Proposal for a Council Recommendation on the limitation of exposure of the general public to electromagnetic fields 0 Hz-300 GHz
Date: 1998-06-11
Institutions: European Commission
Subjects: electromagnetic interference, environmental standard, health risk, public health, safety standard

COMMISSION OF THE EUROPEAN COMMUNITIES 

Brussels, 11.06.1998 

COM(1998) 268  final 

98/0166 (CNS) 

Proposal for a 

COUNCIL RECOMMENDATION 

on the limitation of exposure of the general public 
to electromagnetic  fields 
0 Hz-300 GHz 

(presented by the Commission) 

EXPLANATORY  MEMORANDUM 

INTRODUCTION 

With  the  advent  of  modern  telecommunications,  the  expansion  on  a  massive  scale  of 
electrical  and  electronic  equipment,  and  the  proliferation  of  high-voltage  electricity 
transmission  lines,  interest  in,  and  concerns  about,  the  effects  of  electromagnetic  fields 
considerably  increased  over  the  recent  years,  and  calls  are  constantly  being  made  for 
measures  and  guidelines  in this  area. 

Radiation  from  electromagnetic  fields  is  quasi-ubiquitous.  For  health  protection  purposes 
it  is  usually  distinguished  between  ionizing  and  non-ionizing.  Community  provisions  with 
respect  to  the former  have been  laid  down  pursuant  to the  Euratom  Treaty. 

Electromagnetic  non-ionising  radiation  includes  ultraviolet  radiation,  visible  radiation, 
infrared  radiation  (which  together  constitute  optical  radiation)  and  static  and  time-varying 
electromagnetic  fields  (EMFs)  The  manner  in  which  these  different  radiations  and  fields 
interact  with  people  is quite different  and  potential  hazards  have to  be carefully  assessed 

For  members  of  the  general  public,  optical  radiation  presents  significant  adverse  health 
risks.  There  is  convincing  scientific  evidence  that  exposure  to  the  sun  is  a  major  risk 
factor  in skin  cancer  and  may  play  a role  in the  onset  of cataract.  Depending  on  individual 
circumstances,  other  exposure 
to  ultraviolet  radiation,  such  as  from  sunbeds  and 
unshielded  lamps,  may  also  contribute  to  an  individual's  risk,  but  generally  to  a  much 
lesser  extent  than  sun  exposure. 

Concerning  exposure  of  the  general  public  to  visible  radiation  (light),  the  most  important 
with  respect  to  potential  for  causing  eye  injury  is  laser  radiation  such  as  used  for  display 
and  entertainment  purposes. 

Guidelines  for  limiting  exposure  to  optical  radiation  and  recommendations  for  health 
protection  have  been  published  by  various  international  bodies,  and  are  currently  under 
consideration  at  Community  level. 

With  respect  to  electromagnetic  fields,  concerns  have  been  raised  about  possible  health 
effects  of  exposure  to  artificially  produced  fields.  While  the  acute  effects  of  exposure  to 
EMFs  are  generally  well  established,  there  is  an  ongoing  debate  as  to  the  existence  of 
long-term  health  effects,  primarily  cancer.  In  most  Member  States,  authorities  are 
constantly  questioned  about  such  effects.  There  is  no  convincing  scientific  evidence  of 
EMFs  causing  cancer,  however,  and  the  concerns  of  the  public  can  only  be  addressed 
through  the  results  of  focused  research.  There  are  however,  health  effects  of  EMFs  that 
are  well  established,  and  these  have  been  the  object  of  various  national  regulations  and 
international  guidelines  aimed  at  avoiding  or  limiting  exposure  which  may  give  rise  to 
them. 

Regulations and guidelines  in this area  aim at  establishing  systems of health  protection  on 
the basis of scientifically  derived  principles and criteria, and  comprise basic restrictions  for 
exposure  limitation  and  reference  levels  for  taking  appropriate  action  if  the  basic 
restrictions are not to be exceeded. 

Underpinning  the  setting  of  basic  restrictions  and  reference  levels  is  information  and 
scientific data concerning the sources and types of EMFs and health effects  that  may result 
from  exposure to them. These are reviewed below. 

SOURCES AND TYPES OF EMFs 

People are exposed  at  work  and  in their  living environment  to  different  EMFs  originating 
from  many man-made sources. 

Sources of static electric and magnetic fields 

In addition  to the environmental  static electric and  magnetic fields, new technologies  such 
as  visual  display  units  (VDUs),  and  some  public  transportation  systems,  e.g.  in 
underground  trains and tramways, which utilize  Direct  Current  (DC)  supplies may involve 
exposure to static and slowly time varying  fields. 

Power lines and electric appliances 

The  principal  artificial  sources  of  extremely  low  frequency  (ELF) fields are  high  voltage 
(HV)  transmission  lines,  and  devices  containing  current  carrying  wires.  Inside  buildings 
near  HV transmission  lines,  electric  fields  are  about  10 to  100  times  lower  than  outside, 
depending  on  the  structure  of  the  building  and  the  type  of  materials.  Common  building 
materials  do  not  significantly  attenuate  magnetic  fields.  All  electric  appliances  in  homes 
and  at  workplaces  are  potential  sources  of  power  frequency  (50/60  Hz)  electric  and 
magnetic fields. The  magnetic fields vary  from  a few  tenths  of  u.T to  a  few  mT  close  to 
appliances and drop off rapidly with distance. 

Railway systems 

Most  of  the  European  railway  systems  are  electrified,  using  DC  voltage  or  AC  voltage 
with  frequencies  of  16 2/3  Hz or  50  Hz.  For  instance, the  resulting  electric  field  strength 
inside  a train  using  AC  voltage  is only  a  few  V/m,  while  on  the  platform  field  strengths 
may be much  higher  The corresponding  magnetic fields on the platform  as well  as inside 
the train are about  a few tens of iiT during acceleration  of the train and are highly variable 
with time. 

Broadcast transmitters 

Broadcast  transmitters  use  frequency  bands  from  around  145  kHz  to  I  10 MHz  for  LF, 
MF,  MF and  VHF  radio  broadcasting,  and  from  147  to  854  MHz  for  UHF  television 
broadcasting  Measurements  at  an  MF  station  with  two  50  kW  and  two  75  kW 

transmitters  have  indicated  that at a distance  of 30  m from  a 75  kW mast  radiator  electric 
fields are about 275  V/m.  Public access close to broadcast antennas is generally restricted. 

Cellular radio 

Mobile  telecommunication  systems  can  be  divided  into  several  categories,  depending  on 
the  type  of  telecommunication  network  they  use.  Cellular  mobile  phone  systems  involve 
communication  from  hand-held  radiotelephones  or  vehicle  mounted  transceivers  to  fixed 
base stations.  Analogue cellular systems operate with frequency  bands of  150,  200, 450  or 
900  MHz.  The  European  digital  system,  based  on  the  harmonised  European  standard 
GSM,  operates  primarily at 900  MHz  and has been used  since  1992.  A new  system  called 
DCS  1800  operates  at  1800  MHz  with  characteristics  very  similar  to  GSM,  and  future 
systems will  operate  at even  higher frequencies.  Exposure  to fields  from  hand-held  mobile 
telephones  is generally  restricted  only  to  small  regions  of the user's  body,  in the  head and 
hand. 

Mobile phone base stations 

Base  stations  are  usually  mounted  on  separate  towers  or  on  the  roofs  of  buildings,  and 
access  to  the  immediate  vicinity  of  antennas  should  be  restricted.  The  transmitting 
antennas  are  formed  from  vertical  arrays  of  colinear  dipoles  which  give  a  very  narrow 
vertical  beam width.  The downward tilt of the  antennas  is less than  10°,  and hence  public 
exposure  to  the  main beams  is  usually  not  possible  at  distances  of  less  than  about  60  m, 
and human exposure levels are very low in most cases. 

Radar 

Radar systems use microwave frequencies  from  500 MHz up to  around  15 GHz,  although 
there are some systems operating up to  100 GHz.  The signal  produced  differ  from most  of 
the  sources  in  that  they  are  pulsed  and  give  average  powers  which  are  several  orders  of 
magnitude less than peak  powers. 

The antennas used for radars are moderately  directive  with  main beams only a few  degrees 
wide.  Many  of  the  systems  feature  antennas  whose  direction  is  continuously  varied  by 
rotating horizontally or nodding vertically. 

