

Senator the Hon Helen Coonan  Minister for Communications, Information Technology and the Arts

Media Release



150/04  8 November 2004

Minister welcomes EME information initiative

The Minister for Communications, Information Technology and the Arts, Senator Helen  Coonan, today welcomed a new community awareness initiative about the possible effects  of mobile phone use.

The Australian Communications Authority (ACA), in conjunction with the Australian  Radiation Protection and Nuclear Safety Agency (ARPANSA), has launched an information  package on Electromagnetic Energy (EME) and mobile phones.

“I appreciate that some people are concerned about mobile phone use and its potential  health effects and this package brings together the most up to date information on EME,”  Senator Coonan said.

“The package is available in hard copy and online and will be a very useful resource for  those in the community who are concerned about these issues.

“I want to ensure that the most up to date facts are available to address misinformation  and misunderstandings about the effects of EME.”

In Australia, ARPANSA sets the standard for public and occupational limits of exposure to  radiofrequency emissions. The standard is set at a limit thousands of times below the level  at which adverse health effects are known to occur.

The package will consist of folder of information sheets and a DVD, as well as a website.

All the information in the package can be assessed through the website at  http://emr.aca.gov.au.



Media Contact:   Jane McMillan  0438 690 305

www.minister.dcita.gov.au

Mobile Phones,Your Health and Regulation of Radiofrequency Electromagnetic Radiation

Â© Australian Communications Authority 2004

This work is copyright. Apart from any use as permitted under the Copyright Act 1968, no part may be produced by any process without prior written permission from the Australian Communications Authority.

Requests and enquiries concerning reproduction and rights should be addressed to: Manager Communications Australian Communications Authority PO Box 13112 Law Courts Melbourne  VIC  8010

ISBN 0 642 78300 4

About the Australian Communications Authority The Australian Communications Authority (ACA) is responsible for regulating radiocommunications and telecommunications, including industry compliance with codes and standards, licensing, spectrum management and consumer safeguards. The ACA also administers legislative provisions relating to powers and immunities of carriers in installing communications facilities.

Disclaimer Please note that this information is intended as a guide only and should not be relied on as legal advice or regarded as a substitute for legal advice in individual cases.

The increased use of mobile phones

in Australia and around the world has

raised public interest in possible

health issues associated with

exposure to electromagnetic

emissions. People are concerned

about possible harmful emissions

from mobile phone handsets and

base stations.

This information has been prepared

on the basis of substantiated research

to explain the current thinking on this

issue and some of the terms used are

necessarily scientific. If anything is not

clear, or you would like more

information, contact details are

provided at the back of this booklet.

At relatively low levels of exposure to EMR, that is, field intensities lower than those that would produce measurable heating, the evidence for production of harmful biological effects is ambiguous and unproven. While there have been studies reporting biological effects at low levels, there has been no conclusive finding that such effects indicate a human health hazard, even with long-term exposure. In many cases, the studies have not yet been subject to scientific peer review or the results have not been replicated.

Is there any Australian research into  the health effects of EMR?

Since 1996, the government has provided ongoing funding of  $1 million per annum for the Radiofrequency Electromagnetic Energy (EME) Program. The EME program supports research and provides information to the public about health issues associated with mobile phones and base stations, and other communications devices and equipment.

The three elements of the program are: Ã¢ÂÂ¢ an Australian research program through the National Health and Medical Research Council (NHMRC) to conduct research into radiofrequency EMR issues of relevance to Australia and

to complement overseas research activities  Ã¢ÂÂ¢ continuing Australian participation in the World Health Organization’s International Electromagnetic Field Project, to

assess the health and environmental effects of EMR exposure and  Ã¢ÂÂ¢ a public information program, for example, fact sheets published by the Australian Radiation Protection and Nuclear

Safety Agency (ARPANSA).

The program is coordinated by the Committee on EME Public Health Issues. The committee includes representatives from the following organisations: Ã¢ÂÂ¢ Department of Communications, Information Technology and

the Arts  Ã¢ÂÂ¢ Australian Communications Authority (ACA) Ã¢ÂÂ¢ Department of Health and Ageing Ã¢ÂÂ¢ ARPANSA and  Ã¢ÂÂ¢ Therapeutic Goods Administration.

A reference group of representatives from consumer organisations, the telecommunications industry, the health sector, universities, local government and community groups provides input to the  EME Committee.

What is radiofrequency  electromagnetic radiation?

Radiofrequency electromagnetic radiation (EMR) is waves of electric and magnetic energy moving together through space. EMR is part of everyday life, emitted by natural sources like the sun, the Earth and the ionosphere, as well as artificial sources such as: Ã¢ÂÂ¢ mobile phone base stations  Ã¢ÂÂ¢ broadcast towers  Ã¢ÂÂ¢ radar facilities  Ã¢ÂÂ¢ remote controls and  Ã¢ÂÂ¢ electrical and electronic equipment.

