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PUBLICATIONS

NBS SPECIAL PUBLICATION 613

U.S. DEPARTMENT OF COMMERCE / National Bureau of Standards

quirements for an Effec

National Nonionizing Radi

Measurement Sys
NATIONAL BUREAU OF STANDARDS

The National Bureau of Standards' was established by an act ot Congress on March 3, 1901. The Bureau's overall goal is to strengthen and advance the Nation's science and technology

and facilitate their effective application for public benefit. To this end, the Bureau conducts

research and provides: (1) a basis for the Nation's physical measurement system, (2) scientific and technological services for industry and government, (3) a technical basis for equity in trade, and (4) technical services to promote public safety. The Bureau's technical work is per- formed by the National Measurement Laboratory, the National Engineering Laboratory, and

the Institute for Computer Sciences and Technology.

THE NATIONAL MEASUREMENT LABORATORY provides the national system of

physical and chemical and materials measurement; coordinates the system with measurement

systems of other nations and furnishes essential services leading to accurate and uniform

physical and chemical measurement throughout the Nation's scientific community, industry,

and commerce; conducts materials research leading to improved methods of measurement,

standards, and data on the properties of materials needed by industry, commerce, educational

institutions, and Government; provides advisory and research services to other Government

agencies; develops, produces, and distributes Standard Reference Materials; and provides

calibration services. The Laboratory consists of the following centers:

Absolute Physical Quantities^ — Radiation Research — Thermodynamics and

Molecular Science — Analytical Chemistry — Materials Science. THE NATIONAL ENGINEERING LABORATORY provides technology and technical ser- vices to the public and private sectors to address national needs and to solve national problems; conducts research in engineering and applied science in support of these efforts; builds and maintains competence in the necessary disciplines required to carry out this research and technical service; develops engineering data and measurement capabilities;

provides engineering measurement traceability services; develops test methods and proposes

engineering standards and code changes; develops and proposes new engineering practices;

and develops and improves mechanisms to transfer results of its research to the ultimate user. The Laboratory consists of the following centers:

Applied Mathematics — Electronics and Electrical Engineering' — Mechanical

Engineering and Process Technology' — Building Technology — Fire Research —

Consumer Product Technology — Field Methods.

THE INSTITUTE FOR COMPUTER SCIENCES AND TECHNOLOGY conducts

research and provides scientific and technical services to aid Federal agencies in the selection,

acquisition, application, and use of computer technology to improve effectiveness and

economy in Government operations in accordance with Public Law 89-306 (40 U.S.C. 759), relevant Executive Orders, and other directives; carries out this mission by managing the Federal Information Processing Standards Program, developing Federal ADP standards

guidelines, and managing Federal participation in ADP voluntary standardization activities; provides scientific and technological advisory services and assistance to Federal agencies; and

provides the technical foundation for computer-related policies of the Federal Government.

The Institute consists of the following centers:

Programming Science and Technology — Computer Systems Engineering.

'Headquarters and Laboratories at Gaithersburg, MD, unless otherwise noted; mailing address Washington, DC 20234. 'Some divisions within the center are located at Boulder, CO 80303.
Requirements for an Effective National

^^^^ Nonionizing Radiation Measurement System

^ ^ \

Prepared in Response to a

Recommendation by the

Senate Committee on Commerce,

Science, and Transportation s

QCloo

.US'!

no b^*^

19 s I

Prepared by:

Howard E. Clark

Center for Electronics and Electrical Engineering

National Bureau of Standards

Washington, DC 20234

In cooperation with:

The Conference of Radiation

Control Program Directors, Inc.

U.S. DEPARTMENTOFCOMMERCE, Malcolm Baldrige, Secretary

NATIONAL BUREAU OF STANDARDS, Ernest Ambler, Director

Issued June 1981
Library of Congress Catalog Card Number 81-600070

NATIONAL BUREAU OF STANDARDS SPECIAL PUBLICATION 613

Nat. Bur. Stand. (U.S.), Spec. Publ. 613, 41 pages (June 1981)

CODEN: XNBSAV

U.S. GOVERNMENT PRINTING OFFICE

WASHINGTON: 1981

For sale by the Superintendent of Documents, U.S. Government Printing Office, Washington, B.C. 20402

Price $2.75

(Add 25 percent for other than U.S. mailing)
TABLE OF CONTENTS

Page

LIST OF ABBREVIATIONS iv

1. EXECUTIVE SUMMARY 1

2. INTRODUCTION 2

2.1 Purpose 2

2.2 Scope 3

2.3 How Report was Written 4

3. MEASUREMENT STRATEGY FOR NONIONIZING ELECTROMAGNETIC

RADIATION HEALTH & SAFETY 4

3.1 Structure of the Measurement Problem 4

3.2 Analysis of Measurement Requirements 6

3.3 Other Considerations 27

3.3.1 Radiation Control 27

3.3.2 Measurement Quality Assurance 28

3.3.3 Calibration Work Load 28

3.3.4 Conducted Electromagnetic Interference 29

3.3.5 Lasers 30

3.3.6 Ultraviolet Radiation 30

3.4 Addressing Measurement Problems 31

3.4.1 Population Exposure 31

3.4.2 Dosimetry 31

3.4.3 Biological Consequences of NER Exposure 32

3.4.4 Cooperation and Coordination 32

3.5 Priorities and Time Scales 33

4. CONCLUSION 34

5. REFERENCES 36

iii
ABBREVIATIONS

AM - Amplitude Modulated

ANSI - American National Standards Institute

BENER - Biological Effects of Nonionizing Electromagnetic Radiation

BRH - Bureau of Radiological Health

CAT - Computed Axial Tomography

CRCPD - Conference of Radiation Control Program Directors

CW - Continuous Wave

D.C. - Direct Current

DOE - Department of Energy

ELF - Extremely Low Frequency . EM - Electromagnetic : EMI - Electromagnetic Interference r EP - Engineering Problem