Marine  radar  equipment  ranges  from  large  installations  of  super-tankers  to  the  smaller 
mast  mounted  equipment  used  by  yachts.  Under  normal  operating  conditions  with  the 
antenna rotating, the average power density of the higher power systems within a metre  of 
the turning circle of the radar system can be calculated to be less of  10 W m*2. 

HEALTH EFFECTS OF ELECTROMAGNETIC  FIELDS -A  BASIS 
FOR EXPOSURE  RESTRICTIONS 

Health  effects  result  from  coupling  between  fields  and  the  body.  There  are  established 
basic  coupling  mechanisms  through  which  static  and  time-varying  electric  and  magnetic 
fields directly interact with living matter1: 

-  coupling  to  static  and ELF electric  fields  leads to  surface  charges  on  an  exposed  body 

which can be perceived; 

-  coupling to  static magnetic fields by magnetic  induction  resulting  in the  flow  of  electric 
current  and  electric  potentials  across  blood  vessels;  magnetomechanic  interactions, 
resulting  in  forces  on  ferromagnetic  molecules,  magnetic  particles  and  ferromagnetic 
implants; and electronic interaction processes which may affect  chemical reactions; 

-  coupling  to  low-frequency  electric fields results in the flow  of  electric  charges  (electric 
current),  the  polarisation  of  bound  charge  (formation  of  electrical  dipoles),  and  the 
reorientation  of electric dipoles already present in tissue; 

-  coupling  to  low-frequency  magnetic  fields  results  in  induced  electric  fields  and 

circulating electric currents that can lead to electrical  stimulation  effects; 

-  absorption  of  energy  from  electromagnetic  fields  of  frequencies  greater  than  100  kHz 

or so, can lead to significant  heating. 

In addition, there are two  indirect coupling mechanisms: 

-  contact  currents  or  transient  discharges  that  result  when  the  human  body  touches  an 
object  at a different  electrical  potential  (i.e.,  when  either the  object  or the  human  body 
is charged by an electromagnetic  field); 

-  coupling of electromagnetic fields to medical devices worn by a human. 

The evidence  concerning  health  effects  on  which  limitations  of exposure  are based  can  be 
summarized  separately for different  frequency ranges. 

Health effects of static fields 

The few  experimental  studies that  have been  carried  out  on the  biological  effects  of  static 
electric  fields  provide  no  evidence  to  suggest  the  existence  of  any  adverse  effects  on 
human health. For most people, the annoying perception  of surface  electric charges,  acting 
directly  on  the  surface  of  the  body,  will  not  occur  during  exposure  to  static  electric  field 
strengths of less than about 25 kV/m. 

1 United Nations Environment Programme/World  Health Organization/International  Radiation  Protection 
Association. Electromagnetic fields (300 Hz to 300 GHz). Geneva, World Health  Organization; 
Environmental Health Criteria  137; 1993 

There is no direct  experimental  evidence  of any acute adverse effect  on human health from 
exposure  to  static  magnetic  fields  up to  2 T.  From  the analysis  of  established  mechanisms 
of  interaction,  long-term  exposure  to  magnetic  flux  densities  of  200  mT  should  not  have 
any adverse consequences  on health. 

Health effects of time varying fields at frequencies below 100 kHz 

Laboratory  studies  on  cellular  and  animal  systems  have  found  no  established  effects  of 
low-frequency  fields  that  are  indicative  of  adverse  health  effects  when  induced  current 
density  is  at  or  below  10  mA/m2.  At  higher  levels  of  induced  current  density  (10-100 
mA/m2),  more significant  tissue effects  have been consistently  observed,  such as  functional 
changes in the nervous system. 

Measurement  of biological  responses  in laboratory  studies  and  in volunteers  has  provided 
little  indication  of  adverse  effects  of  low-frequency  fields  at  levels  to  which  people  are 
commonly  exposed.  A  threshold  current  density  of  10  mA/m2 at  frequencies  up to  1 kHz 
has been  estimated  for  minor  effects  on  nervous  system  functions.  Among  volunteers,  the 
most  consistent  effects  of  exposure  are  the  appearance  of  visual  phosphenes  (faint 
flickering  visual  sensation)  and a minor reduction  in heart rate during  or immediately  after 
exposure  to  ELF fields, but there is no  evidence  that these  transient  effects  are  associated 
with  any  long-term  health  risk.  A  reduction  in  nocturnal  pineal  melatonin  synthesis  has 
been  observed  in  several  rodent  species  following  exposure  to  weak  ELF  electric  and 
magnetic  fields,  but  no  consistent  effect  has  been  reported  in  humans  exposed  to  ELF 
fields under controlled  conditions. 

There  is  no  convincing  experimental  evidence  that  ELF  electromagnetic  fields  cause 
genetic damage and it is therefore  extremely unlikely that they could have any effect  on the 
initiation  of  cancer.  There  is  little  evidence  from  laboratory  studies that  power-frequency 
magnetic fields have a tumor-promoting  effect.  Although further  animal  studies are needed 
to  clarify  the  possible  effects  of  ELF fields on  signals  produced  in  cells  and  on  endocrine 
regulation  —  both  of  which  could  influence  the  development  of tumors by promoting  the 
proliferation  of  initiated  cells  —  it  can  only  be  concluded  that  there  is  currently  no 
convincing  evidence  for  carcinogenic  effects  of  these  fields  and that  these  data  cannot  be 
used  as a basis for developing  exposure guidelines. 

Epidemiological  data on  cancer  risk  associated  with  exposure  to  extremely  low  frequency 
(ELF)  fields  among  individuals  living  close  to  power  lines  seem  to  indicate  a  slightly 
higher risk of leukaemia among  children.  The  studies  do  not,  however,  indicate  a similarly 
elevated  risk  of  any  other  type  of  childhood  cancer  or  of  any  form  of  adult  cancer.  The 
basis  for  the  hypothetical  link  between  childhood  leukemia  and  residence  in  close 
proximity  to  power  lines  is unknown.  In the  absence  of  support  from  laboratory  studies, 
the epidemiological  data are insufficient  to allow the recommendation  of an exposure limit. 

There have been  reports  of an increased  risk  of  certain types  of  cancer,  such  as leukemia, 
nervous tissue tumors, and, to a limited extent,  breast cancer,  among electrical  workers. In 
most  studies,  job  titles  were  used  to  classify  subjects  according  to  presumed  levels  of 

magnetic  field  exposure.  A  few  more  recent  studies,  however,  have  used  more 
sophisticated  methods  of  exposure  assessment;  overall,  these  studies  suggested  an 
increased  risk of leukemia or brain tumors but were largely inconsistent  with regard  to the 
type of cancer for  which  risk is increased.  The data are insufficient  to  provide  a basis  for 
ELF field  exposure guidelines. In a large number of epidemiological  studies, no consistent 
evidence of adverse reproductive effects  have been provided. 

Health effects of fields at frequencies between 100 kHz and 300 GHz 

Available  experimental  evidence  indicates  that  the  exposure  of  resting  humans  for 
approximately  30  minutes  to  EMF  producing  a  whole-body  Specific  Absorption  Rate 
(SAR) of between  1 and 4 W/kg  results in a body temperature  increase  of less than  1°C. 
Animal  data  indicate  a  threshold  for  behavioral  responses  in  the  same  SAR  range. 
Exposure  to  more  intense  fields,  producing  SAR  values  in  excess  of  4  W/kg,  can 
overwhelm the thermoregulatory  capacity of the body and produce harmful  levels of tissue 
heating.  Many  laboratory  studies  with  rodent  and  non-human  primate  models  have 
demonstrated  the  broad  range  of  tissue  damage  resulting  from  either  partial-body  or 
whole-body  heating  producing  temperature  rises  in  excess  of  1-2  °C.  The  sensitivity  of 
various types of tissue to thermal  damage varies widely, but the threshold  for  irreversible 
effects  in  even  the  most  sensitive  tissues  is  greater  than  4  W/kg  under  normal 
environmental  conditions.  These  data  form  the  basis  for  an  occupational  exposure 
restriction  of  0.4  W/kg,  which  provides  a  large  margin  of  safety  for  other  limiting 
conditions such as high ambient temperature, humidity, or level of physical activity. 

