Telecommunications Antennae and

Support Structures

Guidelines for Planning Authorities

July 1996
Contents

1. Context 2

1.1 Scope 2

1.2 National Policy Issues 2

1.3 Aim 2

2. Technical Information/Descriptions 4

2.1 General 4

2.2 The Cell 4

2.3.1 Antennae 4

2.3.2 Masts – Support Structures 5

2.3.3 Radio Equipment Containers 6

2.3.4 Other

2.4 Summary of Technical Requirements 6

3. Telecommunications and the Development Plan 7

4. Development Control and Telecommunications 8

4.1 Pre-Planning Discussions 8

4.2 Design and Siting 8

4.3 Visual Impact 8

4.4 Access Roads and Poles 9

4.5 Sharing Facilities and Clustering 10

4.6 Health and Safety Aspects 10

4.7 Obsolete Structures 11

4.7 Duration of Permission – Temporary Permission 11

Appendix I 12

Appendix II 19

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1. CONTEXT Both operators are obliged to provide GSM coverage to 90%
of the population within four years. The Government has
1.1 Scope
emphasised throughout that both GSM operators are treated
These Guidelines deal with those telecommunications in an even-handed fashion, so that the rules of fairness apply
installations which form part of the requirements for licensed, and are seen to apply.
public mobile telephony and which are considered to be
development in accordance with the Planning and National policy requires that all development should conform
Developments Acts. to the concept of environmental sustainability, meeting socio-
economic objectives while conserving the natural resources
They deal with the antennae required for receiving and upon which development ultimately depends. A National
transmitting telephony signals, the support structures for these Sustainable Development Strategy is being prepared to carry
antennae, the associated “buildings” and radio equipment consideration for the environment into all areas of Government
containers, together with other ancillary requirements such as policy. Areas legally designated for environmental
poles and cable for the provision of electric current to the site conservation must be given the required protection when
or base station. The also deal with access roads to base considering planning applications for mobile telephony
stations. infrastructure. Accordingly, fragile landscapes have to be
treated sensitively, scenic views preserved,
Planning authorities have a duty under the Local Government archaeological/geological sites and monuments and buildings
Act, 1991, in the performance of their functions under any of historical and architectural interest protected and sacred
enactment, to have regard to policies and objectives of the areas respected.
Government or any Minister in so far as they may affect or
relate to their functions. Government policy on the availability These considerations demand that the fullest attention is paid
of top quality telecommunications services throughout the to the location of masts by operators and planning authorities.
State should, therefore, be taken into consideration. In addition, in order to avoid an unnecessary proliferation of
masts, owners (i.e. those controlling access to support
Operators of broadcast VHF and fixed radio link installations structures and masts) would be expected to facilitate co-
which support the mobile radio requirements of the emergency location of antennae with other operators. Owners and
services, should, where applicable, take cognisance of the operators will be expected to respond to requests for sharing
Guidelines. in a timely, fair and reasonable manner. Accordingly, where
the existing site operator/owner considers it is technically
1.2 National Policy Issues possible and where sharing would not preclude the parties
The Government’s telecommunications policy aims to place from foreseeable future development on the shared facility,
Ireland in the top quartile of OECD economies as regards the planning authorities should encourage co-location of antennae
availability, price and quality of telecommunications services in on existing support structures and masts.
order to promote industrial and commercial development, to
improve personal and household security and to enhance 1.3 Aim
social exchange and mobility. While the provision and updating of a modern mobile
telephony system is part of the national development
Following a competitive application process the Government infrastructure, planning decisions regarding the installation of
has issued a licence to Esat Digifone to provide GSM (global base stations and other equipment are taken at a local level.
systems for mobile) mobile telephone services. Eircell, a The aim of these Guidelines is to provide relevant technical
subsidiary of Telecom Eireann, already provides mobile information in relation to these installations and to offer
telephone services (both analogue and digital) in Ireland. general guidance on planning issues so that the environmental

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impact is minimised and a consistent approach is adopted by
the various planning authorities in the preparation of their
development plans and in the operation of development
control. The guidelines are also intended to be of assistance
to operators and to the general public.

