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2004-06-16 - Plan Commission - Minutes Board or Commission: ❑ Plan Commission Document Type: 0 A e g nda 0 Minutes Meeting ate: 06/16/2004 Type of Meeting: ❑ Regular Meeting REGULAR MEETING BUFFALO GROVE PLAN COMMISSION June 16, 2004 Buffalo Grove Park District, proposed cellular antenna towers at Bison Park, Busch Grove Park, and Rolling Hills North Park— Workshop #1 Zoning Ordinance amendments concerning cellular antenna towers — Workshop #1 Chairman Ottenheimer called the meeting to order at 7:30 p.m. in the Village Council Chambers, Buffalo Grove Municipal Building, 50 Raupp Boulevard, Buffalo Grove, Illinois. Commissioners present: Chairman Ottenheimer Mr. Samuels Ms. Kenski-Sroka Mr. Khan Mr. Teplinsky Mr. Cohn Commissioners absent: Mr. Smith Ms. Bocek Mr. Stark Also present: Mr. Michael Rylko, Director of Buffalo Grove Park District Mr. John Green, Groundwork Architects Mr. Mike Howley, T Mobile Mr. Robert Pfeil, Village Planner Mr. Greg Summers, Associate Village Planner APPROVAL OF MINUTES Moved by Commissioner Teplinsky, seconded by Commissioner Kenski-Sroka to approve the minutes of the public hearing of May 5, 2004. All Commissioners were in favor of the motion and the motion passed unanimously with Commissioners Samuels and Khan abstaining. Moved by Commissioner Kenski-Sroka, seconded by Commissioner Khan to approve the minutes of the regular meeting of May 5, 2004. All Commissioners were in favor of the motion and the motion passed unanimously with Commissioners Samuels and Khan abstaining. Moved by Commissioner Teplinsky, seconded by Commissioner Kenski-Sroka to approve the minutes of the regular meeting of June 2, 2004. Commissioner Samuels noted several paragraphs where his title should be changed from "Chairman" to "Commissioner." All Commissioners were in favor of the amended motion and the motion passed unanimously. COMMITTEE AND LIAISON REPORTS Commissioner Kenski-Sroka attended the Village Board meeting of June 7, 2004 at which the public hearing on Buffalo Grove Bank and Trust was held and continued to June 21, 2004. The Village Board also reviewed a concept plan for the Powernail property on Route 22. Edward R. James is proposing 194 dwelling units with a mix of villas, townhomes and row houses. The Board expressed concerns with the proposed density and lack of diversity in the types of proposed units. The developer was asked to revise the plan for future consideration by the Board. BUFFALO GROVE PARK DISTRICT, PROPOSED CELLULAR ANTENNA TOWERS AT BISON PARK, BUSCH GROVE PARK, AND ROLLING HILLS NORTH PARK — WORKSHOP#1 Mr. Green noted that in order for consideration to be given for the Park District's petition, Zoning Ordinance text amendments would be necessary concerning the location of cellular towers on public property in residential zoning districts. He commented that many text amendments are stimulated by applications. At the time the Park District was pursuing the lights for Busch Grove Park they had had a discussion with a cell tower provider about an opportunity to make one of the light poles a cell tower. The discussions became more serious, and the Park District is in a position to pursue the concept of leases to allow towers in certain parks. It would be an inappropriate for the Park District not to consider the option because of the value to the taxpayers. Mr. Green stated that there are some gaps in the provision of cellular wireless communication service in the Buffalo Grove area. The Park District's proposal is to locate cell towers in three parks - - consisting of one tower in Busch Grove, one in Rolling Hills North and one in Bison Park. The advantages are fairly obvious in that often they are involved in the dialogue of the impact to adjacent properties and here they have the opportunity to create distances that are not often available on other properties. All the parks are on residentially zoned land, and there is currently no provision in the Zoning Ordinance to allow cell towers on park properties in residential districts. The Park District is suggesting a text amendment to create a special use for cell towers on public property in residential districts. A specific suggestion is that the special use be structured so that only it only pertains to properties in excess of two acres devoted solely to public use. The advantage is that the public benefits in more ways than one. They benefit from the opportunity of the government entity to secure some income to offset the increase in costs of operation in an atmosphere that makes it more difficult to find other revenue sources and at the same time it provides a service to the community that needs to be provided in some fashion and hopefully this will be able to allow to be provided on land that has larger opportunities to isolate the towers both visually and from a distance standpoint that do not exist on other properties. Mr. Green stated Busch Grove Community Park is the key element to this because it is the essentially in the center of Buffalo Grove. The park is 76 acres, which means it is large enough for accommodating a tower that would have minimal impact. With the development of the outdoor lights for the ball fields, which are approved with 70-foot tall light standards, there is an opportunity to use one of the light poles for an antenna. The antenna tower is proposed at a height of 110 to 120 feet. The trees in Busch Grove Park are already 85 to 95 feet in height. The tower would be setback several hundred feet from adjacent streets. Mr. Green noted the other two parks at the north and south ends of the Village. This will allow the cellular provider to achieve continuity of wireless phone service in the area. The specific sites are Rolling Hills Park North and Bison Park. The towers at both parks are proposed to be stealth towers in which the antenna is actually built inside the tower. The exterior