Hampshire County Council

Environment Policy Review Committee Item 14

5 May 2004

Terrestrial Trunked Radio (TETRA)

Report of the Director of Property, Business and Regulatory Services

1

Background

1.1

The purpose of this paper is to update the Committee on the health and safety aspects of Terrestrial Trunked Radio (TETRA) mobile telecommunications systems. Hampshire Police is in the process of adopting this system, provided by Airwave mmO2.

1.2

Following concerns expressed by the public and in the media, Councillor Dash submitted a Notice of Motion to the 25 February 2004 County Council Meeting, as follows:

"This Council notes the concerns of Planning Authorities in our County by the proliferation of Tetra communication masts particularly where masts are erected without planning permission. It also shares the concerns of local people who are worried about the risks to health presented by this technology. Accordingly this council will make representation through the Local Government association and County Councils Network for a reconsideration of current Government policy which is being imposed on a reluctant and apprehensive population".

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2.1

2.2

2.3

2.4

Key Features of TETRA

TETRA is an international open standard for digital mobile radio communications, developed by the European Telecommunications Standards Institute. It defines a way to code radio signals to provide a range of features. The key benefits include:

· Two way radio and pager


· Mobile telephony


· Messaging


· Data transfer - including voice, data and pictures.

· Encryption


· Global Positioning System (GPS) - for locating users.

These features are particularly useful for the emergency services. E.g. photographs of missing children can be distributed to entire police forces at the touch of a button, the mobile phone facility enables cross-boundary and inter emergency service communications and the GPS facility enables rapid location of officers in the field. A modem facility enables the police to link directly to central computers for vehicle checks etc.

In 1996, the Home Office agreed with the Association of Chief Police Officers (ACPO) Council and HM Treasury that TETRA would form the basis of a new common national mobile communications network for the whole police service in England and Wales. Several Police Authorities, including Lancashire, North Yorkshire, Suffolk , Greater Manchester, Leicestershire and West Mercia have already adopted the system.

In the UK, Airwave mmO2 have the contract for installation of all masts and for operating the infrastructure. The base stations and hand held equipment are manufactured by Motorola.

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3.1

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4.1

4.2

Possible effects from exposure to Radiofrequency Emissions.

Scientists have investigated three possible types of effect on health from exposure to radio frequency (RF) emissions:

1. Heating effects. Similar to microwave heating.


2. Cancer/tumour growth.


3. Brain pattern effects.

Key Research Studies

Many independent research studies have been carried out. So far, none show that any of the above are cause for concern, provided that the emissions comply with the recognised ICNIRP standards. The two most widely published studies are:

· The Stewart Report, Independent Expert Group on Mobile Phones (IEGMP), "Mobile Phones and Health", 2000.

· The Swerdlow Report, Advisory Group on Non-Ionising Radiation (AGNIR), "Health effects from radio frequency electromagnetic fields", 2003.

Both reports can be examined on the website of the National Radiological Protection Board (NRPB) at www.nrpb.org. However, there are limitations to the research carried out so far and mobile phones and TETRA systems have only been in widespread use for a relatively short time. The Advisory Group concluded that there was still a possibility that there could be health effects from exposure to radio frequency transmissions below guideline levels so continued research was recommended.
Regarding exposures in the vicinity of mobile phone base stations, AGNIR has examined data from a number of surveys and concluded that exposure levels are extremely low and evidence indicates that they are unlikely to pose a health risk.

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5.1

5.2

5.3

5.4

5.5

5.6

Home Office programme of work on TETRA Health & Safety Issues

The issues raised in the Stewart Report were not restricted to public mobile phones and it was clear that similar considerations would also apply to private mobile radio systems such as TETRA (Airwave).

Although the evidence did not suggest adverse health effects, a precautionary approach was suggested. A number of recommendations were made to government and industry. One relating to use of amplitude modulation at 16Hz was of particular relevance to TETRA (which modulates some of the Rf signal at 17.6 Hz). This is because studies in the 1970's and 1980's had suggested that exposure of brain and other tissues to Rf fields at 16Hz increased the rate of calcium efflux. Calcium has an important role in nerve cell function.