EPA - Environmental Protection Agency

EPRI

FLN

-

- Electric Power Research Institute ^

Fundamental Limitation of Nature J

GHz - Gigahertz = lO^ hertz 1

H - High

Hz - Hertz - cycles per second J

IEEE - Institute of Electrical and Electronics Engineers f

ISM - Industrial, Scientific, and Medical

L - Low

LR - Long Range

M - Medium

MHz - Megahertz = 10& hertz

MR - Medium Range

N - No problem

NA - Not Applicable or Not Appropriate

NCRP - National Council on Radiation Protection and Measurements

NER - Nonionizing Electromagnetic Radiation

NIEHS - National Institute of Environmental Health Sciences

NIOSH - National Institute of Occupational Safety and Health

NMS - National Measurement System

NTIA - National Telecommunications and Information Administration

OSHA - Occupational Safety and Health Administration

OSTP - Office of Science and Technology Policy

SR - Short Range

TEM - Transverse Electromagnetic

U - Unknown

USNC/USRI - U.S. National Committee for the International Union of Radio Science

WISH - Workers Institute for Safety and Health

X - Treated Elsewhere

IV
REQUIREMENTS FOR AN EFFECTIVE NATIONAL

NONIONIZING RADIATION MEASUREMENT PROGRAM

Howard E. Clark

National Bureau of Standards

Washington, DC 20234

The report provides a detailed assessment of the capabilities, limitations, and requirements of the National Nonionizing

Radiation Measurement System. The priorities of these measurement

requirements are assessed according to their ability to contribute

(1) to the core competence of determining the electric and magnetic fields of a source or (2) to the associated capabilities for

(a) generating and applying reference fields, (b) characterizing

sources and reflectors, or (c) recording exposure histories. The

report examines these measurement capabilities at all frequencies

between dc and 300 GHz. These measurement requirements are re- viewed in the context of the overall Federal Program for Nonionizing Electromagnetic Radiation Safety. The report concludes

that the need to develop and improve instrumentation, measurement

standards, calibration services, and standardized measurement

techniques far outweighs the need to establish regional calibration laboratories at this time. The study was conducted with the

assistance of the Conference of Radiation Control Program Directors in response to a recommendation by the U.S. Senate Committee

on Commerce, Science, and Transportation,

Key words: calibration; dosimetry; electric fields; electromagnetic interference; exposure history; instruments; magnetic

fields; nonionizing radiation; regional calibration laboratories;

standards; techniques.

1. EXECUTIVE SUMMARY

The Report on Radiation Health & Safety published in December 1978 by the

Senate Committee on Commerce, Science, and Transportation included the following recommendations:

The National Bureau of Standards (NBS) should

intensify its efforts to provide the physical

measurement standards, calibration services, and

standardized measurement techniques necessary for

research and regulatory activities relating to

nonionizing radiation.

Additionally, NBS, in conjunction with the

Conference of Radiation Control Program

Directors, should prepare for the Committee on Commerce, Science, and Transportation a review of

the need for an intermediate level of calibration
services, such as regional facilities to better

couple NBS laboratories with State and industrial

needs.

This document was prepared in response to those recommendations.

Based upon the findings of this study the National Bureau of Standards

and the Conference of Radiation Control Program Directors (CRCPD) have con- cluded that for nonionizing electromagnetic radiation (NER) the need to develop and improve instrumentation, measurement standards, calibration services

and standardized measurement techniques far outweighs the need to establish

regional calibration laboratories at this time.

This conclusion rests upon several observations. First, NBS calibration

services are not now experiencing excessive demands - principally due to a lack of regulatory pressure at either the Federal or State level and to the

fact that there are not now a great number of instruments to be calibrated.

(This situation may change in the future as regulatory agencies such as EPA

and OSHA increase their radiation protection activities - see section

3.3.1.) A second reason is that there appear to be no unique targets of

opportunity that might argue strongly for the establishment of such services.

The Conference of Radiation Control Program Directors believes that the

principal barriers to its own efforts in assuring nonionizing radiation safety

are the lack of (a) a general population exposure standard which its members

can enforce, (b) enabling legislation at the State level which would give them

authority to act, (c) inexpensive, commercially available field-survey instruments, and (d) adequately trained people (section 3.3.1).

The preparation of this report provided NBS with an opportunity to survey

the current capabilities and deficiencies of the national measurement system

(NMS) for nonionizing electromagnetic radiation (NER). The requirements which

stem from these deficiencies were then reviewed (section 3.2) and priorities

established (section 3.5). The detailed results of this review are presented

in Tables 2 through 13. Some 84 specific, measurement-related requirements

were identified. Slightly more than half were considered to have a high

priority.

About 82 percent of the high-priority tasks identified in this study

are already being addressed, either by NBS or by other organizations.

Additionally, we learned that plans are already being developed to deal with

nearly all of the remaining high-priority, measurement-related requirements.

2. INTRODUCTION

2.1 Purpose of Report

The Report on Radiation Health & Safety [1] published in December 1978 by

the Senate Committee on Commerce, Science, and Transportation included the

following recommendations:

The National Bureau of Standards (NBS) should

intensify its efforts to provide the physical

measurement standards, calibration services, and

standardized measurement techniques necessary for

2
research and regulatory activities relating to

nonionizing radiation.

Additionally, NBS, in conjunction with the

Conference of Radiation Control Program

Directors, should prepare for the Committee on Commerce, Science, and Transportation a review

of the need for an intermediate level of calibration services, such as regional facilities to

better couple NBS laboratories with State and

industrial needs.

This document was prepared in response to those recommendations. It

presents the results of a study conducted by NBS, with the cooperation and

assistance of the Conference of Radiation Control Program Directors, an organization of professional personnel who administer radiation protection programs in State and local governments.

To determine whether regional calibration facilities were needed at this

time, the study first assessed the current capabilities and deficiencies of

the national measurement system (NMS)i for nonionizing electromagnetic radiation (NER). The requirements which stem from these deficiencies were then

reviewed and priorities established. This analysis and the conclusions which

are drawn from it appear in sections 3 and 4 below. This review has proved to

be particularly valuable to NBS both for assessing the adequacy of our current

activities and for planning their future evolution.

