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PLAN COMMISSION 2012/09/19 MinutesThe City of Lake Forest Plan Commission Proceedings of the September 19, 2012 A regular meeting of the Lake Forest Plan Commission was held on Wednesday, September 19, 2012, at 6:30 p.m., at City Hall, 220 E. Deerpath, Lake Forest, Illinois. Commission members present: Chairman Jack Reisenberg, Commissioners Michael Ley, Lloyd Culbertson, Jeff Kuchman, Jim Carris and Augie Ziccarelli. Commissioners absent: John L. Anderson Staff present: Catherine Czerniak, Director of Community Development 1. Introduction of Commissioners and staff. Chairman Reisenberg introduced the members of the Commission and staff. 2. Approval of the minutes of the June 13, 2012 meeting. The minutes of the June 13, 2012 meeting were approved as submitted. 3. Public Hearing and Action: Consideration of a request for approval of Phase 1 of a new Master Plan for the Woodlands Academy Campus consistent with the previously approved Special Use Permit. Woodlands Academy of the Sacred Heart is located at 760 E. Westleigh Road. Phase 1 of the Master Plan includes replacement of the roof top wireless antennas on Old Main with a new monopole with antennas located on the northern portion of the former Barat Campus. Property Owners: Woodlands Academy of the Sacred Heart and SDG Land, LLC and Woodlands Academy of the Sacred Heart Presented by: Ralph Elwart, Trustee, Woodlands Academy of the Sacred Heart Chairman Reisenberg asked the Commission for any conflicts of interest or Ex Parte contacts. Hearing none, he swore in all those planning to testify on this matter and invited a presentation from the petitioner. Mr. Elwart, appearing on behalf of Woodlands Academy and SDG Land, LLC, introduced the petition and noted the other members of the project team present. He stated that consistent with the recently approved Special Use Permit, Woodlands Academy is seeking approval of Phase 1 of a new Master Plan for the combined Woodlands Academy Campus. He explained that this first phase of the Master plan requests approval of a site for a monopole on the former Barat Campus property to serve as a replacement support structure for the antennas located on the roof top of Old Main. He noted that the monopole site that is proposed is already a permitted site in the Wireless Overlay District in the City Code. He reviewed recent public discussions and City approvals regarding the incorporation of the former Barat Campus into the Woodlands Academy Campus and explained that the presentation of Phase 1 of the new Campus Master Plan is the next step in the process of planning for an expanded Woodlands Campus. He stated that a more comprehensive Master Plan for the Campus is being developed and explained that the Phase 1 plan is presented now because relocation of the antennas is the necessary next step before Old Main can be demolished. He acknowledged that there are other conditions, unrelated to the wireless antennas, that must also be met prior to the issuance of permits Minutes of Plan Commission Meeting – September 19, 2012 Page 2 authorizing the demolition of Old Main and noted work on those conditions is underway. He emphasized that Old Main cannot be demolished until a replacement location is provided for the antennas. He pointed out that Woodlands Academy would rather not be in the cell tower business, but noted that antennas for three carriers are currently located on Old Main and leases authorizing those locations are ongoing. He explained that after consideration of various options, and after discussions with the City’s Wireless Communications Task Force, Woodlands Academy accepted that locating a monopole on the school’s campus is the best solution. He noted that the proposed site is well screened from most areas of the community and presents an opportunity to not only replace, but to improve wireless voice and data service to this area. He emphasized that the proposed site is within the area already approved in the City Code for monopoles noting that the Wireless Overlay District was approved by the City in 1997. He reviewed the events that brought Woodlands to this point noting the announcement in August, 2011 that a donor was considering purchasing the former Barat Campus with the intent of “gifting” if to Woodlands Academy. He stated that the donor purchased the property in December 2011. He continued noting that the City Council approved a Special Use Permit in February, 2012 authorizing the incorporation of the former Barat Campus into the Woodlands Academy Campus and directing that as part of the incorporation, a replacement location must be identified for the wireless antennas on Old Main. He explained that since the February approvals, Woodlands Academy representatives, along with representatives of SDG Land, worked to educate themselves on the various issues related to relocating the antennas and the options available. He noted that they relied on the expertise of outside counsel. He stated that in May, 2012, Woodlands representatives met with the City’s newly established Wireless Communications Task Force and stated its preference to not have wireless facilities on the Woodlands Campus and explained that options for replacing the existing antennas were being studied. He noted that in June, 2012, Woodlands Academy representatives sent a letter to the Task Force stating that Woodlands had completed its due diligence on this issue. He explained that the letter stated that unless the Task Force preferred an alternative including the location of a new monopole on City owned property, Woodlands was prepared to move forward with a request for approval of a new 110’ monopole, with external antennas on the former Barat Campus at a location already permitted by the Wireless Overlay District. He stated that in July, 2012, Woodlands was informed that the City’s Task Force, after