HomeMy WebLinkAboutReport - Master Telecommunications Plan (MTP) (Wireless Facilities)ORANGE COUNTY
BOARD OF COMMISSIONERS
ACTION AGENDA ITEM ABSTRACT
Meeting Date: September 3, 2002
SUBJECT: Master Telecommunications Plan (MTP) - (Wireless Facilities)
DEPARTMENT: Planning and Inspections
ATTACHMENT(S):
1. Summary of Telecommunications:
Planning for the Future.
2. Excerpt from Telco Ordinance.
3. Criteria for Master Telecommunications Plan
Inclusion and Examples
4. Resolution of the BOCC to Create a Master
Telecommunication Plan
5. Example of a Telecommunication Plan
6. Excerpts from Strategic Plan for Wireless
Telecommunication Facilities — Appendixes A & 4
7. Map and Table of Parcels
Action
Agenda ��
Item No.
PUBLIC HEARING: (Y /N) FN7o
INFORMATION CONTACT:
Craig N. Benedict, ext. 2592
TELEPHONE NUMBERS:
Hillsborough 732 -8181
Chapel Hill 968 -4501
Durham 688 -7331
Mebane (336) 337 -2031
PURPOSE:
To hear a report and discuss the creation of a Master Telecommunications Plan (MTP)
(Wireless Element).
BACKGROUND:
The Federal 1996 Telecommunications Act set forth a new regulatory framework for the
deployment of telecommunication facilities. In essence, the Federal Government wanted to
limit the authority of local government regulation that created a "barrier to entry" of new "telco"
facilities
that would create the public interest "information highway ".
Since then, all local governments have grappled with the limits of their authority in this field to
protect their local interests through zoning. As a result, local regulations have been pushed to
a somewhat uncharted limit of authority that has led to hundreds of lawsuits that sought to
resolve
the balance intended in the 1996 Telco Act.
Accordingly, Orange County has recommended changes to their telecommunication tower
ordinance to stay up to date with the law, technology and consultant technical expertise
opportunities. As an overreaching plan to address many telecommunication issues and
programs,
an MTP is often used to organize and create a game plan for implementation.
A MTP can have various elements related to the different application of telecommunication
FA
facilities. From towers to underground to technological advancement of computer /internet
services, the MTP can offer a mechanism to promote a policy to plan for the future. The MTP
(wireless element) is intended to address the continued protection of the public health, safety
and welfare through communication facilities and to create public safety communication
opportunities on public property whereby fair and reasonable compensation would be
forthcoming.
'Local communities are the key to better land use. But first, each must define a vision for the future.
This vision includes an inventory of resources, respect for established traditions and articulation of
community values. To realize a vision, local leaders must enlist all sectors in devising land use plans
and execute those plans with greater efficiency and flexibility. No community retains its character by
accident.
(Land Use in America, Diamond and Noonan, 1996)
FINANCIAL IMPACT:
No financial impact at this time with human resources being used from existing departments.
Eventually, the use of an MTP could provide financial and public benefits. Department
involvement would eventually include but not be limited to, Planning and Inspections
Department, EMS, Sheriff, IT, Purchasing, Public Works, ERCD, and Parks and Recreation.
RECOMMENDATION(S):
The Manager recommends that the Board consider authorizing staff to develop a Master
Telecommunications Plan (Wireless Element) for Public Hearing no sooner than
November 13, 2002, and to begin development of remaining MTP elements.
EXCERPT FROM TELCO ORDINANCE:
6.18.5 Master Telecommunications Plan ( "Plan ")
As an alternative to the foregoing provisions, an applicant for a wireless
telecommunications facility less than two hundred (200) feet in height may elect to
participate in the Orange County Master Telecommunications Plan ( "Plan "). The
County shall develop a plan which specifies sites within the County where an
applicant may construct a wireless telecommunications facility by seeking
issuance of a Building Permit in accordance with the specifications set forth in the
Plan. The Plan shall be presented at a quarterly public hearing. After the quarterly
public hearing, the Plan will be presented to the Planning Board for
recommendation to the Board of County Commissioners. If adopted, the applicant
may apply for necessary Building Permits on properties approved in the Plan.
