LC 1%/2 2 "B 3022104 ;- I” ' awn;-.‘,._‘ ..';~ grim“ Mun" : ‘£5 v—--—-'--- _ —- , .0 L313; CONGRESSIONAL RESEARCH SERVICE LIBRARY OF ~ CONGRESS I —— -n--nun-up I‘:1.‘\irg; ESIIIIIEE .:i’f:i- . ' — No LONGER PROPERTY of OLIN I. I B ‘RA RY Washington University ¢a°'~ ,..?.~'E§“h\h""T 5. ‘xi ~23 ' 3 ’ ,, a.1 ' E‘ $5 i‘;"~:"z E1 E-“Z. 1; .- - , '4' .« ~ _u;._‘.~i -11 >-- ‘-' Mini Brief »:o- ‘ UT 0 §i""“+...-- in {A 3 is... S SLAQ a'x.-‘...."~..la\\- ..._, ‘ ‘*.'.r'fv g“‘§'3 E “'1 '° nivers issouri umbla Wllfilillfi NW Hm“ 010-103939650 i u E z HIGH VOLTAGE ELECTRIC POWER TRANSMISSION LINES: IMPACT ON PUBLIC AND ENVIROHENTAL HEALTH MINI BRIEF NUMBER HB80222 AUTHOR: Bogen, Kenneth T. Science Policy Research Division THE LIBRARY OF CONGRESS CONGRESSIONAL RESEARCH SERVICE MAJOR ISSUES SYSTEM DATE OBIGINATED gggggggg DATE UPDATED ggggggg FOR ADDITIONAL INFORMATION CALL 287-5700 1023 CRS- 1 MB80222 UPDATE-10/22/8Q l§§Q§-2§ElE2Il9E Controversy has surrounded the installation of extra—high voltage overhead electric power transmission lines (3u5-765 kilovolts) in several areas of the United States. One aspect of this controversy has been the possibility of health or environmental hazards posed by these lines. Research to date on the effects of these lines has defined several safety or annoyance problems involving electric shock, spark discharge, and electric field effects on cardiac pacemakers, which can occur under certain highly unlikely circumstances. Research suggesting other possible hazards created by electric and magnetic fields produced by these lines has been controversial among involved scientists. Those field effects which ‘are now fairly well documented involve subtle perceptual, behavioral, neurological, and hormonal responses in some animals and slight tissue damage in some plants. The health or ecological significance of these effects is not apparent at this time. Most research done on the biological.effects of power line and related fields has been funded by the Department of Energy, the Navy, and the ielectric utility industry. QACKGRQQND High voltage transmission lines send electrical energy from generating lants to substations for distribution to consumers. They also provide interconnections for energy transfer ebetween major power systems. The largest transmission lines built in the United States before 1950 carried 138 kv or 230 KV. (A volt is a measure of electric force. One thousand volts = 1 kilovolt or 1 kv.) In the 1950s, extra—high voltage overhead transmission lines (HVTL) were built carrying 340 kv and 500 kv. These early power lines all transmitted alternating current (AC) at 60 cycles per second or 60 Hertz (Hz). (Power systems outside this country developed using 50 Hz AC current.) In the late 1960s, the first line carrying 675 kv AC and one carrying 800 k? DC (direct current) were put into service. An electric power transmission system currently exists in the United States containing more than a quarter million circuit miles of high voltage power lines ranging from 115 k? to 765 kv. Overhead transmission line arrays are now being built at a rate of about 10,000 miles per year. HVTL arrays rated 500 RV or higher currently cover more than 20,000 miles and are expected to cover more than 40,000 miles by 1990. About 25% of all currently planned power line construction is for lines which will carry more than 3&5 kv. There are now approximately 1700 miles of operating 765 kv transmission line arrays. Test facilities are now engaged in research for future power transmission with lines operating over 2000 kv. Lines operating at 1200 k? are expected to be in service by 1990. THE POSSIBILITY OF HEALTH OR ENVIRONMENTAL HAZARDS (1) SHOCK HAZARDS AHD CORONA EFFECTS The most apparent hazard presented by AC and DC HVTL fields is that of electric shock. A lethal current flow can occur when a conducting object comes within several feet of an HVTL. As a result, utilities and Federal and State regulatory agencies have established minimum clearances between CRS- 2 ‘ HB80222 UPDATE-10/22/80 conducting lines and the ground. Even when there is an absence of conducting bjects near and HVTL, a "corona" effect can occur involving the breakdown of air near the lines. The corona effect can result in audible noise, television and radio interference, and a negligible amount of chemical oxidants such as ozone, particularly in foul weather. HVTL fields can also induce electric currents in conducting objects near them, such as tractors, metal fences, and people. Theoretical and empirical studies have indicated that induced currents created by 765 kv lines can create the opportunity for perceptible shocks to constitute an infrequent annoyance. Such studies have also suggested the possibility that 765 kV HVTL fields might be capable of inducing a current strong enough to, through spark discharge, stun a small child or ignite exposed gasoline (e.g, while refueling a tractor). (2) INTERFERENCE WITH CARDIAC PACEMAKERS The induction of electric currents in people by transmission lines operating at voltages as low as 138 kv is capable of interfering with the operation of a very small percentage of the 200,000 cardiac pacemakers currently in use in the United States. This potential for interference depends on pacemaker design and implantation configuration and can be limited through appropriate selection of pacemaker design and placement by cardiologists. Cardiologists do not agree about the seriousness of this type of pacemaker interference, which can be caused by household electrical ppliances as well as by transmission lines. (3) OTHER POSSIBLE HVTL FIELD HAZARDS The possibility that HVTL fields might be capable of harming people or the ‘ environment in ways other than those mentioned above is currently a subject of scientific research and debate. 