appearance is a monopole with no visible antenna equipment. There are some tradeoffs in using this design. Enclosing the antenna limits the signal somewhat. Mr. Green stated Rolling Hills Park is a park of approximately 5 acres immediately north of Commonwealth Edison high tension lines which are also 85 to 100 feet tall. The proposed tower is designed to integrate visually with the existing Com Ed towers. Busch Grove Park would be located more in the center of the park on the back end of the south ball field adjacent to the wooded area. The tower at Bison Park is proposed to be located on the west side of the park adjacent to the parking lot of the auto dealership. This is the south end of the park where the ball field is located. Commissioner Samuels stated he does not agree with the concept of antenna towers in public parks. He said that towers are not an appropriate use for park land. He noted that it is a conscious decision in the community's land use planning to remove park land from development and preserve it as green space. There is an aesthetic value to open space, and it is a place you do not expect to encounter things like billboards, cellular poles and things that are possible income generators that you find in commercial property. When towers are proposed near residential properties, residents object, partly because of the visual impact. Outdoor lights in parks at appropriate locations are acceptable because the lights extend the available hours for people who may not be able to use the parks during the day. Commissioner Cohn asked how much revenue would be generated from this for the Park District. Mr. Green stated it would be significant revenue. The Park District is not at liberty to release the figures. Commissioner Cohn asked if any other park districts close to use have done this. Mr. Rylko stated school districts have done this. Mr. Mike Howley, representing T-Mobile, commented that his company is currently doing a lease with Tinley Park, and the Maywood Park District has allowed the use of light poles for communications antennae. Mr. Green said the proposal for Busch Grove Park is to put the tower into the trees so that it is not visible from the surrounding areas. The top of it certainly would be visible above the trees. The reason Rolling Hills was selected is because it is adjacent to the Commonwealth high tension lines so the program is to integrate it into that. Commission Cohn agreed with Commission Samuels and noted that parks are not intended for this type of use. He does not think that Buffalo Grove needs to do this. Commissioner Samuels asked if the tower proposed for Rolling Hills could be put on the high tension lines. Mr. Green stated they would check that out. Commissioner Samuels asked if this would be opened up to bid among other carriers if this were granted. Mr. Green stated no. Commissioner Samuels stated that the use of public land troubles him as he thinks there would be an advantage because the land is not taxed and there could therefore be a differential between what the going rate is for a carrier to lease space on public land versus private land. Therefore to negotiate with a single carrier and not offer that opportunity to another carrier could be seen as discrimination. Commissioner Teplinsky stated he has the same concern that has already been expressed. He feels parks should be for open space and recreation. A 100-foot cell tower is not an ideal use of park land, and he assumes that residents in the affected areas will have concerns. He further noted there is a lot of park space in Buffalo Grove and he would be concerned with a proliferation of cell towers. Mr. Green noted that the Zoning Ordinance text amendment would require a special use. Therefore the proliferation issue would not necessarily be there because certain parameters would have to be met for any given tower. The text amendment would establish the parameters. Commissioner Teplinsky asked how a 100-foot cellular tower can effectively be screened. Mr. Green stated there is more than one way to screen it. Sometimes you screen it with elements around it as proposed to be done in Busch Grove Park. With 85 to 95 foot tall trees and putting it back in those trees 700 to 800 feet away from any lot line and putting it in as one of the standard light fixture towers, the difference will be 40 feet taller but it will still be one of the light towers. Also recent technology has created the opportunity to do colors. One of the discussion was about the high tension lines which have a certain color and texture to them. By placing the pole adjacent to that we can match the finish so that even though it is there it is still not that visible because you use the towers as part of your camouflage. Chairman Ottenheimer noted this is a rather novel method of raising revenue for the Park District which indirectly saves burden on the taxpayers. He does agree with Commissioner Samuels comments; however, he has two conditions he would like to see happen before he even considers this for a favorable recommendation. First, each park site should be separately considered in terms of special use criteria and related planning issues. Second, the towers should be camouflaged. The current Park District initiative presents an opportunity for creative use of camouflage. Commissioner Cohn noted it seems there might be a way to turn this proposal into an asset rather than a burden. He noted there is a lot of material concerning camouflaging towers on the Internet, and perhaps there is a way to create something in the parks such as a lookout tower or clock tower that would be an asset that just happens to also be a cell tower. The park would be enhanced and the opportunity for generating revenue would be accommodated. Commissioner Khan noted he understands the Village and the Park District are two different taxing bodies. He has not seen any examples where something