conducting its own study of options, supported the Woodland’s proposal. He reviewed the anticipated timeline going forward assuming action by the Plan Commission at this meeting and Council approval soon after. He stated that the next step is to request approval for the new monopole from the FCC, an estimated 6 to 9 month process. He stated that once approvals are in place, it is estimated that constructing the tower and relocating the antennas and equipment will take 60 to 90 days. He stated that the use of a temporary installation, a cell-on-wheels, was considered, but it was determined that the cost of renting multiple temporary structures, one to support each tenant, made this option not viable. He stated that once the monopole is completed and the antennas relocated, the demolition of Old Main will begin. He reviewed the proposed monopole configuration and location. He stated that a single 110’ monopole with external antennas is proposed on a site already identified as a permitted location for a cell tower in the City Code. He stated that the proposed monopole is lower than what might typically be requested but noted that the height is sufficient to meet the needs of the three existing wireless providers located on Old Main. He added that it is possible that the 110’ monopole could also support a fourth carrier. He pointed out that in addition to providing a replacement location, the new monopole will offer improved quality and breadth of service to the southeast portion of the community. He explained that Woodlands learned that stealth towers, monopoles with no external antennas, are a solution if a single wireless carrier is locating on the monopole. He explained that with internal antennas, the lower carriers suffer significant degradation of signals. He added that monopoles with interior antennas are thicker than the monopole proposed and as a result, more observable. He stated that three stealth towers would be required on the Woodlands Campus to support the existing tenants and stated that three towers are not acceptable to Woodlands Minutes of Plan Commission Meeting – September 19, 2012 Page 3 Academy. He added that the 110’ height proposed is already authorized by the City Code at this site. He explained that in reviewing possible locations for a new monopole, Woodlands’ representatives listened to experts and to the City’s Task Force and walked the site and surrounding areas. He explained that in the end, all parties agreed the site presented provides the best opportunity for screening the monopole from off site views. He noted that on three occasions, trucks with ladders and buckets were brought to the site to provide a mock-up of the height at the proposed location. He noted that on the different occasions, representatives from Woodlands, SDG Land, the City’s Task Force, Plan Commission, City Council and City staff viewed the mock ups from on site and various surrounding locations. He stated that the results were consistent and encouraging, and the screening effective. He acknowledged that when the leaves fall, the site will be more visible than it is today and acknowledged that the monopole and antennas cannot be made invisible. He noted however that at the proposed location, the visual impact is minimized meeting the goal of the efforts. He pointed out that the site impacts a minimum number of trees noting that the ground equipment and monopole are proposed for location just inside the tree line on the former Barat Campus parcel. He stated that no heritage trees and no wetlands are impacted. He noted that larger trees on either side of the site provide screening. He added that the location of the monopole and the ground equipment exceeds the required zoning setback. He confirmed that alternative technologies that would not require a new tower or monopole were explored by Woodlands and he noted that the City’s Task Force conducted its own study of alternative technologies. He stated that it was learned that a Distributed Antenna System (DAS) is not a replacement for towers and antennas, but an augmentation system. He stated that a monopole is necessary to replace the roof top antennas on Old Main. He added that two of the three carriers on Old Main do not currently have the ability to use a DAS system. He concluded noting that since last August when the donor came forward, Woodlands has been engaged in a thoughtful, deliberative process, a process that is too slow for some, and not fast enough for others. He stated that with respect to the replacement of the existing antennas, every option has been explored. He stated that the proposed location of a new monopole with external antennas is not perfect for Woodlands Academy, but is a better solution for the overall community. He asked for the Commission’s support and approval of Phase 1 of the Master Plan. He offered that technical experts are available for questions. Ms. Czerniak commented that this petition is really a continuation of the discussions that started a year ago regarding the incorporation of Barat Campus into the Woodlands Academy Campus. She emphasized that the Phase 1 Master Plan for Woodlands Campus proposes a monopole for wireless antennas at a site that is already approved in the Code. She reviewed that this request is before the Commission as Phase 1 of the Woodlands Master Plan specifically in response to the Commission’s recommendation to the Council that the Plan Commission be given the opportunity to review any plan for replacing the existing roof top antennas on Old Main. She pointed out that since this proposed site is already approved as a site for a cell tower in the Wireless Overlay District, the Commission’s review is essentially an additional level of review. She explained that the request before the Commission is for a recommendation to the City Council on the proposed first phase of the Woodlands Campus Master Plan. She