Establishing a dialogue on risks from electromagnetic fields

WHO Library Cataloguing-in-Publication Data Establishing a dialogue on risks from electromagnetic fields.

1.Electromagnetic fields – adverse effects 2.Risk 3.Risk assessment – handbooks 4.Risk management – handbooks 5.Communication 6.Environmental exposure 7.Guidelines

ISBN 92 4 154571 2 (NLM/LC Classification:QT34)

' World Health Organization 2002

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OESNTABRLISISHIKNGS A  DF IARLOO GMUE ELECTROMAGNETIC FIELDS

RADIATION AND ENVIRONMENTAL HEALTH DEPARTMENT OF PROTECTION OF THE HUMAN ENVIRONMENT WORLD HEALTH ORGANIZATION

GENEVA, SWITZERLAND

2002

USA

by two conference osured ion Protection cationy

blication in Genev

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na,USA i

52,top) n Board

TABLE OF CONTENTS

ACKNOWLEDGEMENTS ii FOREWORD vii

1 ETHLEECPTRREOSMEANGT N EEVTIDICE FNICEELDS AND PUBLIC HEALTH 1 2 WBCoihonaloctgl uhicsaaipolpneesfnffers co wtmsh aesncnid ey nohtuei aaclrt ehreeesxfefpeaocrcstshed to electromagnetic elds? 45

3 EMF RISK COMMUNICATION 9

DEALING WITH PUBLIC PERCEPTION

Multiple determinants of the EMF risk issue 11 How is risk perceived? 15

The need for risk communication 19 ????WWHITEHNWTOHOCMOMTOMCUONMICMATUENICATE 2249

Managing EMF risk communication 23 WHAT TO COMMUNICATE 33

HOW TO COMMUNICATE 43

3 ETHMEF PERXEPSOESNUTR ES IGTUUAIDTEIOLNINES AND POLICIES 51

Who decides on guidelines? 51 What are guidelines based on? 51

Why is a higher reduction factor applied for general public exposure guidelines? 53 Precautionary approaches and the Precautionary Principle 55 Science-based and precautionary approaches for EMF 55 What is the World Health Organization doing? 57

GLOSSARY 60 FURTHER READING 64

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ESTABLISHING A DIALOGUE ON RISKS FROM ELECTROMAGNETIC FIELDS ELECTROMAGNETIC FIELDS AND PUBLIC HEALTH: THE PRESENT EVIDENCE

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ESTABLISHING A DIALOGUE ON RISKS FROM ELECTROMAGNETIC FIELDS EMF RISK COMMUNICATION: DEALING WITH PUBLIC PERCEPTION

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WHEN TO COMMUNICATE WHEN TO COMMUNICATE

KEY QUESTIONS to anticipate information needs:know The communication process passes throughMANAGING A TIME-SENSITIVE ISSUE

When should you enter into a dialogue? what to share and when to share it. different stages.At the beginning ofthe Public health and environmental health

Is there sufficient planning time? dialogue,there is a need to provide issues have a dynamic life;they evolve with

Ccoamn myouun qituy iocpkliyn iroensse?arch who and what influencesEstablishing a dialogue as early as possible informationand knowledge.This will time.The life cycle ofan issue illustrates

When do you include the stakeholders? When do provides several benefits.First,the public will increase awareness,and sometimes concern,how social pressure on decision-makers

you plan the process,set the goals and outline the see the communicator as acting in a on the part ofthe different stakeholders.Atdevelops with time (Figure 6).During the

options? When are decisions made? responsible manner and demonstrating this stage,it will become important to early stages ofthe life cycle,when the There is often significant public anxietyconcern about the issue.Avoiding delays in continue communication,through an openproblem is dormant or just emerging,

over particular sources ofEMF,such asproviding information and discussion will dialogue,with all parties involved before public pressure is at a minimum.While the transmission lines and mobile phone basealso dispel controversy,and decrease the setting policies.When it comes to planningproblem may not yet be on the research stations.This anxiety can lead to stronglikelihood ofhaving to rectify misinformation a new project,for example,building a poweragenda,there can still be ample time to objections to the siting ofsuch facilities.and misunderstandings.One should take line or installing a mobile phone base research and analysepotential risks.As the When community opposition builds,it isclues from the stakeholders,and use what is station,the industry should start immediateproblem bursts into current public

often because the communication processlearned to improve communication planning communication with regional and local awareness,often brought into the forefront was not started early enough to ensure and implementation.Initiating risk authorities as well as interested stakeholdersby a triggering event (e.g.due to media public trust and understanding. communication proves that one is trying to (landowners,concerned citizens, attention,organized activist intervention,

build a relationship with stakeholders,and environmental groups). the Internet,or simple word ofmouth),it Successful communication about a projectthat,in itself,can be almost as important as is important to take actionin the form of requires planning and skill.It is importantwhat is communicated.