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2. TECHNICAL INFORMATION/DESCRIPTIONS
2.1 General
Public cellular mobile telephone systems are an efficient (See illustration in Appendix 1). The principal reasons for
method of providing a mobile telephone service. The user’s variation in cell configuration are:
mobile phone is connected by a two way radio channel to the
nearest base station. Base stations are installed in a grid - the nature of the terrain: mountainous or hilly terrain or
pattern enabling an efficient frequency reuse scheme to be built up urban “clutter” are not favourable to radio
implemented while using the limited frequency spectrum transmissions so a greater number of base stations may
assigned for the service. The base stations are connected by be required,
means of leased lines, radio, optic fibre, coaxial cable, etc. to
an exchange system which allows communications into the - numbers of actual or potential users of the system, this will
fixed network or onwards to other mobile phone users. apply principally in urban areas; in practice, each
installation can only cater for up to forty calls
At present there are two systems in operation in Ireland – simultaneously and where more are likely to occur
analogue and digital. The analogue system is the older of the additional base stations have to be installed,
two and is operated exclusively by Eircell Telecom Eireann.
The digital system, known as GSM, is also operated by Eircell - radio spectrum can be seen as a natural resource and a
Telecom Eireann side by side with its analogue system. A licence fee is paid for every frequency required by the
second operator, ESAT Digifone will operate exclusively on the mobile operator; hence the same radio frequencies are
GSM system and will compete with Telecom Eireann. Both reused within the system, but these cannot be in
systems use frequencies around 900 Mhz and optimum immediately adjoining cells. As a consequence, sites are
coverage obtains when there is line of sight. However, under sometimes chosen to restrict signal dispersion and
certain limited conditions, use can also be made of reflected concentrate it into a local area thus avoiding overspill and
signal. the interference which this would cause.

2.2 The Cell 2.3.1 Antennae

The coverage area of one transmitter/receiver base station is It has been estimated that, in order to complete their
commonly known as a cell. In reality cells are not uniform and respective networks, and to meet the national coverage
the diameter of a cell can vary from 0.5km to 70km. Sites can requirement of the licence conditions, operators will, between
be at the intersection of three cells or at the centre of a cell. them, require an approximate total of 600 to 700 base stations.
Not all of these arrays of antennae will require separate, ad
In urban environments the cells tend to be very small, and the hoc support structures as many of them may well be mounted
radio frequencies are reused more often. The reason for this on buildings or other tall structures in urban or suburban areas.
is that the capacity of the network required in urban areas is
much greater than in rural areas. The antennae associated A number of these base stations are already in existence and
with small cells are generally mounted on low support a further number have been commenced under the terms of
structures or on buildings. Larger cells are generally used in Article 9 of the Local Government (Planning and Development)
rural areas where coverage rather than capacity is the critical Regulations, 1994.
requirement. Higher masts are usually required in rural areas.
The base stations or cells are arranged in a grid pattern and a Essential to the base stations are the antennae. Typically for a
mobile user in a car will be switched from one cell to another. GSM system nine such antennae are required per station.

4
They are arranged in three groups of three, on the sides of an The height of these structures, when the requirements of the
equilateral triangle, each group giving 120 degree coverage. backbone network are taken into account, can range from 12m
In order to cater for both GSM and analogue users (Telecom to 60m though most typically they will be between 20m and
Eireann only) a fourth antenna (transmitting) is required on 40m. They are normally fixed to reinforced concrete raft
each array. The antenna type is chosen to provide coverage foundations, will incorporate ladder and anti-climbing devices
of the surrounding area using a directional beam. and suitable arrangements for bringing cables from antennae
to an equipment cabinet. The height will be a function of the
The antennae described above would be typically 2000mm to terrain, the cell size and coverage requirements and it should
1200mm in length x 300mm in width x 170mm in depth. Other be noted that there is a trade-off between the height of any
smaller and less elaborate arrangements are possible in urban given mast and the number of masts required for network
areas or in particular “end of line” locations in rural areas. coverage. Both the antennae and the support structures can
(See Appendix 1A) be finished in various colours. The most usual support
structure will be a tripod lattice construction. Such support
The outer two antennae on each array are receivers (i.e. structures will typically measure up to 4m at the base and the
passive) and in the case of Telecom Eireann they both may antennae are mounted on platforms at the top, as described in
be used for the analogue and digital systems. To facilitate the previous paragraph. It should be noted, however, that (for
better reception, they are mounted at a distance of between GSM systems) newer type towers measuring approximately
4000mm and 5000mm horizontally one from the other. The 1.7m at the base are now becoming available. The
central antenna transmits and in the case of Telecom Eireann configuration of the antennae can also be reduced to two on
there may be two central antennae, one for the analogue and each side of the tower, reducing the total number of antennae
one for the digital system. In the case of an antennae support to six. (See Appendix 1C) One of these antennae acts
structure shared by Telecom Eireann and Esat Digifone and simultaneously as both receiver and transmitter. In some
fully equipped (3 sectors), there would be a total of twenty one instances a single mast may be sufficient but where it is stayed
antennae mounted on the structure, excluding additional it will require larger sites to contain staying anchorage points.
antennae for point to point radio links. (See Appendix 1B) (See illustrations at Appendix 1D)