2.2 Scope of the Report

For purposes of this report NER is defined as that portion of the electromagnetic spectrum extending from 0 hertz (cycles per second, Hz) to 300 GHz

(3 X 1011 cycles per second). This portion of the spectrum includes both

static (D.C.) and slowly varying electric and magnetic fields (e.g., those

from high voltage transmission lines), as well as microwave and other radio

frequencies. These radiations are called nonionizing because, in interacting

with matter, they do not have sufficient energy to cause ionization, i.e., to

separate electrons from atoms or simple molecules. Rather, their principal

mechanisms of interaction are (a) ionic conduction (which results in an energy

loss due to the electrical resonance of the medium), and (b) excitation of

vibrational or rotational states of molecules. All of these mechanisms produce heat. This report provides a detailed assessment of the NMS requirements

over the frequency range 0 - 300 GHz only.

iThe national measurement system consists of all of the activities and

mechanisms — intellectual and operational, technical and institutional -- used to provide physical measurement data to allow the creation of the

objective, quantitative knowledge required by our society. For a complete

discussion of this concept, see Structure and Functions of the National

Measurement System by Raymond C. Sangster, NSBIR 75-949 (July, 1977),

available from National Technical Information Service, U.S. Dept. of Commerce,

5285 Port Royal Road, Springfield, VA 22151. Accession number PB 274-048,

$10.

3
Ultraviolet, visible and infrared radiation are also forms of nonionizing

electromagnetic radiation. However, even though the Conference of Radiation

Control Directors has encountered a number of measurement problems in these

areas, those problems will not receive a detailed examination in this report

(see sections 3.3,5 and 3.3.6). There are three reasons for this. First,

these subjects received little attention during the Committee's hearings in

1977. Second, they were not included in the deliberations of the ad hoc

Working Group [2] established by the Office of Science and Technology Policy

(OSTP) in 1978 or by the Interagency Task Force [3] on Biological Effects of

Nonionizing Electromagnetic Radiation (BENER) formed in 1979 by the National

Telecommunications and Information Administration (NTIA). And finally, the

measurement problems which the States have experienced are directly related to

the enforcement of regulations promulgated by the Bureau of Radiological

Health (BRH). BRH is working directly with the States on these matters (see

section 3.3). The basic measurement standards needed for these cooperative

efforts are already available from NBS.

2.3 How This Report was Written

In gathering information for this report, NBS staff members participated

in four meetings with members of the CRCPD. Several drafts have been reviewed

by a task force of CRCPD members. 2 This final document reflects their suggestions and comments. Additionally, the NBS staff gathering data for this

report have interviewed officials in at least seven Federal agencies with

specific responsibilities in this area to determine their measurement and

instrumentation needs.

In January of 1981, a draft of this report was submitted to 11 Federal

agencies for review and comment. To the maximum extent practical, their

suggestions have also been incorporated.

3. MEASUREMENT STRATEGY FOR NER HEALTH & SAFETY

3.1 Structure of the Measurement Problem

As it applies to issues of NER health and safety, the objective of the

NBS program is

To develop the theoretical and experimental basis for the

measurements needed to predict or reduce the extent of

interference from nonionizing electromagnetic radiation

with electrotechnical or biological systems.

Figure 1 illustrates the relationship between the four elements of the

NBS strategy for achieving this objective. All of the measurement problems

^Current members of the CRCPD task force include Mr. Charles Tedford (Arizona)

Chairperson, Mrs. Susan Kent (Texas), and Dr. Francis Bradley (New York).

Federal agency observers include Mr. Frank Tipton (OSHA), Mr. Norbert Hankin

(EPA), Mr. William Herman (BRH) and Dr. Howard Clark (NBS). Mr. Joseph Thiel

(Texas), a former member of the task force, also made significant contributions to the development of this document.

4
MEASUREMENT STRATEGY

FOR

NONIONIZING ELECTROMAGNETIC RADIATION

HEALTH & SAFETY

I

Figure 1

5
involving radiated electromagnetic fields, which the authors of this report

have encountered, appear to fall under one of the four elements illustrated in

that figure; i.e., they require efforts to:

I. Characterize the electromagnetic field at a given point in space and

time;

II. Generate or apply reference fields;

III. Characterize radiation sources or objects that interact with radiation

fields either by scattering, reflection or absorption; or

IV. Generate a recorded history of exposure to such fields.

The geometrical structure of Figure 1 emphasizes that the ability to

characterize electromagnetic (EM) fields plays a central role in dealing with

all such problems. Thus, it is impossible to apply a reference field, characterize a radiation source or record an exposure history without first developing the ability to characterize electromagnetic fields under the specific

conditions that apply to the problem at hand. Elements II, III, and IV,

however, are relatively independent of one another.

3.2 Analysis of Measurement Requirements

In order to assess the requirements of the national measurement system

for NER, each of the four major objectives has been subdivided into logically

independent pieces, e.g., measurement of magnetic field vs. electric field and

measurements at radiof requencies vs. extremely low frequencies (D.C. or 60

Hz). While it has not been possible to identify completely independent subgroups (a single TEM cell 3, for example, can be used to both generate and

apply electric and magnetic fields), the division should assist the reader in

focusing his attention upon more narrowly defined measurement requirements. A

complete list of subheadings is given in Table 1.

It should be noted that objective I in Table 1 is labeled "Develop

Ability to Characterize Electromagnetic Fields" whereas sub-elements I.

A

through I.D (and also II. A through II. G) refer either to electric or to magnetic fields but not to electromagnetic waves. The distinction is an important one and results from the fact that no instruments are yet available to

directly measure the intensity of an electromagnetic field (|f x I^|) vs. independently measuring the intensity of the individual field components

(E and K).

In the far field** of a radiation source, measuring either one of the

components (f or ft) is entirely adequate. This is because, in the far field,

knowledge of one component enables calculation of the other or of the power

3A TEM cell is a special, expanded waveguide section that supports a transverse electromagnetic planewave.

•Far-field conditions apply when the source of radiation or any reflecting

structures are sufficiently far away that the transmitted electromagnetic wave

behaves like a plane wave. Under these conditions the electric and magnetic

field vectors are perpendicular to one another and have a known ratio.

