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HomeMy WebLinkAboutAgenda - 09-03-2002 - 9b 1 ORANGE COUNTY BOARD OF COMMISSIONERS ACTION AGENDA ITEM ABSTRACT Meeting Date: September 3, 2002 Action Agenda Item No. SUBJECT:. Master Telecommunications Plan (MTP) (Wireless Facilities) DEPARTMENT: Planning and Inspections PUBLIC HEARING: (YIN) No ATTACHMENT(S): INFORMATION CONTACT: Summary of Telecommunications: Craig N. Benedict, ext. 2592 Planning for the Future. TELEPHONE NUMBERS: Excerpt from Telco Ordinance Hillsborough 732-8181 Criteria for Master Telecommunications Plan Chapel Hill 968-4501 Inclusion and Examples Durham 688-7331 Resolution to Create a Master Telecommunications Mebane (336) 337-2031 Plan Example of a Telecommunications Plan Excerpts from Strategic Plan for Wireless Telecommunication Facilities—Appendix A Map & Table of Parcels (Under Separate Cover) 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 its 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. An MTP can have various elements related to the different application of telecommunication facilities. From towers to underground to technological advancement of computer/intemet services, the MTP can offer a mechanism to promote a policy to plan for the future. 2 The departments noted below will work together to create a comprehensive document. The example of a plan (Attachment No. 5) is tailored from Loudoun County, Virginia and is not a work product produced by the various departments, although many concepts parallel our interest. The MTP (wireless element) was the subject of department meetings over the last six months and 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 departmental staffs. 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, Information Services, 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. 3 TELECOMMUNICATIONS: PLANNING FOR THE FUTURE Excerpt from: International City/County ICMA Management Association Local governments are providers, users, and regulators of telecommunication service. Many local governments have already jumped to the fore with strategic plans to seek out partnerships with the public and industry to assure that local infrastructure is developed to assure economic vitality,right-of-way management, and public benefits. We've seen strategic alliances and creative regulatory schemes being developed by local governments all over the country: in Blacksburg,Virginia;Milpitas,California; Seattle, Washington,Austin,Texas;Kansas City, Missouri Broomfield,Colorado; Clark County,Nevada; and many other places. In response to the Telecommunications Act of 1996, all communities would be wise to reevaluate their ongoing plans,or get started on developing new ones,because the rules have changed, the business motivations are changing, and our consuming public wants more and better information services at affordable rates. A good plan approaches telecommunications as a means to reach a goal: a goal of achieving economic prosperity, consumer protection, and satisfying the public and civic interest. Local government's self-interest in planning for an effective telecommunications infrastructure is to protect its property,the public right-of-way,while maintaining a balance between the varied needs and interests of the public,the industry, and the government.The basic purposes of any telecommunications plan are to • Maintain local control of the rights-of-way • Establish appropriate quid pro quos for the use of public property • Satisfy the needs of consumers and the public interest,by retaining rate stability(when not satisfied via a competitive marketplace),offering consumer education and protection, providing for effective competition in a developing marketplace, and applying appropriate and necessary regulations in a uniform fashion. The new Telecommunications Act preserves the rights of local governments to protect public safety and welfare,preserve universal service, ensure service quality,protect consumer rights,manage the public right-of-way, and receive compensation for its use. All of this must be done in a competitively neutral fashion. And while the concept of competitive neutrality, a basic sense of equity,is not new to local governments,what is new under the new federal law, is how "telecommunications"competitors are defined. 4 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 70 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 5 ORANGE COUNTY BOARD OF COMNUSSIONERS RESOLUTION 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. EXAMPLE 6 TELECOMMUNICATIONS PLAN XXX County, State of XXX Introduction 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 State of XXX 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. • Continue to support legislation which encourages the deployment of telecommunications services while, at the same time,retaining local regulatory authority. EXAMPLE • Encourage the delivery of advanced telecommunications services pursuant to Federal enablements and requirements, to all XXX 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 RegpjxtloAj. 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=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 State of XXX 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 XXX 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 of telecommunications services available in JXYCounty, including advocacy of beneficial initiatives at the State and Federal levels. It will make.Y]i'Y County citizens aware of its efforts to promote competition through public reporting mechanisms, including electronic means such as the County's website. EXAMPLE g Applicable Action Steps: • Support legislative,regulatory and other initiative's 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 XXX 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 XXX 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 XXX 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 XXX 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 Riaht-Of-Wav(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 of provisions 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. • 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. EXAMPLE 9 • 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 ofJM 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 ADC 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 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. EXAMPLE 10 • 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 ofsome 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. • 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 EXAMPLE " 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 ef,j4cient 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 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. EXAMPLE lz • 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 XLYCounty'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. 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 X ff 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 XXX County Communities of Interest as the County implements both the Telecommunications Policy and Plan. EXAMPLE 13 • 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 infrastnicture 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. 14 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 ce1L 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 _ 15 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. 16 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.