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Conduct a noticed public hearing to consider Use Permit application No. U-25-04, submitted by Valley Internet, to construct a new 35-foot lattice tower wireless facility powered by solar and battery systems. The facility includes antenna arrays, microwave dishes, and ground equipment in an unincorporated area of Fairfield, within the Exclusive Agricultural 20-acre (A-20) Zoning District, APN #0180-100-010 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 ____
RECOMMENDATION:
The Department of Resource Management recommends that the Planning Commission:
1. Conduct a noticed public hearing to consider Use Permit U-25-04; and
2. Adopt a resolution approving U-25-04 subject to the findings and conditions of approval contained in Attachment A.
SUMMARY:
I. EXECUTIVE SUMMARY:
Valley Internet is pursuing a use permit to construct and operate a new wireless communications facility consisting primarily of a 35-foot-tall lattice tower and associated equipment within a fenced lease area on property located at Assessor Parcel Number 0148-260-010, in an unincorporated area of 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 project is part of a broader initiative funded by the American Rescue Plan Act (ARPA) to expand access to reliable, high-speed internet in underserved and unserved areas of rural Solano County. This effort aims to improve digital connectivity to support critical services such as telehealth, remote education, emergency communications, and economic development in rural communities.
The project directly supports Solano County’s Strategic Broadband Development Plan, which seeks to close the digital divide, a longstanding challenge that predates the COVID-19 pandemic. Valley Internet, the applicant, has partnered with the County’s General Services Department and has been awarded ARPA funding to assist in implementing this initiative.
This wireless communications facility is one component of a larger network expansion effort. The applicant has submitted a separate use permit application for a similar facility approximately three miles from this proposed project site and will be evaluated under a separate staff report. Collectively, these installations are intended to enhance broadband coverage and contribute to the County’s goal of achieving equitable digital access for all residents. The contract between the County and Valley Internet is in place through December 15, 2026 (Attachment B)
III. LOCATION:
The project site is in western Solano County, near the Green Valley area in the Western Hills, approximately .78 miles west of the City of Fairfield, north of Highway 12. As designated in the Solano County General Plan, the property lies within the Western Hills agricultural region, which is characterized by rolling grasslands, oak woodlands, and elevated plateaus. The region’s steep topography and soil conditions limit its agricultural productivity, making it generally suitable for grazing activities.
The subject property is zoned Exclusive Agriculture with a 20-acre minimum parcel size (A-20). It is currently undeveloped and primarily used for cattle grazing. Access to the site is provided via internal ranch roads that connect to Highway 12.
IV. PROJECT DESCRIPTION
The proposed access point installation consists of a 35-foot-tall ROHN 45GSR tower. Mounted on the tower will be two (2) 2-foot-8-inch dish antennas at heights of 12 feet and 14 feet, as well as two (2) 3-foot dish antennas at heights of 18 feet and 25 feet. The facility will also include two (2) 2-foot sector antennas at 28 feet and two (2) additional 2-foot sector antennas at 33 feet.
At the base of the tower, the project includes four (4) ground-mounted equipment cabinets to house backup power systems, networking components, and energy storage. A six-panel, ground-mounted solar array will provide the energy needed to operate the site independently, avoiding reliance on external electrical service. All components of the facility will be located within a 1,380-square-foot lease area. This area will be enclosed by a chain-link fence for security.
Access to the site will be provided via existing internal ranch roads. The property is accessed from State Highway 12. Valley Internet employees will not access the site regularly. The site will be accessed and staffed during initial construction of the facility and with periodic maintenance thereafter.
As a self-sustaining, unmanned facility, the project does not require additional utility connections or infrastructure improvements.
V. ANALYSIS
A. General Plan Consistency:
The proposed project is on land designated as Agriculture in the Resource Conservation Overlay by the Solano County General Plan (Figure LU-1 Land Use Diagram). The project as designated and conditioned is consistent with the General Plan goals and policies including, but not limited to those related to the protection of open space and agriculture.
B. Zoning Consistency:
The subject property is located within the Exclusive Agriculture “A-20” zoning district. This district requires issuance of a use permit to authorize new wireless communication facilities subject to conditional approval by the Planning Commission.