communication with the public.As theThe earlier balanced information is

problem reaches crisis proportions,a introduced,the more able the decision- decisionmust be taken but a hurried makers will be to prevent the issue reaching outcome can leave all sides dissatisfied.Asthe crisis stage.It is indeed much easier to the problem begins to diminish in help people form opinions than to change importance on the public agenda,time opinions.Once there is a crisis,it is

should be made for a follow-up evaluation increasingly difficult to conduct effective risk ofthe issue and decisions made.The communication and to achieve successful transition between different phases withinoutcomes from the decision-making process the life cycle ofan issue is dependent uponsince there is less time to consider options the levels ofawareness and pressure fromand to engage stakeholders in dialogue. various stakeholders (Figure 6). Because topics that can generate controversy

SOME DRIVING FORCES OF THE LIFE CYCLE

Lack of trust

Perception of a villain in the story (e.g.,industry)

Misinformation

Belief that the majority is treating the minority unfairly

Media coverage

Intervention of activist groups and other highly motivated interest groups

Emotional dynamics in the public

        27

WITH WHOM TO COMMUNICATE

e can KEY QUESTIONS IDENTIFYING THE STAKEHOLDERS

Who will be most interested in this issue? It is crucial to have a good understanding of

What is known about the interests,fears,concerns,the "playing field" and in particular the key attitudes and motivation of the stakeholders?

licly What authorities are responsible for determining "players" or stakeholders in the EMF issue.

and implementing policy? Depending on the particular situation,the

n Are there organizations with whom to form effectivecommunicator may need to consider several,

partnerships?

Who can provide advice or scientific expertise? ifnot all,ofthe stakeholders (Figure 7).Each ofthese groups needs to be included in the Developing effective communication aboutcommunication process and will become,in risk depends upon identifying the key turn,the instigator or the recipient ofthe stakeholders,those who have the strongestcommunication.The roles ofsome ofthe key interest or who can play the greatest rolestakeholders are discussed below.

ting a e

k

on ding ment

toward developing understanding and

consensus among the relevant constituency.Thescientific communityis an important

stakeholder as it provides technical Identifying these stakeholders and recognizinginformation,and is therefore assumed to their role often requires a substantial be independent and apolitical.Scientists investment in time and energy.Failure to makecan help the public understand the benefits this investment may compromise the and risks ofEMF,and help regulators effectiveness ofthe message. evaluate risk management options and

WITH WHOM TO COMMUNICATE

assess the consequences ofdifferent number ofcountries,industry players, decisions.They have the important role ofespecially electrical utilities,have taken a explaining available scientific informationproactive and positive approach to

in a way that helps people understand whatmanaging risks and have emphasized open is known,where more information is communication ofinformation to the needed,what the main sources of public.However,profit motive ultimately uncertainty are,and when better causes the public to have misgivings about information will become available.In thistheir messages.

role,they can also try to anticipate and put

boundaries on expectations ofthe future.Government officialsat the national,regional

and local levels have social as well as Theindustry,such as electricity companieseconomic responsibilities.Because they act and telecommunications providers as wellin a political environment,the general public as manufacturers,is a key player and isdoes not always trust them.In particular, often seen as the risk producer as much asregulators have a crucial role as they devise the service provider.Deregulation ofthesestandards and guidelines.To that end,they industries in many countries has increasedneed detailed and complete information

the number ofcompanies (and,in somefrom the major stakeholders to decide on cases,the number ofEMF sources as policy measures regarding protection from companies compete for coverage).In aEMF exposure.They have to consider any

        31

WITH WHOM TO COMMUNICATE WHAT TO COMMUNICATE

new sound scientific evidence,which wouldMedia coveragenewspapers,radio, KEY QUESTIONS The strategy and rationale to pursue will suggest the need to revise the existing television and now the Internethas a Do the stakeholders have access to sufficient and depend on the audience.The public will also

exposure measures,while being sensitive tomajor impact on the way an environmental impartial information about the technology? dictate which questions can be expected.To

Is the message intelligible or does it contain a

society's demands and constraints. risk is perceived and ultimately on the large amount of complex information? convince the audience,appropriate and

success ofthe decision-making process. Are the messages of all key stakeholders being credible arguments that appeal not only to The general public,now better educated andThe media can be an effective tool to heard? i.e. is there an effective means for providingreason,but also to emotion and social bonds

better informed on technology-related increase problem awareness,to broadcast feedback? should be advanced.Different types of issues than ever before,may be the singleinformation through clear messages,and Identification ofpublic concerns and arguments are described in Figure 8.

greatest determinant to the success or to increase individual participation. potential problems is critical for strategic

failure ofa proposed technology project.However,it can be equally effective at and pro-active approaches.Once COMMUNICATING THE SCIENCE

