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Staff Report
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Report To: Planning and Development Committee
Date of Meeting: October 21, 2024 Report Number: CAO-006-24
Authored by: Amy Burke, Project Manager – Strategic Initiatives
Submitted By: Mary-Anne Dempster, CAO
By-law Number: Resolution Number:
File Number:
Report Subject: Clarington Cellular Service Enhancement Project
Recommendations:
1. That Report CAO-006-24, and any related delegations or communication items, be
received;
2. That Staff be directed to negotiate a agreements with Shared Tower Inc. for the
construction and operation of telecommunication towers at Fire Station 1, Fire
Station 3, and South Courtice Arena as identified in Report CAO-006-24;
3. That Staff be directed to negotiate a agreements with Shared Tower Inc. for the
construction and operation of a telecommunications antenna / tower system to
support addressing cellular coverage gaps in north Bowmanville, subject to
identifying an appropriate Municipally owned property location;
4. That the CAO be delegated authority to execute the agreements or any other
required documents, in a form satisfactory to the Deputy CAO, Legislative Services /
Solicitor;
5. That Staff be directed to support Shared Tower Inc. in seeking the necessary carrier
agreements to advance licensing and construction of the antenna systems as
quickly as possible;
6. That Staff report back to Council on the results of engagement with the Boards of
the Solina Community Hall and Tyrone Community Centre as identified in Report
CAO-006-24; and
7. That all interested parties listed in Report CAO-006-24, and any delegations be
advised of Council’s decision.
Municipality of Clarington Page 2
Report CAO-006-24
Report Overview
Staff have solicited interest from the telecommunications industry to identify potential
opportunities for collaboration to address gaps in cellular coverage throughout Clarington
using municipally owned property. In response, Shared Tower Inc. has requested to lease
portions of several municipal properties for the development and operation of new
telecommunication antenna / tower systems. Staff are recommending entering into lease
negotiations for Fire Station 1, Fire Station 3, South Courtice Arena, and north Bowmanville
(subject to site finalization), and undertaking additional work to advance opportunities in
Solina and Tyrone.
1. Background
1.1 The pace of telecommunication network expansion across Clarington has not kept up
with growth. Further, advancements in technology have provided faster sp eeds for data
transmission but have reduced distances of transmission from antenna / tower systems.
The result is unreliable service and significant gaps in coverage across Clarington.
1.2 Telecommunications is a federal government responsibility. The approval of the location
of new telecommunications antenna / tower systems is the responsibility of Innovation,
Science and Economic Development (ISED) Canada . Legislation such as the Planning
Act, including zoning by-laws, do not apply to these antenna systems.
1.3 Under some circumstances when new telecommunications antenna / tower systems are
proposed, ISED requires proponents to consult with the Municipality and carry out public
consultation. A consistent and transparent consultation process is set out in the
Municipality’s Radiocommunication and Broadcasting Antenna Systems Protocol. The
Protocol also provides siting and design guidelines to minimize potential adverse
effects, including visual impacts.
1.4 Since 2020, nine Radiocommunication and Broadcasting system applications have
been received by the Municipality. Of these:
Eight have completed the consultation process and have been issued a Letter of
Concurrence confirming the Municipality is satisfied with the site location, layout and
design; and
One is in the process of the required public consultation process.
1.5 Council has prioritized through its 2024-27 Strategic Plan taking action using tools
available to the Municipality to enhance the level of cellular connectivity across
Clarington.
Municipality of Clarington Page 3
Report CAO-006-24
1.6 In December 2023, the Municipality updated the Radiocommunication and Broadcasting
Antenna Systems Protocol to further enable the development of a high-calibre wireless
telecommunications environment throughout Clarington. The updates aimed to
streamline and more clearly articulate the municipal public consultation process and to
showcase the Municipality’s willingness to consider the use of municipal property to
enhance local connectivity. The updated Protocol came into effect on December 18,
2023.
2. Leasing of Municipal Property
2.1 The leasing of Municipal property to support enhancement of the telecommunication
network across Clarington may take several forms, including:
Co-location of a wireless service provider’s antenna system on an existing
municipally owned tower;
Construction and operation of a privately owned telecommunications tower on
municipally owned land;
Attachment of a telecommunications antenna / tower system to a municipally owned
structure (e.g. building, flagpole); or
Attachment of a telecommunications antenna / tower system to a municipally owned
asset(s) within a municipal road right-of-way (e.g. streetlights).
