Australian Capital Territory
(Planning and Land Management) Act 1988
Draft Amendment of the National Capital Plan
Amendment No. 18 (ACT Telecommunications Plan)
Appendix X: ACT Telecommunications Plan
National Capital Planning Authority
The Web version of this document http://www.tomw.net.au/ncpatw2.html is provided as a community service by Tom Worthington, Australian Computer Society, by permission of the NCPA. See also: Draft Amendment of the National Capital Plan, Amendment No. 18 (ACT Telecommunications Plan): http://www.tomw.net.au/ncpatw2.html | Background Report: http://www.tomw.net.au/ncpatw1.html
Contents
1.0 BACKGROUND
1.1 Aim of Telecommunications Plan
1.2 Relationship with Telecommunications National Code
1.3 Role of this Policy Plan
1.4 Facilities Covered by this Policy Plan.
1.5 Scope of the Policy Plan
1.6 Land to Which this Plan Applies
1.7 Determining Planning Responsibilities.
2.0 DEVELOPMENT PRINCIPLES AND POLICIES.
2.1 Design and Assessment Goals
2.2 Design and Location Principles and Policies
Principle 1: Avoid areas of landscape or townscape importance.
Principle 2: Avoid interfering with views.
Principle 3: Choice of site.
Principle 4: Choice of antenna location and mast sharing.
Principle 5: Ameliorative Actions.
2.3 Network Master Plans.
2.4 Balancing Performance and Impact
2.5 Leasing Policies
Background
No Exclusive Use
Lease Term
Decommissioning and restoration
3.0 DEVELOPMENT CONTROL
3.1 Application Procedure
3.2 Alterations and additions
3.3 Environmental Assessment
3.4 Application Requirements
Scope of Assessment Report
Community Notification
Site Sensitivity
Scale of Facility
3.5 Environmental Impact Assessment Guidelines
3.6 Visual Impact Assessment Guidelines
Glossary of Terms
1.0 BACKGROUND
1.1 Aim of Telecommunications Plan
The aim of this Telecommunications Plan is to provide for the development of telecommunications facilities as essential elements in the operation of a dynamic and modern city in a manner which takes into account the important natural setting of the national capital and its unique aesthetic, cultural and environmental qualities.
1.2 Relationship with Telecommunications National Code
Nothing in this Telecommunications Plan shall vary any provision of the Telecommunications National Code made pursuant to the Subsection 117(1) of the Telecommunications Act 1991.
1.3 Role of this Policy Plan
The Telecommunications Plan is to assist with the control of development of telecommunications facilities in the ACT. The Plan covers work undertaken by telecommunications carriers in accordance with the Telecommunications Act 1991 and the Telecommunications (Exempt Activities) Regulations.
The Plan is to be implemented by the National Capital Planning Authority (NCPA) in consultation with the ACT Planning Authority (ACTPA).
The Telecommunications Plan:
- Provides guidance on the principles for selecting appropriate sites and assessing their sensitivity.
- Determines the main criteria to be used in assessing the design quality and visual impact of telecommunications facilities, including towers, masts, antennas and associated structures.
- Provides guidance on the undertaking of an adequate visual impact assessment.
- Outlines the information which should be submitted by carriers for consideration by the relevant authority.
- Provides for community consultation in relation to certain proposals likely to have a significant impact on the city.
1.4 Facilities Covered by this Policy Plan.
This Telecommunications Plan controls the erection of telecommunications structures (including masts, antennas, dishes and ground structures) which are subject to the Telecommunications Act 1991 and the Telecommunications National Code.
1.5 Scope of the Policy Plan
The following specific items are subject to this Telecommunications Plan:
- Ground based antenna masts and headframes.
- Rooftop antennas, headframes and associated structures which break the silhouette of the building.
- Microwave or satellite antennas or dishes that are visible from a public place and greater than 1.5 metres in diameter. This includes both ground and rooftop mounted installations.
- Any equipment structures (buildings and fenced enclosures) associated with the above.
Within Designated Areas, minor facilities not covered by this Plan are still subject to Works Approval from the NCPA.
1.6 Land to Which this Plan Applies
This Plan applies to all land in the Australian Capital Territory excluding Jervis Bay.
1.7 Determining Planning Responsibilities.
The following table summarises planning responsibilities in the ACT in relation to this Plan:
ACT Planning Responsibilities
Planning Status Designated Areas Land Outside
Designated Areas
Operative Planning National Capital Plan Territory Plan
Instrument (Telecommunications National Capital Plan
Plan) (Telecommunications
Plan)
Authority undertaking National Capital ACT Planning Authority
assessment Planning Authority
Form of assessment: Consideration of Works Report to the National
Approval Capital Planning
Authority.