In urban areas (centre city) these antennae can generally be For the point to point radio links connecting the base stations
mounted on buildings or other structures. In rural areas, and in to the backbone network, the nature of the link transmission is
many suburban situations, because of the low rise nature of such that any movement of the transmitter/receiver dishes
most of our suburban buildings and structures a supporting greater than 0.5 degrees could result in loss of signal. The
mast or tower is needed. As technology develops, the number design of the antennae support structures must ensure the
and size of antennae may change, becoming more efficient elimination of such movement. In addition, high capacity point
and less obtrusive. to point radio links are required for the backbone network with
large microwave drum antennae requiring more robust
2.3.2 Masts – Support Structures structures, and in general square towers. Initially all of Esat
As has been pointed out in the previous paragraph, in urban Digifone’s backbone network will be constructed using point to
areas the antennae can be mounted on tall buildings – either point radio links.
on roof tops or otherwise – in suburban and rural areas the
arrays of antennae are mounted on free standing support
structures or masts. In both rural and urban areas a
supporting mast or tower is almost always necessary where
microwave drum antennae are required (see final paragraph
under this heading).

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2.3.3 Radio Equipment Containers of actual or potential customers. In some instances there is a
The associated radio equipment is normally housed in a possible trade-off between the height of a given structure and
cabinet, rectangular box container (approximately 85m3 to the number of structures required. Thus, as a general
principle, the higher the support structures the lesser the
100m3). This in turn may be in a building which also includes
number of base stations required in order to provide radio
other items. Improved technology has already considerably
coverage for a given area. However, whatever the height of
reduced the size of radio equipment. The complete site would
the structure may be, the base station will be limited by its
then measure, typically 25m x 25m. (See Appendix 1E)
capacity (the number of calls which can be dealt with
simultaneously). Therefore an adequate number of base
2.3.4 Other
stations must be provided in order to meet capacity
Sites should be surrounded by safety fencing and the
requirements.
masts/towers should be equipped with lockable trap-doors or
other anti-climbing devices. However, in some cases, for
The structural stiffness/rigidity, load bearing capacity and wind
example, where a single steel pole is used, safety fencing may
loading will be a function of engineering criteria. Special
not be required. Electrical power (equivalent to ordinary
attention to rigidity will be required in the case of point to point
domestic power supply) will, depending on the location, be
radio links. Because of the nature of the beam and the strict
delivered to the site on poles. In order to avoid the additional
line of sight requirement from one antenna to the next, very
visual intrusion of poles, ducting in the immediate vicinity of the
minute movement ( > 0.5 of a degree) could result in loss of
base station should be considered. Access to the mast and
signal.
equipment will be through a gate in the perimeter fence and
access to the site itself will be dependent on the site location.
In some instances it may be technically possible for operators
to share facilities or indeed to share with other owners of
2.4 Summary of Technical Requirements
antennae support structures. Sharing will give rise to higher
From the operator’s point of view, each base station site will be
and stronger structures. Where masts are to be shared
chosen because it gives good quality coverage over maximum
arrangements must be put in place for security, access onto
area and because it can be integrated with the other base
the mast, joint inspections and maintenance regimes, prior
stations of the network. The following considerations will have
agreements on financial and leasing arrangements.
to be taken into account.

2.4.1 Topography and population density will dictate to a

large extent the location of the base station. While each base
station has its own locational requirements it must also fit into
the national network. Base stations have been described as
pieces of a jigsaw puzzle. For this reason, there may not
always be great flexibility regarding a given location. Where
substantial local flexibility is required it may mean moving other
sites in the network or providing additional alternative base
stations. However, some flexibility should almost always be
available.

