HomeMy WebLinkAboutDRB 2011-08-16 #3 CITY OF
Community Development Department – Planning Division
Meeting Date: August 16, 2011
Case Numbers: ED11-003/UP11-005
Project Planner: Caron Parker– (415) 485-3094
REPORT TO DESIGN REVIEW BOARD
SUBJECT: 1 Wellbrock Heights (Aldersgate Methodist Church) – Request for an amendment to
Environmental and Design Review Permit ED04-006 and Use Permit UP04-003 to allow the
installation of 9 new AT&T antennas co-located on the existing church building containing 12
previously approved antennas. The project would also include the installation of outdoor
equipment cabinets in a fenced 15’ x 30’ lease space west of the church building, as well as
36 co-axial cable runs; APN: 175-060-96; Single Family Residential (R7.5) District; Aldersgate
Methodist Church, owners; James Singleton, NSA Wireless, applicant; File No(s).: ED11-
003/UP11-005.
PROPERTY FACTS
Site Characteristics
General Plan Designation Zoning Designation Existing Land-Use
Project Site: Low Density Residential R7.5 Church
North: Office PD Kaiser Hospital
South: Office/Low Density Residential PD(1556), P/OS and
R7.5
Open Space, Residential
East: Office PD Kaiser Hospital
West: Low Density Residential R7.5 Residential
SUMMARY
The proposed project is being referred to the Board for its recommendation on alterations to the
existing building and roof elements to accommodate 9 additional panel antennas. The project also
includes a new 450 square foot (15’ by 30’) fenced area along the south elevation (fronting on the
driveway area) to accommodate new equipment cabinets. The Board’s recommendation will be
forwarded to the Zoning Administrator. Based on review of the applicable design criteria, which is
discussed in detail below, staff has concluded that the project generally addresses the applicable
criteria. However, staff has identified issues with the project as discussed below and asks the Board to
consider the following:
Architecture
• Whether the proposed new false window will maintain the aesthetic quality of the existing window
design element
Materials and Colors
• Whether the proposed new fencing should be painted white or remain a natural wood color (one of
the two existing fences is painted white, the other is unpainted wood)
Landscaping
• Whether the proposed relocation of the existing willow tree is feasible and whether the choice of
additional plants is appropriate in size and species type.
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BACKGROUND
Site Description & Setting:
The 3.1-acre site is currently developed with a two-story 9,875-square-foot church with associated
landscaping and parking. Access to the church is off of Trellis Drive (see Exhibit 1- Project Vicinity
Map). The church also includes a childcare facility and classrooms on the lower level of the church
and playground (on the eastern side of the property).
History:
There are two existing wireless carriers on site. A Sprint PCS wireless communication facility was
approved and installed on the church in 1997. The installation included a GPS roof mounted antenna,
five panel antennas (1 cross mounted, 2 mounted and screened on the north elevation and 2 mounted
and screened on the west elevation) and a ground mounted base transceiver enclosed by a 6-foot
fence with associated screening landscaping. A Cingular wireless facility (now T-Mobile) was
approved in 2004 and included five panel antennas (1 cross mounted, 2 mounted and screened on the
north elevation and 2 mounted and screened on the west elevation) including one ground mounted
equipment cabinet enclosed by a 6-foot fence with associated screening landscaping.
In 2006, a Cingular project proposing 10 antennas to be included within the cross of the church and
along the building walls was approved by the Zoning Administrator but appealed to the Planning
Commission. The appeal was denied and the Zoning Administrator approval was upheld by a 4-3
vote. However, that decision was appealed to the City Council. The appeal was scheduled to go to the
City Council when Cingular withdrew their application.
PROJECT DESCRIPTION
Use:
AT&T Wireless proposes to install antennas and lease approximately 450 square feet of space for a
new co-located wireless facility containing the following (see Exhibit 2- applicant project description).
Antennas:
AT&T proposes to install 9 panel antennas at Aldersgate Church (See Exhibit 3- Project Plans Sheets
A-O through A-3). Each antenna measures 6.2 feet in length by 11 inches wide. Three antennas would
be mounted behind a fiberglass cabinet wall adjacent to the existing screened antennas on the
northwest elevation (Sector B) and three antenna would be located on the north (rear side) of the
building (Sector A). The screen would be designed to match the horizontal wood siding exterior of the
church building materials. The antennas would be mounted just below the roof eave. The remaining
three additional antennas would be located on the roof (Sector C), just below the cross, in a new false
fiberglass window designed to screen the proposed antennas. The new false window would incorporate
the existing two panel antennas screened behind a wooden enclosure (see Exhibit 4-
Photosimulations).
The project would also require the installation of 36 co-axial cable runs (9 per sector) that would be
screened to run down the building and along the ground in an underground conduit trench
approximately 60 feet to the equipment cabinet area. No air conditioning units or generators are located
on site and none are proposed as part of the project.
Equipment Shelter:
AT&T proposes to construct a 450 square foot (15” x 30”) unmanned equipment shelter approximately
60 feet from the church and adjacent to the existing fenced lease areas for the other carriers on site.