Nature of Works Approval Determination of
determination by consistency with the
National Capital NCP.
Planning Authority
Areas in which Special Requirements apply: Where telecommunications facilities are proposed within an area to which Special Requirements apply, the Special Requirements will continue to apply as well as the provisions of the Telecommunications Plan. In these areas, the ACT Planning Authority will undertake the assessment and refer a report on the assessment to the NCPA for determination of consistency with the NCP.
2.0 DEVELOPMENT PRINCIPLES AND POLICIES.
2.1 Design and Assessment Goals
The responsible planning authority will assess each proposal taking into account the nature of the proposal and the context of the location. The goal is to achieve the solution which best meets community and proponent requirements.
In assessing any proposal, the following goals will be pursued:
- To ensure that a functional telecommunications service is provided in a way that meets community expectations.
- To protect the character of Canberra as the National Capital. This includes the landscape setting of the city and, in particular, the inner hills.
- To minimise any impacts from the construction of the facility on the environment.
- To minimise visual impacts on urban areas.
In assessing particular proposals, it may also be necessary to take into account the cumulative impact of further installations in the locality.
2.2 Design and Location Principles and Policies
The following design and locational principles provide guidance on the issues that should be considered when carriers are choosing a site and preparing a design proposal. They are, by their nature, generalised and intended to be applied in a wide variety of situations.
Principle 1: Avoid areas of landscape or townscape importance.
Installations will avoid having a significant impact on areas of landscape or townscape importance even if this means relocation to a site which is less acceptable for radio purposes or results in an increase in the number of installations.
This principle applies where a facility is being considered for location within, or will impact upon, areas in the National Capital which have national significance and areas that are considered to be of great importance to the amenity and character of Canberra.
These areas include:
- The Central National Area (which includes Lake Burley Griffin and the open space areas around the Lake)
- National Capital Open Space
- Main Avenues and Approach Routes
- Inter-town routes and parkways if in a landscape setting
- Extensive urban areas
- Sites which impact on the landscape setting of Canberra
- Sites having environmental or heritage significance
This principle also applies where the installation would affect important distant views to natural features such as the Brindabella Range.
Certain inner hills are considered unlikely to be appropriate locations for additional structures. These hills include:
- Red Hill
- Mount Mugga
- Black Mountain
- Mount Pleasant
- Mount Ainslie
No additional structures will be approved on these hills which either:
- break the natural skyline, or
- significantly impact on the sideslopes.
This does not preclude the use of existing masts and structures subject to a detailed assessment of the impact of any additional antennas. Sideslope locations are not precluded where the impact of the facility is considered to be acceptable.
Principle 2: Avoid interfering with views.
Sites which may affect views should be avoided. If there is no alternative, installations will need to be located and designed to reduce impacts to within acceptable limits.
There is a technical need for antennas to be located where they can function with good transmission and reception signal paths. This may mean open and elevated sites which are likely to be visible over a wider area. In these cases, the task is to minimise the impact while accepting that a degree of visual impact will occur. Sites on exposed ridgelines should be avoided.
The resultant solutions should not create any significant disruption to the visual environment by intruding extensively on views.
Principle 3: Choice of site.
Sites where a mast or antenna will be incongruous should be avoided wherever possible. Areas where there are existing vertical elements will be preferred.
Even when a mast can be located in areas where there are existing vertical elements, it may still be considered an intrusion into the local environment. Such sites should be avoided if there are acceptable alternative sites more appropriate to the character of the locality.
Where a choice exists, low rise, small scale residential areas should be avoided and commercial, industrial or transport related land with existing utility structures such as lighting columns or other vertical structures should be selected.
Principle 4: Choice of antenna location and mast sharing.
The mounting of antennas on a building or an existing mast is the preferred way of accommodating a new facility. Where there are a number of antenna mounting and locational options, care is to be taken to choose the most appropriate.
The advantage of mounting the antennas upon an existing structure, whether it be a building, an existing mast, a tower, or some other structure, is that it eliminates the need for the erection of a new mast. The erection of a new mast is more likely to be noticeable or incongruous, than the use of an existing mast or building.
In considering the rooftop mounting of an antenna, any impact on the following should be avoided:
- Active pedestrian streets and urban spaces
- Building frontages
- Heritage buildings
In some instances, however, it may be preferable to erect a new mast because the potential impact on a building or the additional equipment on an existing mast may be more significant. A balanced judgement must be made according to the particular circumstances of each case.