Properties approved in the Plan shall not be subject to an additional, separate
public hearing process on any proposed facility included in the Plan. Applicants
will•be required to meet all Ordinance requirements and shall pay a site plan
approval and building application fee as provided for in the Orange County
Schedule of Fees.
a) Information to be provided. All telecommunication providers who
elect to construct on properties approved in the Plan shall provide
all necessary and requested information to the County's
telecommunications consultant. Such information shall include
that set forth in this Ordinance, for each telecommunications site
which it currently operates within the County, as well as each site
which it reasonably believes it will require within the County for the
next five (5) years.
b) Plan modification. Modifications to the Plan shall be considered
annually at the February Quarterly Public Hearing. Any applicant
requesting modification of the Plan shall make application to the
Zoning Officer on or before January 7th of each year.The fee for
annual modification of the Plan shall be that as set forth in the
Orange County Schedule of Fees.
C) The County shall use signal propagation methods and professional
engineers qualified in this discipline and assure compliance with all
federal, state, and local regulations.
a) All sites specified in the Plan shall be deemed permitted
sites for the construction of wireless communications
towers without the necessity of further public hearing.
For those sites specified on the Plan which are on
property owned or controlled by the County (regardless
of zoning classification), the applicant shall, prior to
seeking a Building Permit for such facility, negotiate and
execute a lease agreement with the County for such site
upon terms and conditions which are acceptable to the
County.
e) Withdrawal from the Plan. Withdrawal from the Plan is permitted by
submitting a notarized statement requesting withdrawal from the
Plan
I. CRITERIA FOR PROPERTY INCLUSION INTO A MASTER
TELECOMMUNICATIONS PLAN (MTP) WIRELESS ELEMENT
1) Application for inclusion in the plan from the property owner.
2) Property serves a public or community interest or function.
3) Must meet all dimensional requirements regarding tower location (i.e. lot size, setbacks).
4) Must be approved through a Public Hearing process including Planning Board
recommendation and Board of County Commissioners adoption.
5) Not more than 200 feet high.
II. EXAMPLES OF PUBLIC INTEREST SITES ONLY AS APPROVED BY THE
UNDERLYING AUTHORITY / OWNER
1. Emergency Management Service Facilities
2. Police Facilities
3. Fire Stations
4. Government Properties (State and Local)
5. Parks
6. Community Organizations such as Ruritan, Civitan, Grange
7. Voluntary Agricultural Districts
8. Religious Organizations
RESOLUTION OF THE BOARD OF COUNTY COMMISSIONERS
TO CREATE A MASTER TELECOMMUNICATIONS PLAN
WHEREAS, It is vital to Orange County's long -term economic health that wireless
telecommunication systems are developed throughout the County and are made accessible and
affordable to the County's residents, businesses, and visitors; and
WHEREAS, Wireless telecommunications have proven invaluable in many emergencies,
including use by public safety personnel; and
WHEREAS, Inadequate wireless service exists in certain areas of the County; and
WHEREAS, Orange County is an exceptional place, rich in scenic beauty and replete with
natural, historic, environmental, and cultural resources which contribute to a high quality of
living and a thriving tourism business; and
WHEREAS, The siting and design of wireless telecommunication systems can have significant
land use implications; and
WHEREAS, Certain design techniques and land use regulations can be implemented to
ameliorate or mitigate adverse impacts often associated with wireless telecommunication systems
without diminishing service;
THEREFORE, THE ORANGE COUNTY BOARD OF COUNTY COMMISSIONERS
RESOLVES,
That basic wireless telecommunication services are available to all those who want it, through an
infrastructure, which is developed based upon legitimate need and implemented in a way that is
sensitive to community concerns.
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TELECOMMUNICATIONS PLAN
Orange County, North Carolina
intrnductinn
The Telecommunications Plan described herein incorporates a series of action steps necessary to
implement the County's Telecommunications Policy. The supporting detail for each set of action
steps, and specific requirements and alternatives for implementation are found in -the referenced
appendices which have been developed by various departments and committees. These action
steps will assist the County in meeting the following prime objectives stemming from its
Telecommunications Policy:
• Continue to protect public health, safety and welfare.