The leased area would contain 3 equipment cabinets, RRU units, and other equipment (as detailed in
Keynotes on Plan Sheet A-1). The radio equipment would be connected to the antennae by coaxial
cables that run underground from the equipment shelter, along the side of the church in a screened
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enclosure and connect to the antennas. There would be a CMU wall enclosure behind the wooden
fence. The wood fence would be painted to match the existing fenced enclosures.
Architecture:
The project as proposed would match the architecture and color of the existing church building. The
new antennas would be screened with horizontal panels and painted to match the building siding. The
new false window would be a fiberglass material made to mimic the existing window’s geometric
pattern design. The proposed equipment shelter would be screened by a wooden fence which is
proposed to be painted white to match one of the two existing fences.
Landscaping:
The project proposes to remove an existing willow tree and plant the relocated tree adjacent to the
lease area. In addition, 4 new 15-gallon Toyon shrubs (with irrigation) will be added in front of the new
fenced lease area (see Project Plan Sheet L-1 and L-2). Church representatives have indicated that
the applicant is willing to work with them to add additional landscaping in the area, if needed.
ANALYSIS
General Plan 2020 Consistency:
The General Plan Land Use Designation for this site is Low Density Residential as identified on the
General Plan 2020 Land Use Map. The proposed installation and operation of an unmanned wireless
communication facility has been designed to be consistent with the following design related General
Plan 2020 policies:
• NH-2 (New Development in Residential Neighborhoods): preserve, enhance and maintain the
residential character of neighborhoods.
• CD-18 (Landscaping): Recognize the unique contribution provided by landscaping, and make it a
significant component of all site design. .
The project as proposed is consistent with the General Plan Neighborhoods Element in that: a) the
design of the proposed new antennas would be building mounted and screened so as to appear to be
part of the building and the equipment cabinets would also be screened from view; c) no air
conditioners or generators are proposed that would create noise to disturb the surrounding residential
properties; and d) the project site is located at the top of a hill and neither the antennas or the
equipment cabinets are close to residential properties. The closest residential lots are 300 feet away
from the church building. As such, the proposed project would not impact the residential character of
the neighborhood.
The project as proposed is consistent with the General Plan Community Design Element in that: a) the
design of the facility is compatible with existing configuration of the buildings and landscaping on the
project site surrounding the lease area; b) it would preserve the existing neighborhood identity and not
impact any views due to stealth design of the antennas; and c) the new fenced equipment area will be
located near other existing fenced lease areas to reduce impacts on the open space on the site.
.
Zoning Ordinance Consistency:
The subject site is located within the R7.5 (Single-Family Residential) Zoning District. Pursuant to
Section 14.16.360.D of the San Rafael Municipal Code (the Zoning Ordinance), a Use Permit and
Environmental and Design Review Permit approval by the Zoning Administrator is required for new co-
located wireless communication facilities. The site is currently governed by a Design Review Permit
and Use Permit approved in 2004 to operate the existing antennas on site (ED04-006/UP04-003). The
proposed addition of 9 antennas would require an amendment to both permits. In addition, Section
14.16.360.H and 14.16.360.I of the Zoning Ordinance (wireless facilities) establishes standards to
regulate the design and placement of wireless communication facilities on public and private property in
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order to minimize the potential safety and aesthetic impacts on neighboring property owners and the
community.
The project is subject to the following design and development standards contained in the Wireless
Communication facility section of the Zoning Ordinance. The applicable standards are identified below
in italics and are followed by a staff analysis.
Design Requirements
• Co-location: Co-location is encouraged for new wireless facilities whenever feasible. Co-location is
preferred over new monopoles or other towers erected specifically to support wireless
communication facilities unless technical evidence demonstrates that there are no other alternative
sites or feasible support structures or the use of a monopole or tower would avoid or minimize
adverse effects related to the view shed, land use compatibility, visual resources and public safety.
• Stealth design: All wireless facilities shall have a stealth design to screen or reduce visual impacts
and blend the facility into the existing environment
• Roof and building mounted facilities shall be sited to appear as an integral part of the structure or
otherwise minimize their appearance; integrated architecturally with the style and character of the
structure or otherwise made as unobtrusive as possible.
• If not feasible to locate within a building or underground, base stations and equipment cabinets
shall be painted, screened, fenced, landscaped or otherwise treated architecturally to minimize its
appearance from off-site locations and to visually blend with the surrounding natural and built
environment
Development Standards
• Height: Above ground utility distribution facilities, including communication towers are not included
in height calculations, pursuant to Zoning Ordinance section 14.16.120, but are subject to
Environmental and Design Review.
• Landscaping: Wireless facilities shall be installed in a manner that maintains and enhances existing
vegetation and provides new landscape material to screen the proposed facility.
• Radio Frequency Radiation (RFR): Wireless communication facilities operating alone and in
conjunction with other telecommunication facilities shall not produce RFR in excess of the
standards for permissible human exposure as adopted by the FCC; application for a wireless
communication facility shall include an RFR report.