If a new antenna is proposed in a locality where there is another similar antenna, evidence may be required that the possibility of sharing the facility has been explored and not pursued for reasons acceptable to the NCPA.
Principle 5: Ameliorative Actions.
Whenever possible, sites should be either screened from the most prominent views or have a backdrop of trees, buildings or high ground. Ideally sites should have both a well screened foreground and background keeping to a minimum the height of mast and antenna exposed to view. Where parts of an antenna or mast are exposed, they are to be finished in a colour which minimises their intrusiveness.
Antennas or masts will be most prominent if located in open areas or in positions which are viewed against the skyline. From an operational perspective, these may be the preferred sites. If such sites are to be pursued, an assessment of the visual impact will play a critical part in the consideration of the proposal.
Where a mast or antenna will protrude above the treeline or skyline, consideration is to be given to an appropriate paint treatment. The aim is to blend the structure as well as possible with the local landscape. The use of low reflectivity paints will be an important consideration if there is a likelihood of the mast and antenna becoming prominent in certain light conditions.
Proposals should address the need for additional foreground planting particularly as a means of screening the ground installation. Plant selection should be consistent with the surrounding landscape character.
2.3 Network Master Plans.
Carriers are expected to prepare a Network Master Plan for their existing and proposed operations in the ACT.
These plans will identify all existing sites and proposed sites. For each proposed site the nature of the anticipated facility will be stated including the type, height and function of mast.
Upon submission of the Network Master Plan to the NCPA, a preliminary assessment of the proposed sites will be undertaken and advice provided on the scale of the facility, the sensitivity of each site and any particular matters of concern to be addressed in any subsequent formal submission.
This process will enable carriers to assess the merits of proposed facilities. It will also allow the planning authorities to anticipate impacts arising from network development.
2.4 Balancing Performance and Impact
When considering proposed antennas in sensitive locations, the performance requirements will be carefully considered to minimise impacts. In circumstances where additional cost is involved to achieve a better solution, this will be the responsibility of the carrier.
When assessing environmental impacts particular emphasis should be given if the impacts arising are of a long-term nature or are likely to be irreversible.
2.5 Leasing Policies
Background
In the ACT any development undertaken by private enterprise must be on leased land. Where a new antenna is to be erected on unleased land or requires the issue of a new lease or amendment of an existing lease is required, the following leasing policies will apply.
General development conditions included in leases will address:
- The protection of the local environment from adverse construction and maintenance impacts.
- Control of erosion.
- Maintenance of the site and any required vegetation, revegetation and site stabilisation.
No Exclusive Use
In some locations it may be considered unacceptable to allow a proliferation of antennas. In these cases, carriers will be required to investigate the co-location of antennas with other antennas. While it is accepted that it is difficult to foresee the future demand for antennas in certain locations, the principle to be followed is one of avoiding a proliferation of antennas in any location or locality.
Lease conditions will:
- not grant exclusive use of a site to a single operator or carrier.
- provide for the use of existing facilities by other carriers on a mutually agreed basis.
Lease Term
With rapidly changing technology, a long term lease may not be in the public interest. Accordingly, the term of any new or amended lease will be generally not in excess of 20 years.
If the facility is still required at the expiry of a lease, a carrier may renegotiate a new or extended lease. This may be subject to being able to demonstrate the ongoing need for the facility.
Decommissioning and restoration
At the expiry of a lease, or after a facility is no longer required any structures are to be removed from a site and the site is to be left in a condition consistent with the surrounding land.
Lease conditions will:
- Limit the initial lease term to 20 years or less.
- Contain provisions which require that structures are removed from the site and any necessary restoration is completed at the expiry of the lease.
3.0 DEVELOPMENT CONTROL
3.1 Application Procedure
No construction of a facility will be undertaken without approval from the NCPA.
The application will be lodged with the NCPA and a copy will be provided to the ACT Planning Authority to facilitate assessment.
In Designated Areas: Following assessment of the proposal, the NCPA may issue formal Works Approval. Such Works Approval is required for development to take place including works for telecommunications facilities. The ACTPA, following receipt of a copy of the application, may provide comments to the NCPA to assist with assessment.
In all Other Areas: The ACTPA will prepare an assessment report and submit it to the NCPA. After receipt of the assessment report, the NCPA may indicate to the applicant whether the proposal is consistent with the provisions of the National Capital Plan.