• Facilitate deployment of advanced telecommunications technology and services both
externally and internally.
• Maintain and enhance a pivotal role in management of the public Right -Of -Way (ROW)
through coordination with North Carolina Department of Transportation (NCDOT) and
County property.
• To the extent consistent with Federal and State law, create a level playing field for
telecommunications system and service providers.
• Obtain fair and reasonable compensation for use of the ROW and County property.
The action steps are listed below in relation to the applicable Telecommunications Policy area. It
should be noted here, as it is in the Policy, that successful completion of the action steps will
require a coordinated team effort of a number of key departments individuals and groups.
1. Compliance with, and Affect on, Federal Laws and Regulations.
Policy Statement: The County supports efforts, which advocate the roll -out of
telecommunications services on a competitively neutral and non - discriminatory basis. In this
regard, the County will apply federal laws and regulations in a fair and impartial manner while
continuing to preserve local authority.
Applicable Action Steps:
• Continue to review the Telecommunications Act of 1996 ( "the Act "), Federal
Communications Commission (FCC) regulations and current FCC and Judicial decisions
to monitor and update the County's knowledge of the Federal regulatory
telecommunications framework.
• Participate in the development of legislation at the Federal level and lobby at the FCC to
the extent permitted by law where FCC decisions can impact the rights and obligations of
the County.
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• Continue to support legislation which encourages the deployment of telecommunications
services while, at the same time, retaining local regulatory authority.
• Encourage the delivery of advanced telecommunications services pursuant to Federal
enablements and requirements, to all Orange County Communities including residents,
educational institutions, libraries, businesses, government and other organizations.
• Advocate, develop and employ necessary means to receive fair and reasonable
compensation for use of public property and the public right -of -way.
• Continue to comply with well - established Federal laws and regulations which affect
telecommunications providers and the County. Where necessary, update the County's
Telecommunications Policy and Plan to reflect prevailing Federal law, regulations and
Judicial decisions.
• Apply Federal laws and regulations in a competitively neutral and nondiscriminatory
manner.
2. Compliance with, and Affect on, State Laws and Regulations.
Policy Statement: The County will continue to use current enablements given under State law to
receive compensation for the use of the ROW, including seeking the recovery of all costs
incurred by the County related to ROW use by commercial providers. Where necessary and
appropriate to change State law to enable the County to receive more fair, reasonable and
equivalent compensation from all users of the ROW, and in so doing help level the playing field
and benefit the citizens of Orange County, the County supports efforts that advocate such change
to State law. The County may work proactively with other local governments and allied entities
on initiatives to change State law in this regard.
Applicable Action Steps:
• Continue to use current State enablements that support the County's efforts regarding
proactive management of the ROW, full cost recovery related to ROW management
activities and ROW use impact, and regulation of cable television and other video
services.
• Continue to work with the North Carolina Municipal League, other local governments
and allied entities to preserve local authority related to ROW use and the use of public
property.
• Where beneficial to Orange County's interests, advocate changes to State law to enhance
local authority over ROW users in order to level the playing field, improve the
competitive telecommunications climate and receive fair and reasonable compensation
for use of the ROW and public property.
3. Encouragement of Competition.
Policy Statement: While continuing to appropriately manage the use of the public right -of -way,
the County will encourage and promote competition in the local telecommunications
marketplace. It will use all avenues open to it, to pursue an increase in the number and diversity
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of telecommunications services available in Orange County, including advocacy of beneficial
initiatives at the State and Federal levels. It will make Orange County citizens aware of its
efforts to promote competition through public reporting mechanisms, including electronic means
such as the County's website.
Applicable Action Steps:
• Support legislative, regulatory and other initiatives at the State and Federal level that
work to open up the telecommunications marketplace to increase competition, while
continuing to preserve local authority over the use of the public ROW and public
property.
