HomeMy WebLinkAbout1994-07-06; Planning Commission; ; CUP 94-04 - US WEST CELLULAR - CARLSBAD• DATE:
TO:
FROM:
SUBJECT:
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STAFF REPORT
JULY 6, 1994
PLANNING COMMISSION
PLANNING DEPARTMENT
APPLICION COMPLETE DATE:
APRIL 6 1994
STAFF PLANNER: VAN LYNCH c('._f/1.J
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CUP 94-04 -U.S. WEST CELLULAR -CARLSBAD -Request for approval of
a Conditional Use Permit _to construct a cellular telecommunication facility
on land generally located on the South-East comer of Pio Pico• Drive and
Chestnut Avenue, in the Residential-Professional Zone in Local Facilities
Management Zone 1.
RECOMMENDATION
That the Planning Commission ADOPT Planning Commission Resolution No. 3672,
APPROVING CUP 94-04, based on the findings and subject to the conditions contained
therein.
II. PROJECT DESCRIPTION AND BACKGROUND
• The applicant, U.S. West Cellular, is requesting approval of a Conditional Use Permit to
locate a cellular telecommunication facility in the existing office building at 1015 Chestnut
Avenue. The project consists of replacing an existing three (3) foot high roof equipment
screen with a seven (7) foot high roof equipment screen. The roof screen wotild be of the
same materials as the existing screen. Twelve directional antennas would be placed (in
three groups of four antennas each) behind the equipment screen. The antennas would
not project above the screen. Two additional air conditioners, and one air conditioner
currently outside the existing roof screen, will also be placed within the screened area. The
associated operating equipment would be placed within Suite D3 of the office building.
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U.S. West Cellular is one of two cellular carriers in San Diego County, chartered by the
California Public Utilities Commission to provide cellular service in the region. Cellular
conversations are transmitted through airwaves on radio frequencies, which are regulated
by the Federal Communications Commission. Cellular provides alternative phone
communications through portable and car phones. A "cell site" refers to an antenna base
station and associated. equipment. The current cellular system c~nsists of many low-
powered antennas, or cell sites, in a honeycomb pattern of "cells" that blanket the service
area. A call from a mobile phone transmits a signal to the closest available cell site. From
there the call is routed through the cellular system and/or linked with the land-line phone
system. As a caller drives from cell to cell, the call is handed off to the next cell by
CUP 94-04 •• U.S. WEST CELLULAR -CARLSBAD
JULY 6, 1994
PAGE 2
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computer. The cellular system works basically on a line-of-sight basis: the cp.ll must be
able to "see" the. antenna in ord~r to get optimal reception.
In September of 1993, the Planning Commission considered an application by U.S. West
(CUP 93-03) for a cellular telecommunication facility at Chase Field. The item was
continued to the meeting of October 20, 1994, to allow time for the applicant to address
concerns from the neighborhood. The Planning Commission approved the. application 4-2.
The project was then appealed to City Council where it was denied because of the
compatibility of the use and aesthetics of the cellular antenna fa~ility.
This application is a result of the denial of the previous appltcation for a cellular facility
· in Carlsbad. The major concern with the previous site was visual aesthetics and thei use
of Open Space designated property for a commercial use. The currently proposed prc,ject
is ·aesthetically superior to the previous project because the antenna would be screen,ed
from view rather than exposed. The original project included a microwave dish for linking
with other sites and included a generator for back-up power in case of power failure.
These two items, which were of concern with the previous project, will not be includ~?d in
the new pr~posal. The applicant had submitted a study of alternative sites with the
previous application (attached). The study noted the office building site (this prope>sal)
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was "good", only that it did not have good coverage to the North. U.S. West has since •
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added a cell site in the South Oceanside area to improve this deficiency. The applicant also
has an application in for an improvement to their Encinitas (Twin Tanks) site and is
working on another application for an additional site in Southern Carlsbad.
