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Conduct a noticed public hearing to consider Use Permit application U-24-08 by Complete Wireless Consulting, Inc for Verizon to establish a new wireless communication facility consisting of an 80' monopole within a 2,500 square foot lease area located at 5778 Dixon Avenue West, located one mile east of the City of Dixon in the Exclusive Agriculture 40-acre minimum (A-40) zoning district, APN 0109-020-080. The project is exempt from the California Environmental Quality Act (CEQA) pursuant to CEQA Guidelines Section 15303, New Construction or Conversion of Small Structures.
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Public Hearing Required? Yes _X___ No __ _
Public Notice Required? Yes _X___ No __ _
DEPARTMENTAL RECOMMENDATION:
The Department of Resource Management recommends that the Planning Commission:
1. Conduct a noticed public hearing to consider Use Permit U-24-08; and
2. Adopt a resolution approving U-24-08 subject to the findings and conditions of approval contained in Attachment A.
SUMMARY:
I. EXECUTIVE SUMMARY:
Verizon Wireless is pursuing a use permit to construct and operate a new wireless communications facility consisting primarily of an 80’-foot-tall monopole and associated equipment within a 2,500 square foot lease area on property located at 5778 Dixon Avenue West in unincorporated Solano County.
Pursuant to Section 28.81(E)(2)(a) of the County Zoning Regulations, Planning Commission approval is required for new facilities which are not co-located or grouped.
II. OBJECTIVE:
The proposed facility meets Verizon’s coverage objectives within a geographic area not adequately served by Verizon’s network. Specifically, to solve the following issues. First, there is a gap in 5G coverage between Dixon and Vacaville. Second, there is also a lack of 4G coverage caused by a lack of capacity, with sites serving the area severely congested. Four sites serving Dixon and the surrounding area, including I-80 and I-505, are overloaded, with average traffic usage 1.6 times the normal operating condition of a cell site. These four overloaded sites are all located approximately 3 miles away, one to the southwest, one to the southeast, one to the east, and one to the northeast.
Overloaded sites result in reduced network throughput, which degrades network performance, leading to an increase in dropped calls, poor download speeds, and poor service. The site is being proposed as a four-sector site to minimize the number of facilities needed and is being proposed at the minimum functioning height to achieve the coverage objective.
III. LOCATION:
The project is in northern Solano County, 1.25 miles west of the City of Dixon at 5778 Dixon Avenue West. As identified by the General Plan, the property is situated in the Dixon Ridge agricultural region which provides for a combination of agricultural production, agricultural processing, and agricultural services.
The subject property is zoned Exclusive Agriculture 40-acre minimum (A-40) zoning district, and is developed with a primary dwelling, secondary dwelling and several accessory structures, and is primarily used for a nursery and landscape maintenance business. Access to the property is via an existing driveway from Dixon Avenue West.
IV. PROJECT DESCRIPTION:
The proposed facility includes an 80-foot-tall co-locatable monopole wireless communication facility painted “Threshold Taupe” (Attachment C) to blend in with the surrounding environment. Associated equipment includes 12 antennas, eight (8) radio units and three (3) surge suppressors mounted at 76’ centerline and two (2) equipment cabinets (with space for a third for a future colocation) and an emergency diesel generator with a 210-gallon fuel tank located within a 40’ x 50’ lease area enclosed by a wooden fence.
Access will be provided via the existing driveway from Dixon Avenue West and a new non-exclusive access and utility easement. The easement will provide for improvement of the existing on-site access road to ensure adequate vehicular access to the site and facilitate electrical service from an existing utility pole to the facility. The unmanned facility does not require additional utilities or infrastructure. The site is typically serviced once per month by a maintenance technician.
V. ANALYSIS:
A. General Plan Consistency:
The project is proposed on land designated Agriculture by the Solano County General Plan (Figure LU-1 Land Use Diagram). The project as designed and conditioned is consistent with General Plan goals and policies including, but not limited to, those related to public safety and emergency response, protection of scenic resources, and land use development.
Wireless facilities are required to be of the minimum functional height, with additional provisions for co-location. Facilities sited more than ¾ of a mile from designated scenic corridors are limited to 65 feet in height. A bonus of 20 additional feet up to a maximum height of 105 feet is permissible, for operators collocating on a single tower.