Work through public private partnerships and other cooperative efforts to enhance the
availability of advanced telecommunications infrastructure and services for the Orange
County residential, business, organizational and institutional Communities. This should
include working with established groups such as the Internet Technology Commission
(ITCOMM) and Economic Development Commission (EDC) Greater Orange County
Partnership to continue to explore ways to identify and match business needs with current
and potential telecommunications infrastructure and service providers for the benefit of
Orange County's economic development.
Develop initiatives at the local level through regulatory and other provisions and
agreements that work to increase the availability of advanced telecommunications
infrastructure and services in Orange County. These initiatives could include: provisions
in cable and other video system agreements that foster the rapid development and
deployment of advanced services; land use provisions that foster service and
infrastructure deployment in new residential developments and business and industrial
parks as such areas are first being developed; and other similar initiatives.
4. Proactive Management of the Public Right -Of -Way (ROW).
Policy Statement: The County will continue to proactively manage the ROW through
coordination with NCDOT. As part of this management function, the County will seek to
enhance its permitting provisions and develop a comprehensive set ofprovisions that apply to all
providers, as allowed by State and Federal law. These provisions will include measures to
ensure that citizens do not subsidize private infrastructure development, by guaranteeing that the
County/NCDOT is reimbursed for all of its direct and impact costs concerning the use of the
ROW by commercial providers.
Applicable Action Steps:
• Continue to utilize and enforce current beneficial ROW permitting and ROW use
agreement provisions, such as: notice of construction requirements; non - transferability
clauses; flexibility on establishing specific requirements of the County Manager related
to ROW use; the filing of cash or corporate bonds; inspection requirements; and as -built
map requirements.
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• Review and implement changes to the ROW permitting and ROW use agreement process
and provisions, including potential requirements related to joint excavations; longer time
frames for repair and restoration responsibilities; the implementation of moratoria on
recently repaved streets; shorter time frames on relocation requirements related to public
works projects; electronic filing of as -built maps; and other beneficial provisions.
• Continue to review ROW permit and use fees and implement changes to ensure full cost
recovery related to County/NCDOT permitting activities and compensation for street life
degradation.
• Develop and implement a ROW management committee made up of key staff members
from pertinent departments (County Manager's Office, Public Works, Planning and
Inspections, Information Technology, County Attorney's Office, Purchasing and others)
to meet monthly or at some other necessary interval to discuss issues related to current
and anticipated activity in the ROW.
• As part of continued GIS system implementation, develop layers related to
telecommunications, cable and utility infrastructure placement to assist the
County/NCDOT in its ROW management functions.
• Increase the development of electronic information flow, both internally and externally,
related to ROW use permit applications processing, status and records information.
• Incorporate all the above, as well as other concepts from the Policy and Plan, into a new,
overarching master telecommunications ordinance.
5. Personal Wireless Communications Services.
Policy Statement: The County supports and encourages the roll -out of Personal Wireless
Service facilities, while at the same time, retaining and enhancing its local zoning authority and
its sensitivity to local concerns. Supplementing the existing zoning standards will continue to
safeguard the public health, safety and welfare of Orange County residents, continue to treat
functionally equivalent telecommunications services including but not limited to an efficient
Master Telecommunications Tower Master plan (MTTMP) in an equitable manner and further
manage public property and the public right -of -way which is held in trust for Orange County
citizenry.
Applicable Action Steps:
• Continue the review of existing local provisions and regulations in the zoning code and
related materials that effect personal wireless services. Supplement, where necessary,
current setback, height, rooftop location and equipment screening requirements.
• Implement a wireless service provider registration requirement, and inventory existing '
towers and antennas to determine whether zoning compliance exists and whether all
applicable permits and leases have been obtained from personal wireless service
providers in the County.
Review existing leases between the County and providers to identify areas and
substantive provisions that could be included in an overall personal wireless services and
facilities ordinance. Beneficial provisions, for example, could include current or
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augmented requirements related to compensation, technical and siting specifications,
indemnification, termination and other provisions.
• Continue to act in a manner that does not unreasonably discriminate among providers of
functionally equivalent services.
• Evaluate timeframes currently utilized to review requests for authorizations to place,
construct or modify personal wireless service facilities. Such reviews must be completed
within a reasonable period of time after the request is filed, taking into account the nature
and scope of the request.