III. ANALYSIS
Section 21.18.040(3), Residential-Professional Zone, of the Carlsbad Municipal code allows
radio, televis~on and microwave stations or towers by Conditional Use Permit.
·Before a Conditional Use Permit can be approved by the Planning Commission, the
following findings must be made: ·
1) "The requested use is necessary _or desirable for the development of the commwdty,
is essentially in harmony with the various elements and objectives of the General
Plan, and is not detrimental to existing uses specifically permitted in the zone in
which the proposed ~ is located." ·
The project is desirable ~ecause it will provide an additional level of service to the
community. The cellulcU" facility will provide additional service to the public as well as
other municipal and emergency groups. General public users will benefit from the cell site
through person:;tl communications or through the use of the roadside call boxes located on •
the freeway. There are many public safety and service groups that will benefit from the
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_ CUP 94-04 • U.S. WEST CELLULAR -CARLSBAD
JULY 6, 1994
PAGE 3
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facility such as the North County Fire Protection District, San Diego County Sheriffs
Department, Office of Disaster Preparedness, County of San Diego and the City of Carlsbad
itself. Many City department's already utilize the cellular technology and will benefit with
the additional coverage the facility will provide.
The facility will not be detrimental to the existing uses on the site. The antennas will be
located behind an equipment screen and will not visually degrade the site or adjacent
properties. The overall use is low in maintenance and will generate less traffic than
another office use once the facility is in place.
The facility will help fulfill the goal of the Health and Safety Element of the General Plan
by helping to "optimize organization and delivery of emergency services upon occurrence ... "
of any natural or man-made disaster.
2) ''The site for the intended use is adequate in size and shape to accommodate the
use."
The site is adequate in size and shape to accommodate the use. The thirty-three (33) foot
tall office building would act as a platform for the antennas. The antennas would be
screened from view by a seven (7) foot tall roof screen, bringing the overall building height
to forty ( 40) feet. The building height of the R-P zone is thirty-five (35) feet with
architectural projections ·allowed to forty-five ( 45) feet. This would allow an adjacent
building to be as tall or taller. This project would be compatible with adjacent properties
since they-would be able to build to the forty-five foot height level. The associated ·
operating equipment would be locate~ within an existing office suite.
3) "All the yards, setbacks, walls, fences, landscaping, and other features necessary to
adjust the requested use to existing or permitted future uses in the neighborhood
will be provided and maintained."
The existing three foot (3) roof screen will be removed and replaced by a seven (7) foot
roof screen. This roof screen will fully enclose the antennas so that they will not be visible
from eff-site. This is the only modification required to adjust the proposed use to the site.
The ex1sting building has adequate setbacks, landscaping and screen walls. _
4) ''The street system serving the proposed use is adequate to properly handle all traffic
generated by the proposed use."
The existing street system is adequate to handle the traffic generated by the use. The
anticipated traffic is a once~a-month visit by U.S. West personnel for maintenance and
upkeep of the facility .
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CUP 94-04 • U.S .. WEST CELLULAR -CARLSBAD
JULY 6, 1994
PAGE 4
IV. ENVIRONMENTAL REVIEW
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The project has been determined to ·be exempt from environmental review per Section
15303 of the CEQA Guidelines, which exempts construction of small· new equipm~nt
facilities. ·
V. SUMMARY
Since the findings for a Conditional Use Permit can be made, staff recommends that the
Planning Commission approve CUP 94-04.
ATTACHMENTS
1. Planning Commission Resolution No. 36 72
2. Location Map
3. Background Data Sheet
4. Disclosure Statement
5. Radio Frequency Propagation Study, Carlsbad Cell Site Alternatives.
VL:lh
May 12, 1994
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City ot Cart•~
U.S. WEST :CELLULAR-CARLSBAD CUP 94-104
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• BACKG~OUND, DATA SHEET.