This is especially true in democratic andisseminating incorrect information, stakeholders become aware ofan issue,Scientists communicate technical results highly industrialized societies.Public thereby reducing trust and support ofthe they will raise questions based on theirderived from research through publications sentiment often makes itselfheard throughdecision-making process.This is especially perceptions and evaluations ofthe risk.ofdifferent scientific value (the highest highly vocal associationsor other special true ofthe Internet,since there is no Therefore,the dissemination of being peer review publications),expert interest groups that usually have good quality control.The professionalism of information should be done in a way thatreviews and risk assessments.Through this access to the media. presentation does not necessarily reflect in is sensitive to these preconceived notions,process,the results ofscientific

the quality ofcontent.Individuals have to or else the decision-makers risk offendinginvestigation can be incorporated into the The mediaplays an essential role in massestablish in their own minds how much and alienating the stakeholders. development and implementation ofpolicy communications,politics and decision-they trust a particular source,which is not

making in most democratic societies. an easy decision for a layperson to take.

guidance and standards.Continuous SIMPLIFYING THE MESSAGE

monitoring and review oftechnical findingsTechnical experts are faced with the

is important to ensure that any residual challenge ofproviding information that is uncertainties are addressed and minimizedcomprehensible by the public at large.This in the medium to long term,and to provideentails simplifying the message.Ifnot,the reassurance to the public. media will take on this task with the danger

ofmiss-communicating the information. However,while scientific information hasThis is especially true ofEMF,as most proven to be valuable in making publicpeople have a very diffuse picture of

health decisions,it is not error-free.Theelectromagnetism,perceiving these invisible contributions ofscientists can fail for and pervasive waves as potentially harmful. several reasons.For example,the available

information may be presented in a way that EXPLAINING SCIENTIFIC UNCERTAINTY

is not useful to the decision-makers (eitherWhen it comes to risk assessment,the because it is too complex or oversimplified)available information for decision-making and leads to incorrect conclusions or is based on science.However,scientific decisions (possibly because ofthe evaluation ofthe biological responses from uncertainty inherent in the data or environmental exposures rarely leads to problems in communicating),or is unanimous conclusions.Epidemiological erroneous. studies are prone to bias,and the validity of

FIGURE 8. THE COMPONENTS OF THE MESSAGE 35

extrapolation from animal studies to PRESENTING ALL THE EVIDENCE the available evidence when disseminatingpossibility ofconstruction ofa nearby humans is often questionable.The The public will often base its scientific information even ifresearch ispower line may be worried by unforeseen "weight-of-evidence" determines the preconceptions on publicised scientific showing opposing results.Only then candepressed property values or the impact on degree to which available results support orresults that have shown a possible scientists be seen to be truly independent.landscape or environmental damage,while refute a given hypothesis.For estimates ofassociation to a health effect.It is Scientific reasoning can always be used toa potential home buyer in the vicinity ofan small risks in complex areas ofscience andimportant for the scientist to present allof argue against a particular finding. existing power line may be mostly worried ofsociety,no single study can provide a about health.

definitive answer.Strengths and SOME RULES OF THUMB TO UNDERSTANDING THE AUDIENCE

POPULARISE TECHNICAL INFORMATION

weaknesses ofeach study should be Determine and classify the key messages that you It is important to discern what type of DISTORTING SCIENTIFIC INFORMATION evaluated and results ofeach study shouldwant to pass on,i.e. define your information goals information the public wants and to Science is a powerful tool and has earned

be interpreted as to how it alters the Make sure you understand the information needs address that need head on,acknowledgingits credibility by being predictive.However,

of your audience

"weight-of-evidence".Uncertainty is Explain concepts in simple language,and if when necessary that the science is its usefulness depends on the quality ofthe therefore inherent in the process and needed,clarify the technical vocabulary used in incomplete.Restricting communication todata,which is related to the quality and should be an integral part ofplanning anypress releases by experts,e.g. IARC classification those issues about which there is scientificcredibility ofthe scientists.It is important

of potential carcinogens into different categories

risk management or communication task.depending on the scientific evidence ( is certainty may leave the public,and to verify the knowledge and integrity ofso- Indeed,the public commonly interprets carcinogenic , probably carcinogenic and sometimes policy makers,with the feelingcalled "experts",who may look and sound uncertainties in scientific knowledge on possibly carcinogenic ). that their information needs are not beingextremely convincing but hold unorthodox

EMF health effects as a declaration ofthe Avoid oversimplifying,as you may seem to be ill met.Understanding the motivations oftheviews that the media feel justified in airing

informed or hiding the truth.