2.2 On April 4, 2024, the Municipality released a non-binding Request for Information (RFI)
to identify companies interested to collaborate with the Municipality to enhance the local
cellular network using municipal property. The RFI broadly invited respondents to
recommend solutions that would contribute to addressing network gaps and
deficiencies. Preferred leasing arrangements, locations, or technologies were not
specified, allowing respondents to propose solutions that support the Municipality’s goal
and align with the private sector’s interests. The RFI included a list of municipally owned
buildings and towers for initial consideration.
2.3 The RFI closed on May 10, 2024. Five responses were received. Three respondents
were offering professional consulting services to the Municipality and were not providers
of telecommunication antenna / tower systems. Preliminary discussions were initiated
with two respondents who expressed interest to invest in telecommunication antenna /
tower systems on municipal property, including Shared Tower Inc. and Bell Mobility Inc.,
both of whom have existing telecommunications towers in Clarington.
2.4 The following section describes the outcomes of discussions with Shared Tower Inc.
Discussions with Bell Mobility Inc. are on-going and will be shared with Council at the
appropriate time.
Municipality of Clarington Page 4
Report CAO-006-24
3. Lease Agreement with Shared Tower
3.1 Shared Tower Inc. is a developer and owner of carrier neutral telecommunications
infrastructure. As a “neutral host,” Shared Tower develops, owns and maintains
telecommunication antenna / tower systems and leases its infrastructure to wireless
service providers for the attachment of their antennas to scale up their networks.
Proposed Locations for Siting on Municipally Owned Properties
3.2 Following close of the RFI, staff met with Shared Tower to discuss their proposed
solution in more detail and potential locations for the development of
telecommunications antennas / towers on municipal property. An analysis of municipally
owned buildings and towers completed by Shared Tower resulted in the development of
a short list of five locations proposed to be leveraged to fill in gaps and deficiencies in
coverage. In addition, Shared Tower proposed one municipal park location to address
an existing coverage gap where municipal buildings were not present.
3.3 The proposed municipal building locations and telecommunication infrastructure are
outlined in Table 1. Proposed site location maps, before and after renderings, and
cellular coverage analysis maps prepared by Shared Tower for each of the locations is
provided in Attachment 1.
3.4 The development and ownership of a new telecommunications tower is proposed at
each of the locations listed in Table 1. The leased premises would include ground
space, enclosed by fencing, for the tower foundation and ancillary facilities, along with
easement rights for access to the leased premises by vehicle or foot from the nearest
public way and for the installation of necessary utility connections.
3.5 The short list of proposed sites (Table 1) was circulated to Departments for comment.
Based on this review and discussions with Shared Tower, the towers proposed at Fire
Station 1, Fire Station 3 and South Courtice Arena are considered by staff as
acceptable in principle. It is recommended that staff be authorized to negotiate a lease
agreement with Shared Tower for these sites.
3.6 Based on staff review and discussions with Shared Tower, the towers proposed at the
Solina Community Hall and Tyrone Community Centre are also acceptable in principle.
The Solina Community Hall and Tyrone Community Centre are operated by a Municipal
Service Board in accordance with municipal by-laws. Prior to advancing a lease
agreement for these sites, it is recommended that staff engage with each Board on the
proposal and report back to Council.