As a result, the Home Office commissioned a separate study by the NRPB to specifically look at the calcium effect and other health and safety aspects of the TETRA technology used by Airwave.

The NRPB report, (Possible Health Effects from TETRA) prepared by its independent Advisory Group on Non-Ionising Radiation (AGNIR), was published in July 2001. It concluded that it was unlikely that TETRA emissions pose a hazard to health.

It suggested eight recommendations for further research to address the remaining areas of uncertainty. The Home Office accepted the report and is taking forward the NRPB recommendations in a comprehensive programme of work. Most of the recommendations have now been addressed, although some longer-term work will go on for a number of years. The key findings to date are:

· Results from a Defence Science & Technology Laboratory (DSTL) study indicate that TETRA signals have no effect on calcium exchanges in cells - the main concern that had been raised in the Stewart report.

· Airwave equipment fully conforms with health and safety guidelines. Hands-free kits in particular transmit very little energy into the head and body of users.

· Imperial College are carrying out a long-term national health monitoring study of Airwave police users. (West Midlands Police).

· The only established risk to health resulting from exposure to radio frequency electromagnetic fields arises from heating. Maximum levels of exposure are given in terms of the power absorbed in the body, or Specific Absorption Rate (SAR). So long as these levels are not exceeded there is no heating risk.

The overall conclusion is no adverse effects of TETRA have been found so far.

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6.1

Safety Limits for Exposure to Radio Waves

The emission standards have been set by the International Commission on Non Ionising Radiation Protection (ICNIRP). They are designed to prevent body heating effects. The Specific Energy Absorption Rate (SAR) is a measure of the rate at which energy is absorbed by body tissue in an electromagnetic field.

It is measured in units of watts per kilogram (W/kg). The limits are stricter for the public than telecom workers on the assumption that the public includes children, the elderly and the sick.

Part of body exposed SAR (W/kg) Worker SAR (W/kg) Public

Whole body 0.4 0.08

Head and trunk 10 2.0

Limbs 20 4.0

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7.1

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8.1

8.2

8.3

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9.1

10

10.1

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11.1

12

12.1

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12.3

13

13.1

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14

14.1

Planning Issues.

The County Council does not have responsibility for approving the location of telecommunications equipment. A note on the planning situation by the Director of Environment is set out at Appendix 1. The Government's Policy Planning Guidance Note Number 8 (PPG8) sets out relevant policy. Of particular relevance to this paper are two key policies relating to Health, quoted below:

"....In the Governments view, if a proposed mobile phone base station meets the ICNIRP guidelines for public exposure it should not be necessary for a local planning authority, in processing an application for planning permission or prior approval, to consider further the health aspects and concerns about them" and, " The Governments acceptance of the precautionary approach recommended by the Stewart Groups report "mobile phones and health" is limited to the specific recommendations in the Groups report and the Governments response to them. The report does not provide any basis for precautionary actions beyond those already proposed. In the Governments view, local planning authorities should not implement their own precautionary policies e.g. by way of imposing a ban or moratorium on new telecommunications development or insisting on minimum distances between new telecommunications development and existing development".

County Council Policy on Mobile Phone Base Stations

The current scientific evidence indicates that Mobile Phone Base Stations are safe as long as they are set up properly and satisfy the ICNIRP emission standards.

However, since mobile phones have been in use for a relatively short time, further research is needed to totally rule out long-term side effects. It is for this reason that Hampshire County Council continues to adopt a precautionary approach to the siting of mobile phone base stations on its land and buildings. The County Council's policy is available at

http://estatespractice.hants.gov.uk/Telecommunications.html

Since the issues relating to TETRA technology are essentially the same as those for Mobile Phones, the adoption of a similar precautionary approach may be considered appropriate.