6
TABLE 1

MEASUREMENT STRATEGY

FOR

NONIONIZING ELECTROMAGNETIC RADIATION

HEALTH AND SAFETY

I. Develop Ability to Characterize Electromagnetic Fields

A. Instruments and procedures for radiof requency (RF) electric fields

B. Instruments and procedures for RF magnetic fields

C. Instruments and procedures for extremely low frequency (ELF)

electric fields

D. Instruments and procedures for ELF magnetic fields^

II. Develop Ability to Generate and Apply Reference Fields

A. Equipment and procedures to generate uniform RF electric fields of

known magnitude, direction, and phase

B. Equipment and procedures for subjecting test objects to uniform RF

electric fields of known magnitude

C. Equipment and procedures to generate uniform RF magnetic fields of

known magnitude

D. Equipment and procedures for subjecting test objects to uniform RF

magnetic fields of known magnitude

E. Equipment and procedures for generating and applying ELF electric

fields

F. Equipment and procedures for generating and applying ELF magnetic

fieldss

III. Develop Ability to Characterize Sources and Reflectors

A. Procedures to characterize radiation sources

B. Instruments and procedures to collect and characterize RF radiation

scattered from an object

C. Explore interactions between electromagnetic (EM) waves and

reflectors

5The ability to measure, generate and apply extremely low frequency magnetic

fields is very highly refined. Except for the case of personal dosimeters

(treated in Table 13), we are aware of no measurement problems in this area - particularly as they might relate to issues of health and safety. These

subjects will receive no further discussion in this report.

7
density S = |f x fi|. However, in the near field^ of a source (or under near- field-like conditions) t and t\ are not perpendicular to one another; nor do

they necessarily have the same ratio as in the far-field case. Thus, until

instruments have been developed which can simultaneously determine both

t. and ^1, most work will focus on the measurement of either the electric field

or the magnetic field independent of one another. While there is some uncertainty about the usefulness of measuring x f^) in any near-field situation,

it is clearly desirable to simultaneously determine both f and at the same

point. The development of such instruments and the associated measurement

techniques is, of course, one of the major thrusts of the NBS program.

Tables 2-13 form the core of this report. Except as noted, one table

has been prepared for each of the subacti vi ties identified in Table 1. These

tables provide a current assessment of the capabilities and applications of

NER measurement technologies as they exist today and as they relate to issues

of radiation health and safety.

In developing these tables, the authors have attempted to provide as broad a view as possible; thus, we report on capabilities that are known to

exist within U.S. industry, in foreign or academic laboratories, and in other

Government agencies as well as those which exist at the National Bureau of

Standards. We have attempted to exclude from consideration in this report any

capabilities that do not have either a direct or closely related impact on health and safety. Thus, no attention is given to NBS expertise in characterizing the performance of antennas used, say, for satellite communications; but we have included the techniques for characterizing potential sources of electromagnetic interference (EMI), which may directly produce unsafe conditions,

e.g., unintended detonation of explosives or disruption of medical services.

For each capability noted in Tables 2 - 13, the authors have attempted to

identify any corresponding limitations. Thus, for example, a TEM cell of

sufficient size cannot be reliably operated at frequencies much higher than

100 MHz — an engineering problem (EP) that can probably be solved. Other

kinds of limitations have also been noted. For example, no isotropic antenna

will ever give information on the direction from which a signal is coming.

This is a fundamental limitation of nature (FLN). If directional information

is needed, another kind of instrument will have to be used.

All of the limitations thus identified lead naturally to new requirements, e.g., extending the frequency band over which a TEM cell can operate.

These requirements have been classified either as:

(a) short range (SR) - something that is already being addressed,

either at NBS or elsewhere;

(b) medium range (MR) - a problem that is not now being addressed, but one for which work could begin as soon as resources become available (either new resources or ones that become available as the

short term goals are achieved);

^Near-field conditions apply close to the source of radiation or to objects

that modify the field of a distant source, e.g., by producing reflections.

8
(c) long range (LR) - a problem that will require a long time to solve

(six years or more), or one for which definite plans do not yet

exist; even if resources became available today, work could not

begin to directly address such a problem.

Each of these requirements is followed by single letter (H, M,

L, N or X) in parentheses. The letters give our assessment of the

relative priority for each of these requirements: H = High; M = Medium; L = Low; N = No Problem, and X = Treated Elsewhere. These

assessments, of course, were influenced by our discussions with

personnel in other agencies, in U.S. industry and the States.

Lowest priority was assigned to tasks (1) which would result in

long-range, second or third order improvements in existing

capabilities (e.g., T2, R5)7; (2) which cannot be approached until more fundamental (and, hence, more important) intermediate tasks

are accomplished (e.g., achieving T6, R5 requires completing T6,

R4); or (3) for which there is very little demand at this time

(e.g., T7, R2). On the other hand, highest priority was assigned

to (1) fundamental tasks at the core of the measurement strategy

upon which other capabilities will depend (e.g., T2, R14); (2)

measurement requirements which are needed to test for compliance

with existing radiation protection standards (e.g., T2, R4); (3)

tasks whose outcome will have broad and critical impact among

researchers concerned with biological effects or equipment immunity

(e.g., T5, R8); or (4) projects whose results are urgently needed

to carry out an agency's mission (e.g., T4, R9).

Finally, in Tables 2 - 13 we also identify the technical

approach that is being used to address these problems and note who

is working on them.

"7(T2, R5) means Table 2, requirement 5.

9
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26
3.3 Other Considerations

For describing the capabilities and requirements of the national NER

measurement system, the preceding tables tell only part of the story. While

giving detailed information on tools and techniques that are already in place,

though often performing in only a limited fashion, the tables say little about

some subjects that are of specific interest both to the States and to Federal

agencies as well - such as enabling legislation, active enforcement programs,

standards to be enforced, equipment, or the trained people to do the job. It

is important, for instance, to assure that people who may be provided with

good quality instruments are also carefully instructed in what the instrument

will and will not do. These individuals also need to know how to compare the

results of a measurement with the applicable standard in order to account for

the duty cycle of the equipment which is generating the field, its frequency,

and other considerations. The tables also give little attention to those

needs for which not even a limited capability has yet been developed — items

such as measurement quality assurance programs or the capability for dealing

with conducted EMI. (See 3.3.4, below.)

