Mobile phones and base stations
Main text
Key documents
Further information
Guidance
The Independent Expert Group on Mobile Phones (IEGMP), also referred to as the Stewart Group (it was chaired by Sir William Stewart), was set up in 1999 at the request of Minister for Public Health to examine the possible effects from the use of mobile phones, base stations and transmitters on health.
The Group completed its investigation with the publication of its report, Mobile Phones and Health, in May 2000. The Government response to the report is also available.
The IEGMP report concluded that:
- the balance of evidence examined suggested that exposures to radio-frequency (RF) radiation below the National Radiological Protection Board (NRPB) and the International Commission on Non-Ionising Radiation Protection (ICNIRP) guidelines does not cause adverse health effects to the general population
- there was evidence to suggest that there may be biological effects occurring at exposures below these guidelines and also that, at the frequencies used in mobile technology, children will absorb more energy than adults
- it was not possible to say that exposure to RF radiation, even at levels below national guidelines, was totally without potential adverse health effects, and that gaps in knowledge were sufficient to justify a precautionary approach.
The report therefore recommended that a specific precautionary approach, as proposed in the report, should be adopted until much more detailed and scientifically robust information on any health effects becomes available. The report also made a recommendation that further research be undertaken, and the Government is taking this forward under a Mobile Telecommunications and Health Research Programme.
Implications for LEAs and Schools
Base Stations on or near Schools
The Group looked at the issue of siting base stations on and near schools. It did not recommend that they be prohibited from or near schools but instead made a recommendation concerning the 'beam of greatest intensity'. Amongst the Group's other recommendations, which will be of interest to LEAs and schools, were an independent random audit of base stations (to begin with schools and other sensitive sites) and changes to the planning arrangements for base stations.
'Beam of Greatest Intensity'
The Group recommended that 'the beam of greatest RF intensity' from a macrocell base station sited within or near the grounds of a school should not be permitted to fall on any part of the school's grounds or buildings without agreement from the school and parents. The Group's report indicates that this part of the beam is generally likely to fall to the ground between 50 to 200 metres from the base of a mast. See also the IEGMP website for the Group's response to queries about the recommendation concerning the beam.
Government agrees that schools and parents should be reassured that the base stations near school and other places where children spend considerable time operate within guidelines. The network operators have agreed to provide schools, on request, with information on the level of intensity of radio frequency radiation from a base station on or near their premises.
The Government has also issued a public health leaflet, Mobile Phone Base Stations and Health, which contains information about radio waves from base stations on or near schools.
Audit of Base Stations
The Radiocommunications Agency (RA), has been asked to conduct an audit of base stations to ensure their emissions do not exceed approved guidelines. The RA, an Executive Agency of the Department of Trade and Industry (DTI), are experts in the field of measuring radio frequency emissions.
The audit began with schools and results of the audit can be found on the RA website . The measurements taken in 2001 of 100 base stations sited on school premises showed that all were operating well within the guidelines. The results of the 2002 audit of 100 base stations sited near schools and hospitals are placed on the RA website as they become available.
More information on the audit, including results of measurements taken so far at schools, is on the RA website. Enquiries about the audit can also be e-mailed to the RA or telephone the RA Enquiry Point on 020 7211 0211.
The RA have also set up the Sitefinder website, which is a database of mobile phone masts, their locations and operational characteristics.
Planning Arrangements and Guidance
In August 2001 the planning arrangements for telecommunications masts in England were changed.
The changes will:
- strengthen public consultation requirements on mast proposals of 15 metres and below so that they are exactly the same as applications for planning permission
- increase the time for authorities to deal with prior approval applications to 56 days
- underline that school governors must be consulted on all proposals for new masts on or near a school or college
- increase fees to enable authorities to carry out full public consultation
- maintain in full an authority's ability to reject applications on amenity grounds.
The network operators are also committed to consult local people, including schools and colleges, to seek to develop solutions in partnership with them before submitting an application to erect a mast.
Revised Planning Guidance: Consultation with Schools and FE Colleges
Planning guidance has also been revised in light of the planning changes: Policy Planning Guidance Note 8: Telecommunications (PPG8) [2001] and also the Code of Best Practice on Mobile Phones Network Development [2002] .
This guidance will be of interest to schools and FE colleagues as it includes advice about consultation arrangements — specifically on consultation with schools and FE colleges when new masts are proposed on or near their premises. PPG8 also includes advice on the health considerations that may be taken into account by local planning authorities when making decisions on telecommunications developments. The Code of Best Practice sets out procedures for network operators to follow when consulting with schools and FE colleges before they submit an application for a development to the local planning authority.