existence ofreal risks. Acknowledge that you are simplifying and provide stakeholders will help to fine-tune the "in the interests ofbalance".In fact giving

references to supporting documents. message.For example,a resident facing theweight to these unorthodox views can

disproportionately influence public TIPS TO BUILD EFFECTIVE RISK  responses in the form ofdecisions and differences in approach are further detailed opinion.For the public,often the best COMMUNICATION STRATEGIES actions through public policies.On the in the Box below.Quantifying risk is of sources ofinformation are from panels of D o rWesheaat racrhe t toh ae nssowuercr eths eosfei nqfuoermstaiotniosn: ? other hand,the general public evaluates thelimited utility in communications with the

independent experts who periodically What are the key journals or magazines? risk incurred by EMF technologies at thegeneral public who may not possess a provide summaries ofthe current state of What are the relevant websites? individual level (risk perception).The technical background.

knowledge. AWrheot hcearneeoxtphlearin s timhei lsacr ieisnstui ecs ryeosue acr oc uh l  dto lleaayr pne forop mle ??

Make yourself available in both formal and

PUTTING THE EMF RISK IN PERSPECTIVE informal settings to improve the communication.

Private meetings can destroy trust if access is not

Even though the current scientific evidencebalanced among all stakeholders.

does not indicate that health risks from Acknowledge uncertainty,describe why it exists,

EMF are high,the public remains and place it in a context of what is already known.

concerned about facilities that produce important for all levels of the decision-making EDXIPFEFRETREEVNALCUEAST IOINN  RISK EVALUATION AMONG STL AA KYP EE HR OSO LN D  E S R E SVALUATION

Acknowledge that risk communication skills are

EMF.This discrepancy in viewpoint is organization,from inception to project management. (RISK ASSESSMENT) (RISK PERCEPTION)

mostly based on differing approaches to Avoid unnecessary conflict,but understand that a Scientific approach to quantify risk Intuitive approach to quantify risk

personal or policy decision is by nature a Uses probabilistic concepts (deals in averages, Uses local,situation-speci c information or

risk issues on the part ofthe experts and dichotomy; e.g.,a person will decide to buy or not distributions, ) anecdotal evidence

the general public.On one hand,the to buy a home near a power line. Depends on technical information transmitted Depends on information from multiple channels experts will have to evaluate the scientific Recognise that even if you communicate well,you through well-defined channels (scientific studies) (media,general considerations and impressions)

evidence ofthe risk (risk assessment) using Remember that in most societies,even though it PImropdourctat nocfes cgiievnenti ftioc toebajmecstive scientific facts IInmdpivoirdtaunacl ep roofc eemssotions and subjective perceptions objective and well-defined criteria.Their may take a long time,communities ultimately Focused on benefits versus costs of technology Focused on safety

may not reach an agreement.

findings will then be used to draft decide what is an acceptable risk,not Seeks to validate information Seeks to deal with individual circumstances and

governmental agencies or corporations. preferences

COMPARISON: A TOOL FOR COMMUNICATION When quantitative information is used,it mayassociated with the EMF health issue.

Risk comparison should be used to raise awareness and be educational in a neutral way. It is an advanced tool be most useful when compared with readilyRegulatory agencies have the responsibility tchaaret fruelqnuoirtetsocuasree fiut lt po laganinni nagc caenpdt aenxpcee roier n t crues. tW. I hn ialep par co op mriapt ae r  iussoen  opf u r ti ss kfa ccotms ipnatori saonn u mndaye rlsotwaenrd tahbele context,be understood quantities. This has been usedto prepare and disseminate information

effectiveness of your communication and even damage your credibility in the short-term. effectively to explain the risk associated withabout policy measures implemented at the

commercial air travel by comparing it withlocal and national level.At the local level,it NOTE:Never compare voluntary exposure (such as smoking or driving) to involuntary exposure.For a mother with familiar activities such as driving,or to explainis important that authorities have at least a tthorceoemcphaildrer ehne rwehxop hoasus rteo tloiveE MclFo swei ttho hae mr cohboiliec ep htoo nderi vbea soen  sttha et i fornee,t wh ae y r ais tk 1 s 4h 0e   kism t /a hk ,inygo uis m n ao yt  vooffl eu nn dta hr ey. r.If you were the risk ofradiation exposure from routineminimum knowledge ofthe EMF issue to

diagnostic X-rays by comparing the exposureanswer questions from the public or be

Take into account the social and cultural characteristics of the audience and make your comparison relevant to that coming from natural background ready to direct requests to appropriate

tDoownhoatt utshee yc okmnopwarisons in situations where trust is low radiation.However,care has to be taken whensources ofinformation.At the national

Make sure that your comparisons do not trivialise peoples fears or questions using risk comparison (see Box,page 40).It islevel,dissemination has been implemented

Do not use comparisons to convince a person about the correctness of a position indeed important to quantify different risks tovery effectively in several countries through

Remember that a comparison of exposure data is less emotional than a comparison of risks health in a comparable framework, WHO fact sheets or similar simple

BUeseaaw aprree -ttheastt tthoel emaarnn nifetrhien cwohmicpha yriosuo npsr eysoeunpt lraisnk sto m uasye acfafeu cs te h t oh we  r ye os up ao rn es e p  ey ro cu e  ih vo ep de to elicit particularly for setting policy agendas andinformation pamphlets,often available on

Acknowledge that the comparison in itself does not dispose of the issue research priorities. the World Wide Web.