3.3.1 Radiation Control

Several recent documents [1], [2], [3], [4], [5], [6] and [7] have

pointed out that the United States has no mandatory. Federally enforced,

general population exposure standard for NER at this time. One consequence of

this situation is that while more than 20 States have passed enabling

legislation, which will permit them to exercise control over NER exposure,

only six are known to have active programs. The city of Portland, Oregon, and

the State of Texas are the only public bodies in the U.S. to currently impose

a population exposure limit (100 yW/cm^ and 10 mW/cm^, respectively).

The CRCPD considers this lack of a general population exposure standard,

which the States can enforce, to be one of the principal barriers in its own efforts to assure nonionizing radiation safety. It should be added, however,

that EPA is currently developing Federal guides for controlling radio-wave and

microwave exposure in areas accessible to the public. Additionally, EPA is

distributing RF/microwave survey meters to its Regional Offices.

While there are no Federal standards which control environmental exposure

to NER, OSHA is taking steps to more vigorously enforce its 10 mW/cm^ occupational exposure limit. It has, for instance, recently trained personnel from

all 10 Federal Regions in performing RF/microwave inspections. OSHA is also

providing these offices with the measurement instruments needed to enforce

that standard.

In addition to these regulatory efforts, the training branch of the

AFL/CIO, the Workers Institute for Safety and Health (WISH), is sponsoring a series of four symposia during 1980 and 1981 in which it will train safety

officers from local unions within the AFL/CIO in matters of safety and health

concerning RF/microwave and laser radiation.

These actions by EPA, OSHA and WISH are expected to generate an increased

demand for measurement equipment and for the calibration services needed to

support it.

The CRCPD cites the lack of (a) adequate funding for State radiation

control programs, (b) inexpensive, commercially-available, field-survey instruments, and (c) trained personnel in State enforcement programs as three of

27
the major deficiencies in the current national radiation control effort.

While the efforts of EPA, OSHA and WISH will add significantly to the number

of trained and wel 1 -equipped personnel, none of these are expected to reside

in State facilities.

3.3.2 Measurement Quality Assurance

As noted in the preceding tables, NBS has the capability of generating

standard electric and magnetic fields which can be used for instrument calibrations. This service is available to any organization - Governmental or private, large or small - that needs reference to highly accurate or precise

measurements. However, as noted by Ries and Anson in an earlier study of the

national NER measurement system [8], "Most of the measuring instruments used

in this country are never calibrated by NBS or any other standards laboratory.

At best, they have been calibrated toward the end of the production line on which they were manufactured. Often, they are not calibrated at all during

manufacture, and their accuracy depends upon the precision of the manufacturing process and upon their basic good design. Obviously, instruments that

are never seen by a standards laboratory carry the entire burden of measurement adequacy for whatever purposes they are used."

This situation is not necessarily unsatisfactory. Ries and Anson point

out, "Optimally, the production line calibrations or manufacturing processes

can be traced in some meaningful fashion back to basic standards as maintained

by NBS or as embodied in fundamental scientific processes, definitions, or phenomena."

In any case, NBS does not have the ability to calibrate all or even a modest fraction of all the instruments used in this country. Nor would such

calibration necessarily assure any improvements in accuracy. A perfectly

calibrated instrument may not be able to survive the trip home. (How could

the user even tell whether it had been jolted out of adjustment?) Furthermore, how could NBS be certain that the instrument was used properly after it

left the site? Clearly, there is a need to provide users with a means for

checking the operation of their instrument in its normal surroundings. If

deficiencies were noted, the instrument could be returned to the manufacturer

for repair and recal ibration.

One approach to solving this problem would be the establishment of re- gional calibration laboratories. If such facilities were available, a customer could personally and carefully transport his instrument to and from

the facility and check its operation. Alternatively, it might be possible to

develop small, rugged, inexpensive transfer standards that could be sold or loaned to the customer for use on his own site. Such standards would permit

simple and frequent checks of the users' entire measurement process.

This latter procedure, known formally as a Measurement Assurance Program,

has already been instituted by NBS for nine other quantities. The possibility

of developing a Measurement Assurance Program for radiated EM fields is cur- rently under consideration.

3.3.3 Calibration Workload

NBS is not at this time experiencing excessive demands for its calibration services. There are four reasons for this. First, the services are quite costly; for example, it may cost $3,000 to $5,000 to fully calibrate a $2,000 instrument. A user is more likely to send his instrument to the

28
manufacturer, who will recalibrate it at a lower cost, though usually at only

a few specific frequencies.

A second reason for the low demand is the lack of pressure on users to

demonstrate that their measurements are accurate. Thus, since there has been

no legal requirement to demonstrate compliance with a mandatory personnel

exposure standard, few people feel the need to demonstrate any level of accuracy beyond that claimed by the manufacturer. However, if EPA, OHSA, and WISH

continue to intensify their efforts (see 3.3.1 above), there is likely to be

an increasing need to make measurements whose accuracy is traceable (through

some calibration chain) to national standards.

Third, some services are available elsewhere at no cost. For example,

each year the Bureau of Radiological Health calibrates about 500 instruments

at one or two frequencies for those organizations which are responsible for

enforcing the BRH microwave oven standard. However, they do not provide such

calibrations for industrial or academic institutions, except where needed to

determine compliance with the microwave oven performance standard.

A fourth reason for the low demand is that NBS has not routinely listed

such a service in its own catalog of calibration activities - Special

Publication 250. This is because the calibration techniques were not yet

fully developed. Automation of the calibration system, together with a detailed error analysis, should be completed by the end of FY 81. Calibrations

can then be provided on a routine basis rather than by special contract.

State regulators are understandably reluctant to rely on private industry

for the calibration of those instruments which will then be used to assess the

industry's compliance with the regulations. Thus, they have encouraged NBS to

take whatever action may be needed (e.g., automation) to bring down the cost

of its calibrations. If Measurement Assurance Programs were available in the

NER area, the State regulator could easily and routinely check the performance

of his instrument before and after a thorough calibration by the manufacturer

or independent laboratory.