Interested Parties

The Head of Science contacted a number of interested parties to establish the viewpoints of key stakeholders. The findings are summarised below:

Hampshire Police

The latest update report of the Chief Constable on the Airwave Project was presented to the Hampshire Police Authority on 25 November 2003. It indicated that the implementation plan was well underway and that migration to TETRA would be completed in 2004. The report mentioned that several masts had been erected in the East Hampshire District Council area without appropriate approval. These had to be dismantled and re-erected accordingly. This attracted media attention. The Police Authority state that the project team will take no part in the planning process but will field team members at public meetings to reassure the public if requested. The stance on health issues reflects the current Home Office view rehearsed at section 2.2.3. The Head of Science also spoke to Mark Cooper, who leads the Hampshire Police Airwave project. Mr Cooper will attend the meeting on 5 May to make a presentation and answer questions from the Committee.

Pressure Groups

Both local and national offices of the Friends of the Earth were contacted for their views. Both confirmed that they do not work specifically on telecommunications masts. Their national HQ offered the following view:

"Many communities have raised concerns about the siting of mobile phone masts in their area. We support the right of communities to challenge the imposition of masts. We expect phone companies and local authorities to consult communities, respect their concerns and adopt a precautionary approach to the siting of masts."

Mast Action UK (http://mastaction.co.uk/) will be attending the meeting, however, to make a presentation to the committee and to answer members questions.

Independent Expert Groups

The two main independent expert groups in the UK are:

· Independent Expert Group on Mobile Phones (IEGMP).

· Advisory Group on Non-Ionising Radiation (AGNIR).

Professor David Coggon, of Southampton University, is a member of both groups so was contacted by the Head of Science on 7 April 2004. Unfortunately he is unable to attend the scrutiny committee due to a prior appointment but offered the following view:

"The bottom line is that the weight of evidence now available does not suggest adverse health effects from exposure to RF fields below guideline levels, or specifically from TETRA. Inevitably with a new technology like this, there is going to be some uncertainty, particularly in relation to effects that might only occur after a long latent interval. However, when the available information from biophysics and experimental work in the laboratory is taken into account, a serious hazard seems unlikely."

He suggested that the Council contact the NRPB and Dr. Mike Clark from the NRPB will be attending to make a presentation and answer questions from the Committee.

The Industry View

On 30 March 2004, the Head of Science visited Motorola HQ in Basingstoke to examine the TETRA equipment and to discuss the health issues with Richard Bond, Motorola's Head of Safety and Quality Assurance.

Mr Bond provided a large amount of data and published papers indicating that the TETRA technology was safe. He indicated that approximately 120 masts were needed in Hampshire for the TETRA system to operate effectively. He believed that Airwave had already installed most of these so did not envisage large numbers of new masts being erected in the future

He also provided a Health & Safety Information brochure published by the TETRA Industry Group. The brochure essentially reflects the same views as the Home Office. It also highlights the technological advantages of the system. Copies of this brochure are available for members.

Conclusions

· The only established risk to health resulting from exposure to radio frequency electromagnetic fields arises from heating. Maximum levels of exposure are given in terms of the power absorbed in the body, or Specific Absorption Rate (SAR). So long as these levels are not exceeded there is no heating risk.


· Research to investigate cancer, tumour and brain pattern effects has identified no other risks to health.


· The responsibility for Planning applications for telecommunications masts lies with local District and City Councils rather than the County Council


· Current Government advice is that health issues should not be considered as part of the planning process so long as masts satisfy ICNIRP standards.


· Hampshire Police Authority's Airwave implementation plan is due for completion this year.


· Friends of the Earth do not work specifically on this issue but recommend a precautionary approach


· An independent expert indicated that the research findings so far do not indicate that TETRA poses a serious health hazard.


· An industry representative indicated that around 120 masts were needed in Hampshire to service a TETRA system and that most of these were already in place.

Recommendation

That the Committee consider the information in this paper and the views presented to it at the meeting and formulate a recommendation for consideration by the County Council on 20 May 2004.

Section 100 D - Local Government Act 1972 - background papers

The following documents disclose facts or matters on which this report, or an

important part of it, is based and has been relied upon to a material extent in the preparation of this report.

NB the list excludes:

1 Published works

2 Documents which disclose exempt or confidential information as defined in the Act

None

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