Recognise that if your comparison creates more questions than it answers,you need to find another example

Be prepared for others to use comparisons to emotionalise or to dramatise When discussing policy measures with the EXPLAINING POLICY MEASURES

EXAMPLE : To illustrate the power level of an EMF emission source, The type ofmeasures that a governmentpublic,the communicator should be ready

Show emission data before and after a similar facility went into operation takes gives a strong message as to whereto explain what the guidelines on exposure

Compare with guidelines limits,but acknowledge that people concerns might be about levels well below the the regulators stand vis-à-vis the risks limits cover (e.g.frequencies,reduction guidelines

factors,) and how they were established,It is also ofinterest to let the public know if KEY QUESTIONS SETTING THE TONE

i.e.what scientific facts were used,whatthere are procedures and timetables for What type of participation tool do you choose to When dealing with an emotive issue such assumptions were made,what updating the guidelines as scientific address your audience? as the potential health risk from EMF,one administrative resources are needed to research advances.Indeed,decision- Wdishceures,swiohne tna kaen dp luanc de?er what circumstances does the ofthe most important communications

implement them,and what mechanisms aremakers often rely on preliminary results or What tone prevails? skills is the ability to build and sustain a in place to ensure compliance by productinsufficient data,and their decisions How formally is the situation handled? relationship oftrust with the other parties manufacturers (e.g.mobile phones) or should be reviewed as soon as an involved in the process.To that end,one utilities providers (e.g.electricity or assessment is completed. will need to create a non-threatening

telecommunications supplier). Effective risk communication relies notatmosphere and set the tone for a candid,

only on the content ofthe message,butrespectful and supportive approach to EXPLAINING EXPOSURE LIMITS TO THE PUBLIC also the context.In other words,the wayresolving issues.Such behaviour should Using EMF exposure limits as a formal policy argument requires good scienti c understanding on the part of the that something is said is as important asideally be embraced by all stakeholders.

decision maker and the communicator. It is important to stress to the public that: what is said.Stakeholders will receive

The determination of field levels at a certain location is a key element that will determine whether there is a information at various stages ofthe issue. HOW TO WORK WITH DISTRUST

risk or not. This will come from a wide range ofsourcesTo a large extent,communities with concerns If possible,it is useful to show data from field measurement surveys at selected sites and compare them with differing perspectives.This diversityabout involuntary exposure to EMF are likely

with numerical calculations and with accepted exposure guidelines. influences how stakeholders perceive risksto be distrustful ofofficial views and sources

The eld strength is dependent on distance from the EMF source,and normally decreases rapidly away from it. and what they would like to see happen.ofinformation.Considerable effort may then In order to ensure human safety,fences,barriers or other protective measures are used for some facilities

to preclude unauthorised access to areas where exposure limits may be exceeded.

Often,but not in all standards,the exposure limits are lower for the general public than for workers.

be required to encourage stakeholders to BUILDING EFFECTIVE Point out what is different this time (e.g.seek out and facilitate their involvement suspend that distrust.As acknowledged in theCOMMUNICATION SKILLS disclosure ofinformation,earlier when addressing this decision.The process Phillips Report for the UK Government onINSBPeIR cEo Tm Rp Ue Ste Tnt involvement ofstakeholders,clear goalsusually will be carried in three stages:

the BSE crisis,"to establish credibility it is Be calm and respectful and roles,etc.) planning,implementation and evaluation. necessary to generate trust – Trust can only be Be honest and open Ask what would help to dispel distrust

generated by openness – Openness requires SUhseo wc lyeoaur rl ahnugmuaang es,ida en,dp beers coanraelfiusel not to sound or Be patientit takes time to earn trustThe first stage is crucial,because recognition ofuncertainty,where it exists."  be condescending Never hold a closed meeting stimulating public interest and

Explain the consequences of the assumptions used Admit when you honestly do not knowinvolvement can be counter-productive if

Decision-makers need to ensure that all Demonstrate your own values the answer to a question the communicator is not fully prepared for individuals involved in communicating withBE ATTENTIVE Be accountable in ways the stakeholdersthe public's participation,questions and

the public are kept up to date with Choose your words carefully value concerns.In the second stage,when it is developments in the debate and are prepared Watch emotions,yours and those of your audience time to engage the public,the

to discuss,rather than dismiss,public fears. BBee aantt eanttteivnet itvoe bliosdteynlearnguage SELECTING TOOLS AND TECHNIQUES communicator will have to choose the Members ofa community where setting to discuss the issue with them.The