3.3.4 Conducted Electromagnetic Interference

It is widely recognized that the performance of many electronic devices

can be significantly degraded by exposure to radiated electromagnetic

fields. For example, reception in the A.M. radio band (0.5 - 1.6 MHz) becomes

extremely noisy during electrical storms, and two-way radios need to be turned

off in blasting zones. There is yet another major source of EMI - specifically, interference

which reaches electronic equipment through its power cables or data lines.

This is called "conducted EMI" and may result in a significant deterioration

of the equipment's performance. Conducted EMI can have severe impact on health and safety - especially if it affects medical devices.

Although the National Bureau of Standards does not now have any ongoing

work that addresses this important problem, various options for starting this

work are being considered. Possible approaches include reprogramming from

current activities and acquiring other agency support.

29
3.3.5 Lasers

One of the most difficult high priority problems facing State radiation

control program directors is the enforcement of FDA regulations^ relating to

the use of laser beams for artistic/entertainment displays for rock concerts,

art exhibits, and discotheques. Lasers used in these applications usually

employ a high power argon or krypton or mixed gas laser with beam deflecting

optics [9]. The Bureau of Radiological Health has noted, "Exposure of the

public to hazardous levels of laser radiation is now occurring in widely

separated locations and applications. In several instances the levels of

optical radiations exceed, manyfold, those levels known to be capable of

producing permanent eye damage." [12].

Under the BRH regulations, "It is required that the manufacturer of a laser light show meet all of the requirements of the laser performance standard and laser light show guidelines. Calculations, measurements or their

combination of the accessible laser radiation must be made and presented to

the Bureau of Radiological Health for review before the laser light show is

presented." [9]

Compliance with such regulations is not only possible but also highly

desirable. And while it will certainly provide some measure of safety, the

State radiation control program directors feel that the use of radiation

monitors during the actual performance would provide an even better assurance

of safety. However, actual measurements of the pulse intensity of a moving

laser beam are extremely difficult to make in practice. The BRH is working on this problem and has already developed some prototype instruments. While

field tests have not yet commenced, some companies have already expressed an interest in commercial development of the final product [10].

3.3.6 Ultraviolet Radiation

Another important and current measurement problem faced by the State

radiation control program directors relates to protecting the public from

excessive exposure to man-made ultraviolet radiation. The two principal sources of exposure are damaged, high-intensity, mercury vapor lamps (used in

gyms, department stores, banks, parking lots) and tanning booths now available

throughout the country at special "tanning clinics."

The high-intensity lamp problem has also been addressed by BRH, which has

issued standards (effective March 7, 1980) relating to their manufacture.

Lamps produced in compliance with the standard either have a built-in device

that extinguishes the light within 15 minutes if the outer globe is broken, or will bear detailed warnings about possible hazards and preferred methods of

installation and use. This is more a problem of maintenance than of measurement.

There Is a need, however, for new, portable, inexpensive instruments to measure the spectral irradiance inside tanning booths or other environments.

821 CFR 1030.10, January 1976 and as amended November 28, 1978. Also, FDA

Compliance Policy Guides. "Applicability of Laser Product Performance

Standard to Laser Light Shows (21 CFR 1040. 10(s) and 1040.11(c)" (November 23,

1977). "Interim Enforcement Policy for Certain Laser Light Shows and Displays

(2) CFR 1040.10 and 1040.11)" (February 21, 1978).

30
The Bureau of Radiological Health has developed such a hazard meter and has

submitted it to NBS for evaluation. If the instrument is found to be satisfactory, BRH will make the plans available to potential manufacturers.

3.4 Addressing Measurement Problems

In this section of the report, we shall briefly identify the roles of the

various Federal agencies in addressing measurement problems involving NER. A more complete discussion of the specific responsibilities will be found in [3]

and [6],

3.4.1 Population Exposure

The job of determining population exposure to radiof requency and microwave radiation rests primarily with the regulatory agencies. EPA, for

example, has been conducting a vigorous program to determine the magnitude and

extent of environmental exposure to NER. Similarly, OSHA, BRH, NIOSH and (in

special circumstances) EPA have developed a cooperative program to determine

the magnitude and extent of occupational exposure to NER. Their efforts are coordinated by the Radiof requency and Microwave Committee of the Interagency

Regulatory Liaison Group. Exposure resulting from consumer and medical applications of NER is being addressed by the BRH. The Armed Services also collect

information regarding the exposure of their personnel to NER. Both DOE and

EPA have programs for measuring and calculating population exposure to 60 Hz

electric and magnetic fields. DOE is also measuring exposure levels for DC

fields.

In response to this growing interest in and need for reliable measurements of radiof requency radiation exposure, EPA's Office of Radiation Programs

- Las Vegas Facility - conducted a three day Radiof requency Measurements

Workshop in November of 1980. It was attended by about 35 representatives of

nearly 20 different organizations (mostly Federal agencies). The workshop was organized to provide a forum for the exchange of information, measurement

experiences, and problems. The participants agreed upon two recommendations:

1. That a group, such as the American National Standards Institute

(ANSI), should set the following standards for broad band RF survey

instruments: a) minimum, uniform reporting requirements of performance characteristics for existing instruments; b) minimum testing

procedures for evaluating instrument performance, and c) performance characteristics for future instruments.

2. That standardized measurement techniques be developed based on: a)

existing instrumentation; b) applicable safety standards, and c)

specific exposure situations.

A complete report on the conclusions reached by workshop participants is

scheduled to be published at an early date.

3.4.2 Dosimetry

Measurements play a crucial role in the Government's effort to determine

the relationship between incident and absorbed electromagnetic radiation,

including the distribution of local electric and magnetic fields, or absorbed

energy, within exposed individuals or experimental subjects. Reliable quantitative measurements of absorbed dose are needed in order to develop a basis

31
for defining dose equivalency and for making interspecies comparisons or extrapolations based on the use of quantitative scaling factors. Reliable

data on absorbed dose are also of importance in connection with research on mechanisms of field interactions at the cell and tissue levels. Current

status is addressed in Tables 2, 4, 6, 8, 11, 12 and 13.