• Further, address a number of specific considerations concerning the aesthetics and
deployment of towers, antennas, powering equipment and other facilities and equipment.
• Develop and enact an overall personal wireless service facilities ordinance reflecting the
results of the above review activities. This ordinance should address a variety of issues,
including site selection criteria, preferences for public property, co- location requirements,
permit and inspection requirements and non - use /abandonment provisions. Such an
ordinance also should indicate that any decision to deny a request to place, construct or
modify personal wireless service facilities shall be in writing and supported by substantial
evidence contained in a written record.
• Promote co- location of provider services.
• Use existing electric power transmission line infrastructure as necessary.
6. Internal Telecommunications System Development.
Policy Statement: The County will continue to advance and develop its internal
telecommunications systems for the benefit of its citizens. Such advancements lead to more
efficient government operations, more accessible government services and a more informed
citizenry. The County will use a combination of expanded or improved internal infrastructure,
equipment and other resources, as well as continued outsourcing of some support functions,
taking into account the best cost versus benefit analysis, to expand its provision of information
electronically and heighten its video, voice, and data communications connectivity, capacity and
capabilities.
Applicable Action Steps:
• Continue to pursue current critical activities related to an upgrade of the County's E -mail
system.
• Upgrade the County's telephone system. This should include a new PBX system with
expanded voicemail capability.
• As competition increases in the local exchange carrier marketplace, review options for
the most cost effective provision of dial tone services.
• Upgrade the County's data communications system. This includes: upgrading routers and
some hubs at all pertinent County facilities; upgrading the Ethernet switch at County;
migrating to Fast Ethernet or higher capability at County; and incorporating additional
network management and reliability enhancements for the entire network.
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• Prepare for the migration over time of the County's video operations to all digital
production, post - production and transmission equipment and facilities.
• Expand the connectivity options for video communications to include additional video
program origination sites at the Southern Human Services Center (SHSC) & Government
Services Center (GSC).
• Utilize fiber optic and other Institutional Network (I -Net) infrastructure, provided
through cable franchise and other agreements to enhance Wide Area Network (WAN)
connectivity between the County's facilities. For those facilities connected via fiber, this
would include a minimum expansion in connection capacity for data communications of
between 10 and 100 megabits per second (Mbps) and up to 2 Mbps for facilities not
connected by fiber optic cabling. Concerning voice communications, for facilities
connected via fiber a minimum of 2 T -1 circuits should be available, with other
connectivity options pursued for those not connected by fiber. Where feasible and
necessary, redundant pathing should be built into the I -Net infrastructure in order to
enhance WAN reliability.
• Investigate direct, high capacity access to an Internet Service Provider to work to
eliminate current slow system response and internet access delays and improve service
levels concerning access to, and provision of, web -based services. Concurrently, the
County should upgrade both its website hardware and software capabilities to increase
the services that can be provided electronically. These services should ultimately include,
for example, on -line permit monitoring, using existing software such as "Permits - Plus ",
and could be applied to a variety of County activities.
• Place increased emphasis on development and use of the County's GIS system. This
would include devotion of one or more full time resources to GIS system development
and maintenance, as well as initiating broader delivery of GIS to critical desktop
locations.
• Where feasible, investigate enhanced connections to other government agencies and
organizations as desired by various County departments.
• Continue to monitor interest in the use of telecommuting, videoconferencing and tele-
training, and employ such technologies as demand increases.
7. Synergies With Cities.
Policy Statement: The County will continue synergistic and efficient relationships that provide
significant and cost effective resources to the County for the benefit of its citizens. Where delays
or other problems occur as part of the current relationships or agreements with the County, the
County will review other options or the restructuring of current relationships and implement
changes to eliminate delays and resolve problems.
Applicable Action Steps:
• Continue, at present, the County's synergistic relationship with the Cities regarding the
regulatory administration of the Cable TV, Cable franchise and other potential video
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system agreements. However, going forward, the County should consider a more direct
role in regulatory administration as the number of video system providers may increase.