It is recommended that proponents consult with the NCPA and the ACTPA at an early stage to determine the significance of the location and identify specific concerns. This consultation procedure will provide guidance as to the scope of the information which will be required to support the application.
The following steps may be followed depending on the anticipated impact of a proposal.
- Preliminary discussion with the NCPA.
- Discussions about the site and proposed structure with the assessing authority.
- Lodgement of formal application with the NCPA.
- Community notification (see 'Community Notification' below at 3.4).
3.2 Alterations and additions
Any alteration or additions to facilities shall be treated as applications in accordance with this Plan (refer to Section 1.3).
3.3 Environmental Assessment
The aim of the assessment process is to ensure that the protection of the environment is taken into account in reaching a decision to approve a proposal. The interests of the community need will also be taken into account in the selection of a site and the assessment of a proposal.
The environmental assessment process provides a means of making informed decisions and is, therefore, an essential part of the site selection and approval process.
The role of the assessment procedure is to evaluate the relative technical and environmental factors with a view to determining a solution which is acceptable to both the community and carriers. Accordingly, some technical modifications (having regard to licence obligations) may be required to bring environmental, particularly visual, impacts within acceptable limits. Applications should include details about the technical performance of the site proposed and of the alternative sites which have been considered.
3.4 Application Requirements
Applications should be accompanied by an Environmental Assessment Report prepared in the preferred form of application as set out in Appendix A: Environmental Impact Assessment Report.
Scope of Assessment Report
The scope of the Environmental Assessment Report and the level of assessment by the planning authority will vary according to the sensitivity of the site and the scale of the proposed facility. Applicants are required to address these factors when preparing a submission.
The appropriate level of assessment should be determined at an early stage. Early consultation with the NCPA is appropriate.
Community Notification
Following receipt of an application and where the assessing planning authority is of the opinion that a proposed facility is likely to be of concern to the community, public consultation will be required.
Any proposal which is high to medium in its terms of its sensitivity or scale will be the subject of community notification.
The applicant will be required to advertise the proposal in the principal newspaper circulating in the locality on two occasions. The advertisement will describe the proposal in terms of the location and the nature of the proposed structure and invite interested parties to submit written comments to the appropriate planning authority.
The advertisement will state where the application will be available for inspection. This will generally be at the offices of the assessing planning authority.
Any comments received will be used in the assessment of the proposal.
Consultation may also be undertaken in conjunction with the review of a Network Master Plan or as a precursor to preparation of formal submissions.
Site Sensitivity
The following table provides a general guide to determining the likely sensitivity of a site and hence the degree of rigour required in conducting the visual assessment and design review.
Sensitivit Visual impact on:
y
Low Small/confined sections of residential areas
Service trades or industrial areas
Medium Town Centre, Group Centre or Local Shopping centre
Limited urban areas including local open space areas
Local roads
Inter-town routes and parkways that are in an urban
setting
Rural areas
Broadacre areas
High Central National Area
National Capital Open Space
Main Avenues and Approach Routes
Inter-town routes and parkways if in a landscape
setting
Extensive urban areas
Sites which impact on the landscape setting of
Canberra including the interference with distant
landscape views from urban areas
Sites having environmental or heritage significance
Viewsheds of historic buildings and places
Scale of Facility
A guide to the scale of a proposed facility is provided in the following table. Generally, the greater the scale of the proposal, the more rigorous the assessment that will be required.
Scale:
Type of installation
Low Monopoles up to 10 metres high
Rooftop antennas not breaking the silhouette of the
building or which integrate with the architectural
details of the building
Medium Monopoles between 10 and 20 metres
Rooftop antennas breaking the silhouette of the
building
High Lattice masts greater than 10 metres in height
Monopoles greater that 20 metres in height
Antennas mounted on a pole or tower with solid
elements having a total surface area greater than 5
m2 or a single element with a surface area of greater
than 1.5 m2
3.5 Environmental Impact Assessment Guidelines
The following matters should be addressed in any report to the relevant planning authority on the possible impacts of a proposed facility.
The assessment should by undertaken so as to reflect the specific nature of each proposal, its context and its likely sensitivity. Accordingly, the emphasis will alter in each case.
Checklist
ITEM: COMMENT:
Introduction. Background information on the report
and its role.
Purpose and need for the This section should establish the
proposed facility need for the facility and its role
within a network.
The anticipated need for, and likely
locations of, further installations
will be stated to provide an overall
appreciation of the impact .
The feasibility of co-masting will
be discussed.
Design and location Location of the facility (antenna
and ground installation).
Details of existing trees in the
vicinity including identification of
any trees to be removed.