Numerous Federal agencies (including all three military services, NIOSH,

NIEHS, EPA, DOE and BRH) are involved in either conducting or sponsoring

research to determine the energy absorbed from an electromagnetic field. The

reader's attention is particularly directed to the Radiofrequency Radiation

Dosimetry Handbook, prepared by the Departments of Electrical Engineering and

Bioengineering at the University of Utah for the U.S. Air Force School of

Aerospace Medicine, Brooks Air Force Base, Texas 78235 (Report Numbers SAM-TR76-35, SAM-TR-78-22 and SAM-TR-80-32)

.

3.4.3 Biological Consequences of NER Exposure

As with dosimetry, there are numerous Federal agencies involved in determining (a) what biological effects can be caused by exposure to NER, (b) what

relationships exist between the observed biological effects and the relative

NER parameters (e.g., power density, field strength, absorbed dose, frequency,

and modulation), and (c) what is the health or biological significance of any

such effects. Physical measurements will play a critical role in understanding the causal connections between radiation exposure and the resulting

biological effects. As noted by the BENER Task Force, "The lack of adequate

tools such as EM field probes, EM field simulators, dosimeters, calibration

and exposure systems, and standardized measurement techniques has been one of

the major deterrents to progress in this field." [3]

Access to state-of-the-art instrumentation is a matter of concern to many

laboratory scientists. The problem is that advanced instruments or exposure

systems designed to solve the measurement problems of one organization may never become commercially available for use in other facilities. It is incumbent upon agencies like NBS, who develop such devices, to fully document and

publish the results of all work which might lead to the development of marketable products. The recent commercialization of the NBS isotropic electric

field meter is a notable example of success in this area.

3.4.4 Cooperation and Coordination

Since about 1971, the National Telecommunications and Information

Administration or its predecessor, the Office of Telecommunications Policy,

has provided a forum for the exchange of information among all of those

Federal agencies which have responsibilities relating to NER health and

safety. In addition to the interactions provided through this mechanism, the

National Bureau of Standards has had a long history of direct contacts with

most of these Federal agencies. In some cases, NBS is called upon to solve

specific measurement problems, e.g., to develop a small-animal exposure system

for the U.S. Air Force [11] which would provide for independently generating

high-level electric and magnetic fields in the frequency range 10 to 30 MHz.

In other cases, memoranda of understanding are developed in order to define

the responsibilities of the specific agencies.

An informal agreement between EPA and NBS, for example, states, "EPA has

a responsibility for performing the field measurements for EM environments,

for evaluating the potential impact of these environments, and for providing

32
guidance with respect to adherence to establ i sh[ed] standards." On the other

hand, "The National Bureau of Standards recognizes its responsibility in

developing measurement techniques, standardized testing methods, instrumentation, and prototype devices for the measurement of EM fields..." Further,

it is agreed, "NBS will refer all future requests for field measurements of

the EM environment to the EPA for appropriate action."

Staff participation on standards writing committees such as those of

ANSI, IEEE and NCRP also provide an excellent opportunity for exchanging

information relating to current activities or measurement system needs.

As a result of these formal mechanisms as well as other, informal con- tacts between staff members of the various agencies, the BENER Task Force

concluded that there was "a good match between the kinds of work needed and

projects already underway and no unnecessary duplication or unrecognized

needs. Thus, the ongoing program provides an excellent base for expansion."

3.5 Priorities and Time Scales

Some 84 different requirements were spelled out in Tables 2 - 13. Approximately

61 percent of the requirements were considered to have high priority,

21 percent of the requirements were considered to have medium priority, and

9 percent of the requirements were considered to have low priority.

The remaining items presented no measurement problems.

Among the 51 requirements that were considered to have a high priority,

82 percent are now being addressed either by NBS or by another laboratory; 18

percent are not yet covered.

Of the 26 high priority requirements which are already included in the

NBS program

• 25 percent are expected to be completed within one year. Examples include

- the development of a directional, broadband antenna for use

in the 1 MHz to 6 GHz frequency band (T2, R2);

- extending the upper limit of the NBS-developed electric

field meter from 1 GHz to 4 GHz (T2, R4); and

- completing a theoretical model to predict the behavior of

practical approaches for generating an ELF electric field

with space charge (T9, R2).

• 25 percent are expected to be completed within three years. Examples

include:

- reducing to 1 dB the uncertainty in the magnitude of the EM

fields within the Bureau's anechoic chamber (T5, R6);

validation of source-emission test methods (TIO, R5); and

- devising test methods to evaluate the range over which ion

density meters will operate acceptably (T4, R9).

33
• 15 percent are expected to be completed within five years. Examples

include:

- the development of a directional, broadband antenna for use

in the 1 MHz to 40 GHz frequency band (T2, R2);

- the development of a field probe that will simultaneously

measure both electric and magnetic fields (T2, R3); and

- the development of a personal dosimeter (T13, Rl).

Those topics with the greatest number of unmet needs include:

Characterizing RF Electric Fields (Table 2), and

Generating RF Electric Fields (Table 5).

Of all the requirements identified in Tables 2-13 which remain to be

addressed, the three which we consider to be of the very highest priority are the development of:

- an EM field probe that will simultaneously measure both

electric and magnetic fields (T2, R3);

- prototype hand-held instruments for measuring the intensity

vs. time profile of pulsed and impulsive fields (T2, R13); and

- expertise needed to generate at least four simultaneous, wellcharacterized, CW, EM fields (T5, R8).

These items will clearly become a part of the NBS program as current activities are brought to a conclusion.

Aside from these top priority requirements, however, there remains the

major question of how to deal with conducted EMI discussed in section 3.3. As

noted there, NBS does not now have any ongoing work that addresses this important problem. An effort is being made, however, to find some means for

building the "critical mass" of resources that will permit a meaningful start

on this problem. Reprogramming from current activities and seeking other

agency support are among the various options now being considered.

4. CONCLUSION

This examination of the capabilities and limitations of the national

measurement system for NER health and safety has demonstrated that while a number of high priority tasks remain to be completed (e.g., validation of

emission test methods) and still others to be even initiated (e.g., the development of electric field intensity meters for pulsed and impulsive sources),

there exists a strong foundation upon which future developments can be

based. Of the 84 recognized tasks that remain to be completed more than half were judged to have a high priority, but 82 percent of these tasks were

already being addressed either by NBS or another institution.

