Agenda Item No. Reference No.
Better Local Government
ISLEWORTH AND BRENTFORD AREA COMMITTEE
25 JULY 2003
DRAFT SUPLEMENTARY PLANNING GUIDANCE ON SUSTAINABLE MOBILE TELECOMMUNICATION DEVELOPMENT
Report by: Borough Planning Officer
Summary
1. This Report informs Members of the proposed Draft Supplementary Planning Guidance on Sustainable Mobile Telecommunication Development. The Report also outlines its key issues.
RECOMMENDATION:
That Members:
1. Consider the proposed Draft Supplementary Planning Guidance and use in the determination of relevant planning applications.
2. Recommend to the Sustainable Development Committee that the Draft Supplementary Planning Guidance should be published for consultation purposes.
Ian.Dunsford@hounslow.gov.uk 2.0 Background
2.1 Supplementary Planning Guidance on Sustainable Mobile Telecommunication Development was requested by the Sustainable Development Committee to provide detailed advice on the implementation of Policy ENV-B.1.7 (Telecommunications) of the Revised Deposit Proposed Modifications UDP (January 2003).
2.2 This request followed the publication of Planning Policy Guidance Note 8 (PPG8) – the key government guidance on telecommunication development planning.
2.3 Government Guidance (PPG12 Development Plans) allows local planning authorities to prepare supplementary planning guidance to provide detailed guidance as to how Unitary Development Plan Policies will be applied in particular circumstances.
2.4 Supplementary Planning Guidance (SPG) is non-statutory guidance but it may be taken into account as a material consideration when considering development applications. The weight accorded to it is increased if it has been prepared in consultation with the public and has been the subject of a Council resolution.
2.5 In November 2002 the Government published a Code of Best Practice on Mobile Phone Network Development. Key elements of the Best Practice Code, PPG8 and other legislation have been incorporated into the Draft Supplementary Planning Guidance.
2.6 The growth in demand for mobile phones in recent years and the granting of third generation network licences to four operators by the Government has resulted in a proliferation of telecommunication installations in the Borough. Hounslow’s topography, position in West London adjacent to a number of major transport routes and competing developmental pressures has further stimulated mobile telecommunication development locally.
2.7 The proposed Draft SPG will assist officers and Members when assessing and determining telecommunication applications for planning consent and prior approvals.
3.0 Key Elements of the Draft Supplementary Planning Guidance
3.1 The Policy Background highlights planning guidance and policies for the SPG in terms of the National, Metropolitan and UDP context. Details of the growth of the different networks is provided including TETRA networks.
3.2 The second key area of the SPG explains the separate and very distinct Prior Approval and Planning Permission Processes. It explains how the processes operate and details the supporting
[email protected] information requirements for applicants and issues relating to multiple networks on one site.
3.3 The Location and Siting section details the key issues for Hounslow in terms of Telecommunication Development in the Green Belt, Metropolitan Open Land, Nature Conservation Areas, Historic Parks, Tall and Listed Buildings, Conservation Areas and Heathrow Airport. A separate section considers the issue of mast/site sharing.
3.4 The Design and Appearance section is based on the Best Practice Guide. Advice is given on the camoflaging of antennas on buildings, the importance of appropriate fencing and landscaping and Highway considerations.
3.5 The Health Considerations section expands the Government’s approach to mobile telecommunications development. It highlights the Government’s view of the findings of the Stewart Report, that as long as a proposed development conforms to the International Compliance for Exposure Guidelines for Public Exposure to Electromagnetic Fields established by the International Commission on Non-Ionising Radiation Protection (ICNIRP), further consideration of the risk to health will not be necessary by the local planning authority. Furthermore the Government consider that the planning system is not the place to determine health safeguards. However LBH will expect all telecommunications applications to comply with ICNIRP guidelines.
3.6 The Appendix includes a Summary of Telecommunications Permitted Development Rights, operator information, contact details and a Glossary of technical terms.
4.0 Consultations
4.1 The professional and expert advice of the Council’s environmental protection, pollution and legal officers have been incorporated into this report.
5.0 Finance
5.1 The Head of Finance comments that there are no additional costs involved in the production of the draft SPG. All costs such as staffing have been met from existing budgets. Similarly, any costs of a public consultation will be contained within existing budgets.
6.0 Equal Opportunities Implications
6.1 As virtually all of Hounslow’s residents are users of the various telecommunication sysytems, there are no specific equal opportunities considerations arising from this report.
