ZF #2024-036: Consider a request for a Major Use Permit to allow for the construction and operation of a 140-foot-tall monopole cell tower and associated equipment on a 23.79-acre Agricultural Intensive (A-N) zoned parcel (APN 039-030-017). The project site is located immediately south of the City of Woodland and 0.25-mile west of County Road 99. An Initial Study/Negative Declaration (SCH #2025070236) has been prepared for the project. (Applicant: Carl Jones / Owner: Blake and Melissa Harlan Trust) (Planner: Aaron Brown)

That the Planning Commission:

 

Epic Wireless Group LLC (Applicant) is requesting a Major Use Permit to construct and operate a wireless telecommunications facility to increase wireless coverage and signal to the southwest part of the City of Woodland and along County Road 99 in unincorporated Yolo County. Yolo County requires a Major Use Permit for all large wireless telecommunication facilities exceeding 80 feet in height and constructed on parcels less than 40 acres in size on agriculturally zoned lands. The proposed project would directly benefit the region by improving wireless coverage and closing a service coverage gap in this portion of Yolo County for both current and potential users. The improved wireless service would benefit residents, travelers, agricultural operations, public services, and roadway safety in the area. Additionally, AT&T, in partnership with the First Responder Network Authority, will provide First Net capability, which is a public safety communications platform dedicated to first responders. AT&T will provide other wireless carriers the opportunity to collocate in the future, which may decrease the need for additional cell towers in this portion of the County.

The proposed project is a request for approval of a Major Use Permit to allow for the construction and operation of a 140-foot-tall monopole cell tower with 15 panel antennas, 12 remote radio units, a new pre-manufactured 3 bay walk up cabinet (6-feet by 12-feet) , and a 30-kW back-up generator (diesel powered), all within a 900 sf lease area on a ±23.79-acre parcel located in the Agricultural Intensive (A-N) Zone. Access to the property is from County Road 99 to the east via an unpaved private driveway. Energy will be provided through an approximately 200-foot-long power/fiber joint trench electrical easement to an existing wood utility pole. The lease area would be enclosed by a 6-foot-tall chain-link fence with barbed wire and access gate. The project will be constructed and operated by AT&T Mobility.

The project site is located on a ±23.79-acre parcel immediately south of the City of Woodland, approximately 0.25-mile west of County Road 99, and approximately 500 feet south of El Paseo Drive. The property is zoned Agricultural Intensive (A-N) and designated by the 2030 Countywide General Plan for Agriculture (AG). The property is undeveloped and is currently planted in irrigated row crops. There are no proposed changes to the existing farming operations.

The project applicant previously applied for a Minor Use Permit (ZF2023-035) in October 2023 at a nearby site (APN 039-030-014). The previous request was for a 128’ monopole cell tower within a 900-sf lease area, located approximately 280 feet south of the nearest residential homes along the southern border of the Woodland city limit. That application was withdrawn in May 2024 after an initial agreement with the property owner failed to materialize into an official lease agreement. The applicant submitted a new application to relocate the proposed cell tower on a nearby parcel with a property owner willing to lease space. The applicant concluded that the current proposal would allow AT&T to close its service coverage gap in this portion of the County.  The proposed tower is approximately 0.43 miles to the east of the location that was previously proposed under ZF2023-035.

ANALYSIS

The proposed project implements policies in the Yolo County 2030 Countywide General Plan that encourage expanded coverage and enhanced quality for wireless communication technology. The proposed project, as designed and conditioned, is consistent with the review criteria of the Wireless Telecommunication Facilities Ordinance, adopted by Yolo County as part of the County Code (Section 8-2.1102). Development standards require an applicant to demonstrate that collocation opportunities on existing towers have been exhausted or are not available in the area. AT&T provided an alternative site analysis that assessed 10 other potential sites and concluded that the proposed site was the most feasible option. The alternative sites assessed were not feasible due to the inability to acquire and/or lease the ground space, or the locations were in an area that would not adequately fill the existing coverage gap.

The project applicant provided a Radio Frequency Emissions Compliance Report prepared by Waterford Consultants, a firm that specializes in FCC and FAA regulatory compliance (Attachment I). The report concluded that the Harlan Ranch Cell Tower installation proposed by AT&T Mobility will be compliant with radiofrequency radiation exposure limits of 47 C.F.R. §§ 1.1307(b)(3) and 1.1310, and that proposed operation will not expose members of the general public to hazardous levels of radiofrequency radiation energy at ground level or in adjacent buildings. Further, the report concluded that the proposed project complies with Federal Communications Commission (FCC) standards for human exposure to radio frequency emissions. Pursuant to 47 U.S. Code § 332(c)(7)(B)(iv) the County may not regulate or deny the project based on environmental or health effects of radio frequency emissions where FCC compliance is demonstrated.  Additionally, AT&T proposes radiofrequency radiation alerting signage, and restricting access to the antenna to authorized personnel that have completed radiofrequency radiation safety training only.

Epic Wireless, on behalf of AT&T, provided a height justification statement for the proposed 140-foot-tall monopole cell tower that describes the need for antennas to be high enough to propagate an effective signal throughout the service gap area. Decreasing the tower height would reduce the target coverage area and decrease space for co-location opportunities for other service providers.