The study noted that the United States has no mandatory, federally

enforced, general population exposure standard at this time. Additionally,

while it is generally recognized that States play a critical role in the

34
regulatory process, only a handful of States have active NER protection

programs, and only two public bodies (the city of Portland, Oregon and the

State of Texas) have adopted their own population exposure standards. This

lack of strong regulatory pressure, combined with other factors cited in the

report (section 3.3.3), has served to limit the demand for NBS calibration

services in the NER area. This situation may change in the future if

regulatory agencies such as EPA and OSHA continue to increase their radiation

protection activities.

Attention was drawn to the fact that numerous other Federal agencies play

a key role in assuring NER health and safety. These agencies often work

together for the solution of common problems (e.g., the EPA workshop cited in

section 3.4.1) or to plan future activities (e.g., the BENER Task Force).

These interactions help to keep NBS informed of present and future measurement

needs as they arise.

In view of these considerations, it appears at this time that there is

not sufficient demand for present or additional NER calibration services to

justify the establishment of regional calibration laboratories; nor are there

any unique opportunities that argue strongly for the establishment of such

services. However, as Federal, State and other radiation control programs are further strengthened, the need for regional facilities will again need to be

assessed.

35
5. REFERENCES

[I] Report on radiation health and safety. U.S. Senate Committee on Commerce, Science and Transportation (U.S.); 1978 December.

[2] A technical review of the biological effects of nonionizing radiation,

office of science and technology policy (U.S.); 1978 May 25.

[3] Nonionizing electromagnetic radiation safety. A program of coordinated

Federal activities related to biological effects of nonionizing

electromagnetic radiation [0-300 GHz). Interagency Task Force on Biological Effects of Nonionizing Electromagnetic Radiation (BENER).

National Telecommunication and Information Administration (U.S.) Special

Publication #80-7; 1980 June.

[4] Hearings on radiation health and safety before the U.S. Senate Committee

on Commerce, Science and Transportation. (U.S.) Serial No. 95-49; 1977

December.

[5] Research on health effects of nonionizing radiation. Hearing before the

House of Representatives Subcommittee on Natural Resources and

Environment^; 1979 July 12.

[6] Fifth report on program for control of electromagnetic pollution of the

environment: the assessment of biological hazards of nonionizing

electromagnetic radiation. National Telecommunication and Information

Administration (U.S.) Report 79-19; 1979 March.

[7] Arthur, M.G., ed. Proceedings of the 1978 Electromagnetic Interference

Workshop^ Nat. Bur. Stand. (U.S.) Spec. Publ. 551; 1979 July. 47 p.

[8] Ries, F.X.; Anson, W.J. The national electromagnetics measurement

system. Nat. Bur. Stand. (U.S.) Internal Report; 1975 March 31.

[9] Royston, D.C. Analysis of some laser light show effects for

classification purposes. HEW (U.S.) Publication (FDA) 80-8103; 1979

November 19.

[10] Personal communication with David D. Royston. Division of Electronic

Products, Bureau of Radiological Health (U.S.); 1980 February 28.

[II] Development and construction of an electromagnetic near-field

synthesizer. Nat Bur Stand. (U.S.) TN 652; 1974 May.

[12] Peterson, R.W. Some considerations of hazards in the use of lasers for

artistic displays. HEW (U.S.) Publication (FDA) 79-8082; 1979 March 19.

36
NBS-114A (REV. 2-ec) U.S. DEPT. OF C OMM. 2a Pcrforrning Organ, Report No.

RIRI inPRAPHIP nflTfl REPORT NO. SHEET (See instructions) NBS SP 613 June 1981

4. TITLE AND SUBTITLE

Requirements for an Effective National Nonionizing Radiation Measurement System

5. AUTHOR(S)

Howard E. Clark

6. PERFORMING ORGANIZATION (If joint or other than NBS, see instructions)

NATIONAL BUREAU OF STANDARDS

DEPARTMENT OF COMMERCE

WASHINGTON, D C 20234

7. Contract/Grant No.

8^. Type of Report & Period Covered Final

9. SPONSORING ORGANIZATION NAME AND COMPLETE ADDRESS (Street. City. State. ZIP)

Same as above.

10. SUPPLEMENTARY NOTES

Library of Congress Catalog Card Number: 81-600070

I I Documerit describes a computer program; SF-185, FlPS Software Summary, is attached.

11. ABSTRACT (A 200-word or less factual summory of most significant information. If document includes a significant

bi bl iography or literature survey, mention it herej

The report provides a detailed assessment of the capabilities, limitations, and requirements of the National Nonionizing Radiation Measurement System. The priorities of these

measurement requirements are assessed according to their ability to contribute (1) to

the core competence of determining the electric and magnetic fields of a source or

(2) to the associated capabilities for (a) generating and applying reference fields,

(b) characterizing sources and reflectors, or (c) recording exposure histories. The

report examines these measurement capabilities at all frequencies between dc and

300 GHz. These measurement requirements are reviewed in the context of the overall

Federal Program for Nonionizing Electromagnetic Radiation Safety. The report concludes

that the need to develop and improve instrumentation, measurement standards, calibration

services and standardized measurement techniques far outweighs the need to establish

regional calibration laboratories at this time. The study was conducted with the

assistance of the Conference of Radiation Control Program Directors, Inc. in response

to a recommendation by the Senate Committee on Commerce, Science, and Transportation.

12. KEY WORDS (S/x to twelve entries; alphabetical order; capitalize only proper names; and separate key words by semicolons)

Calibration; dosimetry; electric fields; electromagnetic interference; exposure history;

instruments; magnetic fields; nonionizing radiation; regional calibration laboratories;

standards; techniques.

13. AVAILABILITY

[y I Unlimited

I I For Official Distribution. Do Not Release to NTIS

BT] Order From Superintendent of Documents, U.S. Government Printing Office, Washington, D.C.

20402.

Order From National Technical Information Service (NTIS), Springfield, VA. 22161

14. NO. OF

PRINTED PAGES

41

15. Price

$2.75

USCOMM-DC 6043-P80

U S. GOVERNMENT PRINTING OFFICE : 1981 O—340-997 (1721)



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