Municipality of Clarington Page 5
Report CAO-006-24
Table 1 – Short-listed Municipal facilities proposed for telecommunication tower development and operation
Municipal
Property
Address Approximate
Location within
the Site
Equipment Type Approximate
Compound
Footprint
(sq. m)
Height (m)
Fire Station 1 2430 Highway 2,
Bowmanville
Northwest corner –
former fire training
area
Monopole 100 25-30
Fire Station 3 5708 Main Street,
Orono
Southwest corner Tripole –
replacement of
existing,
municipally owned
tower
144 45
South Courtice
Arena
1595 Prestonvale
Road
South of existing
building
Monopole 100 25-30
Solina Community
Hall
1964 Concession
Road 6
West of existing
building or north of
playground
Monopole 100 20-30
Tyrone
Community Hall
2716 Concession
Road 7
Southeast corner Monopole 100 20-30
Municipality of Clarington Page 6
Report CAO-006-24
3.7 To address a significant coverage gap in north Bowmanville, Shared Tower has
proposed siting of a new telecommunications tower in Middle Park. Development of this
new neighbourhood park is underway. The limited land area potentially available within
Middle Park for telecommunications infrastructure is immediately adjacent to
environmentally sensitive lands, a discouraged location within the Municipality’s
Radiocommunication and Broadcasting Antenna Systems Protocol.
3.8 Staff have identified a potential alternative location in north Bowmanville, adjacent to the
municipal stormwater pond at Concession Road 3 and Regional Road 57. Preliminary
analysis of this proposed alternative location by Shared Tower has deemed it potentially
feasible. Further site analysis is necessary.
3.9 With a significant coverage gap in north Bowmanville, staff is seeking Council’s
endorsement to proceed with negotiation of an agreement with Shared Tower for the
construction and operation of a telecommunication antenna / tower system in north
Bowmanville, subject to identifying an appropriate Municipally owned property location .
Next Steps
3.10 As directed by Council, staff will undertake the negotiation of an agreement(s) with
Shared Tower for the siting, operation and maintenance of telecommunication towers on
municipal property. The agreement will take into account industry best practices and
municipal operations and services needs, such as the attachment of municipal
equipment. The Municipality has retained consulting expertise and external legal
counsel with specialized knowledge in the telecommunications sector to support the
preparation of an agreement(s).
3.11 In addition to a lease agreement(s), Shared Tower will need to fulfill all Federal approval
requirements, including ISED’s required municipal consultation process, comply with the
siting and design requirements set out in the Radiocommunication and Broadcasting
Antenna Systems Protocol.
4. Financial Considerations
4.1 All construction and restoration would be undertaken by Shared Tower at their costs, in
accordance with any applicable requirements set out in an agreement. There would be
no cost to the Municipality. The leasing of each municipal property will be subject to a
negotiated lease rate taking into account fair market value.
5. Strategic Plan
C.1.1: Enhance internet and cellular connectivity across the community.
Municipality of Clarington Page 7
Report CAO-006-24
6. Climate Change
Not Applicable.
7. Concurrence
This report has been reviewed by the Deputy CAO Planning & Infrastructure who
concurs with the recommendations.
8. Conclusion
It is respectfully recommended that Council endorse the proposal to lease portions of
Fire Station 1, Fire Station 3, South Courtice Arena, and an appropriate municipally
owned property in north Bowmanville for the purposes of enhancing the cellular network
in Clarington. It is also recommended that staff engage with the Boards of the Solina
Community Hall and Tyrone Community Centre on similar proposed leasing at these
rural locations and report back to Council.
Staff Contact: Amy Burke, Project Manager – Strategic Initiatives, 905-623-3379 ext. 2423 or
aburke@clarington.net.
Attachments:
Attachment 1 – Shared Tower Inc. – Proposed Locations Details
Interested Parties:
List of Interested Parties available from Department.
Municipality of Clarington - Connectivity Project
1.Shared Tower Introduction
1.1. Shared Tower Experience
1.2. Recent Client Experience
1.3. Shared Tower Project Qualifications
2.Typical Project Lifecycle and Timeline
3.Clarington Fire Station 1 - STC0762
3.1. Clarington Fire Station 1 - STC0762 - Mapping Sketch
3.2. Clarington Fire Station 1 - STC0762 - Renderings Key Map
3.3. Clarington Fire Station 1 - STC0762 - Photo Before
3.4. Clarington Fire Station 1 - STC0762 - Photo After
3.5. Clarington Fire Station 1 - STC0762 Coverage Map Before (bundled with Middle Park, School
Property, Lambs Rd.)
3.6. Clarington Fire Station 1 - STC0762 Coverage Map After (bundled with Middle Park, School
Property, Lambs Rd.)
