New Developments in pWireless Communications Facilities

Siti d LSiting and Leases

MMAA ConferenceMMAA ConferenceMMAA Conference MMAA Conference Osage Beach, MissouriOsage Beach, Missouri

July 13 2012July 13 2012

Presented by:Presented by:Daniel G. VogelDaniel G. Vogel

July 13, 2012July 13, 2012

Ryan A. MoehlmanRyan A. MoehlmanCunningham, Vogel & Rost, P.C.Cunningham, Vogel & Rost, P.C.

legal counselors to local governmentlegal counselors to local government333 S. Kirkwood Road, Suite 300333 S. Kirkwood Road, Suite 300

St. Louis, Missouri 63122St. Louis, Missouri 63122314.446.0800314.446.0800

www.municipalfirm.comwww.municipalfirm.com

TELECOMMUNICATIONS TELECOMMUNICATIONS TELECOMMUNICATIONS TELECOMMUNICATIONS ACT OF 1996ACT OF 1996

47 U.S.C. 47 U.S.C. §§ 332(c)(7) of the federal Telecommunications Act of 332(c)(7) of the federal Telecommunications Act of 1996 (the “TCA”) provides: 1996 (the “TCA”) provides: ( ) p( ) p•• Limits local government power to regulate placement, Limits local government power to regulate placement, construction, and modification of “personal wireless service construction, and modification of “personal wireless service f iliti ” i ll tf iliti ” i ll tfacilities,” i.e.: cell towers,facilities,” i.e.: cell towers,

•• But “specifically preserved the authority of local zoning But “specifically preserved the authority of local zoning boards ‘over decisions regarding the placement, construction, boards ‘over decisions regarding the placement, construction, g g p , ,g g p , ,and modification of personal wireless service facilities,’ and modification of personal wireless service facilities,’ 47 47 U.S.C. U.S.C. §§ 332(c)(7)(A)332(c)(7)(A).” .” USCOC of Greater Iowa, Inc. v. Zoning USCOC of Greater Iowa, Inc. v. Zoning Bd Of Adjustment of the City of Des Moines (8th Cir 2006)Bd Of Adjustment of the City of Des Moines (8th Cir 2006)Bd. Of Adjustment of the City of Des Moines (8th Cir. 2006).Bd. Of Adjustment of the City of Des Moines (8th Cir. 2006).

Procedural Requirements of TCAProcedural Requirements of TCAProcedural Requirements of TCAProcedural Requirements of TCADecisions on the placement, construction, and Decisions on the placement, construction, and modification of personal wireless service facilitiesmodification of personal wireless service facilitiesmodification of personal wireless service facilities modification of personal wireless service facilities must satisfy must satisfy the following:the following:11 D i i “D i i “i itii iti ”” §§332( )(7)(B)(iii)332( )(7)(B)(iii)1.1. Decision “Decision “in writingin writing””‐‐‐‐ §§332(c)(7)(B)(iii)332(c)(7)(B)(iii)2.2. Supported by “Supported by “substantial evidencesubstantial evidence” in a written ” in a written 

dd §§332( )(7)(B)(iii)332( )(7)(B)(iii)recordrecord‐‐‐‐ §§332(c)(7)(B)(iii)332(c)(7)(B)(iii)3.3. Decision within a “Decision within a “reasonable period of timereasonable period of time””‐‐‐‐ §§

( )( )( )( )( )( )( )( )332(c)(7)(B)(ii) 332(c)(7)(B)(ii) 

Substantive Requirements of TCASubstantive Requirements of TCAqqLocal government Local government regulationregulation of personal wireless of personal wireless service facilities cannot:service facilities cannot:service facilities cannot: service facilities cannot: 1.1. Unreasonably discriminateUnreasonably discriminate among providers of among providers of 

functionally equivalent servicesfunctionally equivalent services ‐‐‐‐functionally equivalent services functionally equivalent services §§332(c)(7)(B)(332(c)(7)(B)(ii)(I))(I)

22 ProhibitProhibit or haveor have the effect of prohibitingthe effect of prohibiting2.2. ProhibitProhibit or have or have the effect of prohibitingthe effect of prohibitingprovision of personal wireless services provision of personal wireless services ‐‐‐‐§§332(c)(7)(B)(332(c)(7)(B)(ii)(II))(II)§§332(c)(7)(B)(332(c)(7)(B)(ii)(II))(II)

3.3. Regulate “on the basis of the Regulate “on the basis of the environmental environmental effects of radio frequency emissionseffects of radio frequency emissions”” ‐‐‐‐effects of radio frequency emissionseffects of radio frequency emissions   §§332(c)(7)(B)(iv) 332(c)(7)(B)(iv) 

Remedy for Violations of TCARemedy for Violations of TCARemedy for Violations of TCARemedy for Violations of TCA

•• RemandRemand‐‐ See USCOC of Greater Missouri, LLC v. See USCOC of Greater Missouri, LLC v. County of Franklin (E.D. Mo. 2008)County of Franklin (E.D. Mo. 2008). . 