[email protected] Contact: Ian Dunsford Telephone: 020-8583-5205 Background Papers: This report has been or is due to be PPG8, Planning Policy Guidance Note 8: considered for consultation by all area Telecommunications (SDC/02/22) committees and the Sustainable Code of Best Practice on Mobile Phone Development Committee. Network Development (ODPM)
This report is relevant to the following wards/areas: ALL
LONDON BOROUGH OF HOUNSLOW
DRAFT FOR CONSULTATION SUPPLEMENTARY PLANNING GUIDANCE FOR SUSTAINABLE MOBILE TELECOMMUNICATION DEVELOPMENT
THE BOROUGH PLANNING OFFICER 25 June 2003
CONTENTS Page 1 Introduction 2 2 Background 4 3 Planning Policy 6 4 Planning Permission and Prior Approval 8 5 Operational Need and Development 11 6 Discussions and Consultations 13 7 Location and Siting 14 8 Mast/Site Sharing 18 9 Design and Appearance 20 10 Health Considerations 23
Appendix 1: Summary of Telecommunications Permitted Development As Amended August 2001 25
Appendix 2: Required Information Checklist for Prior Approval and Full Planning Applications 27
Appendix 3: FEI and Operators ‘Ten Commitments’ 29
Appendix 4: Operator Enquiry Points 30
Appendix 5: Useful Websites 31
Appendix 6: Glossary 32
Appendix 7: Contact Details 34
1.0 INTRODUCTION
1.1 This document sets out the draft Supplementary Planning Guidance (SPG) for Sustainable Telecommunication Installations within the London Borough of Hounslow. This guidance elaborates Hounslow’s Unitary Development Policy (UDP) Policy ENV-B.1.7 (Telecommunications) and provides detailed advice on the suitable siting and appearance of telecommunication masts and related equipment.
1.2 Telecommunications is defined as ‘all forms of communications by electrical or optical wire and cable and radio signals (whether terrestrial or from satellite), both public and private’ (PPG 8).
1.3 Domestic satellite dishes will not be dealt with in this SPG. Government guidance is provided in the Department of the Environment, Transport and the Regions (DETR) publication ‘A Householder’s Planning Guide for the Installation of Satellite Television Dishes’ (Copies available from the Borough Planning Office at the Civic Centre). This guidance is itself currently under review by the Office of the Deputy Prime Minister (ODPM).
1.4 Growth in consumer demand for mobile telecommunications and operational requirements to improve the quality and range of services has raised a number of public concerns in a Borough which is crossed by major transport routes, has significant areas of Green Belt and Metropolitan Open Land, an historic built environment and extensive residential areas.
1.5 The Government considers that modern telecommunications systems have a vital part to play in national life, bringing significant economic and societal benefits. In recent years the rapid expansion of the sector has made telecommunications a major component of the national
economy. However there have been concerns as to the siting and appearance of telecommunication installations. By appreciating the essential infrastructure requirements of the network providers and the potential impact on the environment, Hounslow Council seeks to ensure by working with network providers and interested parties that telecommunication developments are sensitively delivered within the Borough.
1.6 This draft Supplementary Planning Guidance aims to elaborate: • Hounslow’s telecommunications policy • Provide guidance for telecommunications operators • Specify Hounslow’s requirements for telecommunication installations.
1.7 Planning Policy Guidance Note 12 (Development Plans) states that:
• SPG may be taken into account as a material consideration in the determination of planning applications. The Secretary of State will give substantial weight to an SPG which has evolved from the development plan, and has been prepared in the proper manner.
• A public consultation should form part of the SPG preparation and include interested parties. These views should be taken into account before the SPG is finalised.
1.8 All references to the UDP are to the London Borough of Hounslow’s Proposed Modifications to the Revised Alterations Unitary Development Plan, January 2003.
1.9 To assist in the understanding of this SPG, technical terms have been defined and elaborated in the glossary in Appendix 6.
2.0 BACKGROUND
2.1 Growth of Telecommunications New and advance communications technology has resulted in an increased range of services available both to individuals and businesses. With over 46 million personal mobile phone users, modern telecommunications systems bring significant economic and social benefits. However the Council is conscious of the need to strike the proper balance between environmental objectives and sustainable telecommunications development.
2.2 Existing Telecommunications Network Mobile telecommunications require the use of radio systems. Radio systems need aerials and towers to boost signals. The first mobile phone network was an analogue service which was phased out in 2001. Currently the predominant UK mobile telecommunication network is based on the 1990s second generation digital cellular Global System for Mobile Communications (GSM). This network is maintained
by four licensed operators; mmO2 (formerly BT Cellnet), Orange, T- Mobile and Vodaphone. Each provides a 98% coverage of the UK.
2.3 The continued growth in customer demand for second generation (2G) services is placing stresses on the traffic capacity of the networks and individual cells which make up the networks. To accommodate growing customer requirements in terms of improvements to the quality of service delivery, provision of short message services (SMS aka Texting) and traffic handling capacity, many cells of the individual operator networks will need to be enhanced with additional base stations and masts.
2.4 Third Generation Network Progress in telecommunications technology has resulted in the development of a new international standard and services. Known in the UK as the third generation mobile phone system (3G), in April
2000, five Universal Mobile Telecommunications Services (UMTS) licences were granted. The new licence holders include the four existing 2G operators and Hutchinson 3G. Improved data handling capacity means that 3G technology will enable the viewing of pictures and video and other enhanced services.
2.5 Under the terms of their licence each 3G operator is required to provide network coverage of 80% of the population by 2007. Much of the existing infrastructure can be re-used. However the higher frequency ranges used by 3G technology means that the area coverage of individual cells will be reduced. This will result in an increased demand for new sites for masts and base stations. The code system operators have adopted a Ten Commitments framework which is enclosed in Appendix 3.