reviewed the reasons this site is proposed site when just a few years ago, the Commission was involved in looking at alternative sites in an effort to avoid a monopole on Barat Campus. She explained that at that time, a residential development was approved for Barat Campus and today, it is certain that the former Barat Campus will not be developed with a new residential neighborhood, but instead, incorporated into the Woodlands Academy Campus. She explained that a monopole at the proposed location would have been immediately adjacent to new homes under the previously approved Barat Woods plan and for that reason, alternative sites, including sites owned by the City, were considered as possible alternatives. She stated that a monopole on the Woodlands Academy Campus would be consistent with other monopole locations in the community such as on the campuses of Lake Forest College, Lake Forest Academy and Northwestern Lake Forest Hospital. She confirmed that study Minutes of Plan Commission Meeting – September 19, 2012 Page 4 of the visibility of the proposed monopole from various locations was conducted with the aid of mock ups at the site. She clarified that the proposed monopole location is on the former Barat Campus and does not encroach on to the City owned wooded parcel located to the south of South Park. She added that City staff recently walked this site and the South Park woods parcel with representatives of Lake Forest Open Lands in preparation for the development of a plan to clean up and enhance the South Park woods in conjunction with the cleanup that will occur on the former Barat property as Woodlands Academy begins to incorporate the property fully into its campus. She concluded stating that the proposed monopole location is a good one and noting the involvement of the City’s Wireless Communications Task Force in the discussions. She noted that Commissioners Ziccarelli and Carris are members of the Task Force. Chairman Reisenberg invited comments from Commissioners Ziccarelli and Carris since they serve on the Wireless Communications Task Force. Commissioner Ziccarelli provided an overview of the work of the Task Force. He stated that the Task Force was established in January 2012 as a short term study group appointed by the City Manager. He stated that the Task Force is comprised of five Lake Forest residents and besides the two Plan Commission representatives, includes Alderman David Moore, Richard Steck and Michael Williams. He explained that the group was formed to develop recommendations for the City Manager on how to best balance the need for high quality wireless service in the community with the visual impacts of the infrastructure that supports that service. He reviewed the responsibilities of the Task Force including conducting a review of the provisions in the City Code related to wireless service, understanding the community’s wireless needs now and in the future, studying alternative technologies and considering sites in the community including City owned properties and existing buildings as possible locations for future wireless antennas and if necessary monopoles. He stated that at the completion of its work, the Task Force will present a report and recommendations to the City Manager. He explained that concurrent with the work of the Task Force, in February, 2012, the City Council approved the incorporation of the former Barat Campus into the Woodlands Academy Campus and acknowledged the need for a replacement location for the roof top antennas on Old Main. He explained that although the Woodlands Academy issue was separate from the work of the Task Force, there was an opportunity for collaboration to assure that the approach to replacing the roof top antennas was not contradictory to the work of the Task Force. He reviewed the areas of study the Task Force covered in its 11 meetings to date and summarized the information learned. He noted that the viability of the DAS system was explored by the Task Force at length and noted that it is a good system and a good solution for some situations, but is not an adequate replacement for the antennas currently on Old Main. He noted that the Task Force considered the possibility of using ComEd poles along Sheridan Road as support structures for antennas, but stated that they were not tall enough. He stated that the Task Force considered a new monopole at the ComEd substation site on Sheridan Road, but determined that site would have high visibility from prominent areas of the community and much higher visibility than a monopole located on the former Barat Campus property. He confirmed that Task Force members had the opportunity to view a mockup of a tower at and near the location now proposed three separate times. He noted that the mock up was viewed from all surrounding areas. He acknowledged that a monopole at the proposed location will have some visibility particularly from portions of Western Avenue, Sheridan Road and South Park. He noted service improvements that are expected to result from the proposed monopole. He stated that the Task Force determined that the proposed location, based on the study of alternatives completed and the information learned; is consistent with the direction of the Code amendments that are being recommended by the Task Force. He concluded noting that the Plan Commission was provided with a letter from the Task Force in support of the proposal from Woodlands Academy. Minutes of Plan Commission Meeting – September 19, 2012 Page 5 Commissioner Carris, also a member of the Wireless Communications Task Force agreed with the summary presented by Commissioner Ziccarelli and stated that the Task Force went into the process with the view that the construction of a new cell tower or monopole was the last option. He stated that he did not anticipate that the current solution would be endorsed. He noted however, after exhaustive research