Radiofrequency EMR is non-ionising radiation. This means that it is not able to directly impart enough energy to a molecule or atom to break chemical bonds or remove electrons such that the structure is changed. In contrast, ionising radiation (such as X-rays) can strip electrons from atoms and molecules. This process produces molecular changes that can lead to damage in biological tissue. It is important not to confuse the terms ‘ionising’ and ‘non-ionising’ when discussing biological effects of EMR, because each type of radiation interacts differently with the human body.

What biological effects can be  caused by radiofrequency EMR?

A biological effect occurs when a change can be measured in a biological system after the introduction of some type of stimuli. However, a biological effect does not necessarily mean there is a biological hazard. A biological effect only becomes a safety hazard when it causes impairment to the health of the individual or of his or her offspring.

It has been known for many years that exposure to sufficiently high levels of EMR can heat biological tissue and potentially cause tissue damage. This is because the human body is unable to cope with the excessive heat generated during exposure to very high radiofrequency levels. Studies have shown that environmental levels of EMR routinely encountered by the public are far below the levels needed to produce significant heating and increased body temperature.

5 4

What standard is in place to protect  consumers from the known effects  of radiofrequency EMR?

To ensure the Australian public is protected from the thermal effects of radiofrequency EMR (and in light of the increasing use of mobile technologies), the ACA made a mandatory standard setting human exposure limits—the Radiocommunications (Electromagnetic Radiation Ã¢ÂÂ Human Exposure) Standard 2003 (and its amendments).

The ACA first made a mandatory EMR human exposure standard in February 1999. A revised standard in December 2001 extended the scope to all radiocommunications transmitters supplied with integral antennas and operating on a frequency between 3 kHz and 300 GHz.

The exposure limits of AS/NZS 2772.1(Int):1998 Radiofrequency

fields part 1: maximum exposure levels 3 kHz to 300 GHz, published by Standards Australia, were made mandatory by the 1999 and 2001 standards.

When AS/NZS 2772.1(Int):1998 expired as a current Standards Australia standard in April 1999, the ACA asked ARPANSA to develop a replacement standard. ARPANSA is the expert Australian Government agency on radiation protection. In 2002, ARPANSA published the

Radiation Protection Standard

for Maximum Exposure to Radiofrequency Fields Ã¢ÂÂ 3 kHz to  300 GHz (2002).

The Radiocommunications (Electromagnetic Radiation Ã¢ÂÂ Human Exposure) Standard 2003 replaced the 2001 standard and commenced on 1 March 2003. Its purpose is to: Ã¢ÂÂ¢ make relevant EMR exposure limits from the ARPANSA

standard mandatory, in place of those from AS/NZS 2772.1 (Int):1998 Ã¢ÂÂ¢ generalise the application of ‘aware user’ provisions by defining an aware user device as one meeting certain technical and

intended use criteria rather than one complying with certain product specific technical standards and  Ã¢ÂÂ¢ make test methods mandatory for a wider range of products than the 2001 standard.

All manufacturers and importers of mobile or portable radiocommunications transmitters with integral antennas, such as mobile and cordless phones, as well as licensees of transmitter installations, such as mobile phone base stations, are required to comply with the exposure limits in the ACA standard.

What is the ACA’s approach to  regulating radiofrequency EMR?

The ACA regulates devices such as mobile phone handsets at first point of supply to the market in Australia. This is done through applying the ACA’s mandatory standard and requirements for demonstrating compliance with the standard. Other transmitters are regulated through the ACA’s radiocommunications apparatus licensing system. In both systems, the compliance requirements become more onerous as the potential of the devices to exceed the limits of the standard increases.

For comprehensive information about the ACA’s regulatory approach to EMR, see the following ACA publications: Ã¢ÂÂ¢ Human Exposure to Radiofrequency Electromagnetic Radiation Ã¢ÂÂ

Information for manufacturers, importers and agents of mobile and portable radiocommunications transmitters with integral antennas,

which is on the ACA website at www.aca.gov.au/consumer_ info/issues_alerts/info_manufacturers.htm and Ã¢ÂÂ¢ Human Exposure to Radiofrequency Electromagnetic Radiation Ã¢ÂÂ Information for licensees of radiocommunications transmitters,

which is on the ACA website at www.aca.gov.au/consumer_ info/issues_alerts/info_licensees.htm.

These publications are also available from ACA offices.

7 6

Ã¢ÂÂ¢ for non-uniform exposure—up to 0.08 W/kg whole body average SAR, but with a spatial peak SAR not exceeding 2 W/kg as averaged over any 10 grams of tissue except for the limbs, hands, wrists, feet and ankles, where the spatial peak SAR must not exceed 4 W/kg averaged over ten grams of tissue. (Generally, only compliance with 2 W/kg spatial peak limit need be demonstrated).