The project is not located within ¾ miles of a scenic corridor and has been designed to be of the minimum functional height for Verizon to meet its technical service objective. The proposal is designed to accommodate a future co-locator in addition to Verizon, promoting efficient use of the infrastructure and minimizing the need for additional future towers in the vicinity.
B. Zoning Consistency:
The subject property is located within the Exclusive Agriculture “A-40” zoning district. This district requires issuance of a use permit to authorize new wireless communications facilities subject to conditional approval by the Planning Commission.
Wireless facilities are required to be of the minimum functional height, with additional provisions for co-location. Facilities sited outside of ¾ miles of designated scenic corridor are limited to 65 feet in height. A bonus of 20 additional feet up to a maximum height of 105 feet is permissible, for operators collocating on a single tower.
The project is not located within ¾ miles of a scenic corridor and has been designed to be of the minimum functional height for Verizon to meet its technical service objective. The proposal is designed to accommodate two future co-locators in addition to Verizon, promoting efficient use of the infrastructure and minimizing the need for additional future towers in the vicinity.
As designed, the proposal is consistent with zoning regulations pertaining to new wireless communication facilities sited outside of a designated scenic corridor and is consistent with the 105-foot maximum height limitation for new, co-locatable facilities.
Alternatives Analysis
Per Section 28.81(F) of the Zoning Regulations, an Alternatives Analysis has been provided as required for any facility requiring a use permit before the Planning Commission. The Alternatives Analysis considers alternative locations and designs for the proposed facility, including those alternative sites which would not require a use permit. At a minimum, alternatives included in the analysis include:
1. Co-location at all existing wireless communications facilities whether in the unincorporated County, a city, or an adjacent county.
2. Lower, more closely spaced wireless communications facilities, and
3. Mounting on any existing non-residential structure within 2-miles of the proposed facility in unincorporated Solano County.
The project proponent has provided an Alternatives Analysis (included in Attachment D) which identifies alternative sites within a two-mile search radius representing the area in which a deficit in coverage was detected. The alternative locations considered were ultimately rendered not feasible due to the existing sites being located too far from the area requiring additional coverage, already in use by Verizon, or unable to accommodate the required equipment at the necessary height in the case of existing PG&E towers or other existing buildings.
Design Consistency with the Surrounding Environment
The environment surrounding the proposed facility is a rural agrarian landscape characterized by flat, open agricultural land, waterways, rural residences, and single-story accessory structures such as outbuildings and barns.
The “Threshold Taupe” monopole has been sited and designed to blend with the existing environment to the maximum extent feasible. The facility would be located at the rear comer of the property adjacent to a stand of existing trees, the most predominant feature in the immediate area. These trees serve to reduce the visual impact of the proposed facility, particularly when viewed from Dixon Avenue West.
A painted monopole design is recommended due to the flat, rural agricultural nature of the vicinity and the lack of dense, tall vegetation or other vertical structures to act as a substantial backdrop for a stealth facility. Due to a lack of any predominant vertical structures in the vicinity, the painted monopole contains less mass than common stealth options such as trees, windmills and water towers, and helps preserve the existing agrarian aesthetic.
Section 28.21 of the Zoning Regulations encourages the use of stealth designs. To that end, the applicant has proposed a monopole design painted “Threshold Taupe” to blend into the surroundings and create the least possible visual impact.
Radio-Frequency Exposure Review
Per Section 28.81(H) of the Zoning Regulations, a Radio Frequency “RF” Environmental Evaluation Report was provided which demonstrates that RF emissions from the facility in combination with existing RF emissions from nearby facilities will meet the current FCC adopted exposure standard.
The project proponent has provided a radio frequency - electromagnetic energy (RF-EME) compliance report (Attachment F) prepared by EnviroBusiness, Inc. (EBI) Consulting to determine RF-EME exposure levels from proposed Verizon wireless communications equipment at this site. As described in the RF report, the Federal Communications Commission (FCC) has developed Maximum Permissible Exposure (MPE) Limits for general public exposures and occupational exposures.