•• InjunctionInjunction‐‐ But see Sprint Spectrum L.P. v. County But see Sprint Spectrum L.P. v. County jj p p yp p yof St. Charles (E.D. Mo. 2005). of St. Charles (E.D. Mo. 2005). 

FCC’S SHOT CLOCK RULEFCC’S SHOT CLOCK RULEFCC S SHOT CLOCK RULEFCC S SHOT CLOCK RULE

•• FCC09FCC09‐‐99 (Nov. 2009) 99 (Nov. 2009) ‐‐ Interprets TCA requirement Interprets TCA requirement that decisions must be done in a “reasonable that decisions must be done in a “reasonable period of time.”period of time.”

90 d90 d t li ti tit li ti ti•• 90 days 90 days to process applications requesting to process applications requesting coco‐‐locationslocations (antennas on existing (antennas on existing towers/structures)towers/structures)towers/structures).towers/structures).

•• 150 days150 days to process all other applications (new to process all other applications (new towers/structures).towers/structures).

•• Applicants and the City can agree to extend the Applicants and the City can agree to extend the above timeframes. above timeframes. 

Complete ApplicationComplete ApplicationComplete ApplicationComplete Application

•• The 90The 90‐‐day or 150day or 150‐‐day time limits day time limits do not start do not start to runto run until the applicant files auntil the applicant files a completecompleteto runto run until the applicant files a until the applicant files a complete complete applicationapplication.  .  

•• Local governments must Local governments must inform an applicant inform an applicant h h i li i i i lh h i li i i i l i hii hi 3030that their application is incompletethat their application is incomplete within within 30 30 daysdays of receiving an incomplete application.of receiving an incomplete application.

City of Arlington v. FCC (5th Cir. 2012)City of Arlington v. FCC (5th Cir. 2012)y g ( )y g ( )• Rule upheld – Shot Clock Rule was appropriate exercise of the

FCC’s authority to interpret TCA.• Shot Clock Rule creates a presumption that a City failed to act

within reasonable amount of time.– “the presumption simply disappears” if countering evidencepresented by City

– Burden of proving unreasonable delay then returns toBurden of proving unreasonable delay then returns toApplicant.

• Note: If delay is needed, make sure the City’s record containsdocumentation showing the reasons for delay and showing thatthe delay was reasonable.

Action Plan to Deal with Action Plan to Deal with FCC Sh t Cl k R lFCC Sh t Cl k R lFCC Shot Clock RuleFCC Shot Clock Rule

• Review City’s wireless facility siting ordinanceReview City s wireless facility siting ordinance to ensure it does not conflict with Rule

• Incorporate new time limits expressly into• Incorporate new time limits expressly into existing codes and practices.I l t d di h t• Implement procedures regarding what constitutes a “complete application.”

S ’ d l i l i i– See CVR’s Model Wireless Communication Facilities Code 

N if d d ffi i l d ff• Notify and educate officials and staff.

NEW FEDERAL STATUTE NEW FEDERAL STATUTE NEW FEDERAL STATUTE NEW FEDERAL STATUTE PROHIBITING DENIAL OF PROHIBITING DENIAL OF CERTAIN COLLOCATION CERTAIN COLLOCATION

REQUESTSREQUESTSREQUESTSREQUESTS

•• Section 6409(a) of the  Section 6409(a) of the  Middle Class Tax Relief Middle Class Tax Relief and Job Creation Act of 2012and Job Creation Act of 2012and Job Creation Act of 2012and Job Creation Act of 2012

•• Approved on February 22, 2012Approved on February 22, 2012

The New StatuteThe New StatuteSectionSection 64096409(a)(a) ofof thethe ActAct ((4747 UU..SS..CC.. 14551455(a)((a)(11))‐‐((22)))) providesprovides::

§§ 14551455.. WirelessWireless facilitiesfacilities deploymentdeployment(a)(a) FacilityFacility modificationsmodifications

((11)) InIn generalgeneral.. NotwithstandingNotwithstanding sectionsection 704704 [[4747 UU..SS..CC.. §§ 332332]] ofof thetheTelecommunicationsTelecommunications ActAct ofof 19961996 (Public(Public LawLaw 104104‐‐104104)) oror anyany otherotherprovisionprovision ofof law,law, aa StateState oror locallocal governmentgovernment maymay notnot denydeny,, andand shallshallapprove,approve, anyany eligibleeligible facilitiesfacilities requestrequest forfor aa modificationmodification ofof anan existingexistingwirelesswireless towertower oror basebase stationstation thatthat doesdoes notnot substantiallysubstantially changechange thetheh i lh i l di idi i ff hh tt bb t tit tiphysicalphysical dimensionsdimensions ofof suchsuch towertower oror basebase stationstation..