Both  laboratory data and the results of limited  human  studies make it clear that thermally 
the 
stressful  environments  and 
thermoregulatory  capacity  of  the  body.  Under  these  conditions,  safety  factors  should  be 
introduced to provide adequate protection for exposed individuals. 

the  use  of  drugs  or  alcohol  can  compromise 

Data  on  human  responses  to  high-frequency  EMFs that  produce  detectable  heating  have 
been obtained from  controlled  exposure of volunteers and from  epidemiological  studies on 
workers exposed  to sources such as radar,  medical diathermy equipment, and heat sealers. 
They  are  fully  supportive  of  the  conclusions  drawn  from  laboratory  work,  that  adverse 
biological  effects  can  be  caused  by  temperature  rises  in  tissue  that  exceed  1°C. 
Epidemiological  studies on exposed  workers  and the general  public have shown  no  major 
health  effects  associated  with  typical  exposure  environments.  Although  there  are 
deficiencies  in the  epidemiological  work,  such  as poor  exposure  assessment,  the  studies 
have  yielded  no  convincing  evidence  that  typical  exposure  levels  lead  to  adverse 
reproductive  outcomes  or  an  increased  cancer  risk  in  exposed  individuals.  This  is 
consistent  with  the  results  of  laboratory  research  on  cellular  and  animal  models,  which 
have  demonstrated  neither  teratogenic  nor  carcinogenic  effects  of  exposure  to  athermal 
levels of high-frequency  EMFs. 

Exposure to pulsed EMFs of sufficient  intensity leads to certain predictable effects  such as 
the  microwave  hearing  phenomenon  and  various  behavioural  responses.  Epidemiological 
studies on exposed  workers and the general  public have provided  limited  information  and 

failed  to  demonstrate  any  health  effects.  Reports  of  severe  retinal  damage  have  been 
challenged  following  unsuccessful  attempts to replicate their findings. 

A large number of  studies  of the  biological  effects  of amplitude-modulated  EMFs,  mostly 
conducted  with  low  levels  of  exposure,  have  yielded  both  positive  and  negative  results. 
Thorough  analysis  of  these  studies  reveals  that  the  effects  of  AM  fields  vary  widely  with 
the  exposure  parameters,  the  types  of  cells  and  tissues  involved,  arid  the  biological  end-
points  that  are  examined.  In  general,  the  effects  of  exposure  of  biological  systems  to 
athermal  levels  of  amplitude-modulated  EMFs  are  small  and  very  difficult  to  relate  to 
potential  health  effects.  There  is  no  evidence  of frequency  and power  density  windows  of 
response to these fields. 

Shocks  and  burns  can  be  the  adverse  indirect  effects  of  high-frequency  EMFs  involving 
human  contact  with  metallic  objects  in the  field.  At  frequencies  of  100  kHz  -  110  MHz 
(the  upper  limit  of  the  FM  broadcast  band),  the  threshold  levels  of  contact  current  that 
produce  effects  ranging  from  perception  to  severe  pain  do  not  vary  significantly  as  a 
function  of the field frequency.  The  threshold  for  perception  ranges  from  25  to  40  mA in 
individuals of different  sizes,  and that for pain from approximately  30 to  55  mA; above  50 
mA there may be  severe burns at the site of tissue contact  with a metallic conductor  in the 
field. 

Formulation of basic restrictions for the exposure of the general 
public 

Based  on previously  summarized information  on health effects,  it can be concluded that: 

- 

In a 200  mT  static  magnetic  field,  the  calculated  maximum  induced  current  density  (in 
the  aorta)  is  44  mA/m2,  which  is  below  that  which  would  be  expected  to  produce 
adverse haemodynamic  or cardiovascular  effects. 

-  Functions  of the  central  nervous  system  may be  adversely  affected  by  current  densities 
above  10 mA/m2 at frequencies  between  approximately  5 Hz  and  1 kHz,  and by larger 
current  densities  at frequencies  above  and  below  this frequency  range.  This  determines 
basic restrictions in terms of current density. 

-  For  frequencies  above  about  100  kHz,  adverse  biological  effects  can  result  from 
temperature  elevations  in tissue  that  exceed  1°C.  From  this,  basic  restrictions  in terms 
of  the  specific  energy  absorption  rate  (SAR)  are  derived,  for  whole  body  and  for 
localised  exposure.  For  frequencies  above  10  GHz,  energy  absorption  is  restricted  to 
the  surface  of  the  exposed  body,  and  basic  restrictions  are  accordingly  expressed  in 
terms of power density. 

-  The  threshold  levels  of  contact  current  are  strongly  frequency  dependent  between 
several  Hz  and  100  kHz.  Over  the  frequency  range  from  100  kHz  to  110  MHz  (the 
upper  limit  of  the  FM  broadcast  band),  the  threshold  levels  of  contact  current  that 
produce  effects  ranging  from  perception  to  severe  pain  do  not  vary  significantly  as  a 

function  of  the  field  frequency.  Reference  levels  for  both  contact  current  and  induced 
current are set in order to determine whether caution must be excercised  to avoid  shock 
and burn hazards. 

The uncertainty in the scientific  data, and the variations in terms of individual  susceptibility 
as well  as variations in actual exposure  situations necessitate the use of safety factors when 
deriving restrictions to exposure. 

OVERVIEW OF RELEVANT MEASURES TAKEN BY MEMBER 
STATES 

Only a few Member States have promulgated  comprehensive  regulations and standards for 
the protection  of the general  public against  electromagnetic  radiation.  In view  of mounting 
public  concern  on  this  subject,  however,  several  Member  States  and  third  countries  are 
giving  urgent  consideration  to  adopting  health  protection  measures.  In this  context  some 
Member  States  indicated  a need  to  obtain  orientations  as to  the  nature  and  extent  of  such 
health protection measures. 

Some  Member  States  have  issued  recommendations  and  some  introduced  compulsory 
provisions  for  either  low  and/or  high  frequency  electromagnetic  fields.  A  review  of 
provisions  and  guidelines  in  this  field  was  published  by  the  Commission2.  In  general, 
Member  States make a distinction between health protection  requirements  of workers and 
members  of  the  general  public.  One  Member  State,  however,  does  not  adhere  to  this 
rationale, but distinguishes between exposure of adults and children. 

OVERVIEW OF COMMUNITY ACTS OF RELEVANCE 

Public Health 

The  European  Parliament  adopted  in  1994  a resolution  on  combating  the  harmful  effects 
of  non-ionizing  radiation3  and  called  on  the  Commission  to  propose  regulations  and 
standards  seeking  to  limit  the  exposure  of  workers  and  the  public  to  non-ionizing 
electromagnetic  radiation. 

In the  context  of  the  framework  for  action  in the field of  public  health4,  the  Commission 
adopted  on 4  June  1997  a proposal  for a programme  of  Community  action  1999-2003  on 
pollution-related  diseases5 which takes account  of the fact that health risks including  those 
associated  with exposure to  electromagnetic  fields,  are often  perceived  by the  public very 
differently  from  what  is  established  by  scientific  evidence;  consequently,  the  Commission 
proposed to tackle this problem with actions targeted at improving capactiy in the Member 

2 European Commission, Non-ionizing radiation: Sources, exposure and health effects,  Office  for  Official 
Publications of the European Communities,  1996, ISBN 92-827-5492-8 
3 OJ N° C 205, 25.7.94, p. 439 
4 COM (93) 559 final, 24.11.1993 
5 OJ N° C 214,  16.7.1997, p. 7-10 

10 

States  to  acquire  a  better  understanding  of  public  perceptions  of  environmental  health 
risks, and better explain how they are assessed  and managed. 

Health and Safety at Work 

Minimum  requirements  in  respect  of  the  protection  of  workers  against  certain  exposure 
situations have been laid down pursuant to Article  118A of the EC Treaty. 

Health  and  safety  protection  requirements  for  work  with  display  screen  equipment  were 
laid  down  in Council  Directive  90/270/EEC6.  This  obliges  employers  to  take  appropriate 
steps  to  ensure  that  workstations,  i.e.  an  assembly  of  visual  display  units,  keyboards, 
accessories  and periphals  including  telephone,  modem  and  printer,  meet  certain  minimum 
requirements.  All  radiation  with  the  exception  of  the  visible  part  of  the  electromagnetic 
spectrum  must  be  reduced  to  negligible  levels  from  the  point  of  view  of the  protection  of 
workers'  safety  and health. 

the 

Council  Directive  92/85/EEC7  on 
to  encourage 
improvements  in  the  safety  and  health  at  work  of  pregnant  workers  stipulates  that  the 
employer  has to  assess  all  activities  liable to  involve  a specific  risk  of  exposure  to  agents, 
including non-ionizing  radiation, processes or working  conditions,  and has to look  into the 
nature,  degree  and  duration  of  exposure,  in  order  to  decide  what  measures  should  be 
taken. 

introduction  of  measures 

Moreover,  the  Commission  presented  in  1993  a proposal  for  a  Council  Directive  on  the 
minimum  health  and  safety  requirements  regarding  the  exposure  of  workers  arising  from 
physical  agents8.  The  physical  agents  to  which  the  Directive  would  apply  are  noise, 
mechanical  vibration,  optical  radiation  and  other  electromagnetic  fields  and  waves.  The 
proposed  directive,  which  was  amended  subsequent  to  the  opinion  of  the  European 
Parliament  in a first  reading9  refers  to  risks to  the  health  and  safety  of workers  due  to  the 
effects  of  electric  fields  and  currents,  as  well  as  of  absorption  of  energy,  resulting  from 
exposure  to  static  and  time-varying  electric  and  magnetic  fields  with  frequencies  up  to 
300G  Hz. 

