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National Precautionary Policies on Magnetic Fields from Power Lines in Belgium, France, Germany, the Netherlands and the United Kingdom

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National Precautionary Policies on Magnetic Fields from Power Lines in Belgium, France, Germany, the Netherlands and the United Kingdom R. Stam RIVM Report 2017-0118 National precautionary policies on magnetic fields from power lines in Belgium, France, Germany, the Netherlands and the United Kingdom This is a publication of: National Institute for Public Health and the Environment P.O. Box 1 | 3720 BA Bilthoven The Netherlands www.rivm.nl/en August 2017 009931 Committed to health and sustainability National precautionary policies on magnetic fields from power lines in Belgium, France, Germany, the Netherlands and the United Kingdom RIVM Report 2017-0118 RIVM Report 2017-0118 Colophon This report contains an erratum d.d. 24-10-2017 on the last page © RIVM 2017 Parts of this publication may be reproduced, provided acknowledgement is given to: National Institute for Public Health and the Environment, along with the title and year of publication. DOI 10.21945/RIVM-2017-0118 R. Stam (author), RIVM Contact: Dr Rianne Stam Centre for Sustainability, Environment and Health National Institute for Public Health and the Environment [email protected] This report was commissioned by the Ministry of Infrastructure and the Environment, within the framework of project M/260032/17. This is a publication of: National Institute for Public Health and the Environment P.O. Box 1 | 3720 BA Bilthoven The Netherlands www.rivm.nl/en Page 2 of 56 RIVM Report 2017-0118 Synopsis National precautionary policies on magnetic fields from power lines in Belgium, France, Germany, the Netherlands and the United Kingdom Scientific research points to a possibly increased risk of childhood leukaemia in children who live near overhead power lines. Because of statistical uncertainties and the fact that the disease mechanism is not known, it is not clear whether the magnetic fields of the power lines are the cause. Out of precaution, the Netherlands and several other European countries have developed policies several years ago that aim to reduce the exposure to magnetic fields from new power lines. Different countries deal in different ways with the uncertainties in the available knowledge and strike a different balance between scientific evidence and social, economic and political arguments. These are the findings of an investigation by the National Institute of Public Health and the Environment (RIVM). The report clarifies the policy in the Netherlands on magnetic fields from power lines and compares it with the policies in four nearby countries (Belgium, France, Germany and the United Kingdom). These countries differ in the applied limits and in the locations and types of electricity infrastructure to which the policy applies. For example, the policy in the United Kingdom is the most restrained and is aimed at informing the public and changing the connectivity (phasing) of power lines, for example in power stations, which weakens the magnetic field. Further measures are not deemed proportional to the possible risk. Germany applies a policy that aims to minimise magnetic fields from a broader range of electricity infrastructure, for example also for switch stations and the overhead wires of railways. Keywords: magnetic fields; power lines; potential health effects; policy; practices in other countries Page 3 of 56 RIVM Report 2017-0118 Page 4 of 56 RIVM Report 2017-0118 Publiekssamenvatting Nationaal voorzorgsbeleid over magnetische velden van hoogspanningslijnen in België, Frankrijk, Duitsland, Nederland en het Verenigd Koninkrijk Wetenschappelijk onderzoek wijst op een mogelijk verhoogd risico op leukemie bij kinderen die in de buurt van bovengrondse hoogspanningslijnen wonen. Door statistische onzekerheden en het onbekende ziektemechanisme is het niet duidelijk of de magnetische velden van de hoogspanningslijnen daar de oorzaak van zijn. Uit voorzorg hebben Nederland en enkele andere Europese landen enkele jaren geleden beleid opgezet om de blootstelling aan de magnetische velden van nieuwe hoogspanningslijnen te beperken. Landen blijken verschillend om te gaan met de onzekerheden in de beschikbare kennis en maken voor hun beleid andere afwegingen tussen de wetenschappelijke bewijslast en sociale, economische en politieke argumenten. Dit blijkt uit onderzoek van het RIVM. Hierin is het Nederlandse beleid over magneetvelden van hoogspanningslijnen verduidelijkt en vergeleken met het beleid in vier omringende landen (België, Duitsland, Frankrijk, Verenigd Koninkrijk). De landen verschillen in de gebruikte limieten en op welke locaties en welk type elektriciteitsvoorzieningen het beleid van toepassing is. Het Verenigd Koninkrijk is bijvoorbeeld het meest terughoudend in beleid en richt zich op publieksvoorlichting en op