2.4.2 The height and structural rigidity of the supporting

towers (and in some instances the dimensions of the antennae
themselves) will normally be dictated by the requirements of
the radio parameters, the coverage and the projected number

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3. Telecommunications and the Development Plan

3.1 Each planning authority’s development plan should

include in relation to those telecommunications installations - pre-planning discussions
which form part of the requirements for public mobile
telephony. Where planning authorities have recently adopted - siting and design
a new or revised development plan, rather than wait for the
next review, a variation of their existing plan should be - visual amenity and access roads
considered.
- possible sharing of installations
3.2 The policy statement should include the following:
- health and safety aspects
- acceptance of the importance of a high quality
telecommunications service taking into account both
National and regional considerations,

- in considering locational requirements, the authority

should take into account certain factors such as
population centres, the number and importance of road
networks traversing the authority’s area, plans for the
development of these networks, including any future by-
passes,

- an authority should also indicate any locations where, for

various reasons, telecommunications installations would
not be favoured or where special conditions would apply.
Such locations might include, for example, lands whose
high amenity value is already recognised in the
development plan or sites beside schools which might
give rise to local concerns,

- general indications as to the authority’s requirements in

relation to:

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4. Development Control and Telecommunications
4.1 Pre-Planning Discussions
Planning authorities should encourage and facilitate pre- with the general context of the proposed development.
planning discussions with operators. Operators should in turn Consequently the approach of the authority will vary depending
keep authorities informed of their plans and should provide on whether the proposed development is in:
outline visual analysis of proposed sites at pre-planning
discussions. Topics which might be usefully raised with the
operator at these discussions would include the following:

- longer term plans of the operator in relation to masts

within the jurisdiction of the authority,

- any prior consultations which the applicant may have

had with the other questions/mast owners,
- a rural/agricultural area
- the number of existing masts and the stage of - an upland/hilly, mountainous area
development of structures commenced in accordance - a smaller settlement/village
with Article 9 (1)(b) of the Local Government (Planning - an industrial area/industrially zoned land
and Development) Regulations 1994. (It should be - as suburban area
noted that Class 29(h) of the Second Schedule to the - a larger town or city
Regulations does not exempt antennae and support
structures for licensed public mobile telecommunications Whatever the general visual context, great care will have to be
networks). taken when dealing with fragile or sensitive landscapes, with
other areas designated or scheduled under planning and other
4.2 Design and Siting legislation, for example, Special Amenity Areas, Special
The design of the antennae support structure and to a great Protection Areas, the proposed Natural Heritage Areas and
extent of the antennae and other “dishes” will be dictated by Special Areas of Conservation and National Parks. Proximity
radio and engineering parameters. There may be only limited to listed buildings, archaeological sites and other monuments
scope in requesting changes in design. However, the should be avoided.
applicant should be asked to explore the possibilities of using
other available designs where these might be an In rural areas towers and masts can be placed in forestry
improvement. Similarly, location will be substantially plantations provided of course that the antennae are clear of
influenced by radio engineering factors. In endeavouring to obstructions. This will involve clearing of the site but in the
achieve a balance some of the considerations which follow overall will reduce visual intrusion. Softening of the visual
are relevant. impact can be achieved through judicious choice of colour
scheme and through the planting of shrubs, trees etc as a
4.3 Visual Impact screen or backdrop.
The visual impact is among the more important
considerations which have to be taken into account in arriving Some masts will remain quite noticeable in spite of the best
at a decision on a particular application. In most cases the precautions. The following considerations may need to be
applicant will only have limited flexibility as regards location, taken into account:
given the constraints arising from radio planning parameters,
etc., already referred to. Visual impact will, by definition, vary