Product Safety 

Essential  requirements  related  to  emission  characteristics  of  machinery  have  been  laid 
down  at  Community  level  in  the  context  of  the  establishment  of  the  Internal  Market,  in 
particular  on  the basis  of  Article  100A  of  the  EC  Treaty.  Council  Directive  73/23/EEC10 
on  the  harmonisation  of  the  laws  of  Member  States  relating  to  electrical  equipment 
designed for use within certain voltage limits and specially Annex  1 thereof establishes that 
electrical  equipment  may  be  placed  onto  the  market  only  if  it  complies  with  certain 

6OJN°L156,  21.6.90, p.  14-18 
7OJN°L348,  28.11.92, p.  1-8 
8 OJ N° C 77,  18.3.1993, p.  12-29 
9 OJ N° C 230,  19.8.1994, p. 3-29 
10 OJ N° L 077, 26.3.73, p. 29-33 

II 

essential  requirements  which  include  measures  to  ensure  that  temperatures,  arcs  or 
radiation which would cause danger are not produced. 

Council  Directive  89/336/EECn  on the approximation  of the laws of  the  Member  States 
relating to electromagnetic  compatibility  aims at  avoiding electromagnetic  disturbance in 
order to  provide adequate protection  to  apparatus  such  as telecommunications  networks, 
industrial  and  manufacturing  equipment,  medical  and  scientific  apparatus,  information 
technology equipment or domestic appliances and household electronic equipment. To this 
end,  the  apparatus  covered  b\ 
the  Directive  shall  be  constructed  so  that  the 
electromagnetic  disturbance  gene  ted  does  not  exceed  a  level  allowing  radio  and 
télécommunications  equipment  an*  other  apparatus  to  operate  as  intended;  and  the 
apparatus  has  an  adequate  level  of  intrinsic  immunity  of  electromagnetic  disturbance  to 
enable it to operate as intended. 

Environmental impact Assessment 
Council  Directive  85/337/EEC12  on  the  assessment  of  the  effects  of  certain  public  and 
private projects on the environment  as amended by Council  Directive 97/11/EC1'1  applies, 
amongst  other  projects,  to  the  construction  of  overhead  electrical  power  lines  with  a 
voltage of 220kV  or more and  a length  of more  than  15 km.  This means that  developers 
will have to provide information  on the measures envisaged  in order to avoid,  reduce and, 
if possible,  remedy  significant  adverse  effects,  as  well  as  an  outline  of  main  alternatives 
studied by the developer and an indication of the main reasons for his choice. 

In  order  to  complement  provisions  of  Directive  97/11/EC,  the  Commission  proposed  a 
Council Directive on the assessment of the effects  of certain plans and programmes on the 
environment14.  The proposal  aims at  plans and  programmes which  are part  of a town and 
country  planning  decision-making  process  for  the  purpose  of establishing  the  framework 
for subsequent  development  consent,  including strategic plans and programmes adopted in 
the energy, transport and telecommunications sectors. 

Research 

Under  the  fourth  framework  programme  of  the  European  Community  for  research, 
technological  development  and  demonstration  (1994-98)15  a  number  of  EMF-related 
research  activities has been  or  is still  carried  out.  In particular,  Biomed  2,  COST  and  the 
Standard,  Measurement  and  Testing  programmes  have  supported  proposals,  and  some of 
them are still ongoing. 

Potential  adverse health  effects  from  exposure to  radioffequencies  were also addressed in 
the Commission's Green Paper on a common approach in the field of mobile and personal 

"  OJ N° L  139, 23.05.89, p.  19-26 
12 OJ N° L  175, 5.7.85, p. 40-48 
, 3O J N ° L 7 3,  14.3.97, p. 5-15 
14 COM (96) 511 final, and OJ N° C 129, 25.4.97, p. 14 
, 5OJN°L126,  18.5.94, p.  1-33 

12 

communications16.  As a result and in response to the European  Parliaments Resolution on 
combating  the  harmful  effects  of  non-ionising  radiation,  the  Commission  confirmed  the 
need  for  further  research  in this area,  and  a working  group  of  experts  elaborated  for  the 
Commission  pertinent  recommendations  for  epidemiological,  biophysical  and  biological 
research, and also for research on exposure systems and dosimetry. The proposed  research 
agenda17  covers  also  effects  on  the  immune  system,  nervous  system-related  effects,  and 
genetic and  cancer-related  effects.  These have been  and  still are of utmost  concern to the 
public and the European Parliament. 

The  Commission  took  account  of  the  experts'  recommendations,  and  of  the  need  for 
research  with respect to  health  effects  from  exposure to  other frequencies,  when  drawing 
up its proposal concerning the 5th framework  programme of the European Community for 
technological  development  and  demonstration  activities  (1998-2002)18. 
research, 
Moreover, the Commission  recognises that  risk communication  is clearly important  in this 
area because of the controversy over alleged long-term  effects,  and has proposed  research 
on  gaining  a better  understanding  of the  public's  risk  perception  and  on  the  assessment, 
communication and management of risks. 

THE PROPOSED  RECOMMENDATIONS 

The  ever-growing  involvement  of  the  Community  in  promoting  activities  in  various 
industrial  sectors  likely  to  increase  exposure  of  the  population  to  electromagnetic  fields, 
and  the  mounting  concern  over  their  effects  of  decision-makers,  health  professionals, 
interest  groups,  and  members  of  the  public,  make  it  imperative  to  undertake  efforts  to 
establish commonly-agreed  principles in this field at Community level. 

Requirements  that  exist  in  some  Member  States  result  in varying  regimes  as  regards  the 
public's  protection  against  electromagnetic  fields.  The  existing  variations  and  gaps  in 
provisions  and  guidelines  contribute  to  a  sense  of  confusion  and  insecurity  felt  by  many 
Community citizens and undermines confidence in health protection  authorities. In keeping 
with the goal  of making a contribution  towards ensuring a high  level  of health  protection 
to  the  citizens  of  the  Community,  and  in  view  of  the  moves  in  this  area  undertaken  by 
some  Member  States,  the  Commission  considers  it  necessary  to  propose  a  common 
framework  for  protection  of  the  general  public  to  electromagnetic  fields.  Such  a 
framework  can be put  in place by Council  recommendations  under  Article  129 of the EC 
Treaty,  and  should  deal  with  the  general  principles  of  limitation  of  exposures  so  that 
adverse health effects  can be prevented. 

The  aim  of  the  proposal  for  a  Council  Recommendation  is,  therefore,  to  provide  for  a 
commonly agreed framework  concerning a high level of protection  against exposure of the 
general  public to  electromagnetic fields (EMFs), based  on  a  set  of  basic  restrictions  and 

16 COM(94)  145 final 
17 The document "studyhr.doc" can be downloaded from  the internet site 
http://www.ispo.cec.be/infosoc/telecompoliy/en 
18 COM (97)  142 final, and OJ N° C 173, 7.6.97, p. 10 

13 

reference  levels  developed  internationally  by  the  foremost  experts  in  this  field.  The 
proposed  recommendations  on  basic restriction  and  reference  levels  follow  the advice of 
the  International  Commission  on  Non-Ionizing  Radiation  Protection  (ICNIRP)  and  are 
based  on the best  available scientific  data.  They concern  exposure of  individual  members 
of the public and not emissions from  specific devices or equipment. The advice of ICNIRP 
has been endorsed by the Commission's Scientific  Steering Committee. 