2.6 Other Networks In addition to the new 3G licences, TETRA (Terrestrial Trunked Radio) has been developed for use as a secure network for such users as the emergency services. TETRA networks provide an integrated, digital
mobile communications system. MmO2 is currently developing a national network for the police called Airwave. Many new sites will be required for this network including some in environmentally sensitive areas.
3.0 PLANNING POLICY
3.1 National Planning Policy Planning Policy Guidance Note 8 (PPG8), published in April 2001, sets out the Government’s planning guidance on the siting and design of telecommunication systems and installations. These cover a very wide range of systems including picocells (burglar alarm box size antennas), microcell and macrocell mobile phone base and relay stations and aerial masts.
3.2 PPG 8 offers guidance on environmental and health issues and consultation procedures. The guidance can be a material consideration in the determination of planning applications, and in the prior approval process and appeals.
3.3 The Office of the Deputy Prime Minister in November 2002 published a revised Code of Best Practice on Mobile Phone Network Development. This code was produced jointly by representatives of central and local government and the telecommunications industry. It provides advice on procedures, siting and design. It brings up to date best practice guidance and provides practical advice to facilitate improved communication and consultation between local operators, local authorities and local people. It aims to standardise practice thereby promoting greater consistency of approach and aid the transparency of the process for all concerned.
3.4 The Mayor’s Spatial Development Strategy for Greater London The draft London Plan (June 2002) recognises the significance of modern communication technologies in enabling London to maintain its economic and cultural status as a World City. The Mayor supports measures to minimise the short-term social, economic, transport and environmental costs of introducing e-infrastructure including ducting and wireless equipment. There are already more Londoners in the teleworkforce than in any other European region. It is hoped that
increased teleworking will reduce the need to travel thereby having a positive bearing on the fundamental issue of sustainability for London.
3.5 The Hounslow Unitary Development Plan The Proposed Modifications to the Revised Alterations of the Hounslow Unitary Development Plan (2003) includes Policy ENV-B.1.7 which seeks to strike a balance between the environmental impacts of telecommunications development whilst recognising the Government’s general policies of facilitating the growth of new and existing telecommunication networks.
Policy ENV-B.1.7 Telecommunications Any proposal for telecommunications development will be assessed in terms of its operational requirements and impact on the local environment, and should satisfy the following criteria:
(i) The siting and design of the telecommunications equipment should cause the minimum visual impact on the local environment;
(ii) Existing facilities should be shared wherever possible;
(iii) Particular account should be taken of environmental policies relating to Listed Buildings, Conservation Areas, High Buildings, Green Belt, Metropolitan Open Land and other sensitive areas.
The Council is concerned about the visual impact of telecommunications equipment on the environment and aims to prevent a proliferation of structures, i.e. satellite dishes, microwave antennas, radio masts, aerials, etc, and a decline in environmental quality. Particular concerns relate to the siting and design of telecommunications equipment, sharing facilities wherever possible and taking account of other UDP environmental policies. Policy ENV- B.1.7 will be used to determine all prior approval applications.
4.0 PRIOR APPROVAL AND PLANNING PERMISSION
4.1 Permitted Development Rights All development requires planning permission except those which are; very minor (‘de minimis’); are specifically excluded from the definition of development by the Town and Country Planning Act 1990; have been granted a general planning permission through the Town and Country Planning (General Permitted Development) (amended) Order 1995 (GPDO) which effectively grants permission for a range of operations (i.e. ‘permitted development’).
4.2 Part 24 of Schedule 2 details the permitted development rights of telecommunication operators. This was revised in 2001. A Summary is included in Appendix 2.
4.3 The Town and Country (General Permitted Development) (Amendment) (England) Order 2001 sets out the permitted development rights for telecommunications code system operators, including masts and other apparatus.
4.4 Some types of development authorised by Part 24 are subject to the ‘prior approvals procedure’ as set out in A.2 (4) of Part 24 of the GPDO. The prior approvals procedure applies to the construction, installation, alteration or replacement of any development permitted by Part 24 in a conservation area and some larger telecommunications development still falling within Part 24.
4.5 Where the operator considers that a proposal is permitted development under Part 24 Class A.3, the operator must apply for a determination to the Council as to whether approval of the siting and design of the development is necessary. Under the ‘Prior Approval’ procedure, the local planning authority has the opportunity to decide within 56 days whether they wish to approve details of the siting and appearance of a
proposal. The authority is able to refuse approval where they consider that the development will pose a serious threat to amenity.
4.6 If the proposed development falls within Part 24 but is not subject to prior approval then the development has permitted development rights. Under Part 24 the operator should give the Council a 28 day notice of its intention to erect under Part 24.
4.7 Where it is considered that the exercise of a permitted development right may have a serious impact on local amenity, the Council may consider the imposition of an Article 4 direction withdrawing permitted development rights. This can only be applied where it can be demonstrated that a development would pose a real and specific threat to a locality and would first require the approval of the Secretary of State.
4.8 Full Planning Permission Full Planning Permission is required for development which is not covered by permitted development rights (for example masts exceeding 15m above ground level or development on a listed building) or where such rights have been removed (for example in a conservation area). Applications will be determined with regard to UDP policies and other material considerations.