Aesthetics of the proposed cell tower were taken into consideration and analyzed in the Initial Study/Negative Declaration. The residences to the north of the proposed tower would have a view of the cell tower from their backyard, looking south, while the view of the tower by other residents in the neighborhood would mostly be screened by the houses adjacent to the project parcel. The tower will be located over 500 feet south of the closest residential houses. The visual elements introduced by the project would be similar in nature to those of the existing landscape. Existing visual elements include five power poles along the west side of County Road 99, north of the access road, and several power poles to the south of the access road, extending into the distance. Photo simulations of the proposed cell tower are included in Attachment G.

Telecommunication services are limited in the southwest part of the City of Woodland and along County Road 99 in the unincorporated area of Yolo County. The proposed facility would improve wireless communication coverage in this targeted area. The nearest existing wireless telecommunication facility is approximately 1.3 miles north of the project site, which provides limited coverage to the area that would be covered by the proposed facility. As mentioned above, this project would expand AT&T’s network and improve call quality, signal strength, and wireless connection services in Yolo County and improve wireless services for residents, travelers, agricultural operations, public services, and others.
 

An Initial Study/Negative Declaration (IS/ND) was prepared for the project to analyze potential environmental effects associated with the proposed project in accordance with the California Environmental Quality Act (CEQA) (Attachment C). The IS/ND concluded that there is no substantial evidence to support a fair argument that significant environmental effects would occur. A “Notice of Intent” to adopt a Negative Declaration was circulated for public review from July 2, 2025, to August 1, 2025. Neighboring properties within 1,000 feet of the project, as well as those interested parties requesting project notification, were sent notices. Yolo County LAFCo, Yolo County Agriculture Department, and California Department of Transportation responded that they have no comments on the project. One verbal opposition comment was received via phone call expressing concern about aesthetics and radiofrequency radiation. Additionally, the Central Valley Regional Water Quality Control Board provided a list of comments/general permitting requirements. Agency comments on the IS/ND can also be found in Attachment H.

A Request for Comments was sent to local and regional agencies on November 26, 2024. The City of Woodland requested the tower height be reduced to 100 feet or moved to the southern end of the subject parcel for aesthetic reasons. The applicant stated that due to the topography in this area of the County, the proposed tower height of 140 feet is essential in order to provide consistent indoor wireless coverage and broadband internet service to close the service coverage gap. Additionally, a reduced tower height would limit space for colocation opportunities for other service providers. Comments received from the Yolo County Environmental Health Division and the Yolo County Public Works Division can be found in Attachment H, and have been incorporated into the Conditions of Approval in Attachment E.

A Courtesy Notice was mailed to interested parties, as well as property owners within 1,000 feet of the project site on January 6, 2025. Additionally, the notification list was expanded to include any individuals that previously received notification for the withdrawn cell tower project located nearby (ZF2023-035). During the course of the application review process, staff received four phone calls and one email from members of the community expressing concern about the potential for radiation, visual/aesthetic concerns, and concerns about the installation of the tower decreasing property values.

The project will be subject to the requirements of the Yolo Habitat Conservation Plan/Natural Community Conservation Plan (Yolo HCP/NCCP), which includes the payment of land cover impact and mitigation fees and the implementation of Avoidance and Minimization Measures (AMMs) for Swainson’s Hawk, White-Tailed Kite, and Tricolored Blackbird, as well as pre- and post-construction surveys. These AMMs are included in the project’s Conditions of Approval (Attachment E).

In compliance with Assembly Bill (AB) 52 (Public Resources Code [PRC] Section 21080.3.1), a project notification letter was distributed on January 13, 2025, to representatives of the Cortina Rancheria Band of Wintun Indians of California, United Auburn Indian Community of the Auburn Rancheria, Wilton Rancheria, Ione Band of Miwok Indians, Torres Martinez Desert Cahuilla Indians, and Yocha Dehe Wintun Nation. No tribe requested to initiate formal consultation under AB 52. Yocha Dehe Wintun Nation provided a response to the County’s January 13, 2025, project notification and AB 52 consultation letter. In their response letter dated February 27, 2025, Yocha Dehe Wintun Nation indicated that they are not aware of any known cultural resources near this project site and a cultural monitor is not needed.

Notice of the Planning Commission meeting for the project was published in the Davis Enterprise on August 31, 2025, and mailed to property owners within 1,000 feet of the project site on August 29, 2025. Additionally, the notification list included any individuals that previously received notification for the withdrawn cell tower project located nearby (ZF2023-035).

Any person who is dissatisfied with the decisions of this Planning Commission may appeal to the Board of Supervisors by filing a notice of appeal with the Clerk of the Board within fifteen (15) days from the date of the action. A Planning Commission Appeal Form and appeal fee immediately payable to “County of Yolo” must be submitted at the time of filing. The Board of Supervisors may sustain, modify or overrule this decision. The Planning Commission Appeal Form can be accessed at the following link: https://www.yolocounty.org/government/board-of-supervisors/clerk-of-the-board/planning-commission-appeal