The  proposed  recommendation  is  not  intended  to  apply  to  occupational  exposure  and 
exposure  of  patients  and  voî  uteers  during  medical  procedures.  Problems  of 
electromagnetic  compatibility  and 
terference  with  medical  devices  are  not  addressed  in 
this  proposal.  Providing  for  a  comprehensive  system  of  protection  m  thh  area  which 
includes detailed  provisions and guidelines relevant not only to the exposure of individuals 
but  also  to  the  emissions  from  equipment  and  the  burden  from  practices  involving  such 
exposures  should  be  the  task  of  the  Member  States,  account  taken  of  Community 
provisions in this field. 

The  recommended  basic restrictions  are directly  based  on  established  health  effects  only. 
reference  levels  are  recommended  to  be  used  for  practical  exposure  assessment 
The 
purposes.19 Respect of reference  levels will ensure respect of the relevant basic restriction. 
If the  measured  value exceeds  the  reference  level,  it  does  not  necessarily  follow  that  the 
basic restriction  will be exceeded.  Under  such circumstances,  however, there is a need  to 
establish whether the basic restriction has indeed been respected. 

It  is recommended  that  when an exceedance of reference  levels occurs,  an  assessment  of 
the exposure situation  should be carried  out; it is up to the Member  States to  arrange  for 
assessments and follow-up  actions. The assessment  of the actual exposure situation  could 
take  criteria  such  as  the  duration  of  the  exposure,  the  exposed  parts  of  the  body,  the 
number  of  exposed  members  of  the  public,  their  age  and  health  status  into  account. 
Follow-up  actions  would  have  to  be  decided  by the  Member  States  with  respect  to  the 
specific  exposure  situation  which  might  call  for  measures  such  as  the  provision  of 
information  for  the public exposed, the establishment  of minimum distances to be kept  to 
the  source  of exposure,  changes  in the  installation  or  design  of the specific  source,  or in 
the  way  the  source  is  operated.  Member  States  might  decide  to  consider  cost-benefit 
aspects  when  such  action  in  respect  of  the  exposure  of  members  of  the  public  is 
undertaken. 

Finally, in order to take timely stock of the regulatory and actual exposure situation and of 
any  scientific  or  technological  developments  that  may  require  a  prompt  response,  the 
Commission  proposes  that  the  Member  States  prepare  reports  on  their  measures  and 
guidelines  in the field  covered  by the proposed  recommendation,  and  indicating  how the 
latter  has  been  taken  into  account,  and  that  an  overall  report  be  presented  by  the 
Commission based on the reports of the Member States. 

19  A similar system  has been proposed for  health  and  safety  requirements  for  the protection  of workers 

were a framework  of threshold values and action values was presented. 

14 

PROPOSAL  FOR  A 
COUNCIL  RECOMMENDATION 

on the limitation of exposure of the general public 
to electromagnetic fields 
0 Hz-300 GHz 

(presented by the Commission) 

THE COUNCIL OF THE EUROPEAN UNION; 

Having  regard  to  the  Treaty  establishing  the  European  Community,  and  in 

particular Article  129 thereof; 

Having regard to the proposal from the Commission1, 
Having regard to the opinion of the European Parliament2; 

1.  Whereas  in accordance with  point  (o)  of  Article  3  of the  Treaty,  Community 

action  must  include  a  contribution  towards  the  attainment  of  a  high  level  of 

health protection; 

2.  Whereas  the  European  Parliament  in  its  resolution  on  combating  the  harmful 
effects  of  non-ionizing  radiation3  called  on  the  Commission  to  propose 

measures  seeking  to  limit  the  exposure  of  workers  and  the  public  to  non 

ionizing electromagnetic radiation; 

3.  Whereas  Community  minimum  requirements  for  the  protection  of  health  and 

safety  of  workers  in  relation  to  electromagnetic  fields  exist  for  work  with 
display  screen  equipment4;  whereas  Community  measures  were  introduced  to 

encourage improvements in the safety  and  health  at work  of pregnant  workers 
and workers who have recently given birth  or  are breastfeeding5  which oblige, 

inter  alia,  employers  to  assess  activities  which  involve  a  specific  risk  of 

exposure to  non-ionizing  radiation; whereas  minimum  requirements  have been 
proposed  for  the  protection  of  workers  from  physical  agents6  which  include 

measures against non-ionizing radiation; 

4.  Whereas  it  is  imperative  to  protect  members  of  the  general  public  in  the 

Community  against  established  adverse  health  effects  that  may  result  as  a 

consequence of exposure to electromagnetic  fields; 

5.  Whereas  measures  with  regard  to  electromagnetic  fields  should  afford  all 

Community citizens a high level  of protection;  whereas provisions by Member 

1 OJ xxx 
2 O.J. xxx 
3 O.J. N° C 205, 25.7.94, p. 439 
4O.J.N°L156,21.6.90,p. 14-18 
5O.J.N°L 348, 28.11.92, p. 1-8 
6 O.J. N° C 77, 18.3.93, p. 12 and O.J. N° C 230, 19.8.94, p. 3-29 

16 

Slates  in this area should  be based  on  a commonly  agreed  framework,  so  as  to 

ensure consistency  of protection throughout  the Community; 

6.  Whereas  in  accordance  with  the  principle  of  subsidiarity,  any  new  measure 

taken  in  an  area  which  does  not  fall  within  the  exclusive  competence  of  the 

Community,  such  as  non-ionizing  radiation  protection  of  the  public,  may  be 

taken  up  by  the  Community  only  if,  by  reasons  of  the  scale  or  effects  of  the 

proposed  action,  the  objectives  proposed  can  be  better  achieved  by  the 

Community than by Member States; 

7.  Whereas there is a need to establish a Community framework  for the protection 

of 

the  public  with  regard 

to  electromagnetic 

fields  by  means  of 

recommendations  to  Member States. 

8.  Whereas this framework  must be based  on the best  available  scientific  data and 

advice  in  this  area  and  should  comprise  basic  restrictions  and  reference  levels 

on  exposure  to  electromagnetic  fields;  whereas  advice  on  this  matter  has been 

given  by  the  International  Commission  on  Non-Ionizing  Radiation  Protection 

(ICNIRP)  and  has  been  endorsed  by  the  Commission's  Scientific  Steering 

Committee. 

9.  Whereas  such  basic  restrictions  and  reference  levels  should  apply  to  all 

radiations  emitted  by  electromagnetic  fields  with  the  exception  of  optical 

radiation  and  ionizing  radiation; whereas  for  the  former  relevant  scientific  data 

and  advice  still  requires  additional  consideration,  and  whereas  for  the  the  latter 

Community  provisions already exist; 

10. Whereas  adherence  to  the  recommended  restrictions  and  reference  levels 

should  provide a high level  of protection  in respect  of established  health  effects 

that  may  result  from  exposure  to  electromagnetic  fields,  but  may  not 

necessarily  avoid  intereference  problems  with,  or effects  on the  functioning  of, 

medical  devices  such  as  metallic  prothèses,  cardiac  pacemakers  and 

defibrillators,  and  cochlear  implants;  whereas  interference  problems  with 

pacemakers  may  occur  at  levels  below  the  recommended  reference  levels  and 

should be the  object  of appropriate  precautions  which,  however,  are not within 

the scope of this recommendation; 

17 

11. Whereas, 

in  accordance  with 

the  principle  of  proportionality, 

this 

recommendation  must  set  general  principles  and  methods  of  protection  for 

members  of  the  public  while  leaving  it  to  the  Member  States  to  provide  for 

detailed  rules  for  sources  and  practices  giving  rise  to  exposure 

to 

electromagnetic  fields  and  the  classification  of  conditions  of  exposure  of 

individuals  as  work-related  or  not,  account  taken  of  and  in  accordance  with, 

Community provisions concerning the safety and health protection of workers; 

12.  Whereas  Member  States  may  provide  for  a  higher  level  of  health  protection 

than that reflected  in these recommendations; 

13.  Whereas measures by the Member  States  in this area,  whether binding  or non-

binding  and  the  way  they  have  taken  into  account  these  recommendations 

should be the object of reports at national and Community  level; 

14.  Whereas  in  order  to  increase  awareness  of  risks  and  measures  of  protection 

against  electromagnetic  fields  the  Member  States  should  promote  the 

dissemination of information  and rules of practice in this field, in particular with 

regard to  the  design,  installation  and use  of  equipment,  so  as to  aim to  obtain 

that levels of exposure will not exceed the recommended restrictions; 

15. Whereas  attention  should  be  paid 

to  appropriate  understanding  and 

communication  on  risks  related  to  electromagnetic  fields  taking  into  account 

public perceptions of such risks; 

16. Whereas  the  Member  States  should  take  note  of  progress  made  in  scientific 

knowledge  and  technology  with  respect  to  non-ionising  radiation  protection; 

whereas these  recommendations  should  be reviewed  in particular  in the  light  of 

guidance  by  competent  international  organisations  such  as  the  International 

Commission on Non-Ionizing Radiation Protection; 

18 

IIKRKBY  RK(X)MMRNDS Tl IAT 

I 

Member  States  assign  for  the  purpose  of  this  Recommendation  to  the 

physical  quantities listed  in Annex  I.A the meaning given to them therein; 

II. 