by the Task Force on various issues including the studies of alternative technologies and the future needs of the community, agreement was reached that the solution now presented by Woodlands Academy is the best solution for this situation. In response to questions from Commissioner Culbertson, Commissioners Ziccarelli and Carris confirmed that the option of internal antennas was explored by the Task Force. They noted that the trade-off for internal antennas is more towers, or at the least, taller towers. They stated that the idea of three monopoles was not acceptable. In further response to Commissioner Culbertson’s questions, Mike Benick, LCC Law, representing AT&T, explained that internal antennas are limiting because a single carrier may require the same, or close to the same, vertical space that could support external antennas for three different carriers. He added that a tower with internal antennas must be substantially wider and taller and therefore, more visible than a tower with external antennas. In response to questions from Commissioner Culbertson, Ms. Czerniak confirmed that the City Code includes provisions that require that towers, monopoles, antennas or equipment that is not being used must be removed and provides for financial guarantees to be secured to assure removal. She added that leases between private property owners and wireless carriers also address removal of the tower and equipment. In response to questions from Commissioner Ley, Ms. Czerniak stated that the antennas currently on Old Main are at a height of 90’ to 100’ above the ground. She pointed out that in addition, Old Main is constructed on ground that is at a higher elevation than the proposed site noting the rise in grade from the proposed site toward Old Main and Sheridan Road. She stated that the proposed 110 foot height is necessary to provide adequate replacement coverage for this part of the community. She noted support from Public Safety officials at the City for replacement and improved coverage in this part of the community. In response to questions from Commissioner Kuchman, Commissioner Ziccarelli stated that the Task Force did not specifically explore the height that would be needed to accommodate the three wireless carriers with internal antennas. In response to questions from Commissioner Kuchman, Mr. Elwart confirmed that in addition to AT&T, Sprint and Motorola also have antennas on Old Main and are expected to locate on the new monopole. He stated that depending on technological and structural specifications, one additional carrier may be able to locate on the new monopole. In further response to questions from Commissioner Kuchman, Ms. Czerniak explained that each wireless carrier has a different system and different needs. She confirmed that in the future, other carriers could come forward with requests and those would be evaluated based on the amended Code provisions for wireless carriers that should be in place by that time. She confirmed that at this time, the proposed 110’ monopole meets all of the needs in this area based on the information available to the City. Minutes of Plan Commission Meeting – September 19, 2012 Page 6 Commissioner Ziccarelli offered that the Task Force met with Verizon recently and no needs for future antenna locations were identified. In response to questions from Commissioner Kuchman, Andrew Flowers, Real Estate Manager for AT&T, briefly reviewed the 6 to 9 month Federal review process. He stated that there is a requirement to file with all Indian tribes that have ever had an interest in this area. He stated that the details of the proposed installation as presented to the City for zoning and permit reviews will be submitted to all appropriate outside agencies for review and approval. He stated that an environmental inspection of the property will also be conducted. Chairman Reisenberg invited public testimony. Kathy Dorman, a resident of the Northmoor neighborhood, showed images that predicted the views of the monopole and antennas that will be seen from South Park if the monopole is installed at the proposed site. She stated that the current views from South Park are important and noted that losing them would be unfortunate. She acknowledged that the current plan for the former Barat Campus is better than the residential development that was previously approved. She asked for confirmation that the monopole site is not in the South Park woods. She stated that she has been in the woods and noted that there are high quality trees and wetlands in that area. She questioned how many trees will need to be removed and asked whether the site could be relocated further to the south on the former Barat Campus property to avoid impact on the trees. She encouraged minimizing impacts on the woods and asked for confirmation that there will be no lighting on the monopole. Tim Newman, 765 Highview Terrace, stated that he lives 600 to 700 yards to the east of the proposed monopole site and shares a lot line with Woodlands Academy. He stated that residents deserve adequate wireless coverage noting that his neighborhood suffers from poor service. He stated that as proposed, the site is respectful of the neighbors and commented that the special character of Lake Forest has survived many changes over time. He concluded stating that a new monopole is the only solution to this issue. Matt Sands, 701 Highview Terrace, stated that he lives near the other speakers. He expressed concern about the potential visual impacts to the neighbor particularly to those homes that abut Woodlands Academy. He noted that he has heard that the proposed location provides the best screening from other areas but noted that he has not seen photos of the proposed site taken from his neighborhood. He questioned whether the monopole will have a negative impact on home values. He noted that when Woodlands Academy recently expanded