Wireless facilities are required to be of minimum functional height, with additional provisions for co-location. For proposed facilities sited within a scenic corridor, the tower is limited to the zoning district’s height. In this case the maximum height of the A-20 zoning district is 35 feet. The proposed project is located inside of the ¾-mile designated scenic corridor (Highway 12).
Due to its off-grid design, the facility lacks the capacity to support co-location. It cannot accommodate additional radios or ancillary equipment from other providers, as the limited tower space, structural load capacity, and site footprint restrict expansion. Introducing additional carriers could also result in signal interference, increased maintenance demands, and inconsistent power usage, all of which could compromise system reliability.
As designed, the facility will exclusively support Valley Internet’s equipment. The proposal complies with zoning regulations for new wireless communication facilities located within a scenic corridor and adheres to the 35-foot height limit.
Alternative Analysis
Per Section §28.81(F) of the Zoning Regulations, an Alternative Analysis has been provided as required for any facility requiring a use permit before the Planning Commission. The Alternative Analysis considers alternative locations and designs for the proposed facility, including those alternative sites which would not require a use permit. At minimum, alternatives in the analysis include:
1. Co-location at all existing wireless communication facilities whether in the unincorporated County, a city, or an adjacent county.
2. Lower, more closely spaces wireless communication 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 submitted an Alternatives Analysis (Attachment C), which evaluates potential sites within a two-mile search radius, representing the area where a coverage gap was identified. This location served as the best location to provide line of site visibility to other towers and the main office to enable connection. Any structures within the city of Fairfield did not meet the service objectives of the rural nature of the project. Alternate structures within the City of Fairfield were too low to establish line of sight with the other tower, structurally unfit for equipment mounting, or not available for lease.
Design Consistency with the Surrounding Environment
The proposed facility is in a rural setting characterized by rolling grasslands and elevated plateaus. Due to the region’s steep topography and soil conditions, the land has limited agricultural productivity and is primarily suited for grazing.
The lattice tower has been carefully sited and designed to blend with the natural environment to the greatest extent feasible. A Visual Impact Study (Attachment D) submitted by the applicant demonstrates that the tower’s visibility diminishes significantly with distance from publicly accessible viewpoints.
The lattice tower design was selected for its ability to accommodate multiple antennas at lower heights compared to monopoles, while also offering reduced visual impact due to its open, non-reflective structure. Its transparency allows it to visually recede into the landscape, especially at greater distances.
In accordance with §28.81 of the Zoning Regulations, which encourages stealth design elements, the applicant has proposed a lattice structure that naturally integrates with the surrounding environment and minimizes visual intrusion. Further discussion is found in section E. Visual Analysis.
Radio-Frequency Exposure Report
In accordance with Section 28.81(H) of the Zoning Regulations, the project proponent has submitted a Radio Frequency (RF) Environmental Evaluation Report demonstrating that RF emissions from the proposed facility, when combined with emissions from nearby facilities, will remain within the exposure limits established by the Federal Communications Commission (FCC).
A Radio Frequency Site Compliance Report (Attachment D), prepared by SiteSafe, was provided to evaluate RF exposure levels associated with the proposed wireless communication equipment. The report references the FCC’s Maximum Permissible Exposure (MPE) limits, which define acceptable exposure thresholds for both the general public and occupational settings.
The analysis concludes that there are no modeled RF exposure levels on any accessible ground-level walking or working surfaces that exceed FCC limits. To ensure ongoing compliance, the site will be required to include appropriate RF notice signage, Network Operations Center (NOC) contact signage, and maintain locked or restricted gate access.
C. Williamson Act Combability
The site is currently an open field with pastured livestock. The subject property is currently under a Williamson Act contract number. Staff reviewed the compatibility of the site in relation to the Solano County Uniform Rules and Procedures Governing Agricultural Preserves and Land Conservation Contracts.