Member  States,  in  order  to  provide  for  a  high  level  of  health  protection 

against exposure to electromagnetic  fields: 

a) 

adopt a framework  of basic restrictions and reference  levels using as 

a basis that given in Annex  IB; 

b) 

implement  measures  in respect  of  sources  or practices  giving  rise  to 

exposure  of the general  public to  electromagnetic fields on the basis 

of such a framework; 

c) 

aim to  achieve  respect  of the basic  restrictions given  in Annex  II for 

public exposure; 

III.  Member  States,  in  order  to  facilitate  and  promote  respect  of  the  basic 

restrictions given in Annex II: 

a) 

use the  reference  levels given  in Annex  III  for  exposure  assessment 

purposes to  determine  whether the basic restrictions  are likely to  be 

exceeded; 

b) 

evaluate  situations  involving  sources  of  more than  one  frequency  in 

accordance  with  the  formulas  set  up  in  Annex  IV,  both  in  terms  of 

basic restrictions and reference levels; 

IV.  Member  States,  in  order  to  increase  understanding  of  risks  and  protection 

against exposure to electromagnetic fields: 

provide  in  an  appropriate  format  information  to  the  public  on  the  health 

impact of electromagnetic fields and the measures taken to address them; 

19 

V 

Member  States,  in  order  to  enhance  knowledge  about  the  health  effects  of 

elect lomai'.uelic  fields 

promote  and  review  research  relevant  to  l;.Mf  and  human  health  in  the 

context  of 

their  national  research  programmes, 

taking 

into  account 

Community and  international  research  recommendations  and  efforts, 

VI.  Member  States,  in  order  to  contribute  to  the  establishment  of  a  consistent 

system  of protection  agar.si  risks of exposure to electromagnetic  fields: 

prepare  reports  on  the  adoption  and  implementation  of  measures  that  they 

take 

in 

the  field  covered  by  this  Recommendation,  and 

inform 

the 

Commission  thereof  after  a  period  of  three  years  following  the  adoption  of 

this  Recommendation,  indicating  how  the  latter  has  been  taken  into  account 

in  these  measures. 

iNviri'is 

the  Commission  to  prepare  a  report  for  the  Community  as  a  whole  taking 

into  account  the  reports  of  the  Member  States,  and  keep  the  matters 

covered  in  this  recommendation  under  review,  with  a  view  to  its  revision 

and  updating. 

Done at  llrussels, 

foi  the  Council 

The  President 

21) 

ANNEX  S 

DK1 INITIONS 

in  the  context  of  this  recommendation,  the  term  electromagnetic  fields  include  static 
fields,  extremely  low  frequency  (FFF)  fields  and  radiofrequency  (Rl;)  fields,  including 
microwaves,  encompassing  the  frequency  range  of 0  Hz to  300  GHz. 

A. Physical  Quantities 

In the context  of  EM F exposure,  eight  physical  quantities  are commonly  used: 

I.  ( \>ntaci current  ('/<•) between  a person  and  an  object  is expressed  in amperes (A). A 

conductive  object  in an  electric  field  can  be charged  by the field. 

2  Current  density  (J)  is  defined  as  the  current  (lowing  through  a  unit  cross  section 
perpendicular  to  its direction  in a volume  conductor  such  as the  human  body  or  part 
of it,  expressed  in amperes  per  square  metre  (A/irf). 

3.  Idectric  field  strength  is a vector  quantity  (K)  that  corresponds  to  the  force  exerted 
on  a  charged  particle*  regardless  of  its  motion  in  space.  It  is  expressed  in  volts  per 
metre (V/m). 

•I  Magnetic  field  strength  is a  vector  quantity  (31),  which,  together  with  the  magnetic 
llux  density,  specifies  a  magnetic  field  at  any  point  in  space.  It  is  expressed  in 
amperes  pel  metre  (Ami) 

5.  Magnetic 

flux  density 

is  a  vector  quantity  (B),  resulting  in  a  force  that  acts  on 
moving  charges,  it  is  expressed  in  teslas  (T). 
In  free  space  and  in  biological 
materials,  magnetic  flux  density  and  magnetic  field  strength  can  be  interchanged 
using  the  equivalence  1  A m"1 ~ 47C 10"7 T. 

(>.  Power  density  (S)  is the  appropriate  quantity  used  for  very  high  frequencies,  where 
the  depth  of  penetration  in  the  body  is  low.  It  is  the  radiant  power  incident 
perpendicular  to  a  surface,  divided  by  the  area  of  the  surface  and  is  expressed  in 
watts  per  square  metre  (YV/nf ). 

7  Specific  energy  absorption  (SA)  is defined  as  the  energy  absorbed  per  unit  mass  of 
biological  tissue,  expressed  in joules  per  kilogram  (J/kg).  In these  recommendations 
it  is used  for  limiting  non-thermal  effects  from  pulsed  microwave  radiation. 

X  Specific  energy  absorption  rate  (SAR)  averaged  over  the  whole  body  or  over  parts 
of  the  body,  is  defined  as  the  rate  at  which  energy  is  absorbed  per  unit  mass  of  the 
body  tissue  and  is  expressed  in  watts  per  kilogram  (W/kg).  Whole  body  SAR  is  a 
widely  accepted  measure  for  relating  adverse  thermal  effects  to  RF  exposure.  Be 
sides  the  whole  body  average  SAR,  local  SAR  values  are  necessary  to  evaluate  and 
limit  excessive  energy  deposition  in  small  parts  of  the  body  resulting  from  special 
exposure  conditions.  Examples  of  such  conditions  are:  a  grounded 
individual 
exposed  to  RF  in the  low  MHz  range  and  individuals  exposed  in the  near  field  of an 
antenna. 

21 

Of  these  quantities,  magnetic  tlux  density,  contact  current,  electric  and  magnetic  field 
strengths  and  power  density  can be measured  directly. 

B. Basic  restrictions and reference levels 

For  the  application  of  restrictions  based  on  the  assessment  of  possible  health  effects  of 
electromagnetic  fields,  differentiation  should  be  made  between  basic  restrictions  and 
reference  levels. 

lutsic  restrictions.  Restrictions  on  exposure  to  time-varying  electric,  magnetic,  and 
electromagnetic  fields  that  at  based  directly  on  established  health  effects  and 
biological  considerations  are  termed  "basic  restrictions".  Depending  upon 
the 
frequency  of  the  field,  the  physical  quantities  used  to  specify  these  restrictions  are 
magnetic  llux  density  (B),  current  density  (.1),  specific  energy  absorption  rate 
(SAR),  and  power  density  (S).  Magnetic  flux  density  and  power  density  can  be 
readily  measured  in exposed  individuals. 

levels.  These  levels  are  provided  for  practical  exposure  assessment 
Reference 
purposes  to  determine  if* the  basic  restrictions  are  likely  to  be  exceeded.  Some 
icierenee  levels  are  derived  from  relevant,  basic  restrictions  using  measurements 
and/or  computational  techniques  and  some  address  perception  and  adverse  indirect 
effects  of  exposure  to  l'Mls.  The  derived  quantities  are  electric  field  strength  (E), 
magnetic  field  strength  (H),  magnetic  llux  density  (B),  power  density  (S),  and  limb 
current  (//).  Quantities  that  address  perception  and  other  indirect  effects  are 
(contact)  current  (/.•)  and,  for  pulsed  fields,  specific  energy  absorption  (SA).  In  any 
particular  exposure  situation,  measured  or  calculated  values  of  any  of  these 
quantities  can  be  compared  with  the  appropriate  reference  level.  Respect  of  the 
reference  level  will  ensure  respect  of  the  relevant  basic  restriction.  If  the  measured 
value  exceeds  the  reference  level,  it  does  not  necessarily  follow  that  the  basic 
icstriction  will  be  exceeded.  Under  such  circumstances,  however,  there  is  a need  to 
establish  whether  there  is respect  of the basic  restriction. 

restrictions  on 

Quantitative 
these 
recommendations.  However,  it  is  recommended  that  annoying  perception  of  surface 
electric  charges  and  spark  discharges  causing  stress  or  annoyance  should  be  avoided. 

are  not  given 

static  electric 

fields 

in 

Some  quantities  such  as  the  magnetic  tlux  density  (B)  and  the  power  density  (S)  serve 
both  as  basic  restrictions  and  reference  levels,  at  certain  frequencies  (see  Annex  II  and 
HI) 

22 

ANNKX II 

BASIC RESTRICTIONS 

Depending  on  frequency,  the  following  physical  quantities  (dosimetric  /  exposimetric 
quantities)  are used  to  specify  the basic  restrictions on  electromagnetic  fields: 

Between  0 and  1 Hz  basic  restrictions  are  provided  for  magnetic  flux  density  for  static 
magnetic  fields  (0  Hz)  and  current  density  for  time  varying  fields  up  to  1 Hz,  in  order 
to  prevent  effects  on  the cardiovascular  and  central  nervous  system. 

