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Electromagnetic Fields > ... > Risk perception in the general public
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Risk perception in the general public regarding mobile communication technologies
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For many years possible health risks due to high-frequency electromagnetic fields, for example in the vicinity of broadcasting stations and television transmitters, have been discussed. The rapid expansion of the mobile phone networks and the strong increase in the number of mobile communication users a few years ago increased the intensity of the discussion in the general public about the possible risks of mobile communication technologies.
Benefits and acceptance of mobile communication technology
Mobile communication technology is characterised by a high acceptance in large parts of the population. During the last years a rapid increase in mobile phone usage was observed. In some groups of the population a larger use of mobile phones than fixed line phones can already be noted. The Federal Network Agency states the number of subscribers in the mobile communication networks at the end of 2009 to be 108.3 millions. This would correspond to an average of 1.3 SIM cards per resident in Germany. However, since a subscriber can have several contracts it must be assumed that the actual number of users of mobile communication is smaller.
According to a current poll carried out on behalf of BfS in 2009, 81 % of the Germans used a mobile phone (the interviewees were asked if they had used a mobile phone for telephone calls in the last six months). The real extent of mobile phone usage varies a lot from person to person. Detailed information can be found in the reports on the polls on mobile communication of the years 2003 to 2006 and on the poll of 2009. In the population the mobile phone has become an important tool in everyday life, with which, for example, family life, work and leisure time are organised. Especially in emergencies the mobile phone provides a practical possibility to quickly call for help. These facts are also pointed out by the poll results.
Discussions about the possible risks of mobile communication
On the other hand, the expansion of the mobile communication networks has led to very intense discussions about possible health effects of the high-frequency electromagnetic fields of mobile communication. A possible impact on children and adolescents is especially relevant since they are more sensitive to many environmental factors than adults do and therefore have to be particularly taken into consideration for precautionary reasons.
In public debates a multitude of real or assumed risk factors are discussed, frequently with different levels of information – founded information, assumptions and firm convictions often collide. For some years extreme positions have characterised the discussions which either dramatise or entirely negate a possible risk. Very different opinions on the biological effects of the electromagnetic fields of mobile communication come into conflict.
Apart from health risks, however, other topics have been discussed, such as the basics of the German limit values or the complex field of interaction between politics, mobile network operators and radiation protection organisations.
Criticism and resistance in the general public
Various investigations have shown that there is a fundamental criticism in the general public which is related to the feeling that they are insufficiently informed about different topics of “mobile communication”. There is, for example, no sympathy in the population for the dispute among scientists about the quality and significance of individual studies on biological effects of high-frequency fields. This is rather interpreted as a deliberate withholding of important results. Additionally, there are scientific uncertainties concerning the biological effects of the electromagnetic fields of mobile communication which are still existing and openly communicated. The question if precautionary measures are required and, if so, what measures are reasonable and necessary, is also discussed very differently in politics, by the authorities, in the media and among various stakeholder groups. This has contributed to a considerable uncertainty in parts of the population.
As a result, there has been strong resistance against individual transmitters in the last years. Numerous citizens´ initiatives have formed who focussed in most cases on preventing the installation of a certain transmitter. The strong and enduring exposure to the electromagnetic fields of the transmitters is mentioned as an important argument. One could not get away from this permanent exposure, whereas one could decide freely to use a mobile phone or not.
Moreover, the mode of operation of mobile network operators when erecting new mobile communication transmitters was frequently criticised. Especially, people had the feeling that base stations were installed in a “cloak-and-dagger operation“ or that transmitters were “put right on their doorsteps“ without involving the citizens.
Self-commitment of the mobile telecommunication operators: Improvement of information and communication
Due to the strong public pressure the demands for an improvement of information of the general public and the close involvement of communities in discussion and decision-making processes have increasingly been considered in network planning and implementation.
Both the so-called “associations agreement” and the self-commitment of the mobile network operators towards the Federal Government of December 2001 provide for a better involvement of the communities in the site selection process and a more intensive information of the public. Besides, special care should be taken that exposure is minimised particularly in the vicinity of so-called ”sensitive installations“ such as kindergartens, schools or residential houses.
Reports on the results of the implementation of the self-commitment
Despite of these efforts within the scope of self-commitment the population often feels that they are not sufficiently involved in the selection of new sites. The annual reports on the results of the implementation of the self-commitment, which are available for the years 2002 to 2007 and 2009, show that the communication and cooperation between operators and communities has improved. However, they also show that despite this progress the number of conflicts about the selection of sites has not significantly decreased and that it remains difficult to fully involve the public.