aanpassingen in de aansluitingpunten van de draden van de hoogspanningslijnen, bijvoorbeeld in de centrale, waardoor het magneetveld zwakker wordt. Verdergaande maatregelen vinden zij niet in verhouding staan tot het mogelijke risico. Duitsland hanteert een beleid dat in bredere zin is ingestoken op het minimaliseren van magnetische velden, dus ook voor bijvoorbeeld transformatorstations en bovenleidingen van treinen. Kernwoorden: magnetische velden; hoogspanningslijnen; mogelijke gezondheidseffecten; beleid; praktijk in andere landen Page 5 of 56 RIVM Report 2017-0118 Page 6 of 56 RIVM Report 2017-0118 Contents Summary — 9 1 Introduction — 13 1.1 Scientific context — 13 1.2 Precautionary policy in the EU — 14 1.3 Aims and methods — 15 1.4 References — 16 2 Belgium — 19 2.1 Background — 19 2.2 Present policy — 19 2.3 Practical and administrative aspects — 20 2.4 Future plans — 21 2.5 References — 21 3 France — 25 3.1 Background — 25 3.2 Present policy — 26 3.3 Practical and administrative aspects — 26 3.4 Future plans — 27 3.5 References — 27 4 Germany — 29 4.1 Background — 29 4.2 Present policy — 29 4.3 Practical and administrative aspects — 31 4.4 Future plans — 32 4.5 References — 32 5 Netherlands — 35 5.1 Background — 35 5.2 Present policy — 36 5.3 Practical and administrative aspects — 37 5.4 Future plans — 37 5.5 References — 39 6 United Kingdom — 41 6.1 Background — 41 6.2 Present policy — 42 6.3 Practical and administrative aspects — 42 6.4 Future plans — 43 6.5 References — 44 7 Discussion — 47 7.1 Policies compared — 47 7.2 References — 48 Appendix: Search strategy — 53 Page 7 of 56 RIVM Report 2017-0118 Page 8 of 56 RIVM Report 2017-0118 Summary Power frequency electric and magnetic fields (EMF) are generated in the production, transport, distribution and use of electricity. Epidemiological research has found a statistical relationship between the strength of power frequency magnetic fields near overhead power lines and the risk of leukaemia in children. Based on pooled analyses of the data from individual epidemiological studies, a statistically significant increased risk of childhood leukaemia is associated with long-term exposure to power frequency magnetic fields with a magnetic flux density greater than 0.3 or 0.4 microtesla. It cannot be excluded that the association is (partially) due to statistical bias or confounding and no generally accepted biophysical mechanisms have been identified for the hypothesis that power frequency magnetic fields cause or promote cancer. Nevertheless, some countries have implemented precautionary policies to limit the exposure of children to magnetic fields from overhead power lines or other electricity infrastructure. This report aims to compare the precautionary policies developed by five European countries that strike a different balance between the scientific evidence for risk and precautionary preventive measures, based on differences in their political, social and economic cultures: Belgium, France, Germany, the Netherlands and the United Kingdom (UK). A regularly updated RIVM database of international EMF policies was used as a starting point. In addition, a literature search was conducted for relevant research papers and reviews in PubMed and Scopus, and searches were performed in Google and Open Grey with search terms related to low frequency magnetic fields, power lines and policy. National experts at the regulators and grid operators in each country then checked a summary text and their comments were used to correct and extend the draft report. The final draft report underwent peer review by two scientists within RIVM who were not involved in the project. This summary section concentrates on precautionary elements in national and regional policy. More details on other EMF policies and legislation can be found in the chapters on each country and in the Discussion chapter. In Belgium, the limitation of EMF exposure of the general population is a matter for the three devolved regions. In Flanders, a ministerial recommendation for the planning of new power lines states that passing over schools and childcare centres should be avoided and passing over homes kept to a minimum. New schools and childcare centres should not be placed in the magnetic field zone with year-averaged exposure greater than 0.4 microtesla. In addition, an indoor environment decree requires those responsible for building or managing homes and public buildings to keep exposure to low frequency magnetic fields below 10 microtesla and advises them to strive for a ‘quality aim’ of 0.2 microtesla. In Brussels, a ministerial instruction for environmental permits requires that the magnetic field in places near newly installed transformers where children under 15 may stay is kept below a 24-hour average of 0.4 microtesla. Wallonia does not have a precautionary policy for power frequency magnetic fields. Page 9 of 56 RIVM Report 2017-0118 In France, a ministerial
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