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 - Along major roads or tourist routes, or viewed from In the vicinity of larger towns and in city suburbs operators
traditional walking routes, masts may be visible but should endeavour to locate in industrial estates or in
yet are not terminating views. In such cases it might industrially zoned land. The possibilities offered by some
be decided that the impact is not seriously commercial or retail areas should be explored whether as
detrimental rooftop locations or by way of locating “disguised” masts. It
should also be noted that substations operated by the ESB
- Similarly along such routes, views of the mast may may be suitable for the location of antennae support
be intermittent and incidental, in that for most of the structures. This possibility should also be investigated. In
time viewers may not be facing the mast. In these urban and suburban areas the use of tall buildings or other
circumstances, while the mast may be visible or existing structures is always preferable to the construction of
noticeable, it may not intrude overly on the general an independent antennae support structure. In urban areas
view of prospect the need for increased numbers of cells to cater for customer
growth will lead more and more to the subdivision of existing
- There will be local factors which have to be taken cells and, in some instances to the introduction of “microcell”
into account in determining the extent to which an technology. Microcells will normally have their antennae
object is noticeable or intrusive – intermediate located below roof level and will serve a very specific building
objects (buildings or trees), topography, the scale of (shopping centre, tunnel etc.) or be used to boost a weak
the object in the wider landscape, the multiplicity of signal. Microcells are not an alternative to normal cells.
other objects in the wider panorama, the position of
the object with respect to the skyline, weather and Only as a last resort and if the alternatives suggested in the
lighting conditions, etc. previous paragraph are either unavailable or unsuitable should
free-standing masts be located in a residential area or beside
In upland/mountainous areas hilltops will be favoured by schools. If such a location should become necessary, sites
operators as offering the best location from the point of view of already developed for utilities should be considered and masts
radio coverage. Masts on hilltops will by definition remain and antennae should be designed and adapted for the specific
visible. Yet, if an authority were to rule out every hilltop as a location. The support structure should be kept to the minimum
possible location, the consequence would be that the operator height consistent with effective operation and should be
might not be able to service the area or that a number of monopole (or poles) rather than a latticed tripod or square
structures might be required to provide the same level of structure.
service. In the latter case visual intrusion might be increased
rather than diminished. Where there is an existing mast every 4.4 Access Roads and Poles
effort should be made to share it provided the shared mast is An access road may sometimes cause greater visual impact
not itself unduly obtrusive. If this is the case, clustering may than the actual installation. It may further open up an
be more acceptable. However, for transmission reasons, otherwise undisturbed area to unwanted visitors.
clustering on hilltops may not always provide a solution. Consequently access roads should be permitted only where
they are absolutely necessary and great care should be taken
Only as a last resort should free-standing masts be located that they will not appear as a scar on a hillside. It should
within or in the immediate surrounds of smaller towns or normally be a condition of permission that such roads are
villages. If such location should become necessary, sites grubbed up at the end of the construction period. In
already developed for utilities should be considered and masts exceptional circumstances, the planning authority should
and antennae should be designed and adapted for the specific consider requiring the use of a helicopter for the construction
location. The support structure should be kept to the minimum and installation of base stations. Similarly, timber poles should
height consistent with effective operation. as far as possible follow the line of ground contours and,

9
where underground ducting is possible, it should be proposes to share an existing mast or to enter a clustering
maximised. arrangement on an existing site a statement from the
owner/landlord of the mast or site that the shared mast or
4.5 Sharing Facilities and Clustering cluster will continue to operate under the guidelines applicable
Sharing of installations (antennae support structures) will to it should be presented to the planning authority.
normally reduce the visual impact on the landscape. The
potential for concluding sharing agreements is greatest in the Legislation is to be enacted by the Department of Transport,
case of new structures when foreseeable technical Energy and Communications later this year setting up an
requirements can be included at the design stage. All independent regulator for the telecommunications sector. It is
applicants will be encouraged to share and will have to satisfy envisaged that, as part of this legislation, the regulator will be
the authority that they have made a reasonable effort to share. specifically required to arrange for monitoring, on a nationwide
Where the sharing of masts or towers occurs each operator basis, of emissions of non-ionising radiation from mobile
may want separate buildings/cabinets. The matter of sharing telephone base station towers and MMDS masts.
is probably best dealt with in pre-planning discussions.
Furthermore, as part of the licensing framework being
Where it is not possible to share a support structure the developed by the Minister for Transport, Energy and
applicant should, where possible, be encouraged to share a Communications in relation to mobile telephony, operators are
site or to site adjacently so that masts and antennae may be now being required to comply with the relevant international
clustered. On hill tops clustering may not offer any standards in relation to emissions of non-ionising radiation
improvement from the point of view of visual intrusion but in from telecommunications antennae.
urban or suburban areas use of the same structure or building
by competing operators will almost always improve the Accordingly, planning authorities should not include monitoring
situation. arrangements as part of planning permission conditions.
Operators should comply with all requests for information
Support structures used by emergency or other essential relating to the technical operation of base stations and should
services are not suitable for sharing with public mobile facilitate access to base stations by duly authorised members
telephone services. of the monitoring body.