In summary, based on worst-case predictive modeling, there are no modeled exposures on any accessible ground level-walking/working surface related to Verizon’s equipment in the area that exceed the FCC’s occupational and/or general public exposure limits at this site. The predicted exposures are identified at the ground level in the horizontal transmission path of the antennas. Only those accessing this ground level or those elevated to this plane will encounter the exposures identified above.
In conclusion, signage is not required, and the site is compliant with FCC rules and regulations.
C. Airport Land Use Compatibility
As seen in the Travis AFB Land Use Compatibility Plan, the project is located within Compatibility Zone “E” which prohibits hazards to flight and requires Airport Land Use Commission (ALUC) review for objects taller than 200 feet above ground level (AGL). At 80 feet Above Ground Level (AGL) this project is consistent with the ALUC guidelines and does not require further review.
ENVIRONMENTAL ANALYSIS:
D. Environmental Determination:
The Department of Resource Management is recommending that the project is exempt from the California Environmental Quality Act (CEQA) pursuant to CEQA Guidelines Section 15303, New Construction or Conversion of Small Structures. This exemption consists of construction and location of limited numbers of new, small facilities or structures, and installation of small new equipment and facilities in small structures. The guidelines state examples including, but not limited to, utility extensions and appurtenant structures.
The project consists of a new cellular tower and associated equipment, contained within a 2,500 square foot lease area. There is no evidence in the record that the project would result in substantial, or potentially substantial, adverse environmental changes to any of the physical conditions within the area, including land, air, water, minerals, flora, fauna, ambient noise, or objects of historic or aesthetic significance. It has been determined that the project is not in an environmentally sensitive location, is not on a hazardous waste site, will not cause substantial change in the significance of a historical resource, and will not result in damage to scenic resources within a scenic highway. Staff therefore recommends that the project be found categorically exempt from CEQA under CEQA Guidelines Section 15303.
E. Good Neighbor Outreach Policy
On April 9, 2024, the Board of Supervisors, adopted a Good Neighbor Policy that encourages project proponents engage with the community to increase transparency and public dialogue prior to the formal public hearing process.
The applicant mailed a notification with a description of the proposed project (Attachment H) to property owners within ½ mile of the project site in early January 2025 and did not receive any responses from the public.
F. Tolling Agreement
Pursuant to Federal Communications Commission review timeline established in 47 CFR § 1.6003(c)(iv) “Shot Clock”, the applicant and the County have entered into a tolling agreement agreeing to an extension of reasonable time for review and processing this use permit application. This agreement was made in part to allow the applicant additional time to revise its initial submittal to address issues identified in the project review and provide updated application materials. The current tolling agreement is in place through April 8, 2025 (Attachment G).
G. Public Notice
Consistent with Sections 28.106 and 28.04 of the Solano County Code, a public hearing notice was published in the Daily Republic at least 15 days prior to the public hearing. In addition, all property owner’s within ½ mile of the project site received written public notice.
H. Agency Review
As part of the Department of Resource Management development review process, the application materials have been reviewed by various County Departments, as well as Local and Regional agencies. The following entities may have jurisdiction over the project and comments received have been incorporated as conditions of approval.
Local Agencies
Dixon Fire Protection District
RECOMMENDATION:
After conducting the public hearing, staff recommends that the Planning Commission approve Use Permit application U-24-08 by Verizon to establish a wireless communications facility at 5778 Dixon Avenue West.
ALTERNATIVES:
The Planning Commission, upon completion of a public hearing on this matter, may choose to:
1. Continue the public hearing to allow for the collection of additional information required to render a decision. If continued, the Commission would establish the date to continue the hearing; or
2. Deny the Use Permit. This is not recommended because the mandatory findings have been made and the project is consistent with the applicable General Plan land use designation and land use regulations as conditioned.
ATTACHMENTS:
A. Draft Resolution & Conditions of Approval
B. APN Map
C. Letter with color samples
D. Project Support Statement (with alternatives analysis and photo simulations)
E. Development Plans
F. Radio-frequency Evaluation Report
G. Tolling Agreement
H. Good Neighbor notice
I. Good Neighbor report
J. Vicinity Map
K. Public Notice