Some ofthe necessary components of MAINTAIN AN OPEN DIALOGUE construction ofa new facility is proposedchoice will depend on the type,number communication under conditions of Seek input from all will want to be a part ofthe decision- and interest ofthe stakeholders.In the last distrust are: SPrhoavried ein mfoermanast ifoonr frequent communication, making process.To that end,it is importantstage,it will be important to evaluate the

e.g. publication of findings on the Web with to structure a process that involves the outcome ofthe process,take follow-up

Acknowledge the lack oftrust opportunity to comment stakeholders in a meaningful way and toactions,arrange for documentation ofwhat

Recognize uncertainty,where it exists

KEY STEPS TO ENGAGING STAKEHOLDERS

was said and what agreements were It may be useful to employ individuals from 1. PLANNING 2. IMPLEMENTING

reached,and share these summaries withlocal community organizations to take Design the programme: Define or anticipate the role of Implement the stakeholder involvement programme: Act those who participated. advantage ofexisting networks and tphreo gpruabmlimc ea ntod eonthhearnsctea ksteahkoelhdoelrds earns d i ntaviololvr e tmheent. othne ycooumr pmlaunn.i tUy saen dthteh teoioslssuaen.d techniques appropriate to

enhance credibility,but one has to make Seek comments on the programme plan: Test your proposed Provide information that meets your stakeholders needs: Individualqueries may be handled on an sure that the individual is qualified,and to programme internally and externally to ensure that it will Determine what they want to know now and

ad-hoc basis through,for example,phoneestablish his or her role,responsibilities and wProerpk aarse infoter nimdepdle. mentation: Obtain the necessary aDnetviecilpopat ae lwishtaot ft hperoyb wleilml nse,eisds utoe sknaonwd nine ethd es , fwutiuthre.

or email.Communication with groups oflimitations at the start.It is important to resources,choose and train your personnel,develop responses to each. Address,where possible,speci c stakeholders requires more planning.For aidentify the stakeholder group that ceoxpnltaining ethneci epsro, garsasmesms ey oinutre srtnraelnlyg,t fhins  da nadn  dw weaokrkn e ws is thes, cCoonocpeerrnasteowf idthif ofethreenr toirngdaniviizdautiaolnss :oCr og-roorudpinsa.te messages,

small group ofstakeholders,it may be feasiblerepresents the opposition and determine appropriate community partners,develop a while openly acknowledging any differences. Mixed messages to involve them in sessions devoted to what they specifically want.On major communications plan,and prepare the most critical confuse and create distrust.

changing undesirable aspects ofthe issues it may be possible to use advisory mBea tperreiaplasr.ed for managing requests for information and ELoncliastl gthroeu hpesl po ro rfe ostihdeernst sw(heo.gh.a,lvoec caol mremseuanrcithy ecr rse, dmibe idliticy:al project.One could encourage creativity,butcommittees to build consensus on specific involvement as they arise. doctors) that have credibility can be helpful to the outsider,

always be up front about the limits for project decisions to encourage compromise, Co-ordinate within your organization: Even small but they cannot substitute for a forthright approach and change and how the suggestions will beprovide structure,and focus on solving inconsistencies give an impression of internal confusion extensive community involvement.

and ineptness. The goal is to avoid giving mixed messages.3. EVALUATING

used to influence the final decision. problems that have been identified. Do all you can to keep the same staff in place throughout Use feedback from stakeholders for continuous evaluation: Proponents will have clear views about theConsensus building techniques include the the process: They become more pro cient and more trusted As you implement the programme,listen carefully to what extent to which they have room to Delphi process,nominal group process,and in the community over time. oEtvhaelursa atere t hteell isnugcycoeus sa nodf tfohlelo pwr -ougpr awmithm ae c: t  iI of ns .takeholders

manoeuvre. public value assessment (see Glossary). are not informally telling you how your process is

working and what would improve it,formally ask their advice with a questionnaire or other method. Ask again at the end of the process so their ideas can assist you to design and implement the next steps.