4.9 Some small telecommunications proposals are classed as ‘de minimis’ and consequently do not generally require planning permission. Examples include picocell and microcell antenna, additional antennas on existing masts and equipment cabins with a volume less than 2.5 cubic metres.
4.10 Until 2001, telecommunication code system operators were required to provide 28 days notification for any proposed equipment installation, except when submitting an application for prior approval or planning permission. Although ‘licence notification’ is no longer a statutory
requirement, paragraph 67 of the Revised Code of Best Practice indicates that operators should continue to notify local authorities with regard to the installation of mobile phone antennas. The Council supports this approach.
4.11 Full planning permission will be required for all sites under 15m with more than two antennas and all sites over 15m with more than three sets of antennas. With GSM and 3G cells usually requiring different antennas the Council will normally consider same operator GSM and 3G networks as separate network systems in accordance with the Ministerial reply dated 1 November 2001 to Rt Hon James Arbuthnot MP, (Ref: SB/022844/01).
5.0 OPERATIONAL NEED AND COMPETITION
5.1 PPG 8 states that local authorities should not ‘seek to prevent competition between different operators and should not question the need for the telecommunications system which the proposed development is to support’. However PPG 8 considers it appropriate for planning authorities to request evidence from operators regarding the need for a specific proposal forming part of the overall network.
5.2 Prior Approval and Full Planning Applications should be accompanied by evidence of the need for the development in terms of the network coverage and/or network capacity. If an operator is seeking to increase capacity, a demonstration of existing traffic levels and evidence of the need for extra capacity (for example overloading circuits), would need to accompany the application as justification for the proposal. Similarly when seeking to increase network coverage, an operator would need to supply similar suitable evidence with the application.
6.0 DISCUSSIONS AND CONSULTATIONS
6.1 In accordance with the advice in PPG 8, the Council will undertake pre- rollout and pre-application discussions with operators. Similarly in line with PPG 8 and the Code of Best Practice, operators are encouraged to provide the Council with their annual rollout plans and to inform the Council of changes as they become available.
6.2 Operators will also be expected to consult the Council before the submission of prior notification or full planning applications in order to ensure that the optimum solution for each case is achieved.
6.3 At the pre-submission consultation stage, operators should provide basic information for proposal sites including site maps, outline plans, photographs and details of the type of installation.
6.4 Operators should demonstrate that the proposed installation is the minimum possible size and that the output is commensurate with effective service provision.
6.5 At the time of notification or submission of an application, operators should be able to show the level of community consultation and discussions with other stakeholders which may have already taken place.
6.6 In accordance with the Code of Best Practice, telecommunications operators are encouraged to use the ‘Traffic Light Model’ developed by the Federation of Electronic Industries (FEI) and telecommunications operators. This model takes into account community, environmental and planning issues in relation to site selection.
6.7 Where a proposal is on or near a school or college, the operator, in accordance with PPG 8 should consult with the appropriate educational bodies. Paragraph 60 of the Code of Best Practice states the following
factors should be taken into account when determining whether a school or college should be consulted:
• The proposed site is on school/college grounds • The proposed development would be seen from the school/college grounds • The site is on a main access point used by pupils/students to the school/college • There is a history of concern about base stations within the local community • The local planning authority has requested consultation with the school/college • The school/college has requested that it be included in any consultation
6.8 The Council will expect the network operators to provide evidence of all consultations undertaken and will undertake any further publicity as may be considered necessary.
6.9 Supporting Information The Code of Best Practice states that; ‘The quality of information submitted as part of an application …should always be clear and complete. Good quality submissions can help explain to local people and consultees as well as officers and elected members exactly what is being proposed and its likely impact ‘ and result in speedier decisions. The Code of Best Practice Annexes F, G and H, derived from PPG 8, identify the information which should accompany both prior approval and full planning applications in the London Borough of Hounslow.
7.0 LOCATION AND SITING
7.1 When assessing an application for telecommunications development, be it for prior approval or for planning permission, there will be two main areas of assessment: location and design and appearance. The main aim is to minimize the environmental intrusion of telecommunications development.
7.2 Environmental Considerations The Council will have to determine whether the need to fill in the deficiency in a network outweighs any harm to the landscape or the environment. Protection from visual intrusion will be an important consideration in determining applications.
7.3 The sensitivity of the location of the proposal site for the telecommunications mast is a material consideration. Hounslow’s flat topography may require more ground based aerial masts and antennae and positioning of antennae on high buildings than in areas with a more varied terrain.
7.4 Green Belt and Metropolitan Open Land As an outer London suburban Borough, Hounslow’s environment benefits from significant sections of Green Belt and Metropolitan Open Land (MOL). Planning Policy Guidance note 2 (PPG2) provides the national planning guidance with regard to Green Belt Land. PPG2 considers that inappropriate development is, by definition, harmful to the Green Belt. ‘The visual amenities of the Green Belt should not be injured by proposals for development within or conspicuous from the Green Belt which, although they would not prejudice the purposes of including land in Green Belts, might be visually detrimental by reason of their siting, materials or design.’ Telecommunication Development will be considered inappropriate development on Green Belt and MOL. The applicant will need to demonstrate very special circumstances that would outweigh any harm to the Green Belt or MOL. (Green Belt
Policies ENV-N.1.1 – 1.4 and MOL Policies ENV-N.1.5 -1.9). Such applications would normally be treated as a departure from the Plan.