Details of adjacent land uses which
may be affected.
Design drawings of the antenna and
ground installation.
Description of materials and
finishes.
Details of vegetation, revegetation
and site stabilisation.
Details of access.
Arrangement for the provision of
power.
Details of any external lighting.
Description of the physical Address potential impacts arising
environment and possible from the construction and
physical impacts maintenance of the facility, (eg:
flora, fauna, noise, erosion and
runoff control, construction of
access and power supply, heritage
and archaeological aspects).
Focus on aspects which are
particular to the site.
Details of measures to protect the
local environment during
construction (eg: erosion and runoff
control).
Assessment of any ongoing impacts.
Visual Assessment. Assessment of the impact of the
proposal in visual terms. Refer to
Appendix B
.
Social Issues (if Details of socio-economic aspects
appropriate). supporting the site selection.
Discussion of community
considerations.
Discussion of heritage aspects.
Conclusion/ Summary of the relevant issues.
recommendations Discussion of any alternative
technical and design options.
Recommended actions to mitigate or
minimise impacts.
Justification of the proposal.
Conclusions
Plans Location Plan.
Site Plan/Landscape Plan.
Design of facility (plan and
elevations of antenna and ground
installation).
Plates Photographs illustrating the visual
impact of the facility.
3.6 Visual Impact Assessment Guidelines
The extent of the visual impact assessment will depend on the sensitivity of the site. The more sensitive the site, the more care that will be required in the design and siting of the proposed installation.
The assessment should be conducted to evaluate the impact of the proposed structure as well as to review and modify the proposal to reduce the potential impact.
It is acknowledged that people's appreciation, perceptions and tastes in response to the visual impact vary. Accordingly, these guidelines provide a procedural framework to facilitate the assessment process.
Design and siting factors
The following factors need to be considered in undertaking a visual impact assessment of a proposal.
Context: The visual catchment of the site (and
installation).
The elements that go to make up the
landscape or townscape context, including
slope; cover, colour, vegetation or built
environment, and major features.
The scale of the proposed elements.
Presence of other antennas and vertical
elements.
Any special landscape value of the site.
Cumulative impact of this and further
antennas.
Relationship to existing vegetation and
the potential intrusiveness of the
installation.
Relationship to buildings.
Siting: Height of the antenna in relation to the
surrounding landform.
Topographical features and natural
vegetation.
Impact on skyline or treeline.
Distance from sensitive receptors.
Materials (particularly relevant for
Appearance: ground installations).
Colour.
Reflectivity.
Design.
Height.
Antenna type and bulk.
Proposed landscape work.
Extent and nature of visual impact
Where a site is considered to have a medium to high sensitivity, an assessment should be undertaken of the visual impact of the structure. The preferred method of assessment is:
- Locate either a travel tower (cherry-picker) or gas balloon on the site and at the height of the antenna.
- Determine areas from where the structure will be visible. This can be done from the cherry-picker and by driving around the viewshed observing the cherry-picker or balloon.
- Photograph and assess the impact from various locations from which the structure will be visible. Important viewing points and public places should be considered.
- Assess the extent of visual impact and map the viewshed of the proposed structure.
A plan is to be prepared indicating the viewshed of the antenna, the location of any key viewing points. The scale of the plan will depend on the extent of visual impact.
In the case of high sensitivity sites, the NCPA is to be advised when a travel tower or gas balloon is to be in place so that an officer can observe the assessment process.
Scale of impact.
The scale of the impact should be considered as follows:
Close:
- Any impacts on the immediate area and relationship to surrounding uses. Foreground views and the impact of any ground structures should also be considered to 250 metres.
Local:
- As viewed from middle distances at the neighbourhood level or from roads and public places. Consider the scope of the impact and how extensively the structure will be viewed. Reflectivity to 1.5 kilometres shall be considered as certain light conditions may accentuate the prominence of the structure.
Broad:
- Whether the structure will impinge on any distant views or will break a natural skyline.
Evaluation.
The final assessment should draw together all of the issues identified and provide a conclusive assessment of the visual impact of the proposed structure.
Glossary of Terms
Antenna These are the actual receiving and sending
elements and may be small boxes or sticks.
Headframe This is a frame which may be triangular or
square fixed on top of the mast and to which
the antenna are fixed.
Mast This is the structure which supports the
antenna. It may be a single pole (monopole) or
of steel lattice style construction.
Sideslope This refers to the area of a hill located below
the skyline.
Viewshed The viewshed of a building or place is the
surrounding area from which the building or
place may be viewed.