CASE NO: ..... C=U"""P_9,___4_._-""'"04....._ ___________________ _
CASE NAME: U.S. West Cellular -Carlsbad
APPLICANT: U.S. West Cellular of California, Inc.
REQUEST AND LOCATION: Construct a cellular communications facility at the
southeast comer of Pio Pico and Chestnut Avenue.
LEGAL DESCRIPTION: Portion of Parcel 1 of Parcel Map 12574, in the City of
Carlsbad, County of San Diego, State of California.
APN: 205-190-25-12 Acres ....... 4 ..... 2 ...... 7 __ _ Proposed No. of Lots/Units __ o ____ _
(Assessor's Parcel Number)
GENERAL PLAN AND ZONIN&--
Land Use Designation Recreation/Commercial/Office (RC/O)
Density Allowed -"N_.,/-=-A=--___ Density Proposed ...;;.N..._/=A ____ _
Existing Zone -"R __ --P _____ Proposed Zone -"R-=----P __ _
Surrounding Zoning and Land Use: (See attached for information on Carlsbad's Zoning
Requirements)
Site
North
South
East
West
PUBLIC F ACILffiES
Zoning
R-P
OS
R-3
R-1
T-C
School District Carlsbad Water District
Land Use
Office Building
Holiday Park
Hotel
Residential
Interstate 5
Carlsbad Sewer District Carlsbad
Equivalent Dwelling Units (Sewer Capacity)-"N ..... /-=-A=--------------
Public Facilities Fee Agreement, dated -"M=ar=ch==-=1=0~, -=-1.-99,___4...__ __________ _
ENVIRONMENTAL IMPACT ASSESSMENT
,_ Negative Declaration, issued __________________ _
_ Certified Environmental Impact Report, dated ____________ _
Other, Exempt per Section 15303 of CEOA Guidelines.
VL:vd
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0[SCLOSL'RE STATEMENT
!.,:,ci_:c.:.,-r.·s 3-;-;.-":1•◄E:',, -:F ·:·sc·.:=si.;~e OF CERTAIN CWNERSHI? !NTErlESTS ON ALL. A?-'l_!CA":":CNS t',l)..\C)-4 NILL, .::::-:1.., ;:;E
:,sc;:;cT'.CN.:.;:;y A.:::T:CN ::N -:-:--s PART CF T:.;E C:iY CCL.NCiL CR ANY A??OINTSO 80AR0. CCMMISSICN CR C::MMrr'!::.
P1ease Print)
7he fcllow,ng infor~ation must be disclosed:
1. Applicant
List the names and addresses of all persons h~ving a ~inancial interest in the application.
David Kaplan US WEST Cellular of CA, ~
Ibis Chestnut Avenue, Suite G2 3785 Sixth Avenue
Carlsbad, CA 92008 San Diego, CA 92103
2. Owner
List the names and addresses of all persons having any ownership interest in the property involved.
(same as above) (same as above) · · ,_
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3 .. If any person identified pursuant to (1) or (2) abov, is a corporation or partnership, list the names anc.
addresses of all individuals owning more than 10% of the shares in the corporation or owning any partnersn,p
interest in the partnership.
US WEST Cellular of CA, Inc.
is wholly owned and operated by:
0 S WEST N~wvector Group, Inc.
3350 161st Avenue S.E.
Bellevue, WA 98009-2211
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4. If any person identifl~ pursuant to (1) or (2) above is a non-profit organization or a trust, list the names ana '
addresses of any person serving as officer or director of the non-profit organization or as trusteit or benefic:ar, .
of the trust.
n/a
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FRM00013 8/90
2075 Las Palmas Orive • Carn:.;bad. California 92009-48S9 • (619) 438-1161
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olosure Statement PcJge 2
"'"' Have you had mere tr.an S250 worth of business transacted -~1th any member of City statf. 2:a~:s
Comm1ss1ons, Comrn:ttees and Council w1th1n the past twelve months?