7.5 Nature Conservation Areas Hounslow has two Sites of Special Scientific Interest (SSSI). These are at Tide Meadow at Syon Lane and Kempton Nature Reserve. There are a further thirty nature conservation areas of Metropolitan and Borough Importance. Key UDP polices are ENV-N.2.1 (Strategic Nature Conservation Sites), ENV-N.2.2 (Sites for Local Nature Conservation) and Table ENV-N.2 (Nature Conservation Sites in the London Borough of Hounslow). Development adjoining strategic nature conservation areas will only be permitted where there would be no damage to the nature conservation interests. English Nature will be consulted on applications which would affect an SSSI.
7.6 Historic Parks In addition to Green Belt/MOL and Nature Conservation Sites, there are a number of Historic Parks and Gardens in the Borough. These are listed in Policy ENV-N.1.16 (Historic Parks and Gardens) and include Chiswick House and Grounds, Hogarth House, Osterley Park, Strawberry House, Syon Park, Walpole House, Gunnersbury Park, Hanworth Park and Boston Manor. Furthermore it is considered important that development in this Borough should not have an adverse effect on the setting or views of historic parks and gardens in adjacent boroughs. When considering a telecommunication proposal which would affect an Historic Park or Garden the applicant should consult the Council’s Conservation and Design Officer (020-8583- 4941). The Garden History Society will be consulted on any such application.
7.7 Tall Buildings In the case of proposals to locate masts and antenna on tall buildings, in addition to other policy considerations, regard will be given to UDP Policies ENV-B.1.2 (High Buildings and structures affecting sensitive
areas) and ENV-B.1.3 (High Buildings or structures in areas other than those listed in ENV-B.1.2).
7.8 Listed Buildings There are more than 800 Listed Buildings in Hounslow, details of which are kept by the Council on a database. UDP Policies ENV-B.2.5 (Development Affecting the Setting of a Listed Building), ENV-B.2.6 (Identification and Protection of Buildings of Local Townscape Character) and ENV-B.2.7 (Alterations to Listed Buildings and Buildings of Local Townscape Character) aim to ensure that the setting and character of these buildings and structures is not harmed, that any scheme is both well designed and sympathetic and that the works are justified. Any application involving a Listed Building will require Listed Building Consent in addition to a Full Planning Application. It is recommended that an applicant should consult the Borough’s Conservation and Design Officer (020-8583-4941) when considering a proposal which would affect a Listed Building or building of Local Townscape Character. English Heritage will also be consulted where appropriate.
7.9 Conservation Areas There are more than twenty conservation areas in Hounslow. Policy ENV-B.2.2 (Conservation Areas) details the policy framework for conservation areas with further information in Supplementary Planning Guidance. It is recommended that when considering a telecommunications development in a conservation area, the applicant should contact the Conservation and Design Officer (020-8583-4941).
7.10 Heathrow Airport With Heathrow airport to the west of Hounslow, much of the Borough is within a 3km radius of the airport. Consequently, the applicant will need to notify British Airports Authority (BAA) and the National Air Traffic Services Ltd (NATS) for the installation of a mast within this 3km area, as a requirement of their network operator licence. Moreover, there are
some areas beyond this range which would require BAA and NATS to be consulted for development proposals with heights above ground level exceeding 45m.
7.11 When considering the location of masts in or adjoining residential areas, operators should demonstrate that nearby industrial or other areas are unsuitable and that the need for the development outweighs the harm to the visual amenities.
7.12 In addition to the designated area/special issues key site considerations also include: • Height of site in relation to surrounding area • Existence of topographical features/natural vegetation/ archaeological features • Site prominence from any side/vista • Site in relation to existing mast/ structures / buildings. Need to avoid clutter • Landscaping and Screening
7.13 When a building or structure supporting telecommunication equipment is demolished/replaced any new/replacement installation will need to be considered by the Council either as a prior approval determination or as a planning application.
8.0 MAST/SITE SHARING
8.1 A longstanding Government policy objective has been to encourage telecommunication operators, wherever practicable, to share masts and sites as a means to reduce overall mast numbers. Having regard to this, operators should demonstrate that the site they have chosen is the most environmentally suitable for the proposed development. The Council will expect all possible options to have been considered before new sites are proposed. Operators will be expected to provide evidence of alternative site considerations and will be required to demonstrate that existing structures are unsuitable.
8.2 Where additional antennas share one mast/site the cumulative impact on the environment will need to be assessed.
8.3 The Council are aware that there may be technical limitations which prevent the installation of additional equipment on existing sites/structures. However operators should consider the potential for upgrading such sites where it would provide an optimum environmental solution whilst meeting network operator needs.
8.4 Where mast/site sharing does take place, an increase in the number of antenna and/or an increase in antenna strength will most probably increase the electromagnetic field strength from the site. The Council will therefore expect operators to provide certification that the combined output from the site including the output of equipment used by other operators complies with ICNIRP EMF exposure guidelines.
