Opinion of the Committee of the Regions on the 'Effects of high-voltage electricity transmission networks'
Date: 1999-06-03
Institutions: European Committee of the Regions
Subjects: countryside conservation, electrical energy, electromagnetic interference, energy grid, environmental protection, noise pollution

C 293/16

EN

Official Journal of the European Communities

13.10.1999

Opinion of the Committee of the Regions on the ‘Effects of high-voltage electricity transmission
networks’

(1999/C 293/03)

THE COMMITTEE OF THE REGIONS,

having regard to the Proposal for a Council Recommendation on the limitation of exposure of the general
public to electromagnetic fields 0 Hz-300 GHz, COM(1998) 268 final;

having regard to the decision taken by the Bureau on 16 September 1998, under the fourth paragraph of
Article 198c of the Treaty establishing the European Community, to draw up an Opinion on this subject
and to direct Commission 4 ‘Spatial Planning, Urban Issues, Energy and Environment’ to draw up the
relevant opinion;

having regard to the European test standard CENELEC ENV 50166-1, which was drafted in November
1994 by the TC 111 Technical Committee of the European Committee for Electro-technical Standardis-
ation;

having regard to the proposals of the International Commission on Non-Ionizing Radiation Protection
(ICNIRP), a scientific commission set up by the International Radiation Protection Association (IRPA)
with the aim of promoting protection of both humans and the environment against non-ionizing
radiation (NIR);

having regard to the proposals of the World Health Organization (WHO) Section on Environmental
Health, which is promoting cooperation between scientists of all nations to ensure optimum health
conditions for the world’s people;

having regard to the rules in effect in various European countries on the effects of low-frequency electric
and magnetic fields on human health;

having regard to the COR’s wish for the Council to issue a Recommendation on permissible limit values
for low-frequency electric and magnetic fields, which, if observed, will ensure that there are no harmful
effects on human health;

having regard to the Draft Opinion (CdR 399/98 rev. 2) adopted by Commission 4 on 4 February 1999
(Rapporteur: Mr Evangelos Kouloumbis),

adopted the following opinion at its 29th plenary session on 2 and 3 June 1999 (meeting of 3 June) by
majority vote.

1.

Introduction

The main environmental issues raised in connection

1.4.
with electricity transmission and distribution lines are:

1.1.
The extremely rapid expansion of electricity and tele-
communications networks has resulted in electromagnetic
the environment, while generating a steady
pollution of
the possible effects of
increase in public concern about
exposure to electromagnetic fields (EMFs).

Over the past ten years concern has grown about
1.2.
impact of electricity transmission and
the environmental
distribution in populated areas. The environmental aspect of
electricity transmission and distribution encompasses a num-
ber of different issues, ranging from the unsightliness of
electrical power lines to the growing concern of the general
public about the presence and effects of electrical and magnetic
fields.

•

visual pollution;

•

electrochemical pollution;

•

electrical and magnetic fields;

• noise pollution (high-voltage and ultra-high-voltage trans-

mission).

1.3.
Now that transmission of large quantities of electrical
power through networks has become a fact of life, the location
of high-voltage transmission lines has become particularly
relevant.

1.5.
Interest and research are focusing on evaluating the
possible harmful effects from high-voltage lines on human
health. People living in areas near or even below high-voltage
lines have started to ‘sense’ EMFs, particularly in the case of
high-intensity fields.

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1.6.
Although there has been significant research into the
possible effects of EMFs on health, no definitive conclusions
have been reached to date on the risks to living organisms.
However, various environmental organizations have adopted
a strong and increasingly negative position on the matter.

It has to be said that some of the international scientific
1.7.
community still have reservations about safety standards
in relation to the effects of electromagnetic fields on the
environment and on human health. Many researchers have
presented studies indicating that a protective approach is called
for on the question of acceptable minimum standards.

studies have been carried out and findings published, and it is
extremely difficult to draw conclusions from the work of
individual scientists.

2.2.
Electromagnetic fields are produced by the flow of
electricity, and are present in the environment. Electrical fields
depend on tension (potential difference) and are measured in
volts per metre (V/m). Buildings, trees, etc. form a protective
barrier against electric fields.

1.8.
The standards formulated by CENELEC a few years ago
provide an initial basis for revising safety levels in the light of
scientific findings and public sensitivities.