The Zoning Ordinance encourages co-location in order to minimize the overall visual impact of the new
facility. The proposed wireless facility is a new installation co-located on a site with two other carriers.
Zoning Ordinance Section 14.16.360.G states that “all wireless facilities shall be sited to avoid or
minimize land use conflicts.” This section also identifies co-location on existing buildings as “most
desirable.” While residential zoning is identified as a least preferred location for wireless facilities, the
facility is co-located and is at least 300 feet away from the residences along Trellis Drive, Esmeyer
Drive and LeClaire Court. Staff has determined that the addition of 9 stealth, co-located antennas and
associated equipment cabinets would not result in a land use conflict with the surrounding residential
and office land uses.
The proposed facility is consistent with the stealth design goal in that the 6 of the proposed antennas
would be screened behind a fiberglass box-cabinet in the same manner as the existing antennas.
These antennas are located at the rear (north) and northwest side of the building and are integrated
into the building such that they are not noticeable from off-site as anything other than architectural
features. The remaining three proposed antennas would be screened behind a false window at the roof
of the building, directly in front of the existing window. In addition, the existing antennas screened in a
wooden box adjacent to the window would be incorporated into the new window, eliminating the box
and improving the overall aesthetic quality. The new false window would be fiberglass and designed to
replicate the existing window. None of the antennas exceed the current height of the church building.
The co-axial cable runs will also be screened in a similar manner within a false cabinet matching the
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existing building materials, and would run underground to the new fenced equipment area. As such,
the proposed stealth design for the facility is in substantial conformity to the wireless design guidelines.
The project would have minimal impact on the existing landscaping. The proposed location of the new
lease area to house the equipment cabinets would require the removal of a willow tree. The applicant
is proposing to relocate the willow tree west of the new fenced area, as directed by the property owner.
In addition, four new 5-gallon Toyon shrubs would be added to the area in front of the new fence. The
landscaping improvements would also include irrigation lines to serve the impacted area. Additional
landscaping upgrades may also be included based on direction from the property owners.
An Alternative Site Analysis was submitted per Zoning Ordinance Section 14.16.360.B.3, which
requires such an analysis for sites not located in an industrial or commercial zone. The applicant
indicated that two other sites were considered: Terra Linda High School and Kaiser Medical Center.
According to the applicant, these locations were not available due to lack of a willing landlord. The
applicant indicated that the project site at 1 Wellbrock Heights presents a co-location option not found
at the other sites. The applicant has submitted a co-location agreement to allow future co-location at
the proposed project site.
A radio frequency (RF) evaluation was prepared for the project. The results of these reports do not
affect design of the project and will be reviewed by the Zoning Administrator. However, staff does note
that the studies indicate the project, as proposed, complies with all applicable RFR standards for
wireless communication facilities. Staff requests that the Board comment on the following:
• Whether the proposed new false window will maintain the aesthetic quality of the existing window
design element
• Whether the proposed new fencing should be painted white or remain a natural wood color (one of
the two existing fences is painted white, the other is unpainted wood)
• Whether the proposed relocation of the existing willow tree is feasible and whether the choice of
additional plants is appropriate in size and species type.
NEIGHBORHOOD CORRESPONDENCE
A courtesy notice was mailed to all property owners and occupants within 500 feet of the subject site,
the Terra Linda Homeowner’s Association and appellants from the previous Cingular application
appealed to the Planning Commission in 2006. In addition, a public notice sign was posted at the site
identifying the meeting time, date, location, and scope of the project within fifteen (15) days prior to the
Board’s meeting. To date, staff has received 5 phone calls in opposition to the proposed project.
There were no comments relating to design issues. The comments expressed concerns that the total
number of antennas on the site was excessive and that there may be potential dangers from RF levels.
Staff has responded to all comments via telephone conversations. No written materials were submitted
to staff.
CONCLUSION
Overall, staff supports the proposed project because it is in keeping with the General Plan 2020
policies, meets all zoning code requirements, is of stealth design, meets the performance standards
established for wireless communication facilities and will blend in with the existing church structure on
the project site. The elimination of the existing screen structure below the church cross would be a
major design improvement. The existing landscaping will be upgraded, thereby improving the overall
look of the landscaping in the lease space area.
The Board, in fulfilling its role of providing professional design advice to the City, may have additional
concerns, information requests, and may provide any additional recommendations it deems appropriate
for these Design Review applications. Following the recommendation of the Board, the application will
be forwarded to the Zoning Administrator for their consideration.
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EXHIBITS
1. Vicinity Map
2. Applicants project description submittal dated January 18, 2011
3. Reduced project plans
4. Project Photosimulations
Full-sized plans and 11 x 17 sized plans have been provided to the DRB members only.
cc: James Singleton, NSA Wireless, 2000 Crow Canyon Place, Suite 400, San Ramon, CA 94583
Barbara Nelson, Aldersgate Methodist Church, owners 1 Wellbrock Heights, San Rafael, CA 94903
Reule Brady, Terra Linda HOA, P.O. Box 6405, San Rafael, CA 94903