8.5 The Government maintains a national database of mobile phone base stations and their emissions. This is maintained by the Radiocommunications Agency. The database contains information on all operational, externally sited cellular radio transmitters in England, Scotland and Wales. Further information can be found at www.sitefinder.radio.gov.uk.
8.6 In accordance with PPG 8 advice, the Council will produce a register of telecommunication development to assist network operators in locating sites in the Borough. This public document, will be available on the Council website, will list all existing antenna used by mobile phone operators within the Borough and will be updated on a regular basis.
8.7 Where appropriate the Council may seek to ensure that new telecommunications development can support mast sharing in the future. Such a scheme will be the product of a legal agreement process involving the Council, the landowner and the network/mast operator.
9.0 DESIGN AND APPEARANCE
9.1 In determining telecommunication proposals, the Council will balance the need for a modern communication system with the impact on the local townscape/landscape and amenity. Protection from visual intrusion and the implications for network development will be material considerations.
9.2 PPG 8 emphasises the importance of good design. The Code of Best Practice states that ‘Good siting and design should not only be respected in environmentally sensitive areas but also be applied to all telecommunications development.’
9.3 In finding the best solution for an individual site, the design of the development should be sympathetic to the surrounding area, so as to minimise the impact on the environment.
9.4 As the safe operation of telecommunication technology may be dependent on appropriate shielding and safety areas, particular consideration should be made, where appropriate, to the provision of satisfactory enclosures and perimeter security to help ensure a safe and secure operation.
9.5 Mast Design Operators should consider the use of sympathetic mast design to limit the visual impact of the scheme. Applicants would be expected to justify the height of any proposal. Generally slimline poles are less intrusive but they may restrict mast-sharing opportunities. Alternative mast designs should be considered which resemble trees or street furniture. In some cases it may be possible to incorporate a mast within an existing building or structure and these options should be explored before external structures are considered. Similarly operators are encouraged to adopt more innovative designs.
9.6 Antenna Large numbers of antennae and support structures on a building will be resisted. Although this may be an efficient engineering solution, such development can have a cluttering effect and could potentially harm the visual qualities of the skyline/townscape. Instead operators will be encouraged, where technically feasible, to install wall mounted camouflaged antenna or antenna hidden in appropriate architectural forms such as chimneys and towers. Antenna should be positioned, where possible, beside roof structures such as lift housings thereby helping help to limit any harm to the visual amenities.
9.7 Equipment Cabins The dimensions of these structures should be appropriate for the location. Materials and colours selected for equipment cabins, cable boxes and other equipment should blend in with the surrounding area. On rooftop locations equipment cabins should be located inside buildings or be concealed by existing structures.
9.8 Fencing Fencing for equipment compounds should not detract from the visual amenities of the area. The most acceptable types of fencing are likely to be Roundex and Diamex type railings and Weldmesh type mesh fences. Steel palisade fencing will not normally be acceptable unless the site is within an industrial environment. All fencing should be colour treated through powder coating during manufacture in a colour which is appropriate for the site locality.
9.9 Planting and Landscaping Site selection should consider the use of vegetation, both in terms of existing cover and in terms of additional planting or landscaping. Careful planting and landscaping should camouflage telecommunication installations, equipment cabins and masts. Operators should define the extent of proposed planting with a longer- term management support plan.
9.10 Highway Considerations When considering telecommunication Installations on or adjacent to the Highway special attention should be given to: • Effect on sightlines • Access for maintenance • Effect on pedestrians/cyclists • Effect on other utilities • Relationship and distance from adjacent carriageway • Relationship to street furniture • Need for protection during construction • Need for licences.
10.0 HEALTH CONSIDERATIONS
10.1 The expansion of the mobile telephone network has been accompanied by growing concerns regarding the potential health risk from exposure to the electromagnetic fields (EMF) generated by mobile phone usage, base stations and transmitters.
10.2 The Government has responsibility for protecting public health. In 1999 the Independent Expert Group on Mobile Phones (IEGMP) was set up to examine the health effects of mobile phone use, base stations and transmitters under the chairmanship of Sir William Stewart. In 2000 the findings of the group were published as the Stewart Report and concluded that ‘the balance of evidence indicates that there is no general risk to the health of people living near to base stations on the basis that exposures are expected to be small fractions of the guidelines. However there can be indirect adverse effects in some cases.’
10.3 In PPG 8, the Government has accepted the Stewart Report’s specific ‘precautionary approach’ recommendation in respect of emission controlling and monitoring and transmitter safety zones. The Radiocommunications Agency (RA) is conducting an audit of base stations and has already found that of the first 100 sites located near schools which have been tested, the electromagnetic emissions were significantly below the ICNIRP guidelines.
10.4 Although the Government has adopted a precautionary approach, local planning authorities are advised not to implement their own precautionary policies.
10.5 Furthermore PPG 8 establishes that the planning system should not duplicate existing controls under other legislation and is not the place to determine health safeguards.