For alarge group ofstakeholders,one could preferences.It may also be useful to population for attitudes towards specificprocess,more passive (one-way) forms of circulate response sheets to gain conduct surveys,questionnaires and polls aspects ofthe project.Surveys and pollsengagement may be the appropriate place information on public concern and via mail and Internet to sample the done on the Internet will provide usefulto start.Ifthe issue is in a crisis stage,an

information,but may not represent a active form ofdialogue that will quickly EPAXSASMIVPEL EENS G OAGF E A ML ET NE TR TN ECA HTI NV IE QS UES statistically valid sample.They will only bedefine and help solve the perceived

Printed materials (fact sheets,brochures,reports) that part ofthe group that uses the problems is a better choice.Stakeholders

Websites and list servers Internet.A much more efficient method ofwill be involved to varying degrees.Some

Newspaper advertisement,insertions or solicited stories

Press releases performing surveys,albeit much more may sit quietly through a meeting,while

Radio or television reporter interviews expensive,is to use a trained professionalothers will be quite vocal.Some may come ACTIVE ENGAGEMENT TECHNIQUES or a specialized polling organization. to only one meeting,while others will

Talk to people about the process never miss one.Some may choose to

Hold open houses e.g.,with posters There are many ways to provide for thecommunicate through written

DUoser atdhiiordo-pr taerlteyvinseiotwn oprkhso n(deo-i nb r ideifainloggsu eat community group meetings) exchange ofinformation.Different correspondence or by posting information ASprroannsgoer tfeoler pthoounrse , oinf t se urncect e osrs mfuali ls simurivleayrs projects stakeholders at different times.If is valuable and requires an appropriate

Provide a staffed information hotline or drop-in centre methods will be appropriate for differenton the Internet.Each level ofparticipation Respond to personal enquiries stakeholders are engaged early in the response.

Conduct small meetings

Stakeholder sessions

Focus groups

Citizen advisory councils

Conduct large meetings

Public hearings

Professionally facilitated meetings

3e ed ons

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51

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FIGURE 9. ICNIRP GUIDELINES FOR OCCUPATIONAL AND  53

GENERAL PUBLIC EXPOSURE LIMITS

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l rulesa e Box, ses.

 basis of ial part se.Then nes elevant those in

       55

ESTABLISHING A DIALOGUE ON RISKS FROM ELECTROMAGNETIC FIELDS EMF EXPOSURE GUIDELINES AND POLICIES: THE PRESENT SITUATION

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KEY OBJECTIVES

WHO INTERNATIONAL EMF PROJECT

al and 7

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2        

3          

4    

5          

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59

GLOSSARY

GLOSSARY

ABSORPTIONIn radio wave propagation,attenuation of a radio they are the conversion that takes place in the body wave due to dissipation of its energy,i.e.conversion of its energyfrom electromagnetic energy into heat.Between 100 into another form,such as heat. kHz and 10 MHz,both the induction of currents in the ACUTEShort term,immediate consequence. body and the generation of heat are important.

ALARAA cautionary policy. As Low As Reasonably Achievable CAUTIONARY APPROA HCautionary approaches used to minimize risks,taking into account different factors suchare used for management of health risks in the face as costs,benefits or feasibility factors.It is only appropriate whenof scientific uncertainty,high potential risk,and considering a stochastic risk assumed to have no threshold. public controversy.Several different policies Originally used for ionizing radiation. promoting caution have been developed to address

r ycle

concerns about public,occupational and ASSOCIATIONIn epidemiology,a connection established on theenvironmental health issues.

basis of statistical calculations in the sense that,in individuals

exhibiting a certain clinical picture,certain environmental factorsCARCINOGENICA substance or agent that causes appear more frequently than in individuals without that picture. cancer.

The existence of an association does not constitute proof of a COST-BENEFIT ANALYSISAn economic method causal link,but may well prompt further research. for assessing the costs and benefits of achieving BASE STATION(mobile telephone) A base station consists of alternative standards with different levels of health the antenna(s) emitting electromagnetic radiation in the radio protection.

NCER s a ssion an

frequency range,the supporting structure,the equipment cabinetCRISISA crucial or decisive point when conflict

and the cable structure. reaches its highest level of tension; a turning point. BASIC RESTRICTIONHealth-based exposure limits that relate to In the Issue Life Cycle, the crisis stage is when the certain electromagnetic phenomena that,if exceeded,may lead toparticipants demand immediate action,i.e.when the health impairment in the human body.For static elds these limitsdialogue stops,and the established process is no

NG

on ndent vide g

are the electric and magnetic eld strengths,for alternating elds longer working.

up to around 10 MHz,they are the electric current that is induced

in the body,and for alternating elds greater than about 100 kHz

ESTABLISHING A DIALOGUE ON RISKS FROM ELECTROMAGNETIC FIELDS GLOSSARY

s.

z H

FURTHER READING

US EPA (1989):Risk Assessment Guidance for Superfund (RAGS).Volume 1,Human Health Evaluation Manual,Part A. http://www.epa.gov/superfund/programs/risk/ragsa/index.htm

FURTHER READING UhttSp :E// Pw Aw (w 1. 9ep 8a 9.g )o :Rv/ is su kp Aer sfu sn ed ss/ mpro eg nr ta m Gs u/ ir dis ak n/ cra eg fs oc r/ i Sn ude px e.h rft um nd (RAGS).Volume 1,Human Health Evaluation Manual,Part C.