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Yes No ~ if yes. please Inc1cate person(s) _____________________ __:_
~ ,, dtfintd u: 'Any 1nd1v1du11. hrm, cocartntrsn,c. 10,m venture. u10.e11tion. soe1&1 club. fratemal organ,zation. ccr00r1110n. estate :r·~st.
,,c11v1r. syno,catt, tn,, ano any ouier county, crty and county, crty mun1c1pa1rty, d11tnct or otntr pc1111caJ 1u0dr,,11,on, or any 01n1r ;r::i..c :ir
comc,nat1on acting as a unrt.' -
(NOTE: Attach additional pages as necessary.)
(see letter of authorization for ~ ~
Signature at Owner/date ~ature of applicant/date
US WEST to apply for all planning
& zoning entitlements) Larry Doherty
Print or type name of owner Print or type name of applicant
FRM00013 8/90
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RADIO FREQUENCY PROPAGATION STUDY
CARLSBAD CELL SITE ALTERNATIVES
US WEST NewVector Grdlip
Written by:
Daniel Mieszala/BSEE
San. Diego Systems Engineer
US WEST NEWVECTOR GROUP
Data gathered by:
Daniel· Mieszala
Raymond Brunet/San Diego Field Engineer
David Murpree/San Diego Optimization Engineer
September 28; 1993
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Purpose
• US WEST NewVector Group
Carlsbad Cell Site Alternatives.
Pagel
The purpose of this report is to· provide a brief description of why U S WEST
NewVector needs to continue to add cell sites to their cellular system. I_n addition, this report
will demonstrate the need for a cell site in the Carlsbad area. Trjs report will present the
technical parameters and specific testing performed while selecting a cell site.
Background
There are three major factors cellular providers use to determine the need for a cell
site. These factors are: coverage, capacity and transition. Each site will involve one or more
of the major factors and will have a "trigger" that calls our attention to the need for an
additional site.
Coverage is the primary concern in cellular systems that are expanding into non-
• metropolitan areas. Cellular system coverage is determined by line of sight or near line of
sight~ therefore, coverage is an issue in. areas where terrain limits propagation of the radio
signal. San Diego is an example of an expanding need for coverage in difficult terrain. Lack
of suitable coverage is detennined by looking at signal strength in an area and determining if
the signal strength is strong enough to process a call properly. A common "trigger" to
coverage problems is an increase in customer complaints in reference to a specific area.
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Capacity is the amount of traffic or the number of calls a cell site can process at one
ti_m_e. It is important that a cell site can process all traffic in a given geographical area. To
determine if a cell site is reaching capacity, statistics on channel usage are gathered. The
channels allocated to the cellular spectrum are limited; therefore, cellular providers must reuse
frequencies at one or more cell sites within a cellular system. The reused frequencies must be
placed far apart geographically so a mobile phone can not •see" both cell sites using the same
or an adjace'! frequency. · Frequency reuse limits the number of radio channels that can be
placed into each cell site. Thus, once a cell site begins to reach its' prescribed capacity,
• • US WEST NewVector Group
Carlsbad Cell Site Altematives
Page 2
another cell site using different frequencies must be built and placed into commercial :iervice.
The new cell site _y.ould share traffic with the origional cell site.
Transiti~n cell sites are required when a cell site propagates _beyond the de!signed
coverage area resulting in interference to cell sites in other parts cf the system. ThEise cell
sites are usually high in elevation and usually one of the original cell sites built for the ~iystem.
C~ll sites, lower. in elevation, must be built around high elevation cell sites. This build process
is designed to duplicate desired coverage until the· original cell site can be removed from
service. The "trigger" for these kinds of sites .is complicated and requires extensive testing
and analysis.