• Continue the County's synergistic relationship with the Cities related to 911 and other
public safety telecommunications services. However, should the County not move
forward with the implementation of a new 800 megahertz (MHz) public safety radio
system in a short time frame, the County should consider moving forward with
implementation of a new system on its own, as long as future compatibility with the
County system can be accomplished in a cost - effective manner.
• Explore ways with the County to increase the capacity of the County's connection to the
Internet (currently shared in a cost - effective manner with a number of County entities). If
increased capacity and faster response times cannot be accomplished under modifications
to the existing scenario, then the County should explore its own high capacity, direct
connection to an Internet Service Provider.
Continue the relationship with the Cities related to GIS system development. However,
the County should work with the Cities and internal departments to resolve a cost -
effective manner to current obstacles to obtaining direct real -time access to all necessary
portions of the County's database.
Continue to explore ways to develop further synergies between County and City
functions where costs can be saved or avoided and capabilities can be increased.
However, the County should also develop capabilities on its own where existing or
planned relationships may result in service delays and higher than necessary costs.
8. Monitoring and Integration of New Telecommunications Technology and Services.
Policy Statement: The County will continue to monitor the development of new
telecommunications technology and services and integrate them where appropriate to increase
service levels and operational efficiencies and reduce costs. The County also will react and
respond, in accordance with its Telecommunications Policy and Plan, to new
telecommunications technologies and services that have an impact on the ROW or other public
property. The County also will encourage the development and deployment of new
telecommunications technologies and services that enhance the competitive service climate for
Orange County's citizens, businesses, government, and other organizations and institutions.
Applicable Action Steps:
• Continually monitor telecommunications technological trends as part of ongoing County
research and development functions, to determine their potential application to both the
County's internal and external telecommunications environments.
• At this point, actively monitor trends regarding: fiber optics transmission systems and
applications; advances in wireless communications system infrastructure and
applications; the development of Digital Subscriber Line services for both the home and
business marketplaces; the continuing advancement of data - over -cable transmission
technology and applications; and the rapidly increasing utility of the Internet for both
voice and video, as well as data, communications.
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9. Continued Focus on Citizen Input, Involvement and Interests.
Policy Statement: The County will continue to inform, involve, serve the interest of, and receive
input from citizens in both the implementation of the Telecommunications Policy and Plan, as
well as in proceedings concerning future Policy and Plan reviews and changes. Regarding
citizen telecommunications needs and interests, the County will work to advance the availability
and diversity of cost effective telecommunications services within Orange County. The County
will work to provide an increasing amount of government information and services
electronically. The County will strive to protect the privacy of information provided by citizens,
or obtained from them, electronically, consistent with State, Federal, and local law. The County
will strive to protect the integrity of the information, systems, and databases it maintains and
provides electronically. The County will enhance its oversight, to the extent allowed under
Federal and State law, of the placement of visible wires and structures consistent with the needs
and interests of affected citizens and service providers.
Applicable Action Steps:
• Continue to inform, involve, serve the interest of, and seek input from, all Orange County
Communities of Interest as the County implements both the Telecommunications Policy
and Plan.
• On an annual basis, review the Policy and Plan and seek input from the citizenry on any
prospective modifications.
• Specifically regarding the residential community, set as a high priority the creation of a
telecommunications services climate that promotes local telephone service competition,
higher speed Internet access, and significant infrastructure oversight that is sensitive to
the concerns of citizens regarding visible wires, equipment, housings, towers, antennae,
and other infrastructure.
• Specifically regarding the business community, set as a high priority the creation of a
telecommunications service climate that reduces the cost of telecommunications services,
promotes a variety of avenues for electronic (e) commerce and facilitates a high degree of
network reliability through the presence of a number of redundant provider options.
• Continue to increase the County's provision of information and services electronically.
The County should employ appropriate safeguards to protect the integrity of information,
systems, and databases the County maintains and provides electronically. The County
should develop a specific policy and employ appropriate safeguards to protect the privacy
of information provided by citizens or obtained from them electronically consistent with
State, Federal, and local laws. The County should post its privacy policy on its website.