10.6 Public perception of risk to health from a proposed development can in principle be a material consideration in determining planning applications. This needs to be supported by evidence of likely harm. However it is for the local planning authority in the first instance (and ultimately the courts), having regard to the Stewart Report and Government guidance, to determine what weight to attach to such considerations on an individual case basis. It is the Government’s view that if a proposed development conforms to International Compliance for Public Exposure Guidelines for Public Exposure to Electromagnetic Fields established by the International Commission on Non-Ionising Radiation Protection (ICNIRP), further consideration of this issue will not be necessary by the local planning authority. The Council will therefore expect all applications for prior approval or planning permission to include confirmation that the proposal would comply with ICNIRP guidelines.
APPENDIX 1 – Summary of Telecommunications Permitted Development As Amended August 2001
All network infrastructure required by the code system operators may be installed in, on, over and under land (including on buildings and other structures), or altered or replaced, are subject to a number of restrictions.
• A mast or tower being installed on the ground must not be greater than 15m, or the apparatus which it replaces, whichever is the greater. This limit does not apply to antennae installed on a mast.
• Apparatus located on a building or other structure should not itself exceed 15m in height, if the building (or structure) is 30m or more in height, or exceed 10m if the building (or structure) is less than 30m in height. The height of 15m does not include antenna on top.
• Furthermore such apparatus must not add to the overall maximum height of the building by more than 10m for buildings of 30m or more; 8m for buildings between 15m and 30m and 6m for buildings of less than 15m.
• Antenna may be installed on a building other than a dwellinghouse, 15m or more in height, or on a mast located on such a building subject to limitations to the size of the antenna and would not exceed three antenna systems.
• A dish antenna is permitted development up to a size of 1.3m or in the case of a number of dishes the aggregate size of all dishes on a building, structure or mast should not exceed 3.5m, when measured in any dimension
• Radio equipment housing, including ancillary works such as fencing, may be installed provided that it is ancillary to a telecommunication
installation. This should not exceed 30 cubic metres on a roof or 90 cubic metres elsewhere.
• Before it is possible to use permitted development rights in respect of telecommunication apparatus with a volume greater than 2.5 cubic metres or a public call box, a code operator must apply to the local planning authority for a determination as to whether the prior approval of the authority will be required with regard to the details and siting and appearance of the apparatus. The local planning authority will have 56 days to make a decision. If no decision is made, or the local planning authority fails to notify the developer of its decision within 56 days, permission is deemed to have been granted.
• There are no permitted development rights for the installation of an antenna, a radio mast or radio equipment housing with a volume in excess of 2.5 cubic metres on any Article 1(5) land (Conservation Areas) unless in an emergency (and then for only a period of up to 6 months).
• When apparatus for telecommunication purposes is no longer required, it should be removed as soon as reasonable and the land returned to its pre-development condition.
• Any antenna located on a building should, as far as reasonable be sited so as to minimize its visual effect.
APPENDIX 2 – Information Required for Prior Approval and Full Planning Applications
The following list, based on PPG 8 and the Code of Best Practice, shows the type of information expected to accompany all telecommunications applications submitted to the London Borough of Hounslow. The information should be clear and all maps should be plotted to a recognised metric scale.
A written description of the proposal.
Evidence of owner or agricultural tenant notification.
Evidence that the Civil Aviation Authority has been notified where the proposal includes the installation of a mast within 3km of the perimeter of an aerodrome (i.e. Heathrow Airport).]
The appropriate fee.
A location plan. This should be at a scale of 1:1250
Site layout and elevation plans. Site layout plans should be at a minimum scale of 1:500. Elevation/roof layout plans should be at a scale of 1:100 or 1:50.
Plans showing proposed landscaping.
Evidence that the use of existing masts, buildings or structures has been considered.
Information in respect of the need and purpose of the proposal.
Evidence of network coverage/network capacity in locality.
A statement that a base station or other equipment will meet ICNIRP guidelines.
Details of the proposed antenna, power output, frequencies used and level of modulation.
Justification of mast/antenna height and location.
Use of the ‘traffic light model’ for determining the appropriate level of community consultation.
Details of discussions and consultations which have occurred including where appropriate schools and colleges, statutory undertakers, community groups, Council Members, etc.
Where appropriate, evidence of physical trials in addition to computer modelling.
The use of photomontages.
APPENDIX 3 – Telecommunication Network Operators 10 Commitments 1. Develop with other stakeholders, clear standards and procedures to deliver significantly improved consultation with local communities.
2. Participate in obligatory pre-rollout and pre-application consultation with local planning authorities.
3. Publish clear, transparent and accountable criteria and cross-industry agreement on site sharing, against which progress will be published regularly.
4. Establish professional development workshops on technological developments within telecommunications for local authority officers and elected members.
5. Deliver, with the Government, a database of information available to the public on radio base stations.
6. Assess all radio base stations for international (ICNIRP) compliance for public exposure, and produce a programme for ICNIRP compliance for all radio base stations as recommended by the Independent Expert group on Mobile Phones.
7. Provide, as part of planning applications for radio base stations, a certification of compliance with ICNIRP public exposure guidelines.
8. Provide specific staff resources to respond to complaints and enquiries about base stations, within ten working days.
9. Begin financially supporting the Government’s independent scientific research programme on mobile communications health issues.