A wireless communication facility on non-prime agricultural land can be considered compatible under specific criteria set by the principles of compatibility for non-agricultural uses on contracted lands. The proposed WCS lease occupies 1,380 SQ FT, thus is unlikely to compromise the long-term agricultural productivity of a 256-acre parcel. The site will not displace or impair agricultural operations.
WCS are a passive use that does not increase the permanent human population on the property. The WCS supports communication and does not promote residential or commercial development nor does it encourage the premature conversion of agricultural land to non-agricultural uses.
Wireless communication facilities have been deemed a compatible use pursuant to Table A of the Uniform Rules.
D. Airport Land Use Compatibility
As seen in the Travis Air Force Base Land Use Compatibility Plan, the project is located within Compatibility Zone “D” which prohibits hazards to flight and requires Airport Land Use Commission (ALUC) review for objects taller than 200 feet above ground level (AGL). At 35 feet Above Ground Level (AGL) this project is consistent with the ALUC guidelines and does not require further review.
E. Visual Analysis
Due to the location of the project within 3/4 mile of a designated scenic corridor, a visual impact analysis (Attachment E) was prepared for the proposed facility to evaluate its visibility from publicly accessible viewpoints and surrounding areas. The analysis includes photographic simulations and comparative imagery to an existing site in Napa to illustrate the appearance of the facility at distances of approximately 100 feet, 1,000 feet, 0.5 miles, and 1 mile. These simulations demonstrate that while the facility would be visible at close range, its visual prominence decreases substantially with distance, becoming near imperceptible beyond approximately one-half mile.
The analysis indicates that the closest public viewpoints are no less than 0.5 miles from the facility site. At these distances, the facility blends into the surrounding rolling hills and grassland landscape, with intervening topography further reducing visibility. From State Highway 12, the facility would be visible only from three limited locations, and in many cases, visibility is partially obstructed by intervening hills or terrain.
The visual analysis provided by the applicant provides support that the proposed WCS facility would not result in a significant alteration of scenic views or visual character. Stealthing in this case would not be needed due to the low visual impact.
ENVIRONMENTAL ANALYSIS
F. Environmental Determination:
The Department of Resource Management is recommending that the project be exempt from the California Environmental Quality Act (CEAQ) pursuant to CEQA Guidelines Section 15303, New Construction of Conversion of Small Structures. This exemption consists of structures, and installation of small new equipment and 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 1,380 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.
The County further finds that the project is not subject to any exceptions to the categorical exemptions as set forth in CEQA Guidelines Section 15300.2:
1. Location. The project will not be in an environmentally sensitive area.
2. Cumulative Impact. A review of the subject property and surrounding parcels shows no active projects that would result in cumulative environmental impacts. The exception for cumulative impacts does not apply.
3. Significant Effect. The proposal to entitle a wireless facility does not involve unusual circumstances or environmental conditions that would distinguish it from similar projects. The exception for significant effects does not apply.
4. Scenic Highways. The project will not damage scenic resources (e.g., trees, historic buildings, or rock outcroppings) within a state-designated scenic highway. The facility will not expand in a way that would require removal of scenic resources. The exception for scenic highways does not apply.
5. Hazardous Waste Sites. The project site is not listed pursuant to Government Code Section 65962.5. The exception for hazardous waste sites does not apply.
6. Historical Resources. The project is not located on a historic resource site and will not result in substantial adverse changes to historical resources. The exception for historical resources does not apply.
G. Good Neighbor Policy
On April 9, 2024, the Board of Supervisors adopted a Good Neighbor Policy, which encourages project proponents to engage with the community early in the process to promote transparency and foster public dialogue prior to formal public hearings.
For this project, the applicant chose not to participate in the Good Neighbor Policy outreach process.
H. 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
Cordelia Fire Protection District
RECOMMENDATION:
After conducting the public hearing, staff recommends that the Planning Commission approve Use Permit application U-25-04 by Valley Internet to establish a wireless communications facility at Assessor Parcel Number #0180-100-010.
ATTACHMENTS:
A - Draft Resolution
B - ARPA Valley Internet Contract
C - Alternative Analysis
D - Radio Frequency Exposure Report
E - Visual Analysis Report
F - Development Plans
G - Vicinity Map