the largest span of coverage.
Here in Palo Alto, AT&T has made extensive efforts to find acceptable locations for macro sites, without success,
which has led us to consider a DAS.
Distributed Antenna Systems (DAS)
DAS is a network of smaller, spatially separated antenna nodes connected to by common fiber communications
network. A DAS node can require less space, lower antenna height on existing structures, and lower power than
a macro site.
In Palo Alto, the radio equipment for the DAS can be placed inside AT&T's local telephone exchange offices. This
allows us to reduce the size of equipment near the antenna. Also, having the equipment in our central office
allows us the ability to monitor and upgrade our system at a central hub location. To decide where to locate our
DAS nodes we look for existing utility poles within the intended coverage area. We field each location and
assess each utility pole for height, condition, the load created by existing equipment, and aesthetics. Then put
each candidate location through testing, which allows our engineers a chance to define the unique coverage
characteristics of an each location and how the possible nodes will interact in a contiguous network. The design
is much like piecing together a jigsaw puzzle as a change to one node can cause a domino effect requiring
changes to subsequent nodes in order to provide the requisite coverage.
Preferred Optimal Design
AT&T chose the latest and e remote ca me IS s en er an
compliments within the dimension of the utility poles. Also, it's a modular design allowing technology or
capacity upgrades by swapping out modules. It also can be used for multiple carriers.
The dual sheathed Radom antennas are configured horizontally to create visual symmetry and match the
configuration of existing power insulators. They equally distribute the weight on the pole and provide MIMO
(multiple inputs and outputs) in order to achieve the highest 4G LTE speeds.
The equipment you see in the photo simulations are painted spruce green to easily blend into Palo Alto's
prevalent tree canopy. However, they can be painted to a color of the City's choosing.
Our current DAS design has undergone extensive review and testing to make sure it complies with the public
utility commission pole loading standards. That it has met with general order 95 safety guidelines, climbing
space requirements, and utility clearances. And it has met with UL and GR requirements for electrical, erosion,
wind forces, and seismic adherence.
Alternative Designs
We looked at using the single antenna configurations that are commonly seen deployed today, but we believe
such systems will not provide the required signal separation. Simply put, our service would be significantly
degraded by any single antenna design out there today.
e pole
Furthermore, in some areas, it would cause a less effective propagation of the signal, which could even require
additional nodes.
We also considered placing the equipment other than the antenna in a cabinet on the ground instead of on the
pole. However, there is a critical limitation with this design as well. The cabinet would need to be very close to
the pole with the antennas - effectively within just a few feet. Any further distance would require increasing
larger cabling - which would be visible on the pole - and degradation in service, which could require additional
antennas on more poles. Thus, in locations where there might be concern about placing a cabinet right next to
the pole, the ground-mounted solution would not be helpful in that situation.
Conclusion
AT&T has tried to balance technology with customer demand and community aesthetic values in designing this
DAS system. We've looked beyond the technology of today, and we've tried to consider how we could better
manage tomorrow's technology with minimal affect on Palo Alto. We strongly believe that the preferred design
that we have presented before the ARB is the optimal and least obtrusive and best for the community overall.
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PrOll<' Sponsor of thll u.s. Olympic Team
AT&T Mobility Services LLC
Application for
Architectural Review for
Outside Distributed Antenna System (ODAS)
City of Palo Alto
October 28, 2010
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Project Description
Construction of an Outside Distributed Antenna System (ODAS) is being
indicated in the Palo Alto Comprehensive Plan Policy B-13, "Support the
development of technologically advanced communications -
infrastructure and other improvements that will facilitate the growth of
emerging telecommunications industries." This Zoning Code allows
wireless communication facilities in the single-family R-1 zone with the
approval of a Architectural Review.
Attempts to construct MACRO towers and roof-top antennas systems
to provide adequate wireless coverage and capacity for the citizens of
Palo Alto have been unsuccessful. Three search ring polygons, as
outlined on the attached map, indicate areas of inadequate wireless
coverage in the cities of Palo Alto, Mountain View and Los Altos in
Santa Clara County.
~~~_S_c_oQe of Work
initial phase 1 construction of ODAS on 9 utility poles in polygon 1 in
the city of Palo Alto. Phase 2 construction will complete polygons 1 and
2 totaling approximately 80 utility poles within the city.
Polygons 1 and 2 cover an area of approximately 7.0 sq. miles and will
provide wireless telecommunications coverage to approximately
10,500 parcels. These polygons have more than 5,300 utility poles.
Prior meetings with both the City of Palo Alto Planning and Utility
Departments have been conducted to reach successful tentative
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