4.Clarington Fire Station 3 - STC0763
4.1. Clarington Fire Station 3 - STC0763 - Mapping Sketch
4.2. Clarington Fire Station 3 - STC0763 - Renderings Key Map
4.3. Clarington Fire Station 3 - STC0763 - Photo Before
4.4. Clarington Fire Station 3 - STC0763 - Photo After
4.5. Clarington Fire Station 3 - STC0763 – Coverage Map Before
4.6. Clarington Fire Station 3 - STC0763 – Coverage Map After
Table of Contents
5.South Courtice Arena - STC0765
5.1. South Courtice Arena - STC0765 - Mapping sketch
5.2. South Courtice Arena - STC0765 - Renderings Key Map
5.3. South Courtice Arena - STC0765 - Photo Before
5.4. South Courtice Arena - STC0765 - Photo After
5.5. South Courtice Arena - STC0765 - Coverage Map Before
5.6. South Courtice Arena - STC0765 - Coverage Map After
6.Middle Park – STC0524
6.1. Middle Park - STC0524 - Mapping Sketch - Option 1
6.2. Middle Park - STC0524 - Mapping Sketch - Option 2
7.Tyrone Community Centre - STC0766
7.1. Tyrone Community Centre - STC0766 - Mapping Sketch
7.2. Tyrone Community Centre - STC0766 - Renderings Key Map
7.3. Tyrone Community Centre - STC0766 - Photo Before
7.4. Tyrone Community Centre - STC0766 - Photo After
7.5. Tyrone Community Centre - STC0766 – Coverage Map Before
7.6. Tyrone Community Centre - STC0766 – Coverage Map After
Table of Contents
8.Solina Community Centre - STC0764
8.1. Solina Community Centre - STC0764 - Location #1 - Mapping Sketch
8.2. Solina Community Centre - STC0764 - Location #1 - Renderings Key Map
8.3. Solina Community Centre - STC0764 - Location #1 - Photo Before
8.4. Solina Community Centre - STC0764 - Location #1 - Photo After
8.5. Solina Community Centre - STC0764 - Location #2 - Mapping Sketch
8.6. Solina Community Centre - STC0764 - Location #2 - Renderings Key Map
8.7. Solina Community Centre - STC0764 - Location #2 - Photo Before
8.8. Solina Community Centre - STC0764 - Location #2 - Photo After
8.9. Solina Community Centre - STC0764 - Coverage Map Before
8.10. Solina Community Centre - STC0764 - Coverage Map After
9.Monopole tower presentation (for all the sites except Clarington Fire Station 3 - STC0763)
9.1. Monopole tower examples
9.2. Compound examples with cabinets
9.3. Foundation examples
9.4. Tower compound & equipment layout
Table of Contents
10. Street Works presentation (for illustration)
10.1. Street Works Example: Port Stanley – STC0400
10.2. Street Works Example: Port Stanley – STC0401
10.3. Street Works Example: Port Stanley – STC0402 & 403
10.4. Street Works Example: Port Stanley – STC0404
10.5. Street Works Example: STC0412
10.6. Street Works Example: STC0413
10.7. Street Works Cabinet System
10.8. Street Works Footprint
10.9. Street Works Equipment Layout
11. How the wireless network works
Table of Contents
1.Company Name: Shared Tower
Inc.
2.Address: 101-1300 Cornwall
Road, Oakville, ON
3.Website: Sharedtower.ca
4.Key Contact(s): Warren Rafuse &
Nilou Nezhat
○wrafuse@sharedtower.ca
○nnezhat@sharedtower.ca
1. Shared Tower Introduction
1.Shared Tower is Canada’s leading (measured by
number of new towers built over the last 10
years) developer of neutral telecommunications
and digital infrastructure.
2.Shared Tower builds and acquires towers, small
cell infrastructure, and dark fibre and edge
colocation facilities, designed to be shared by
multiple telecommunications service providers.
3.Shared Tower’s entire business is devoted to
achieving precisely the objectives of the
Municipality of Clarington.
4.The Shared Tower model has repeatedly proven
efficient and reliable, generating partnerships
with Canada’s primary carriers who become
licensees of its infrastructure to grow their
networks and keep up with the ongoing data
usage of their subscribers.