For aware user devices, the exposure limits are: Ã¢ÂÂ¢ for uniform exposure—0.4 watts per kilogram (W/kg) whole body average SAR or Ã¢ÂÂ¢ for non-uniform exposure—up to 0.4 W/kg whole body

average SAR, but with a spatial peak SAR not exceeding 10 W/kg as averaged over any 10 grams of tissue except for the limbs, hands, wrists, feet and ankles, where the spatial peak SAR must not exceed 20 W/kg averaged over ten grams of tissue. (Generally, only compliance with the 10 W/kg spatial peak limit need be demonstrated).

Are mobile phones safe?

The weight of national and international scientific opinion is that there is no substantiated evidence that using a mobile phone causes harmful health effects. Although there have been studies reporting biological effects at low levels, there has been no indication that such effects might constitute a human health hazard, even to long-term exposure.

Based on substantiated scientific research, and to protect the public from the potential heating effects of electromagnetic radiation, the ACA has implemented regulatory arrangements that are built on the mandatory standard setting human exposure limits to radiofrequency EMR. The general consensus of scientific opinion is that, provided mobile phones do not exceed the limits of recognised standards, there will be no harmful effects.

Can the ACA provide information about the radiation emission levels of different mobile phones on the market?

No. The ACA does not hold information on the SAR measurements of mobile phone handsets on the market. However, the Australian Mobile Telecommunications Association (AMTA) has agreed to make information about mobile phones and health available to consumers. Under the agreement with the ACA, the SAR values of mobile phones are provided voluntarily as part of the packaging.

How does the ACA monitor compliance  with the EMR Human Exposure Standard?

The ACA backs industry self-regulation with a compliance monitoring program that includes random audits, complaint investigations and audits of cases where the ACA suspects there is non-compliance.

Manufacturers and importers of mobile phones, as well as licensees of transmitter installations, are given 10 days from when they receive written advice from the ACA to provide documentation that demonstrates compliance with the EMR Human Exposure Standard.

The penalties for non-compliance include: Ã¢ÂÂ¢ fines

Ã¢ÂÂ¢ seizure and forfeiture of stock Ã¢ÂÂ¢ preventing the supply of products until non-compliance is corrected and  Ã¢ÂÂ¢ prosecution.

Are there radiation emission limits  for mobile phones under the  EMR Human Exposure Standard?

Rather than emission limits, the EMR Human Exposure Standard specifies exposure limits to radiofrequency EMR that regulate the rate the mobile phone user absorbs energy from the handset. This is known as the specific absorption rate (SAR)—the rate radiofrequency energy is absorbed by a specified mass of biological tissue—and is expressed in watts per kilogram (W/kg). SAR values are averaged over any six-minute period during the 24-hour day.

The exposure limits vary depending on whether the device is an aware user device or not.

An aware user device is a hand-held or body-worn transmitter intended for use as: Ã¢ÂÂ¢ a land mobile system station Ã¢ÂÂ¢ an ambulatory station  Ã¢ÂÂ¢ a citizen band radio station Ã¢ÂÂ¢ an amateur station or  Ã¢ÂÂ¢ a maritime ship station.

For non-aware user devices, the exposure limits are: Ã¢ÂÂ¢ for uniform exposure—0.08 watts per kilogram (W/kg) whole body average SAR or

9 8

What can you tell me about the hazards of living near a mobile phone tower?

The weight of national and international expert opinion is that there is no substantiated evidence that there are adverse health effects resulting from the emissions of mobile phone towers or base stations.

All mobile phone base stations must comply with the ACA’s mandated limits for human exposure to EMR.

Generally, several base station antennas are mounted on a tower that is between 15 and 50 metres high, or on rooftops. When transmitting, these antennas typically emit a fan-shaped beam, roughly parallel to the ground. Because of the narrow vertical spread of the beam, the radiofrequency field intensity on the ground directly below the antennas is low. At the points that are accessible to the public, emissions are usually thousands of times below the level at which significant heating can occur.

Mobile phone towers are usually sited where the carrier considers they will best meet coverage requirements. If a site is placed further away from its optimal location, it may need to operate at higher power. Therefore, if a tower is close to an area of concern such as a school, the power at that area may be lower than if it was placed further away.

AMTA also provides information about SAR limits applicable in Australia on its website—www.amta.org.au and click on the

SAR Information link.

If you would like to verify the SAR value associated with your mobile phone handset, the Mobile Manufacturers Forum (MMF) lists the SAR values of most popular phones. The information is on the MMF website at www.amta.org.au—click on the

Handsets link and then the SAR Information link.

While the specific power output and design of phones may vary from model to model, the rate energy emissions are absorbed from the handset by the user must not exceed 2 W/kg (averaged over  10 grams).