((22)) EligibleEligible facilitiesfacilities requestrequest.. ForFor purposespurposes ofof thisthis subsection,subsection, thethe termterm“eligible“eligible facilitiesfacilities request”request” meansmeans anyany requestrequest forfor modificationmodification ofof anani tii ti i li l tt bb t tit ti th tth t i li lexistingexisting wirelesswireless towertower oror basebase stationstation thatthat involvesinvolves——

(A)(A) collocationcollocation ofof newnew transmissiontransmission equipmentequipment;;(B)(B) removalremoval ofof transmissiontransmission equipmentequipment;; oror(C)(C) replacementreplacement ofof transmissiontransmission equipmentequipment..

Undefined TermsUndefined TermsUndefined TermsUndefined Terms

““Notwithstanding…any other provision of lawNotwithstanding…any other provision of law””g y p fg y p f–– Building/SafetyBuilding/Safety Code?Code?ZoningZoning Code?Code?–– ZoningZoning Code?Code?

–– AirportAirport overlayoverlay requirements?requirements?

NoteNote:: NothingNothing inin §§ 14551455 stripsstrips citiescities ofof theirtheirgg pprightright toto reviewreview applicationsapplications andand issueissue thethenecessarynecessary zoningzoning permits/approvalspermits/approvals..yy gg p ppp pp

Undefined TermsUndefined Terms“. . . substantially change the physical dimensions of such “. . . substantially change the physical dimensions of such tower or base station.”tower or base station.”

“N ti l C ll ti A t”“N ti l C ll ti A t”••“National Collocation Agreement”“National Collocation Agreement”–– Defines “substantial increase in the size of the tower”Defines “substantial increase in the size of the tower”•• (1) Height(1) Height –– Greater of 10% of existing height or height ofGreater of 10% of existing height or height of•• (1) Height (1) Height  Greater of 10% of existing height or height of Greater of 10% of existing height or height of additional array plus 20 ftadditional array plus 20 ft

•• (2) Equipment (2) Equipment –– More than More than the standard number of new equipment cabinets for the technology involved, not to exceed four, or more than one new equipment shelter; or

•• (3) Width(3) Width –– Greater of 20ft protruding from edge of tower orGreater of 20ft protruding from edge of tower or•• (3) Width (3) Width –– Greater of 20ft protruding from edge of tower or Greater of 20ft protruding from edge of tower or width of tower at attachment height; orwidth of tower at attachment height; or

•• (4) Site (4) Site ‐‐ excavation outside the current tower site (boundaries excavation outside the current tower site (boundaries of the tower’s lease or fee area plus related access or utility of the tower’s lease or fee area plus related access or utility easements).easements).

Undefined TermsUndefined Terms•• UnderUnder NationalNational CollocationCollocation Agreement,Agreement,thethe depicteddepicted additionsadditions toto thisthis 100100 ftft..monopolemonopole wouldwould notnot “Substantially“Substantiallymonopolemonopole wouldwould notnot SubstantiallySubstantiallychangechange thethe physicalphysical dimensionsdimensions ofof suchsuchtowertower oror basebase station”station”

ff•• NCANCA isis onlyonly oneone possiblepossible methodmethod ofofdeterminingdetermining whetherwhether anan applicationapplication““SubstantiallySubstantially change[s]change[s] thethe physicalphysicaldimensionsdimensions ofof suchsuch towertower oror basebasestationstation””

•• NCANCA greatlygreatly favorsfavors wirelesswireless industryindustryNCANCA greatlygreatly favorsfavors wirelesswireless industryindustry•• NOTNOT BINDINGBINDING ONON CITIESCITIES•• AnticipatedAnticipated changeschanges toto ModelModel WirelessWirelessCommunicationsCommunications FacilitiesFacilities CodeCodeforthcomingforthcoming asas lawlaw developsdevelops..

MODEL WIRELESS MODEL WIRELESS COMMUNICATIONS COMMUNICATIONS

FACILITIES CODEFACILITIES CODEFACILITIES CODEFACILITIES CODEAvailable at:Available at:

http://www.municipalfirm.com/documents/CVRModhttp://www.municipalfirm.com/documents/CVRModelWirelessCommunicationsFacilitiesCode2012.pdfelWirelessCommunicationsFacilitiesCode2012.pdf

Model versions or provisions adopted by dozens of Model versions or provisions adopted by dozens of local governments throughout Missouri, Illinois, & local governments throughout Missouri, Illinois, & g g , ,g g , ,Kansas including those successfully litigating TCA Kansas including those successfully litigating TCA claims.claims.