10. Develop standard supporting documentation for all planning submissions whether full planning or prior approval.
APPENDIX 4 – Operator Enquiry Points
Hutchinson 3G UK 0845 604 3000 www.three.co.uk
O2 UK 0113 388 6780 [email protected] www.o2.com
02 Airwave [email protected]
Orange 0800 783 5021 [email protected]
T-Mobile UK Ltd 0870 321 6047 [email protected] www.t-mobile.co.uk
Vodaphone 01635 677706 [email protected] www.vodaphone.co.uk
APPENDIX 5 – USEFUL WEBSITES
For planning information the Office of the Deputy Prime Minister is at www.planning.odpm.gov.uk
For Hounslow Council planning information visit www.hounslow.gov.uk
For the audit of mobile phone base station emissions is at the Radiocommunications Agency website at www.radio.gov.uk
For specific mast sites consult www.sitefinder.radio.gov.uk
For an independent view on mobile phone masts and associated EMF issues Powerwatch have a website at www.powerwatch.org.uk
APPENDIX 6 – Glossary 2G The second generation or GSM is the technology currently used in the operation of mobile phones at 900MHz and 1800MHz. 3G Third generation is the generic term used for the next generation of mobile communication systems. The high-speed data handling capacity of these new systems will offer advanced services (such as video streaming). Aerial/antenna A passive device which transmits and receives radio waves. There are different designs including Omni- directional, Sectored and dual/tri-band antennas. Article 4 direction Article 4 of the Town and Country Planning (General Permitted Development) Order 1995 (As amended) allows the use of a direction withdrawing permitted development rights in certain circumstances. Base Station A base station is a macrocell, microcell or picocell site and consists of the radio transmitters and receivers in a cabin or cabinet connected to antennas by feeder cables. Cabin/Cabinet A structure which protects radio transmitters and receivers from the elements often air conditioned. Cell A geographic area within which a radio base station transmits and receives radio signals to and from mobile phones. Code System A telecommunications network operator as defined Operator under schedule 2 of the Telecommunications Act 1984 (Known as the Telecommunications Code). Compound Normally fenced off, compounds are the area surrounding a mast and ancillary equipment. Dish Antenna Operating on a line of site basis, these transmit and receive highly focused radio waves in one direction. These are often used to link base stations to the wider network. Electromagnetic EMFs are emitted by many natural and man made Fields (EMF) sources. EMFs are used to transmit and receive signals from mobile phones. These are called radio/frequency (RF) waves/fields. Federation of This organisation has recently merged with the Electronic Industries Computing Services and Software Association to (FEI) form Intellect. Feeder Cable A co-axial cable which connects an antenna to a base station receiver or transmitter. Frequency This is the number of times per second an electronic wave oscillates and is measured in Hertz (Hz). 1 MHz is one million oscillations per second and 1 GHz is a thousand million. 2G systems operate at 900MHz and 1800MHz. 3G will operate at 2GHz.
GSM Global System for Mobile Communications is the international, pan-European standard for the second generation of mobile phones. International Set up as an independent scientific body, the ICNIRP Commission on has produced a set of guidelines for public exposure Non-Ionising to radio frequency waves. These guidelines were Radiation Protection recommended by the Stewart Report and (ICNIRP) subsequently adopted by Government. Macrocells The largest area of coverage within a mobile phone network. Macrocells provide radio coverage over varying distances depending on the terrain, frequency and volume of calls. Cell radius can range from 500m to 35km. Mast A ground-based or rooftop structure that supports antennas at a height where they can satisfactorily send and receive radio waves. These can appear as lattice steel or tubular monopole construction. There are a wide range of mast types. Microcell These provide additional coverage and capacity where there are high numbers of users within urban and suburban areas. Antennas are normally mounted at street level and can be blended into building features. These provide coverage of between 100m and 1000m distances. Modulation This is the process of adding information such as text or speech to a carrier wave. Network Capacity The limit to the volume of calls a network can handle. Photomontages These are photographs which have been overlaid with scaled images of the proposed development. Picocell These provide more localised coverage than microcells and are normally found in buildings where coverage is poor or there are large numbers of users such as airport terminals and shopping malls. Power Output Measured in Watts this is the power of the radio waves transmitted from the base station. SMS Short Message Service commonly known as texting. Can be use to send written messages and images. Traffic Light Model This is a guide to ascertain the amount and type of public consultation required for a proposed site. By rating planning, environmental and community issues sites according to green, amber and red, the appropriate level of public consultation can be carried out. Transmitter Electronic equipment that generates radio waves to convey information and is connected to an antenna via a feeder cable. UMTS Universal Mobile Telecommunication System (UMTS) is an international 3G standard which the UK network operators have adopted.
Appendix 7 - CONTACT DETAILS
For further details contact:
The Borough Planning Office London Borough of Hounslow The Civic Centre, Lampton Road, Hounslow TW3 5DN.
Area Planning Teams Telephone Number Chiswick, Gunnersbury and Turnham 020 8583 4998 Green Feltham, Bedfont, Hanworth and 020 8583 4940 Hatton Heston, Cranford and Hounslow 020 8583 4965 Isleworth and Brentford 020 8583 4970