Between  1  Hz  and  10  MHz  basic  restrictions  are  provided  for  current  density  to 
prevent  effects  on  nervous  system  functions. 

Between  100  kHz  and  10  (ill/,  basic  restrictions  on  SAR  are  provided  to  prevent 
whole-body  heat  stress  and  excessive  localised  heating  of  tissues  In  the  range  100  kHz 
to  10 Ml I/,  i est i id ions on  both  anient  density  and  SAR  are  provided. 

Between  K)  (ill/  ami  >()()  (ill/  basic  leshielions  on  power  density  aie  provided  to 
pi event  heating  in tissue  at  or  near  the body  suiface 

The  basic  restrictions,  given  in  fable  1,  are  set  so  as  to  account  for  uncertainties 
related  to  individual  sensitivities,  environmental  conditions,  and  for  the  fact  that  the 
age  and  health  status  of members  of the  public  vary. 

Table  1 : 

Basic  restrictions  for  electric,  magnetic  and  electromagnetic  fields  (0  Hz  -
300 GHz). 

23 

Frequency range  Magnetic  Current  Whole  body  Localised 
density 
(mA/m2) 
(rms) 

average  SAR  SAR 
and 
(W/kg) 
(W/kg) 

flux 
density 
(mT) 

(head  SAR 
trunk) 

(limbs) 
(W/kg) 

Localised 

Power 
density, 
S 
(W/m2) 

— 

8 

8/f 

2 

#500 

f/500 

-

__ 

— 

~ 

-

-

-

0.08 

0.08 

„ 

— 

-

-

-

— 

2 

2 

_. 

-

-

--

-

--

4 

4 

— 

10 

0 Hz 

>(M  Hz 

M Hz 

4 -  1000 Hz 

40 

~ 

-

-

1000 Hz -100 kHz 

~ 

100 kHz-10 MHz 

-

10 MHz-  10 GHz 

~ 

IO-100GHz 

_„ 

Noies 

1.  / is  the frequency  in Hz. 
2.  The  basic  restriction  on  the  current  density  is  intended  to  protect  against  acute 
exposure  effects  on  central  nervous  system  tissues  in the  head  and  trunk  of  the  body 
and includes a safety factor 

3.  Because  of electrical  inhomogeneity of the body,  current  densities  should be  averaged 

over a cross section of  1 cm2 perpendicular to the current direction. 

4.  For  frequencies  up  to  100  kHz,  peak  current  density  values  can  be  obtained  by 
multiplying  the  rms  value  by  V2  (-1.414).  For  pulses  of  duration  /p  the  equivalent 
frequency  to apply in the basic restrictions should be calculated  a s /=  l/(2/p). 

5  For  frequencies  up  to  100  kHz  and  for  pulsed  magnetic  fields,  the  maximum  current 
density  associated  with  the  pulses  can  be  calculated  from  the  rise/fall  times  and  the 
maximum  rate  of  change  of  magnetic  flux  density.  The  induced  current  density  can 
then be compared with the appropriate basic restriction. 
6.  All SAR values are to be averaged over any 6-minute period. 
7.  Localized  SAR averaging mass is any  10 g of contiguous tissue; the maximum  SAR  so 

obtained should be the value used for the estimation of exposure. 

8.  For  pulses  of  duration  tp the  equivalent  frequency  to  apply  in  the  basic  restrictions 
should be calculated a s /=  l/(2/p).  Additionally,  for pulsed  exposures,  in the  frequency 
range 0.3  to  10 GHz and for localised exposure of the head, in order to limit and avoid 
auditory  effects  caused  by  thermoelastic  expansion,  an  additional  basic  restriction  is 
recommended.  This is that the  SA  should  not  exceed  2mJ kg"1 averaged  over  10 g  of 
tissue. 

24 

ANNEX HI 

Reference  Levels 

Reference  levels  of  exposure  are  provided  for  the  purpose  of  comparison  with  values 
of  measured  quantities.  Respect  of  all  recommended  reference  levels  will  ensure 
respect  of basic  restrictions. 

If  the  quantities  of  measured  values  are  greater  than  the  reference  levels  ,  it  does  not 
necessarily  follow  that  the  basic  restrictions  have  been  exceeded. 
In  this  case,  an 
assessment  should  be  made  as  to  whether  exposure  levels  are  below  the  basic 
restrictions. 

flie  reference  levels  for  limiting  exposure  aie  obtained  from  the  basic  restrictions  for 
the  condition  o\'  maximum  coupling  o\'  the  field  to  the  exposed  individual,  thereby 
providing  maximum  protection.  A summary  of  the  reference  levels  is given  in 'fables  2 
and  3.  The  reference  levels are generally  intended  to  be  spatially  averaged  values  over 
the  dimension  of  the  body  of  the  exposed  individual,  but  with  the  important  proviso 
that  the  localised  basic restrictions  on  exposure  are not  exceeded. 

In  certain  situations  where  the  exposure  is  highly  localised,  such  as  with  hand-held 
telephones  and  the  human  head,  the  use  of  reference  levels  is  not  appropriate.  In  such 
cases  respect  of the  localised  basic  restriction  should  be assessed  directly. 

25 

l'leId levels 

fable  2 

Reference  levels  for  electric,  magnetic  and  electromagnetic  fields  (0  11/. 
300 (ill/,  unperturbed  uns  values) 

Frequency  range 

0-1  Hz 
l-Xllz 
X  25  Hz 
0 . 0 25  - O . X k l l /. 
O.X  3 kHz 
3 -.  150 kHz 
0  15-1  Mil/. 
l - I O M Hz 
10  400  Mil/. 
400  -2000  Mil/. 
2  300 (ill/. 

E-field 
strength 
(Vim) 
-
10,000 
10,000 
250/t" 
250/f 
X7 
X7 
S7/I"1  •" 
2X 
1.375  f1 ' 
61 

H-tield 
strength 
(A/m) 
3.2 x  104 
3.2x10Vl° 
4,000/f 
4/f 
5 
5 
073/f 
073/f 
0.073 
0.0037  I"1 •" 
O.K. 

B-field 
(tff) 

4xl()4 
4xioVr' 
5,000/f 
5/f 
6  25 
6.25 
0»2/f 
03>2/f 
0.092 
0.0046  lq ' 
0.20 

Equivalent  plane 
wave  power  density 
SeM (W/m2) 

-
-
-
-
-
-
-
-
_? 

f/200 
10 

Notes: 
1. 
2. 

3. 

1 

/ as  indicated  in the  frequency  range  column. 
For frequencies  between  100 kHz and  10 GHz,  o'u,, E2,  H\  and  B2 are  to 
averaged  over  any 6-minute  period. 
For  frequencies  exceeding  10 GHz,  4S'cq, L\  H", and  B~ are to  be averaged  over 
any OS//10>--minute period  (/'in  GHz). 
No  F-lield  value  is  provided  for  frequencies  •  I  Hz,  which  are  effectively  static 
electiic  fields  For  most  people  the  annoying  perception  of  surface  electric 
charge.1;  will  not  occur  at  field  strengths  less  than  25  kV/m.  Spark  discharges 
causing  stress  or  annoyance  should  be  avoided. 

lor  peak  values,  the  following  icfcrcnce  levels  apply  lo  the  l\-licld  strength  (V/m),  II-
lield  strength  (A/m) and  the  U-lield  (p  f): 

For  frequencies  up  to  100  kHz,  peak  reference  values  are  obtained  by  multiplying 
the  corresponding  rms  values  by  v2  (  I 414)  For  pulses  oi~ duration  /,,  the 
equivalent  frequency  to  apply  should  be calculated  a s / -:  1/(2/,,). 
For  frequencies  between  100 kHz  and  10 MHz  peak  reference  values  are  obtained 
by multiplying  the corresponding  rms values by 

10" , where a  -  (0.665  log(f/105)+0.176),  fin  kHz 

- 

For  frequencies  between  10 MHz  and  300  GHz  peak  reference  values  are  obtained 
by multiplying  the corresponding  rms values by 32. 