The ACA conducts random audits to ensure manufacturers and importers are adhering to this limit. The ACA also conducts complaint investigations.

How does the human exposure standard apply to radiocommunications transmitter installations?

The ACA standard is an exposure standard, not a technical performance standard. A technical performance standard specifies an emission limit, for example, a limit that always applies to field strength or power density at a specified distance from a radiator. On the other hand, an exposure standard or limit applies anywhere people may be located.

In general, for a transmitting facility (including a mobile phone tower) to be non-compliant with the ACA standard, areas where levels exceed the public limits must first be accessible to the public in some way—accessibility is a key to maintaining compliance with the standard.

The exposure limit for transmitter installations is stated in Table 7 of the ACA publication

Human Exposure to Radiofrequency

Electromagnetic Radiation Ã¢ÂÂ Information for licensees of radiocommunications transmitters. This publication is available from any ACA office, and is on the ACA website at www.aca.gov.au/consumer_info/issues_alerts/info_licensees.htm.

Licensees must block public access to areas where the radiation level from the installation surpasses this limit.

11 10

How many radiocommunications facilities are in my local area?

All radiocommunications facilities, including mobile phone antennas, must be licensed by the ACA. The ACA maintains a register of radiocommunications licences.

The register lists radiocommunications facilities that are operational. If a facility is currently being installed, it is unlikely to appear on the register. Most carriers forward their registrations to the ACA in batches at regular intervals and the register may not list all radiocommunications facilities current at any particular time.

For large searches, it may be easier to purchase this database on CD-ROM, which is available from ACA offices (see  More information).

A national site archive has been developed by the communications industry to improve access to information about the deployment of mobile phone infrastructure across Australia. However, the archive may not yet contain information about every mobile phone tower deployed by carriers. The archive may contain information such as EME reports about a particular communications facility. The archive is at www.rfnsa.com.au/nsa/index.cgi.

I was not warned about the installation of a mobile phone tower opposite my property. What regulations cover installation sites?

ACA regulations to protect the public from exposure to harmful emissions from telecommunications facilities do not set any distance requirements between the facility and other land uses such as residences, schools or hospitals. However, some local government authorities have determined additional conditions, such as distance, under their planning regulations.

Telecommunications carriers’ responsibilities relating to siting of base stations and consultation are set out in the

Telecommunications Act 1997 and its subordinate legislation— the Telecommunications (Low-Impact Facilities) Determination 1997 (amended 1999), the Telecommunications Code of Practice 1997 and the ACIF C564:2002 Deployment of Radiocommunications Infrastructure Code.

The Deployment of Radiocommunications Infrastructure Code was produced by the Australian Communications Industry Forum (ACIF). The code covers the steps telecommunications carriers must take when deciding where to place a radiocommunications facility such as a mobile phone base station.

Under the code, a precautionary approach to the siting, design and operation of radiocommunications infrastructure should be adopted by carriers. It is a mandatory requirement under the code for carriers to notify councils about all facilities and the planned consultation procedures for installing low impact facilities.

The code recognises that, while current scientific findings suggest there are no health effects associated with exposure to low level radio emissions such as those from mobile phone base stations, some people are still concerned.

Under the code, carriers must consider the sensitivity of locations such as schools and hospitals and balance these concerns with other factors, such as coverage objectives, when deciding where to place a site. The code also requires carriers to take into account a list of objectives, including minimising EMR emissions, in the design and operation of mobile phone towers.

More information about the code is on the ACA website, including a comprehensive set of frequently asked questions and related fact sheets (see

More information for details).

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More information

For more information about radiofrequency EMR and health effects: Ã¢ÂÂ¢ visit the World Health Organization’s website at www.who.int

Ã¢ÂÂ¢ see the ARPANSA fact sheets at www.arpansa.gov.au/eme_pubs.htm Ã¢ÂÂ¢ contact any ACA office on telephone 1300 850 115 (see the ACA website at

www.aca.gov.au/contact.htm for more contact details) or Ã¢ÂÂ¢ contact the ACA’s Standards and Compliance Projects Team on telephone 02 6219 5555,

fax 02 6219 5288 or email emr.issues@aca.gov.au.

For more information about EMR regulations: Ã¢ÂÂ¢ see the ACA’s Human exposure to electromagnetic radiation website at www.aca.gov.au/stds_compliance/

electromagnetic_radiation/ Ã¢ÂÂ¢ see the ACA’s Mobile phone towers and EMR website at http://emr.aca.gov.au Ã¢ÂÂ¢ contact any ACA office on 1300 850 115 or Ã¢ÂÂ¢ contact the ACA’s Standards and Compliance

Projects Team.

The Australian Communications Authority is a government regulator of telecommunications and radiocommunications

www.aca.gov.au