2.3. Magnetic fields depend on the flow of the electrical
current and are measured in amperes per metre (A/m). It is not
so easy to protect against these fields as against electrical fields,
but their intensity decreases substantially with distance.

1.9.
Several cases can be cited to date where public opinion
or those directly affected have succeeded in delaying or
cancelling the construction of new — or upgrading of old —
electrical power lines, resulting in total or partial disruption of
the electricity supply (e.g. southern Italy in September 1995,
Athens in March 1998). Such cases can be expected to cause
more problems in the future.

1.10.
For all the above reasons, a full understanding of the
facts and problems relating to the transmission and distri-
bution of electrical power will provide a response to growing
public concern about the possible effects of electricity trans-
mission on public health.

It is thought that studying the environmental effects
1.11.
of electric transmission lines in European Union networks will
reveal a major obstacle to the development and completion of
the Community’s internal market
in electric power. The
development of an open market in electrical power can be
in large amounts of electricity being
expected to result
transmitted via European networks to achieve optimum econ-
omic use and consumption of resources in accordance with
the recent Directive concerning common rules for the internal
market in electricity (1).

1.12.
Structural measures will therefore be required to
ensure the safety of high-voltage lines, paying particular
attention to distance from population centres and height of
installations. This action will require the involvement of the
relevant local authorities.

During the 1970s, much attention was paid to the
2.4.
possible effects on human health of exposure to electrical
fields. The dozens of detailed studies carried out failed to
determine the risk to human health of exposure to electrical
fields of the intensity found in areas below transmission lines.

2.5.
During the 1980s, scientific interest shifted mainly to
the effects on humans of magnetic fields, focusing in particular
on their carcinogenic potential, given that a number of
epidemiological studies had provided evidence of an increased
incidence of tumours in adolescents and children living near
electrical transmission lines.

2.6.
A number of international organizations subsequently
re-examined in detail the findings of the above-mentioned
studies. In every case it was concluded that the findings were
only enough to justify further studies on the effects of magnetic
fields on humans, and that there was therefore no reason to
change existing protective measures.

2.7.
The risks posed by electromagnetic fields can involve
biological action on the human body that can produce thermal
and non-thermal effects.

2. The effects of electromagnetic fields

The question of how low-frequency electromagnetic
2.1.
fields affect human health has been a major concern of the
international community over the past few years. Dozens of

(1) Directive 96/92/EC — OJ L 27, 30.1.1997, p. 20.

Biological effects

2.8.
Biological effects are caused by the action of radiation
on the most sensitive and vulnerable tissue, such as the brain,
eyes and reproductive organs. Specifically, several studies have
linked exposure to extremely low frequency (ELF) fields to an
increased incidence of cancer and the development of brain
tumours. The World Health Organization (WHO) and the
European Committee for Electro-technical Standardisation
(CENELEC) have already sponsored multiannual multicentre
study programmes to clarify these issues conclusively.

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Thermal effects

2.9.
Thermal effects are fully understood and have been
extensively studied. They relate to the overheating of the body
when located in the direct radiation field. Most biological
molecules absorb energy from time-varying electromagnetic
fields, which is converted into kinetic energy, causing them to
oscillate. This oscillation produces heat and an increase in
body temperature.

These thermal effects may be beneficial and pleasant,
2.10.
but they may also be bad for health and safety. This overheating
of the molecules must be avoided; the associated risks depend
on the intensity of the radiation, not on its frequency. The
critical factor is thus the density of the energy absorbed.

2.11.
Establishing the acceptable radiation threshold, i.e.
that below which there would be no risk to human safety, is a
complicated procedure where safety factors have to be taken
into account. The safety limits described as maximum permis-
sible exposure levels are not magic dividing lines between
complete safety and certain danger. They are recommended
limits based on a cumulative appraisal of worldwide research.

Non-thermal effects

2.12.
There has been much talk of non-thermal effects
recently. Many research findings have already been published,
of which only very few indicate some minor effects on cells.
Similar or even identical studies to these have detected no such
effects.

There is no clear mechanism by which non-thermal
2.13.
biological effects would be produced, and consequently all
existing evidence is indirect. It is considered very difficult to
investigate non-thermal effects, and even more difficult to
evaluate epidemiological studies, because of the many dis-
torting factors present.

effectively marking the first phase in an effort to address both
the problem of exposure to electromagnetic fields in general
and specific questions such as the procedure for measuring
electromagnetic fields and ways of controlling and regulating
human exposure to them and to the currents they emit.