1.1. Shared Tower experience
Client Name Nature of Services
Niagara Parks Commission Successful proponent of an RFP for the improvement of cellular
coverage along the Niagara Parks Corridor
Municipality of Central Elgin Neutral host - telecommunications tower, fibre and baseband
collocation infrastructure
Town Of South Bruce Peninsula Neutral host - telecommunications tower, fibre and baseband
collocation infrastructure
Municipality Of Northern Bruce Peninsula Neutral host - tower infrastructure
1.2. Recent client experience
1.The Shared Tower team is collaborative, diligent, and 100%
focused on the business of building and operating
telecommunication infrastructure.
2.Shared Tower is Canadian owned and controlled, and operates
exclusively in Canada.
3.The team comprises resourceful individuals with deep
expertise in telecommunications, real estate development,
municipal outreach, engineering, construction, finance, and
law.
4.Shared Tower is a progressive, equal opportunity employer,
committed to rigorously observing the Customer Service
Standard of the Accessibility for Ontarians with Disabilities Act,
2005, evolving principles relating to Environmental, Social, and
Governance policies, and diversity and inclusion in the
workplace.
5.This unwavering commitment enables Shared Tower to
approach its projects with a diverse range of perspective and
skill, and consolidate its position as Canada’s leading neutral
telecommunications developer.
1.3. Shared Tower Project Qualifications
2. Typical Project Lifecycle and Timeline
WEEKS 1-3
●Site visit
●Confirmation of
location
●Site plan and photo
simulations
●Execution of lease
Site
Identification
Municipal
Consultation
Pre-
Construction Construction Post
Construction
WEEKS 15-23
●Pre-construction
planning
●Geotechnical
survey
●Construction
scheduling
WEEKS 3-15
●Municipal
consultation
●Municipal
approval
WEEKS 23-26
●Civil construction
process
WEEKS 26-28
●Post construction
clean up
●Site remediation
3.1. Clarington Fire Station 1 - STC0762 -
Mapping Sketch
3.2. Clarington Fire Station 1 - STC0762 -
Renderings Key Map
3.3. Clarington Fire Station 1 - STC0762 -
Photo Before
3.4. Clarington Fire Station 1 - STC0762 -
Photo After
3.5. Clarington Fire Station 1 - STC0762
Coverage Map Before (bundled with Middle Park, School Property, Lambs Rd.)
3.6. Clarington Fire Station 1 - STC0762
Coverage Map After (bundled with Middle Park, School Property, Lambs Rd.)
4.1. Clarington Fire Station 3 - STC0763 -
Mapping Sketch
4.2. Clarington Fire Station 3 - STC0763 -
Renderings Key Map
4.3. Clarington Fire Station 3 - STC0763 -
Photo Before
4.4. Clarington Fire Station 3 - STC0763 -
Photo After
4.5. Clarington Fire Station 3 - STC0763 –
Coverage Map Before
4.6. Clarington Fire Station 3 - STC0763 –
Coverage Map After
5.1. South Courtice Arena - STC0765 -
Mapping Sketch
5.2. South Courtice Arena - STC0765 -
Renderings Key Map
5.3. South Courtice Arena - STC0765 -
Photo Before
5.4. South Courtice Arena - STC0765 -
Photo After
5.5. South Courtice Arena - STC0765 -
Coverage Map Before
5.6. South Courtice Arena - STC0765 -
Coverage Map After
6.1. Middle Park - STC0524
Mapping Sketch - Option 1
6.2. Middle Park - STC0524
Mapping Sketch - Option 2
7.1. Tyrone Community Centre - STC0766
- Mapping Sketch
7.2. Tyrone Community Centre - STC0766
- Renderings Key Map
7.3. Tyrone Community Centre - STC0766
- Photo Before
7.4. Tyrone Community Centre - STC0766
- Photo After
7.5. Tyrone Community Centre - STC0766
– Coverage Map Before
7.6. Tyrone Community Centre - STC0766
– Coverage Map After
8.1. Solina Community Centre - STC0764
- Location #1 - Mapping Sketch
8.2. Solina Community Centre - STC0764
- Location #1 - Renderings Key Map
8.3. Solina Community Centre - STC0764
- Location #1 - Photo Before
8.4. Solina Community Centre - STC0764
- Location #1 - Photo After
8.5. Solina Community Centre - STC0764
- Location #2 - Mapping Sketch
8.6. Solina Community Centre - STC0764
- Location #2 - Renderings Key Map
8.7. Solina Community Centre - STC0764