like this has been created within parks. He asked if T Mobile has explored some other possibilities besides installing a free standing tower. Mr. Pfeil asked if the tower proposed for Bison Park is a monopole. Mr. Green noted Bison Park and Rolling Hills are proposed with the monopole design. Mr. Pfeil asked if this is considered stealthing or any kind of camouflage. Mr. Green stated it is called a stealth tower because the array is inside. Camouflaging is what is applied to the outside. The array is camouflaged by putting it inside but it is not camouflaged beyond that at this point. Mr. Pfeil asked if camouflage would be considered for Bison Park or is it too expensive. Mr. Green stated they have not really explored the options on Bison Park. He noted that is the most difficult site to deal with from an aesthetic standpoint. He stated they have the advantage at Rolling Hills of the high tension wires and there is a way to easily integrate. They have several advantages at Busch Grove Park. Bison is more of a creative challenge. Mr. Pfeil asked if the proposed height of 100 feet is a fairly firm number for Bison and Rolling Hills. Mr. Green stated, not yet. They have asked T Mobile to exam what the minimum height necessary is and the answer is not yet available. The Board had asked that height need versus height want be explored. Mr. Pfeil asked what the proposed for Busch Grove Park would be. Mr. Green stated Busch Grove is now proposed at 110 feet. Mr. Pfeil asked if the light fixtures are still at 70 feet. Mr. Green stated yes. Mr. Pfeil asked what the distance from the tower would be to the closest property line in Bison Park. Mr. Green stated depending on where it is located, Bison Park is about 300 feet wide so they would be 250-275 feet from any residential line. Their program now is to put it adjacent to the commercial property. Mr. Pfeil asked if there is any ability to show what the residents are probably going to be seeing. Mr. Green stated yes. Mr. Pfeil asked about the ground level equipment such as shelters in all three sites. Mr. Green stated they have asked and the provider has agreed that all of them will be in structures and the structures would be consistent with the types of structures you are finding in the parks. They have also asked that the structures have landscaping around them. Mr. Green stated the following items need clarification: 1. To look at some language for the text amendment 2. Camouflage opportunities 3. Sight lines from various buildings and residences Chairman Ottenheimer noted that more information is needed, and additional workshops would be scheduled as necessary. ZONIING ORDINANCE AMENDMENTS CONCERNING CELLULAR ANTENNA TOWERS—WORKSHOP 91 Mr. Pfeil stated this is an issue that the Village has dealt with before and some towers have been approved in the Village at certain locations. The tallest approved tower (140 feet) is at Northwest Community Healthcare adjacent to Route 83 south of Lake Cook Road. A tower of 100 feet was approved for VoiceStream at Estonian Lane east of Milwuakee Avenue. Most of the existing towers in the area have been built at the Village's periphery on unincorporated land under county zoning regulations. Overall zoning text amendments include issues that go beyond the Park District's current petition. The Village has the opportunity, however, to clean up the current regulations to make the Zoning Ordinance more clear and understandable to providers, citizens and Village officials for all districts and for both public and private properties. Mr. Pfeil noted that the Telecommunications Act of 1996 affects local regulations. Local governments are mandated to work with wireless service providers requesting approval of facilities. The Act does not allow a community to institute a blanket prohibition of towers or other necessary equipment. Communities are required to make reasonable provisions for locating wireless facilities. He suggested that the Commission proceed with overall Zoning Ordinance amendments as well as the Park District's specific petition. Mr. Pfeil noted some of the obvious issues are the allowable base height of towers, the procedure to allow a height greater than the base figure, and the required setbacks from property lines. He noted that it is not unusual for ordinances to require horizontal setbacks at least as great as the height of the finished tower. The ground-level equipment shelters are usually regulated in terms of construction, appearance and screening. Chairman Ottenheimer asked if there are any surrounding communities with ordinances that could be used as a guide. Mr. Pfeil said a number of communities have regulations, and he will provide some examples. He noted that some communities are very restrictive, including limiting towers to municipal property or requiring placement on existing buildings and structures. Commissioner Samuels noted those are good places to start. New facilities should be encouraged on structures that are already in existence where they can be camouflaged. CHAIRMAN'S REPORT—None FUTURE AGENDA SCHEDULE Mr. Pfeil said the next meeting is July 7, 2004. PUBLIC COMMENTS AND QESTIONS—None STAFF REPORT Mr. Pfeil commented that Arlington Heights has been considering a condominium development on Old Arlington Heights Road across from Mill Creek and Williamsburg Estates. He said that d attended the Arlington Heights Plan Commission meeting on June 9th to express the Buffalo Grove's concern about the scale of the buildings and the incompatibility with the proximate neighborhoods in Buffalo Grove. Their plan commission voted 6-0 to recommend denial of the development. NEW BUSINESS—None ADJOURNMENT Moved by Commissioner Teplinsky, seconded by Commissioner Samuels and carried unanimously to adjourn. Chairman Ottenheimer adjourned the meeting at 8:26 p.m. Respectfully submitted, Fay Rubin, Recording Secretary APPROVED BY: LESTER OTTENHEIMER, Chair