US EPA (2000):Social Aspects ofSiting Hazardous Waste

http://www.epa.gov/epaoswer/hazwaste/tsds/site/k00005.pdf

Wilkins,L.(Ed.) (1991):Risky business:communicating issues ofscience,risk,and public policy.New York,NY:Greenwood Press. Flynn,J.(Ed.) (2001):Risk,media and stigma:understanding public challenges to modern science and technology.London:Earthscan.

Windahl,S.,Signitzer,B.,and Olson,J.T.2000.Using Communication Theory:An Introduction to Planned Communication. Gutteling,J.M.,Wiegman,O.(1996):Exploring risk communication.Dordrecht:Kluwer. SAGE,London.

International Agency for Research on Cancer (2002):Non-Ionizing Radiation,Part 1:Static and Extremely Low-Frequency (ELF) Yosie,T.F.,Herbst,T.D.(1998):Using Stakeholder Processes in Environmental Decision making. Electric and Magnetic Fields.Monograph Volume 80,Lyon,France http://www.riskworld.com/Nreports/1998/STAKEHOLD/HTML/nr98aa01.htm

Kammen,D.M.,Hassenzahl,D.M.(1999):Should we risk it? Princeton,NJ:Princeton University Press. ON RISK PERCEPTION, RISK COMMUNICATION AND

RISK MANAGEMENT AS APPLIED TO ELECTROMAGNETIC FIELDS

Lundgren,R.E.,McMakin,A.H.(1998):Risk communication:A handbook for communicating environmental,safety & health EMF Risk Perception and Communication,1999.Proceedings from the International Seminar on EMF Risk Perception and risks.Battelle Press. Communication,Ottawa,Ontario,Canada.M.H.Repacholi and A.M.Muc,Editors,World Health Organization,Geneva,

Switzerland.

National Research Council (1989):Improving risk communication.Washington,DC:National Academy Press.

Risk Perception,Risk Communication and its Application to EMF Exposure,1998.Proceedings from the International Seminar National Research Council (1994):Science and judgment in risk assessment.Washington,DC:National Academy Press. on EMF Risk Perception and Communication,Vienna,Austria.R.Matthes,J.H.Bernhardt,M.H.Repacholi,Editors,

Phillips Report for the UK Government on the BSE crisis (2000),Volume 1,Findings & Conclusions,Chapter 14, International Commission on Non-Ionizing Radiation Protection.

http://www.bse.org.uk/pdf/index.htm http://www.icnirp.org/

Presidential/Congressional Commission on Risk Assessment and Risk Management (1997):Final report,Vol.1:Framework for environmental health risk assessment.Washington,DC.

Presidential/Congressional Commission on Risk Assessment and Risk Management (1997):Final report,Vol.2:Risk assessment and risk management in regulatory decision-making.Washington,DC.

Rodericks,J.V.(1992):Calculated risks.Cambridge,MA:Cambridge University Press.

ON ELECTROMAGNETIC FIELDS AND HEALTH IN GENERAL The World Health Organization International EMF Project

http://www.who.int/emf

The International Commission on Non-Ionizing Radiation Protection (ICNIRP) http://www.icnirp.org

The National Radiological Protection Board (NRPB) ofthe United Kingdom http://www.nrpb.org

The NIEHS special RAPID program on electromagnetic fields

http://www.niehs.nih.gov/emfrapid

ON RISK COMMUNICATION AND MANAGEMENT IN GENERAL

The annotated bibliography on risk communication ofthe National Cancer Institute ofthe United States

http://dccps.nci.nih.gov/DECC/riskcommbib/

The Department ofHealth ofthe United Kingdom on:Communicating About Risks to Health:Pointers to Good Practice

http://www.doh.gov.uk/pointers.htm

The annotated guide on literature about risk assessment,risk management and risk communication ofthe Research Center Jüelich/Germany

http://www.fz-juelich.de/mut/rc/inhalt.html

The US Environmental Protection Agency on risk assessment and policy options http://www.epa.gov/ORD/spc

A description ofcurrent national guidelines can be found on the WHO web page at

http://www.who.int/docstore/peh-emf/EMFStandards/who-0102/Worldmap5.htm

66

WWW.WHO.INT

RADIATION & ENVIRONMENTAL HEALTH PROTECTION OF THE HUMAN ENVIRONMENT WORLD HEALTH ORGANIZATION

21 AVENUE APPIA

CH-1211 GENEVA 27

SWITZERLAND

TEL: + 41 22 791 2111

FAX: + 41 22 791 4123

EMAIL: EMFPROJECT@WHO.INT