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APPENDIX A. WIRELESS TECHNOLOGY PRIMER It is both appropriate and prudent that
the development of policies governing the location, height, and design of wireless
telecommunication facilities consider technical requirements. This section is designed to
introduce the basic principals and concepts of wireless telecommunications. Wireless
Transmissions The most common wireless device is a portable or hand -held phone, more
commonly referred to as a cell phone. This device receives and transmits radio signals from/to
an antenna mounted on a tower or other structure. Wireless calls (transmissions) are transmitted
through the air via radio waves at various frequencies. Cellular transmissions differ from
television and radio transmissions in that cellular transmissions depend on a network of cell sites
spread out over the service area whereas television and radio rely on one tower to provide service
throughout a large region.
The area covered by an antenna set is commonly referred to as a cell. The signal is routed to
switching equipment that selects the channel and monitors the signal strength. In telephone
applications, the signal normally is connected to the conventional or landline public telephone
system (loop exchange carrier). If the communication device is moving, the signal is passed on
to an antenna in an adjoining cell and the call continues uninterrupted. Figure 15 shows a typical
honeycomb cell network configuration in which cell sites are linked to provide coverage over
large geographical areas. The mobile telephone switching office (MTSO) in the center cell is the
central office for the entire cellular system and is linked to the public switched telephone
network (PSTN), which allows calls to be made over landlines from/to mobile units.
Figure 15. Generalized cellular network configuration Source: Mark Brose, June 1997
Wireless networks are engineered to locate antennas spaced just far enough apart to provide the
coverage needed. Antennas spaced too closely will cause signal overlap and create interference
problems. Antennas spaced too far apart will create "gaps" or "holes" in the coverage and will
result in calls being "dropped" as a traveler moves beyond the range of the antenna handling the
call. Each cell can handle a limited number of conversations at one time. When the signal traffic
in a cell reaches capacity, additional cells are required to provide additional system capacity.
The network described above represents a typical configuration for a single wireless service
provider.
Each service provider operates a discrete network of sites, which operate at different frequencies
and are developed based upon each carrier's unique service requirements. In addition to
technical design requirements, the location and height of an antenna support structure is
determined by other factors including underlying local zoning, the ability to secure a land lease,
and public sentiment. In many cases the same site or structure may be utilized by multiple
service providers, however the antennas and other equipment being used can not be shared[9].
The planning of cell networks is highly proprietary and collaboration among competitors in
locating sites is a rarity, if it occurs at all.
Licensing
The FCC, through public auction, sells spectrum by geographical region. The federal
government protects against interference problems from occurring by awarding exclusive use of
separate, specific frequencies to each station in a region. Frequency is a finite, limited resource
and is thus extremely valuable and coveted. The wireless telecommunication industry is limited
to a small portion of radio spectrum bandwidth.
Cellular, SMR, ESMR, and GSM service occupies portions of the 800 MHz band of the
electromagnetic spectrum. PCS encompasses two different services licensed by the FCC, which
are delivered over two different frequency bands, as well as certain unlicensed services. The
first is Narrowband PCS, to which 3 MHz has been allocated in the 900 MHz band of the
electromagnetic spectrum. Narrowband PCS usually includes specialized services such as
messaging and advanced paging. The other form of PCS is Broadband, to which a 140 MHz
block in the 1850 -1990 MHz band of the electromagnetic spectrum has been allocated.
CMRS licenses are sold by geographic regions identified as trading and serving areas.
Frequencies in the A and B blocks of the PCS band are allocated in Major Trading Areas
(MTA); frequencies in bands C, D, E, and F are assigned to Basic Trading Areas (BTA).
Similarly, frequencies in the A and B blocks of the cellular bands are assigned to Metropolitan
Serving Areas (MSA) and Rural Serving Areas (RSA). Loudoun County lies within the
Washington 10 MTA, Washington 9 BTA, and Washington MSA. Loudoun County is not
located within a RSA (See Figures 16, 17, 18).
There are six (6) commercial mobile radio service providers licensed to provide service in the
County. They are: AT &T Wireless, Cingular, Nextel, Sprint PCS, Verizon Wireless,
VoiceStream Wireless. As best could be determined, the frequency block, license market area,
bandwidth, and frequency band for each provider is presented in Table 5.