4.6 Health and Safety Aspects The safety aspects of the antennae and support structures will,
A statement on health and safety aspects, agreed by the unless perhaps in the case of ground-mounted single poles,
Departments of Health and Transport, Energy and stayed or otherwise, involve fencing of the site, anti-climbing
Communications with the Department of the Environment for devices and proper ducting and insulation measures for
inclusion as an Appendix to the Guidelines is set out in cables. It is unlikely that entrance and exit from the site will
Appendix II. give rise to traffic hazards as maintenance visits should not be
more than quarterly. During the construction period,
As part of their planning application operators should be depending on the location of the site, special precautions may
required to furnish a statement of compliance with the have to be taken in relation to traffic.
International Radiation Protection Association (IRPA)
Guidelines (Health Physics, Vol. 54, No. 1 (Jan) 1988) or the The allocation of radio frequencies and the operational
equivalent European Pre-standard 50166-2 which has been conditions in the licensing arrangements will normally take
conditioned by the licensing arrangements with the care of the question of radio interference. All matters relating
Department of Transport, Energy and Communications and to to possible radio interference in respect of emergency or other
furnish evidence that an installation of the type applied for services are dealt with by the Department of Transport, Energy
complies with the above guidelines. Where the applicant and Communications.

10
In the vicinity of airports, the Irish Aviation Authority (or, if antennae and because of current indications of possible
relevant, the Department of Defence) should be given an changes in the design of support structures, permissions
opportunity to comment on the application from the point of should normally be granted for five years the period to be
view of location, height-obstruction, painting and illumination. calculated as the time during which the appliances would be
operational. Retention of the base stations at the end of the
Adequate clearance between structures and overhead power five year period would then be conditional on the replacement
lines, as specified by the electricity undertaker, should be of obsolescent technology with more modern, environment
provided. It should be noted that there is a statutory obligation friendly designs where these have become available, where
to notify the ESB of proposed development within 25 yards of they are commercially viable and where they would allow the
any ESB distribution/transmission line. base station to continue to operate within the standards set out
in the licensing arrangements, or in the original planning
The Department of Defence should be given an opportunity to permission or within more stringent or other standards if these
comment on the application from the point of view of security are considered more desirable at the time.
where the site of the proposed mast adjoins land or property
owned or administered by that Department.

4.7 Obsolete Structures

When the antennae and their support structures are no longer
being used by the original operator and no new user has been
identified they should be demolished, removed and the site re-
instated at the operators’ expense. This should be a condition
of permission and the authority should consider a bonding
arrangement to this effect. An owner or operator of a site may
of course dispose of the site to another suitably licensed
operator. In addition to whatever other notification
requirements would arise from this transfer, the original
owner/operator should be required to inform the planning
authority of such transfer so that the authority may be in a
position to readily enforce any continuing conditions on the
new operator.

4.8 Duration of Permission – Temporary Permissions

Because of the relatively high installation costs of each base
station and because of the integrated nature of the network it - .
would appear that temporary, relatively short term permissions
of one or two years duration should be avoided. However for
special, once-off events, where appropriate, a temporary
permission of two or three months duration may be
considered. Permissions should take cognisance of the
duration of the licensing arrangements.

Nevertheless, it would appear that, because of rapid changes

in the technology and design of the radio equipment and

11
APPENDIX 1

Division into cell pattern facilitates reuse of frequencies but never in adjoining cells. In reality cells are not regular in shape
and they vary in size.

12
APPENDIX 1A

13
APPENDIX 1B

The visual impact of a shared structure should be carefully considered. In addition to the increased number of antennae the
height, width and bulk of the structure and of the structural members will be increased. Cable trays to cater for at least 21
cables will be required.

14
APPENDIX 1C

15
APPENDIX 1D

16
17
APPENDIX 1E

18
APPENDIX II
HEALTH AND SAFETY ASPECTS
Statement on health and safety aspects, agreed by the The ICNIRP findings support the position taken by the
Department of Health and Transport, Energy and regulatory authorities in Ireland and should provide further
Communications with the Department of the Environment for reassurance to those who have been concerned about the
inclusion as an Appendix to the Guidelines. health implications of base station towers.