Schools and FE colleges should now be consulted with directly when a new mast is proposed on or near their premises. This includes consultation by (i) the network operators before submitting an application to erect a mast, and by (ii) local planning authorities when the planning application is received. (See 'Schools' paragraphs of the Planning Guidance )
(i) Consultation by Network Operators
Before submitting an application to erect a mast, the network operators should consult with the relevant governing bodies of schools and FE colleges, in order to seek to develop solutions in partnership with them. For example, the issue of the 'beam of greatest intensity' should be discussed at this point.
The consultation will not directly include parents but it will be up to governing bodies to consider how best to involve parents either by providing information or by consulting with them. The DfES considers it is good practice for schools to consult parents when considering the siting of a base station on their premises.
The operators should provide evidence to the local planning authority that they have consulted with the relevant governing body of the school or FE college, when making an application.
(ii) Consultation by Local Planning Authorities
Once a planning application has been received local planning authorities will be required to consult locally, including with schools and FE colleges where a development is proposed on or near their premises. They should consult with the relevant governing body and take account of any relevant views expressed. Consultation should be in writing to the relevant governing body, inviting comments by a specified time. Timing will be an important factor. For prior approval applications, which apply to masts of 15 metres and below, local planning authorities will have 56 days, beginning with the date on which it receives the application, in which to make and notify its determination on whether prior approval is required to siting and appearance and to notify the applicants of its decision to give or refuse such approval. There is no power to extend the 56 day period.
When a school/FE college school should be consulted
The Code of Best Practice sets out a range of factors to be taken into account by network operators and local planning authorities when determining whether a school/FE college should be consulted. These are:
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the proposed site is on school/college grounds
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the proposed development would be seen from the school/college or its grounds
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the site is on a main access point used by pupils/student to the school/college
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there is a history of concern about base stations in the local community
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the local planning authority has requested consultation with the school/college
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the school/college has requested that it be included in any consultation.
The Department for Education and Skills advises any school or FE college that wishes to be consulted about base stations in their locality that they should notify the local planning authority setting out the circumstances in which they wish to be consulted.
Health Considerations by Local Planning Authorities
The guidance also sets out the issues local planning authorities may consider when considering applications, such as health.
Health considerations and public concern can in principle be material considerations in determining applications for planning permission and prior approval. However, the guidance advises that if a proposed mobile phone base station meets the International Commission on Non-Ionising Radiation Protection (ICNIRP) guidelines for public exposure, it should not be necessary for local planning authorities to consider further the health aspects and concerns about them. The ICNIRP guidelines for public exposure, which the IEGMP recommended should be adopted, are five times more stringent that the guidelines observed previously.
It should be noted that the 'beam of greatest intensity' is not, in itself, a health consideration, and will not be considered by local planning authorities as part of the planning process. This is because the 'beam of greatest intensity' does not form part of the ICNIRP guidelines, although base station emissions, which will include all parts of a beam, must not exceed the guideline levels. Local planning authorities will take account of health considerations with reference to compliance with ICNIRP guidelines.
Where the 'beam of greatest intensity' is an issue for schools and parents, schools may seek to resolve this matter directly with the operators (see above). This applies both to existing masts or proposed developments (e.g. when consulted by operators before submitting an application, see above).
Childrens' Use of Mobile Phones
It is recognised that there may be circumstances where the use of a mobile phone by a child can promote safety, for example in enabling them to call for help. However, the Group recommended that the widespread use of mobile phones by children for non-essential calls should be discouraged, because of their greater absorption of energy in the tissues of the head, their developing nervous system, and the longer lifetime of exposure. See also the Group's response to queries on this recommendation.
This Government has issued a public health leaflet, Mobile Phones and Health. This contains advice from the UK Chief Medical Officers (CMOs) that where children and young people do use mobile phones, they should be encouraged to:
- use mobile phones for essential purposes only
- keep all calls short — talking for long periods prolongs exposure and should be discouraged.
The UK CMOs recommend that if parents want to avoid their children being subject to any possible risk that might be identified in the future, the way to do so is to exercise their choice not to let their children use mobile phones.
Schools may wish to take the UK CMOs' advice into account when considering any policies on the use of mobile phones by pupils.
Main text
Key documents
Further information
Guidance