Coverage Versus Capacity Wireless networks are designed with two objectives in mind. The
first is to provide adequate coverage over the target area and the second is to provide the
necessary capacity to satisfy the demand calls at any given time within the coverage area.
Coverage sites expand service in large areas with difficult terrain and allow users to make and
maintain calls as they travel between cells. Due to technological constraints, there is a finite
number of calls that a given cell site can handle at any one time. Capacity sites increase the
number of call handling capability when the surrounding sites have reached their practical
channel limit. In the past, cellular phones have used analog transmission signals. A problem
with this technology is that it tends to pickup "noise" sometimes making messages difficult to
hear. Most providers have now switched to digital transmissions. Digital wireless facilities have
a higher calling capacity than analog cellular sites. However, due to higher frequencies on the
electromagnetic spectrum, each PCS cell site will cover a smaller area, and thus will need to be
spaced closer together compared with transmissions in the 800 MHz band. In densely populated
cities like Washington, D.C., cell sites tend to be smaller and spaced closer together than in
suburban or rural areas due to the fact that there are more people, thus more potential wireless
users. As more people demand wireless service, there will be a need to add additional sites to
handle the calls. Adding cell sites between existing sites to increase capacity is called "splitting
a cell." As the number of cell sites increases, the area of each site offered by a provider is
reduced in order to avoid overlapping coverage. As a result, a pattern emerges in which the
more populated central segments of cities contain smaller and more numerous cell sites, while
the less populated edges of cities, as well as rural areas, have fewer, but larger cell sites. Figure
19 contrasts cell site development within and between urbanized areas.
Figure 19. Typical urban cellular network configuration
Only at peak demand, such as during a traffic emergency, is it likely that capacity issues are
experienced in the County. However, in coming years, increase demand brought about by new
wireless products and services may result in capacity issues on a more routine basis in heavily
traveled corridors such as Routes 7 and 28, and the Dulles Greenway.
Tower Development Companies
Wireless service providers (carriers) are licensed by the FCC and are distinct from tower
development companies. Tower development companies do not own bandwidth and thus do not
have the same rights and protections to deploy wireless facilities as afforded to licensees under
the Telecommunications Act. Tower owners are, however, required to register structures over
200 feet in height with the FCC. The sole objective of a tower developer is to construct towers
and then lease space on the structures to service providers and others needing a place to mount
antennas. Tower development companies do not provide wireless service. From a developer's
perspective, the more leases on a tower, the more profitable the tower becomes, thus the
inclination on the part of a developer to construct tall towers capable of accommodating many
antennas.
Most wireless service providers do not own the structures on which they are located but instead
lease tower space from the structure's owner, which is typically a developer. Many of the larger
carriers have entered into "build -to- suit" agreements with the development community to
construct towers to meet a particular coverage objective. Several licensed service providers do
own a significant proportion of the towers on which they are located while others have sold their
tower assets to focus solely on providing service and to generate capital that can be used to
expand their networks.
Deployment Mandates
Ultimately service providers want to offer services to market to begin to recover their investment
in licenses, infrastructure, and equipment costs to compete for customers in the highly
competitive and lucrative wireless arena. For each 30 MHz license block, the FCC requires that
PCS licensees have a signal level sufficient to provide service to at least one -third of the
population in their licensed areas within five (5) years of receiving the license. Two - thirds of the
population must have service available to them within ten (10) years. Failure to comply with
these requirements may result in the permanent loss of a license. PCS licensees of 10 and 15
MHz blocks, must provide adequate service to at least one - quarter of the population in their
licensed area within five (5) years of being licensed or be subject to forfeiture of their license.
II.
Legend
4F Fire Station Parcel
4F Cwnty Owned Parcel
OWASA Parcel
vaurneer agricultural DStna
l4F Duke Forest
Eno Wver State Park
dr School Parcel
dr Semi Public Land
Excluded SIteS
t Existing Cell Towers
— Duke Transmission Lines
— PEW Transmission Lines
County Boundary
Township Boundaries
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