- Location #2 - Photo Before
8.8. Solina Community Centre - STC0764
- Location #2 - Photo After
8.9. Solina Community Centre - STC0764
- Coverage Map Before
8.10. Solina Community Centre -
STC0764 - Coverage Map After
9.1. Monopole tower examples
(for all the sites except Clarington Fire Station 3 - STC0763)
9.2. Compound examples with cabinets
(for all the sites except Clarington Fire Station 3 - STC0763)
9.3. Foundation examples
(for all the sites except Clarington Fire Station 3 - STC0763)
9.4. Tower compound & equipment layout
(for all the sites except Clarington Fire Station 3 - STC0763)
Before:After:
10.1. Street Works Example: Port Stanley – STC0400
Before:After:
10.2. Street Works Example: Port Stanley – STC0401
STC0403STC0402
10.3. Street Works Example:
Port Stanley – STC0402 & 403
Before:After:
10.4. Street Works Example: Port Stanley – STC0404
Before:After: Option A After: Option B
10.5. Street Works Example: STC0412
Before:After: Option A After: Option B
10.6. Street Works Example: STC0413
57
Cabinet System
18 RRU (12x6) Cabinets
10.7. Street Works Cabinet System
The largest footprint is less than the size of
a 2022 Honda Civic.
10.8. Street Works Footprint
Streetwork / Monopole
(63 & 75 Port Canister)
14.9m
2m
4m
Compound size (75 Port) - 4m x 2m + Space for Battery Backup - 2m x 3m
N1 N2 N4N2N2N2N2
N3
2m
3m
Notes:
N1 - Monopole
N2 - Equip Cabinet (648mm x
648mm)
N3 - Reinf concrete pad for
equipment cabinet
N4 - Space for battery backup
N5 - Option to add additional cabinet
10.9. Street Works Equipment Layout
11. How the Wireless Network works
11. How the Wireless Network works
11. How the Wireless Network works
11. How the Wireless Network works
11. How the Wireless Network works
11. How the Wireless Network works
11. How the Wireless Network works
11. How the Wireless Network works
11. How the Wireless Network works
11. How the Wireless Network works
11. How the Wireless Network works
Additional Capacity Sites to fill in the
void
Additional Capacity sites are added to fill in the gaps in wireless coverage. This ensures
improved coverage that can allow for reliable voice call and high throughput data streaming
capabilities.
Void Gaps have been alleviated with the additional capacity
sites.
Continuous wireless service is now established.
11. How the Wireless Network works
Additional Capacity sites provide a solution for both distance & capacity. These sites are closer to the user and can also offload and
relieve the existing sites of network traffic and increase signal power in particular areas.
It ensures a smooth experience for users as they use their wireless devices and move from different locations, utilizing the
services from various base stations.
11. How the Wireless Network works
MUNICIPALITY OF CLARINGTON
Planning and Development Committee Meeting
RESOLUTION #
DATE: October 21, 2024
MOVED BY: Councillor Anderson
SECONDED BY:
Whereas the Municipality of Clarington is geographically the largest Municipality in the
Region of Durham; and
Whereas stable and reliable cell phone service is vital community infrastructure akin to
roads and other utilities, particularly from an emergency management standpoint; and
Whereas cellular service is not a municipal responsibility, but Clarington has stepped up
to assist in rectifying the problem and will continue to treat cellular as an essential
service; and
Whereas the Official Plan is a visionary document that can be used to promote and
encourage the telecommunication industry to provide further opportunities to improve
connectivity throughout Clarington.
Now therefore be it resolved that:
That Staff be directed through the Official Plan Review and ongoing Secondary Plan
program to explore opportunities to promote and encourage cellular connectivity
throughout Clarington; and
Further that, should additional cellular infrastructure be required, Staff are directed to
advise proponents about the option to utilize municipal lands as facilities for potential
installation of equipment.