Although  little  information  is  available  on  the  relation  between  biological  effects  and 
peak  values  of  pulsed  fields,  it  is  suggested  that,  for  frequencies  exceeding  10  MFIz, 
SCI| as averaged  over  the  pulse  width  should  not  exceed  1000 times  the  reference  levels 
or  that  field  strengths  should  not  exceed  32  times  the  fields  strength  reference  levels. 
For  frequencies  between  about  0.3  (il  1/ and  several  (il Iz and  for  localised  exposure  of 

26 

the  head,  in order  to  limit  or  avoid  auditory  effects  caused  by  thermoelastic  expansion, 
the  specific  absorption  from  pulses  must  be  limited.  In  this  frequency  range,  the 
threshold  SA  of  4-16  mJ  kg'1  for  producing  this  effect  corresponds,  for  30-ps  pulses, 
to  peak  SAR  values  of  130-520  W  kg"1  in  the  brain.  Between  100  kHz  and  10 MHz, 
peak  values  for  the  fields  strengths  are obtained  by  interpolation  from  the  I 5-fold  peak 
at  100 kHz to  the  32-fold  peak  at  10 MHz. 

(  'on (act  currents  at id  limb 

currents 

For  frequencies  up  to  110  Mil/,  additional  reference  levels  are  recommended  to  avoid 
hazards  due  to  contact  currents.  The  contact  current  reference  levels  are  presented  in 
laltle  3.  The  reference  levels  on  contact  current  were  set  to  account  for  the  fact  that 
the  threshold  contact  currents  that  elicit  biological  responses  in  adult  women  and 
children  are  approximately  two-thirds  and  one-half,  respectively,  of  those  for  adult 
men 

Me 3: 

Reference  levels  for  contact  currents  from  conductive  objects 
(fin  kHz) 

Frequency  range 

0  H z - 2 .5  kHz 
2.5  kHz-  100 kHz 
lOOjdlz-  I 10 MHz 

Maximum  contact 
current  (mA) 
0.5 
«.2  f 
20 

I oi  the  frequency  range  It) Ml 1/ to  1  10 Ml I/,  a reference  level  of  15 mA  in terms of 
current  through  any  limb is recommended.  This  is intended  to  limit  the  localised  SAR 
over  any 6-minule period 

27 

ANNEX  IV 

Exposure  from  sources  with  multiple  frequencies 

In  situations  where  simultaneous  cxposuie  to  fields  of  dilfcrcnl  frequencies  occurs,  the 
possibility  thai  these  exposures  will  be  additive  in  their  effects  must  be  considered. 
Calculations  based  on  such  additivity  should  be  performed  separately  for  each  elfect; 
thus  separate  evaluations  should  be  made  for  thermal  and  electrical  stimulation  elfects 
on  the body 

Basic  restrictions 

In  the  ease  of  simultaneous  exposure  to  fields  of  different  frequencies,  the  following 
criteria  should  be  satisfied  in terms of the basic  restrictions. 

For  electric  stimulation,  relevant  for  frequencies  from  1 Hz  up  to  10 MHz,  the  induced 
current  densities  should  be added  according  to: 

I OUI h 

. 

y  -'•  ! 

hoi  thermal  effects,  relevant  liom  100 kHz,  specific  energy  absorption  rales  and  power 
densities  should  be added  accoidinu. to: 

IOC/I: 
£ 

t,  .  n 
SAR, ,  £ 

300(11 h  Ç1 

.S, < j 

i  lOOkll:  SA  Ri. 

i 

lOCIIzSj, 

where 
J; is the current  density  at  frequency  i; 
Ji.,; is the current  density  basic  restriction  at  frequency  i as given  in Table  I; 
SARj  is the  SAR  caused  by exposure  at  frequency  i; 
SARi, is the  SAR  basic  restriction  given  in  fable  I; 
Si is the  power  density  at  frequency  i, 
S|. is the  power  density  basic  restriction  given  in 'fable  I. 

28 

Reference  levels 

For  application  of  the  basic  restrictions,  the  following  criteria  regarding  reference 
levels of  field  strengths  should  be applied 

For  induced  current  densities  and  electrical  stimulation  elfects,  relevant  up  to  10 MHz, 
the  following  two  requirements-should  be applied  to  the  field  levels: 

IMIlz 

£ 

., 

lOUUz  „ 

/'"  i  £  F" < I 
i  -IMIlz  Cl 

i  It I: h  Li 

and 

I mi  h 

£  "\  i  £ 

lOU/lz 

. 

Ilj<i 

i  iiiz  IIi.j 

i  mokiizb 

where 
i;,  is  Ihe  electric  field  strength  at  frequency  i, 
F|  , is the electric  field  strength  reference  level  from  'fable  2; 
11, is the  magnetic  field  strength  at  frequency j; 
I \\,,  is the  magnetic  field  strength  reference  level  from  'fable  2, 
a  is K7 V/m  and  b is 5 A/ni ( (>.25  u'f). 

Compared  to  the  K'NIRF  guidelines  which  deal  with  both  occupational  and  general 
public  exposure,  cutoff  points  in  the  summations  correspond  to  exposure  conditions 
for  members  of the  public. 

The  use  of  the  constant  values  (a  and  b)  above  I  MHz  for  the  electric  field  and  above 
150  kHz  for  Ihe  magnetic  field  is  due  to  the  fact  that  the  summation  is  based  on 
induced  current  densities,  and  should  not  be  mixed  with  thermal  elTect  circumstances. 
The  latter  forms  the  basis  for  F|  , anil  I h. j above  I  MHz  and  150  kHz  respectively, 
found  in 'fable  2. 

1 International Commission on Non-loni/.ing Radiation Protection. Guidelines for Limiting Exposure 
lo Time-Varying Flcclrie. Magnetic, and Hlectiomagnetic Fields (up to 300 GHz). Health PUys., in 
press 

29 

iheimal  H feci 

Foi 
icquiicincnls  should  be applied  lo  the  field  levels 

( iieuinslaixes, 

lelevanl 

liom  100  kHz, 

the  following, 

two 

I MIL- 

,, 

z  (':/' 

lOOkll: 

Mm  il h 

., 

Z(ff^ 

i  I Ml h 

LLL.i 

and 

I 

TT 

150kHz 

SOOGIIz 

Z  * I r f A' 

,. 

/  lookiiz  (1 

j  imiiz  11  Lj 

where 
\\, is the eleetiic  field  strength  at  frequency  i, 
I i  , is the eleiliic  field  lefeience  level  from  fable  ?.. 
11, is the magnetic  field  slienglh  at  frequency  _j; 
I h  , is the  magnetic  field  refeience  level  derived  from  fables  2, 
c  isS//!"1-'  Win  and  d 0 7î/f  A/ni 

Again,  compared  to  the  ICKIKF  guidelines  some  cutolf  points  have  been  adjusted  for 
public exposure  only. 

For  limb  current  and  contact  current,  respectively,  the  following  requirements  should 
be  applied: 

i w / wn z 

A--IDA///.-

A. 

< 

\  ll.M  J 

l l ( ) A / / /r 

where 
h is the  limb euneii!  component  at  licqueiicy  k, 
h  i is the releience  level  loi  limb current,  IS inA, 
l„ is the contact  cm rent  component  at  licqucncy  n, 
l,Mis  the  refeience  level  for  contact  current  at  frequency  n (see  'fable  >). 

The  above  summation  formulae  assume  worst-case  phase  conditions  among  the  fields 
from  the multiple  sources.  As a result, typical  exposure  situations  may in practice  result 
in  less  restrictive  exposure  levels  than  indicated  by  the  above  formulae  for  the 
reference  levels. 

3o 

ISSN 0254-1475 

COM(98) 268  final 

DOCUMENTS 

EN 

05  15  12  14 

Catalogue  number  :  CB-CO-98-298-EN-C 

ISBN  92-78-35921-1 

Office  for Official  Publications of the European Communities 

L-2985 Luxembourg