The rapid expansion of mobile telephone services in Ireland Taking as its basis the World Health Organisation’s 1993
has required the construction of base station towers in urban review of the health effects of exposure to radio-frequency
and rural areas across the country. These base station towers radiation and all relevant research published since, ICNIRP re-
are an essential feature of all modern telecommunications examined the existing exposure guidelines (i.e. the safe
networks. They facilitate calls between mobile phone users exposure levels) in the frequency range utilised by mobile
and enable users of conventional telephones to place and telephone systems (800 MHz to 2 GHz). Following a review of
receive calls from portable units. the technical nature of non-ionising radiation absorbed by
mobile phone users and by the general public in the vicinity of
Concern has been expressed that the radio signals from these base station towers, ICNIRP assessed recent published
base station towers may be a hazard to health. The basis for scientific literature dealing with biological effects, including
this concern is that the signals from these towers are a form of athermal effects.
non-ionising radiation. It is claimed, that some scientific
studies have shown an association between exposure to non- This latter assessment included athermal studies involving
ionising radiation and illness. The response of authorities in pulsed and amplitude modulated radio-frequency field and
Ireland has been to keep abreast of the best available their impact on a number of biological end-points such as
information, to follow best practice and thus ensure that, in mutations in mouse leukaemia cells, chromosome aberrations
relation to exposure to non-ionising radiation, Irish in human lymphocytes and DNA fragmentation in rodent cells.
telecommunications companies operate within internationally Other work examined included the impact of radio-frequency
recognised safe limits. radiation on tumour promotion, on ion fluxes across cell
membraned in human blood cells, and on gene transcription
Despite the fact that operators must conform to the rates. A number of animal exposure studies and
internationally recognised guidelines set out by IRPA*1 epidemiological studies were also reviewed.
(International Radiation Protection Association) some
observers have expressed disquiet either because, they claim ICNIRP’s conclusion concerning international standards for
the IRPA guidelines developed in 1988 do not take into limiting exposure of the general public to the radio-frequency
account scientific findings since then, or that the guidelines are fields from base stations towers was to endorse the limits
based on thermal effects only. proposed in 1988 by IRPA. ICNIRP stated that there is no
substantive evidence that adverse health effects, including
The most recent position on health and safety aspects can be cancer, can occur in people exposed to levels of non-ionising
found in the ICNIRP*2 (International Commission on Non- radiation at or below IRPA’s 1988 guidelines. At the radio
Ionising Radiation Protection) Statement – Health Issues frequencies used in Ireland for mobile telephone networks (890
Related to the Use of Hand-held Radio Telephones and Base MHz to 960 MHz) the IRPA limit is 4.5 watts per square metre.
Transmitters, Health Physics, Vo. 70, No. 4, April 1996. A In contrast the highest field strengths measured in the vicinity
summary of the principal issues and the main conclusions is of base station towers in Ireland range from 0.00003 watts per
set out below: square metre to 0.0035 watts per square metre, according to
measurements made by Forbairt at a number of locations.

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These findings show that the actual exposure levels are about
1000 times lower than the IRPA levels.

The ICNIRP statement is an up to date, objective and expert

contribution to the on-going debate on electromagnetic fields
and their possible health effects. Irish telecommunication
companies will be required by their licence to comply with the
IRPA guidelines and to comply with whatever monitoring
arrangements are put in place by the Department of Transport,
Energy and Communications.

Further information can be obtained from the Department of

Transport, Energy and Communications.

* 1 IRPA: In 1988 the International Radiation Protection

Association’s International Non Ionising Radiation
Committee (IRPA/INIRC) published guidelines for limiting
exposures to electromagnetic fields. These guidelines were
developed in co-operation with the Environmental Health
Organisation of the World Health Organisation (WHO) as
part of the WHO Environmental Health Criteria Programme
funded by the United Nations.

* 2 ICNIRP: In 1992 IRPA approved a separate character

establishing the International Commission on Non-Ionising
Radiation Protection (ICNIRP) which carries on the work of
the now dissolved INIRC. ICNIRP is an independent
scientific body, has a close relationship with IRPA and has
non governmental organisation status.

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