Within the scope of this report the information about different aspects of mobile communication provided by the mobile network operators was critically scrutinised and potential improvements were shown. You will find the annual reports here (in German).
Provision of target group appropriate information is necessary
One reason for the objective dialogue with the public being so difficult is that there is a lack of full understanding of the technology of mobile communication in the general public. Understanding the complicated technology requires a high degree of physical and technical knowledge. At the same time this lack of information makes the communication of reasonable and necessary precautions in the public difficult and may contribute to the fact that people reject this technology. In addition, there is public uncertainty regarding the correctness of media coverage and the question which statements on scientific findings can be believed.
To enable a better-targeted provision of information about mobile communication, in the year 2004 BfS initiated a study to find out if there are target groups for information measures in the field of mobile communication in Germany and, if so, which target groups there are and how they can be addressed best. The study identified 5 central target groups which are characterised by their specific attitude towards mobile communication and by other features. The results of the study and the evaluation by BfS are presented here and in the final report of the German Mobile Telecommunication Research Programme.
Polls related to anxieties and fears in the population
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The comparison of the perception of health risks due to radiation sources related to mobile communication with other possible health risk factors shows that mobile communication transmitters and mobile phones are clearly of less concern than the consumption of meat of unknown origin or of genetically modified food, air pollution, the side effects of medicaments, UV radiation, strong tobacco smoking and immoderate consumption of alcohol. (click on the picture for a larger view).
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To determine the degree of anxieties and fears related to mobile communication BfS commissioned annual representative polls in the population in the years 2003 to 2006. A follow-up of the poll was carried out in 2009.
The comparison of the result of the poll in 2009 with the results of the series of polls from 2003 to 2006 shows that the perception in the population with respect to the concern and impairment related to electromagnetic fields of mobile communication transmitters, mobile phones or cordless conventional phones has not changed significantly during recent years: The percentage of members of the public describing themselves in 2009 as being concerned (31 %) about high-frequency electromagnetic fields or whose health was impaired (10 %) has not changed significantly since 2003. Depending on the extent of concern or impairment due to electromagnetic fields either mobile communication transmitters or mobile phones are referred to as being triggers. The health impairments due to electromagnetic fields that were mentioned in most cases refer to headaches and sleeping problems.
Over the years, reasons for not using mobile phones are not necessarily that people reject this means of communication but simply a lack of need.
The comparison of the perception of health risks due to radiation sources related to mobile communication with other possible health risk factors shows that mobile communication transmitters and mobile phones are clearly of less concern than the consumption of meat of unknown origin or of genetically modified food, air pollution, the side effects of medicaments, UV radiation, strong tobacco smoking and immoderate consumption of alcohol.
Electrosensitivity and mobile communication
Persons who consider their health troubles to be based on the existence of electric and magnetic fields partly refer to themselves as being „electrosensitive“. The phenomenon of electrosensitivity has existed for many years. Initially the troubles have been attributed to the low-frequency electromagnetic fields of household current. Since the mobile communication networks have been extended considerably, the high-frequency electromagnetic fields have also been mentioned as possible cause.
An evaluation of the problem is difficult due to the fact that in several scientific investigations no causal interrelation could be determined so far between the existence of electromagnetic fields and health effects. Most of the scientist are therefore of the opinion that a causal relationship between electromagnetic fields and the health complaints of electrosensitive persons can be excluded with high probability.
Within the scope of the German Mobile Telecommunication Research Programme (DMF) the possibility of such an interrelation was investigated as well, the focus of the investigations being on high-frequency fields. Apart from that, general data of electrosensitive persons were compiled, such as their share of the population, demographical data and general parameters relevant to health. Another research project which was carried out within the DMF focussed on possibilities of an improved communication with electrosensitive persons.
Future research
The results of numerous studies on how people deal with risks show that the significance of a topic in the public is influenced by different factors such as the level of perception, handling and reaction.
It can be assumed, that a conflict potential regarding the construction of mobile phone base stations will continue to exist in the future, for example, due to the set up of BOS digital radio. There is still a strong discrepancy between the risks feared by parts of the population and the results of scientific research. It is indispensable to deal with the concerns in the population about possible health risks. In addition scientific investigations of possible biological effects of electromagnetic fields of mobile communication have to be continued.
The population's perception of the topic mobile communication as well as risk communication was the topic of studies within the scope of the German Mobile Telecommunication Research Programme. Furthermore, a possible alteration in the different aspects of perception was investigated. Factors and processes were investigated that play a role in the public with respect to specific perception and regarding the handling of the topic mobile communication. Based on this, practical concepts are continuously developed that can be immediately implemented in the optimisation of risk communication of BfS in the sense of a comprehensive and objective information of the public.
Further information
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