3.2.
Standard ENV 50166-1 is concerned with the preven-
tion of harmful effects caused by short-term exposure of the
human body to static and low-frequency electromagnetic fields
in the spectral range of 0 Hz to 10 kHz. Within this range,
electrical fields and magnetic fields have to be considered
separately.

Specifically,

this standard takes into account:

(a)
3.3.
induced currents in the human body, which can stimulate
nerve and muscle tissue; (b) surface currents from electric fields
that can produce irritation and pressure; and (c) currents that
may flow through the body when it comes into contact with
objects in the field, provoking electric shock or momentary
discomfort.

The standard sets basic limits and reference levels for
3.4.
exposure to electromagnetic radiation. It also divides these
levels into two categories for
implementation purposes:
exposure of workers to electromagnetic fields and exposure of
the population in general. The reference ranges and electrical
current levels have understandably been set two to three times
lower for the latter category than for the former.

3.5.
However, further studies may lead, and have led, some
countries to regard the reference levels set by the standard as
the minimum requirement in certain spectral ranges, and to
set stricter safety limits. Furthermore, this standard is likely to
be amended in the light of recent scientific findings, until it
ultimately is made into a definitive standard; it may even be
withdrawn altogether. It is clear from the above that still more
research and study is needed on this broader, but crucial field,
if full standardization is to be achieved.

2.14.
So far the international scientific community does
not consider such evidence to be sufficiently serious or well
enough substantiated to warrant or require the setting of safety
thresholds with respect to non-thermal effects.

3.6.
Although the above-mentioned standard (as well as
ENV 50166-2) is not binding in principle, it is regarded as a
its
very important and influential
existence ensures safety, within the single European market,
allowing substandard equipment to be identified and replaced.

instrument, given that

3. Standards for electromagnetic fields

3.1.
In November 1994 the TC 111 Technical Committee
of the European Committee for Electro-technical Standard-
isation (CENELEC) approved the publication of European
Standard ENV 50166-1, ‘Human exposure to electromagnetic
fields, low frequency (0 Hz — 10 kHz)’. This, together with
standard ENV 50166-2 on frequencies of 10 kHz to 300 GHz
are the first Europe-wide instruments to deal with the matter,

4. Legal provisions

4.1.
All electrical and electronic installations and appliances
produce electro-magnetic fields. The strength of these fields
depends directly on the voltage and distance from the point
where the electrical current is flowing.

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4.2.
Although electrical fields are not harmful to humans,
they can have unpleasant effects, such as pins and needles,
or itching, and may cause certain electrical and electronic
appliances and instruments (e.g. pacemakers) to malfunction.

4.4.2.3.
The French rejected a change in the law which
would have banned the siting of high-voltage power lines near
inhabited buildings, allowing the creation of ‘corridors’ where
building below power lines would be prohibited.

4.3.
On the other hand, it is suspected that magnetic fields
do affect human health, and such fields have therefore been
the subject of dozens of studies worldwide. The overwhelming
majority of these studies have not proved that magnetic fields
are dangerous,
though obviously there is no irrefutable
evidence to confirm the reverse.

4.4.2.4.
The Committee of the Regions feels there is a need
to specify that new buildings must be located a minimum
distance from power lines. This minimum distance should be
equal to that specified for the construction of new power lines
near existing buildings.

4.4. Regulations on electromagnetic fields

4.4.1. E x p o s u r e l i m i t s f o r E M F s

4.4.1.1.
In January 1990 the IRPA (International Radiation
Protection Association), under the aegis of the WHO (World
Health Organization), and in 1998 the ICNIRP (International
issued
Commission on Non-Ionizing Radiation Protection)
‘Interim guidelines on limits of exposure to 50/60 Hz electric
and magnetic fields’.

4.5. Contentious claims

4.5.1.
case of:

Electro-magnetic fields are usually invoked in the

•

•

•

appeals against the construction of new transmission lines;

claims for compensation from property owners with
buildings near power lines;

financial obligations to people with health problems
caused by electromagnetic fields.

The exposure limits recommended by these guidelines for the
general public are: 5 kV/m for electrical fields; 0.1 mT for
magnetic fields.

4.5.2.
In the debate over construction of new power lines,
electromagnetic fields are among the issues cited in appeals
against the erection of high-voltage lines.