Objectives
The proposed cell site in Carlsbad has three objectives, capacity relief, improved
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coverage, and a reduced "ping-pong" effect. A brief description of each objective follows. •
The first objective is capacity relief for the "Encinitas" cell site. This cell site is hi>~ated
in south Carlsbad. "Encinitas~ is one of the original cell sites built for the system. Capacity
must be increased or calls will be blocked.· A blocked call is a call that is not proi~essed
through the system. Blocked calls affect all customers including emergency servi~is and
"SAFE" call_ boxes. Channels can not be added to the cell site due to frequency
considerations.
The second objective is to provide better coverage in the Carlsbad Village ar~a and ·
along Interstate 5 in Carlsbad. These areas require strong signal strength to overcome
interference. &om the Los Angeles cellular system. Interference is especially strong during .the
summer months and prompts complaints from customers including businesses and public
agencies_. A strong signal level is needed to reduce interference and provide Carlsbad with an
acceptable I~ of service. The propo.S Carlsbad site must provide cellular coverage along· -: .:-::·
the Interstate 5 corridor nonh to Mission Blvd. and south to Palomar Airport Road. •
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US WEST NewVector Group
Carlsbad Cell Site Alternatives
Page 3
The third objective for Carlsbad is to eliminate the "ping-pong" effect in the Buena
Vista Lagoon are8:. The "ping-pong" effecris a situation where a call is "handed off' back and
forth between two or more cell sites. Weak signal strength from the Oceanside and Encinitas
cell sites creates a situation where a call is "handed-off' to our El Camino Real cell site ·
located east on Highway 78. The El Camino Real cell site is a good service provider for a
very short time in the valley; however, service decays rapidly as vehicles leave the valley. An
"emergency hand-off' attempt must be made for the call to stay on the air and if the hand-off
is not made, the call is disconnected. The Carlsbad cell site must maintain a strong signal level
through the valley to avoid unwanted "hand-offs" to the El Camino Real.
Test Description
US WEST New Vector tested four possible sites during our original evaluation of the
• Carlsbad area in November of 1992. Four additional sites were suggested by the
neighborhood planning group and the City of Carlsbad, in September of 1993. Testing of the
four additional sites was conducted September 19, 1993 to September 25, 1993. The tests
results from September of 1993 were compared with the test results from November of 1992.
These results are discussed below.
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Cellular testing is performed using a mobile telephone and an adjustable height tower.
An omni directional antenna is placed on the top of the tower. The tower transmits a signal,
equ~ in all directions, along the horizon. Vehicles with computer controlled test equipment
are driven through areas of interest, monitoring cellular service l~els and the test transmitter.
Information is gathered and stored via computer. The data is transferred to a sophisticated
graphics computer that plots the data on to a computer monitor. Data analysis is conducted
to evaluate the performance of the si~es. In addition, data analysis and evaluation provide a
means for comparison with system objectives .
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Analysis
The follo~ng sites were tested, analyz~d and evaluated.
US WEST NewVectc,r Group
Carlsbad Cell Site Altt!rnatives
Page 4
· C~rlshad Village Drive (Vacant LQt Next to the Fire Station) .. This site was tested
w_ith a 65 foot tower. This site provides coverage to Mission Blvd. on the no11h ~ith
approximately the same signal strength as Chase Field. To the south, the _signal strength drops . .
off severely at '.famarack Avenue, comes back again for a short while then fades away before
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Palomar Airport Road. The drop of the signal strength !<Ube south, causes "ping-ponging",
handing back and forth between sites-. Coverage onto Highway 78 east bound is limited from
this site. This site does not provide the needed capacity relief for Encinitas.
Pio Pico (Pocket Park). A '100 foot tower is be required to provide the same signal
level as the Carlsbad Village Drive site. This compromises the needed perfonnance from this
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site. The signal strength to the south drops off to quickly and then rises again creaiing the
"ping-pong" effect. Coverage onto Highway 78 east bound is limited from this site. This site •
does not provide the needed capacity relief for Encinitu.