and built the Science Center, he was supported and excited to see Woodlands doing well. He noted disappointment however at the visual and noise impacts that resulted stating that from his second floor windows, the stark white roof of the Science Center and the large HVAC units are visible. He stated that he would like to understand what the sightlines will be to the monopole from the second floor of his home and from other homes on Highview Terrace in summer and in winter. Chairman Reisenberg asked for rebuttal to public testimony from the petitioner, hearing none, he invited final comments from City staff. Ms. Czerniak stated that only smaller, low quality trees will be impacted by the proposed monopole site. She confirmed that this is the same area that was approved for clearing as part of the Barat Woods development noting that homes in that development would have been constructed in this area. She confirmed that the proposed site is sufficiently away from the significant trees and from the wetlands. Minutes of Plan Commission Meeting – September 19, 2012 Page 7 She stated that the proposed location is fully on the Woodlands Academy Campus and not on City property in the South Park woods. She noted that the proposed location tucks the site just inside the tree line to provide maximum screening. She acknowledged that the monopole will be visible from off of the site, but commented that there are views only from limited locations including, most prominently from Western Avenue, Sheridan Road and South Park. She added that minimal visibility was observed from Maywood Road but noted that from some points, the monopole appeared hard to distinguish from other utility poles. She stated that the mockup of the monopole was not visible from the residential streets that back up to Woodlands Academy due to the tree cover in those areas. In response to questions from Commissioner Carris, Mr. Elwart stated that Woodlands Academy is willing to talk with the neighbor and look into options for screening views of the roof and HVAC units on the Science Center. Commissioner Ziccarelli noted that the images presented by Ms. Dorman appear to suggest that more of the monopole will be visible than he believes will actually be the case. Commissioner Ley commented on the images noting that they reflect three full external antenna arrays and he questioned whether that would actually be the case. He also observed that the photos of the mock up differ as a result of the use of different camera lenses. He suggested that the lower antenna arrays will likely be screened to a greater extent than projected in the images presented. Ms. Czerniak clarified that there could be additional antenna arrays on the monopole at heights lower than the proposed AT&T antenna array which will be located near the top of the monopole. She explained that the Code requires that if a new monopole is installed, it must be able to accommodate more than one wireless carrier. She pointed out that depending on the carrier, antennas may take different forms. In response to questions from Commissioner Culbertson, Ms. Czerniak explained that photos of the mock up were taken from South Park and from Maywood Road, near Washington Road, looking south. She explained that as you get closer to the South Park woods, the trees provide very tall foreground screening allowing no visibility of the monopole. She acknowledged that no observations were made from the second floor windows of nearby homes. She stated that the monopole and antenna arrays will not be invisible, but at the proposed location will have only minimal visibility. Chairman Reisenberg invited final comments from the Commission. Commissioner Ley stated that he visited the site and viewed the mock up and agreed that a monopole at the proposed location will be well screened. Hearing no further comments from the Commission, Chairman Reisenberg stated support for moving this petition forward. He stated that extensive study has shown that there are no better alternatives. He stated that he was a strong supporter of a new tower at the City owned ComEd site on Sheridan Road during earlier Commission discussions but is now convinced that given the circumstances today regarding Barat Campus, the proposal presented is a good one. He pointed out that the Commission previously heard a request from a cell tower builder for a 190’ tower to serve this area. He commented that with this petition, the request is down to 110’, a significant and welcome reduction. He stated that delaying action on this petition will only further delay the demolition of Old Main. He acknowledged that this site is not perfect but stated that there are no better alternatives. He invited a motion from the Commission. Minutes of Plan Commission Meeting – September 19, 2012 Page 8 Commissioner Ley made a motion to recommend approval of the Phase 1 Campus Master Plan for Woodlands Academy in compliance with the previously approved Special Use Permit and based on the findings presented in the staff report. He stated that the following conditions of approval are incorporated into the motion. 1. No improvements beyond those indicated on the Master Plan – Phase 1 are authorized. Use of and future improvements to the Woodlands Combined Campus must occur consistent with the February, 2012 Special Use Permit. 2. Prior to construction of the new cell tower, all applicable Code requirements shall be met to the satisfaction of the Director of Community Development. The motion was seconded by Commissioner Kuchman and was unanimously approved by the Commissioners present in a 6-0 vote. 4. Public Testimony on non-agenda items. There was no additional public testimony presented. 5. Additional information from staff. No additional information was provided by staff. The meeting was adjourned at 7:44 p.m. Respectfully submitted, Catherine J. Czerniak Director of Community Development