4.4.1.2.
CENELEC is looking at proposals for rules based
on these suggested limits. Some countries have already adopted
these or comparable limits, while others are waiting for them
to be officially adopted by CENELEC.

4.4.1.3. Most electricity companies in Europe have accepted
the IRPA rules, even though they contain no binding pro-
visions. Legislation has been passed in some countries specify-
ing the minimum distance of electrical
installations from
homes and other buildings.

4.4.2. D i s t a n c e o f

t r a n s m i s s i o n l i n e s

f r o m

i n h a b i t e d b u i l d i n g s

4.5.3.
The German and Italian courts reject claims for
damages based on the effects of EMFs, because according to
the IRPA there is no such risk. Danish courts accept that their
is some reduction in the value of buildings located near
transmission lines, while in Sweden the presence of EMFs has
been taken into account in compensation claims involving
owners of property located near transmission lines.

4.5.4.
Regulations and court rulings will evolve over the
coming years to take account of new scientific evidence.
However, most European countries have adopted a cautious
stance so as not to place an undue economic burden on
companies involved in the transmission or distribution of
electrical power.

Some countries, e.g. Luxembourg, have adopted
4.4.2.1.
regulations specifying a minimum distance between electrical
power lines and homes and other public buildings such as
schools, sports centres, etc.

4.6. Existing legislation

4.4.2.2.
It should be noted that the distance of power lines
from inhabited buildings varies between the different European
countries. Some countries, e.g. Denmark and Sweden, have
decided not to adopt proscriptive rules, but simply to propose
precautionary measures defining certain distances from houses
or other buildings when new power lines are to be erected.

4.6.1.
The overwhelming majority of European Union
countries have no laws governing electromagnetic fields. Since
1 January 1997, Germany has had an EMF Regulation for
certain infrastructure-related areas such as fixed radio trans-
mission installations and high-voltage lines to protect the
public and surroundings from the impact of environmental
damage and to prevent EMF-induced environmental damage.

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4.7. Legal action

Almost all legal proceedings instituted in the Euro-
4.7.1.
pean Union have been actions opposing the construction of
new electrical transmission lines.

5. Conclusions

5.1.
The COR thinks that the Commission must take a clear
position on the effects of electro-magnetic fields on the
environment and human health on the basis of discussions
and studies.

5.4.
The COR considers that limit values for electromag-
netic fields should on the one hand ensure that harmful effects
on humans and the environment are prevented, but on the
other should not contribute to creating intractable problems
for the development of electrical power networks. It notes that
network use is bound to increase with completion of the
internal market
in electrical power, as mentioned in EC
Directive 96/92. Consequently, new urban development plans
by national and regional authorities should stipulate, as a
prerequisite, that high-voltage networks be placed undergound
when they are passing through urban areas.

The COR believes that the proposal presented by the
5.5.
Commission for a Council Recommendation on the limitation
of exposure of the general public to electromagnetic fields is
an important first step.

The COR feels that significant progress has been
5.2.
made in investigating the probable effects of low-frequency
electro-magnetic fields, and that it is therefore now up to the
Council to adopt a Recommendation on permissible limit
values to prevent any harmful effects on human health and
the environment.

The COR urges those concerned in the Commission
5.6.
Directorates-General for energy, the environment and health
to join forces and continue and intensify their efforts to
investigate the issue, bearing in mind as far as possible the
concept of risk prevention and minimisation, as is already
partly the case — for instance in the area of high frequencies.

5.3. With respect to setting appropriate limit values for
electromagnetic fields, the COR thinks that the findings on
which the CENELEC standard is based, as well as the studies
that have been carried out on the subject by different
international organizations such as the ICNIRP, IRPA and the
WHO, should be taken into consideration. Consideration
should also be given to non-thermal effects, which can occur
at levels well below the maximum levels given and can have
adverse effects on human health.

5.7.
The COR asks the Commission to use the experience
of local and regional authorities and to cooperate with them
on an on-going basis.

5.8.
The COR believes that the effort to align the operation
and development of electricity networks in the European
Union requires that the Commission propose common limit
values for electromagnetic fields in the European countries,
taking into account the rules in effect in EU Member States
such as Germany and Luxembourg.

Brussels, 3 June 1999.

The President

of the Committee of the Regions

Manfred DAMMEYER