Pio-Pico (Maintenance Yard). Performance of this site is comparable the Pocket Park
site. A 100 foot tower is required to clear the ridge to the south and provide marginal
perfonnance in the area. Performance to the north is the same u Chase Park. This she does
not meet the capacity relief requir~t for the ~ reason u the fire departme:11t site.
Coverage onto Highway 78 east bound is limited from this site.
PiO:.Pico (north end of parking lot ne:rt to the community gartkn). This site ri=quires
an 80 foot tower to provide coverage comparable to coverage &o_m the tire station. This site
does not meet the capacity relief requirement for the .same reuon u the fire department site.
Coverage to the north is approximately the same u the Chase Park site. Coverqe onto
Highway 78 east bound is linut«t" from this site.
Oak and State Street (City of Carlsbad maint•11t11a yard). The cellular perforimance -_:::.
of this site is unacceptable. Coverage to the north and south is limited. Coverage could be
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• • US WEST NewVector Group
Carlsbad Cell Site Alternatives
Page 5
increased by going to an anteMa approximately I 00 feet tall, but this would cause interference
to the rest of syst~m and subject the site to receive interference from the San Diego and Los
Angeles systems. Even with a 100 foot tower, drops in signal levels after _Tamarack would
occur, limiting the capacity relief for Encinitas.
Tyler Street Industrial Area. Much like the city maintenance yard, the coverage to the
north and south is extremely limited. Coverage could be improved by going to approximately
l 00 feet tall, but this would cause interference to the rest of system and subject the site to
receive interference from the San Diego and Los Angeles systems. Even with a l 00 foot
tower, signal strength drops after Tamarack. This drop in signal st~ength does not provide the
needed capacity relief to "Encinitas". The perfonnance of this site is unacceptable.
Office Condominium Building (Chestnut and Interstate 5). This site ·provides
coverage to the south but is extremely limited to the north. Signal levels do not accommodate
• a "hand-otr' to eastbound Highway 78. Coverage in the downtown Carlsbad area is poor
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from this site. This site does not meet capacity or coverage requirements.
Water Tank (Carlsbad Vii/age Drive at Donna). This site does not provide strong .
signal levels along Interstate 5 at any point. Coverage to the north is fair but drops off after
Tamarack to the south. The signal rises again at Canon which causes the "ping-pong" effect
discussed earlier. This site generates interfering signals as far north as the county line and as
far south as La Jolla. "Receive interference" from San Diego and Los Angeles harms caJI
quality on the reverse path in the Carlsbad area and along Interstate 5.
Water Tanlc (SkyliM Rd). This site does not provide strong signal levels along
Interstate S at any point. Coverage to the north is limited, dropping of quickly into the Buena
Vista Lagoon area. This site generates interfering signals as far north as the county line and as
far south as La .Jolla. "Receive interference" from San Diego and Los Angeles degrades call
quality on the reverse path in the Carlsbad area and along Interstate S .
• • US WEST NewVector Group
Carlsbad Cell Site Alterr1atives
Page 6
The following table sunu:narizes the perfonnance tradeoffs of the perspective sites:
·Table l
Coverage Comparisons
,---------,-----.,..-----,-----.,..----~------·--Site Coverage Downtown Bi&bway Interference
Chase Field
to Nortb Carlsbad 78 Pote~1_ti_11_
ood ood
Fire Station
Pocket Park
Maintenance Yard
Industrial Arca
Office Condo.
Water Tank 1 fair
Water Tank 2 fair
• Assuming tower height of 100 feet.
Summary
Due to terrain and coverage requirements, the Chase Field site is uniquely superior to all of
the sites tested. Chase Field provides good signal strength to. three of the four areas of
concern. The terrain of the Carlsbad area -provides limited options for continues cdlular
coverage. The area spans from sea level to three hundred feet going east. To the north and
south, gentle ridges rise up and then fall into coastal lagoons. Opt~mum site placement would
be much like the center stage in an amphitheater where all· areas are capable of seeing it.
Chase field sits in this "bowl" and will provide the best coverage and service.
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