Model Code ElementsModel Code Elements•• SharedShared‐‐use requirementsuse requirements•• Design requirementsDesign requirementsDesign requirementsDesign requirements

–– ColorColorTypeType–– TypeType

–– LightingLightingC d C liC d C li–– Code ComplianceCode Compliance

•• ThreeThree‐‐Level Permitting SystemLevel Permitting System1.1. Permitted as of rightPermitted as of right2.2. Permitted with administrative reviewPermitted with administrative review3.3. Permitted by conditional use permitPermitted by conditional use permit

Model Code ElementsModel Code ElementsThreeThree‐‐Level Permitting SystemLevel Permitting System1.1. Permitted as of rightPermitted as of right

•• City property (by lease)City property (by lease)•• Existing buildingsExisting buildings•• Fully concealedFully concealed•• Transmission electric towerTransmission electric tower

22 Permitted with administrative reviewPermitted with administrative review2.2. Permitted with administrative reviewPermitted with administrative review•• Disguised (not 3’ diameter “flagpole”)Disguised (not 3’ diameter “flagpole”)•• Existing tower once time increasesExisting tower once time increasesExisting tower once time increasesExisting tower once time increases•• Electric poles and temporary towersElectric poles and temporary towers

3.3. Permitted by conditional use permitPermitted by conditional use permit3.3. Permitted by conditional use permitPermitted by conditional use permit•• Everything elseEverything else

TOWER LEASESTOWER LEASES

Opportunities for locating on Public POpportunities for locating on Public Propertyroperty

•• Water tanks, Water tanks, Athl ti fi ld / kAthl ti fi ld / k•• Athletic fields/parks, Athletic fields/parks, 

•• Flagpole locations, Flagpole locations, P bli b ildiP bli b ildi•• Public buildings, Public buildings, 

•• Private development Private development t it ipartneringpartnering

ff b ll kb ll k li hli h d dd dAntennasAntennas onon toptop ofof ballparkballpark lightlight standardsstandardsatat MemorialMemorial ParkPark inin WebsterWebster GrovesGroves

TOWER LEASESTOWER LEASESOpportunities to Increase RevenueOpportunities to Increase Revenue•• Lease assignmentsLease assignments•• Expansions of equipment or siteExpansions of equipment or sitep q pp q p•• Lease term extensionsLease term extensions•• Sale of leases/easementsSale of leases/easements•• Sale of leases/easementsSale of leases/easements•• Lease language revisions Lease language revisions –– conformity conformity 

ttpayments payments 

TOWER LEASESTOWER LEASESNew Lease Negotiation IssuesNew Lease Negotiation Issues•• RevenueRevenue•• IndemnificationIndemnification

–– No indemnification by governmental entities of No indemnification by governmental entities of private parties; Mo. Atty. Gen. Op. 137private parties; Mo. Atty. Gen. Op. 137‐‐87 (Webster, 87 (Webster, 1212 1818 1987)1987)1212‐‐1818‐‐1987)1987)

•• Regulation of RF InterferenceRegulation of RF InterferenceCi i l RF l dl dCi i l RF l dl d–– Cities can regulate RF as a landlordCities can regulate RF as a landlord

•• No interference with public useNo interference with public use•• Length of TermsLength of Terms•• Termination of rights Termination of rights –– both sidesboth sides

CUNNINGHAM, VOGEL & ROST, P.C.CUNNINGHAM, VOGEL & ROST, P.C.legal counselors to local government legal counselors to local government

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TheseThese materialsmaterials andand thethe relatedrelated presentationpresentation areare intendedintended forfor discussiondiscussion purposespurposes andand totoprovideprovide thosethose attendingattending thethe meetingmeeting withwith usefuluseful ideasideas andand guidanceguidance onon thethe topicstopics andandissuesissues coveredcovered.. TheThe materialsmaterials andand thethe commentscomments ofof thethe presenterspresenters dodo notnot constitute,constitute, andandshouldshould notnot bebe treatedtreated as,as, legallegal adviceadvice regardingregarding thethe useuse ofof anyany particularparticular technique,technique,device,device, oror suggestion,suggestion, oror itsits legallegal advantagesadvantages oror disadvantagesdisadvantages.. AlthoughAlthough wewe havehave mademade

ff tff t tt thth ff thth t i lt i l dd thth t tit ti ithith ththeveryevery efforteffort toto ensureensure thethe accuracyaccuracy ofof thesethese materialsmaterials andand thethe presentation,presentation, neitherneither thetheattorneysattorneys presentingpresenting atat thisthis meetingmeeting nornor Cunningham,Cunningham, VogelVogel && Rost,Rost, PP..CC.. assumeassume anyanyresponsibilityresponsibility forfor anyany individual’sindividual’s reliancereliance onon thethe writtenwritten oror oraloral informationinformation presentedpresented..