60 Hz HVTL fields consist of what is termed eg;;em§ly_lgg~frggg§ngy or ELF radio waves (0-3000 Hz). Research has been active in the area of possible direct hazards from microwaves, and more recently from radio waves of higher frequency. However, until recently very little systematic health effects research has been carried out in the United States in the ELF range relevant to power lines. Research in this area has increased moderately in this country in response to the reported findings of East European and Soviet scientists and to scattered public protests over HVTL installation (in New York, Ohio, North.Dakota, Oregon, and Minnesota) and over the Navy's Project Sanguine/Seafarer, a proposed submarine communications system which would employ ELF radiation (in Wisconsin and O I nichigan;. (A) PAST ELF RADIATION BIOEFFECTS RESEARCH. The first Studies of people occupationally exposed to HVTL fields were conducted in the Soviet flnion and in the Tnited States in the 19605. On the basis of adverse health conditions reported in Soviet studies, that country developed proposed occupational safety standards for exposure to HVTL fields in 1971. Public Ad private electric utilities in the United States have continued to conduct or support research en the bioeffects of static and ELF fields relevant to power lines, and have since 1978 sponsored an integrated research program managed by the Electric Power ?esear:h Institute 1393:)» Here recent human epidemiological studies relevant to HVTL field bioeffects have been carried out in France, Canada, Germany, Sweden, East Germany, Spain, and the Soviet Union. In 1968, the 0.5. Navy established a test facility in Wisconsin and CRS- 3 HB80222 UPDATE—1Q/22/$0 initiated support of a series of ELF bioeffects studies in order to determine he environmental impact of Project sanguine/Seafarer. This Navy-supported research and other research was reviewed in a 1977 report by the National Academy of Sciences on the biologic effects of electric and magnetic fields associated with Project Seafarer. In 1975 the Energy Research and Development Administration (ERDA), later the Department of Energy (DOE), became a major supporter of research on possible hazards posed by HVTL fields as part of a program to assess the environmental acceptability of HVTL operations. The National Institute for Environmental Health Sciences (NIEHS), EPA, the Army, the Defense Nuclear Agency, and the National _ Aeronautics and Space Administration have also conducted or supported a small amount of research on the bioeffects of stationary ‘or ELF fields. A persistent criticism in this area of research has been the fact that most of it has been conducted or sponsored by the electric power industry and by Federal agencies (primarily ERDA, DOE and the Navy) whose primary mission concerns ELF-generating technologies rather than public health. (B) BIOLOGICAL EFFECTS OF HVTL FIELDS. The direct or indirect biological effects of ELF radiation in the 50-60 Hz range relevant to HVTL field exposure which have been demonstrated through experimentation to date to be probable in some animal systems include: -- stimulation through vibration of hair or feathers,’ -- behavioral perception through aversion or preference for field exposure, -- increased neuronal excitability, F -— alteration in circadian hormone release rhythms, —— transient alteration in growth rates, ‘ —— transient alteration in flight orientation in certain birds, - perception of current by certain fish and eels, w -- behavioral and physiological changes in honey bees adversely affecting hive survival, and - altered blood properties. In addition, strong HVTL fields can induce a small amount of leaf-tip damage in vegetation with pointy leaves due to field concentration at the leaf tips, as well as plant wilting under certain circumstances. These responses to static and ELF field exposure have been generally detected only at field strengths one to twelve or more times the maximum ambient strength of present HVTL fields, except that certain birds, bees, and fish are able to sense extremely weak electromagnetic fields. However, because conductive objects such as the human body concentrate electric fields in which they are situated, the actual electric field strength experienced by the uppermost part of an object under a transmission line can be many times greater than the strength of the unperturbed field. For humans, this concentration factor has been calculated to be as high as 17. Scientists in this area generally agree that while these bioeffects do not indicate any obvious hazard, more research is needed in order to determine what, if any, health or ecological significance they have. CURRENT RESEARCH IHTO POSSIBLE HEALTH OB ENVIRONMENTAL HVTL HAZARDS As part of its program to evaluate ‘the environmental acceptability of overhead HVTL operations by FY82 DOE is currently supporting most of the ongoing powerline bioeffects research in the United States. DOE is spending $#.7 million ($1.5 million extramural) on this research program in fiscal CRS- H MB30222 UPDATE-10/22/80 year FY80. Some of DOE's extramural research in this area is currently being erformed by the National Bureau of Standards ($150,000 for FY80) and by the veterans Administration (approx. $250,000 for FY80). The Navy is supporting research on the effects of chronic ELF radiation exposure on mammals at a funding level of $361,000 for FY 1980. Since 1968 the Navy has spent about su million on ELF bioeffects research in general. NIEHS is currently supporting four university research projects relevant to the bioeffects of 60 Hz electric fields ($175,000 total). The Veterans Administration now supports a small amount of research on ELF bioeffects ($35,000 for FY80) in addition to the research it is conducting for DOE. The electric utility industryrsupported research program on the effects of HVTL fields managed by EPBI is funded at about $1.5 million for 1980. In addition, private utility companies (e.g., the Southern California Edison Co. and Westinghouse Electric Corp.) conduct and support health and ecological effects research relating to current and planned HVTL operations. FEDERAL RESPONSIBILITIES AND COORDINATION There is no single Federal agency responsible for assuring public safety and comfort in the proximity of overhead transmission lines, and no Federal standards exist setting quantitative limits for HVTL field exposure. 2s2er:ms2r_9f-§9mmerss Since 1968, the Electromagnetic Radiation Management Advisory Council (EBMAC) has served as a central focus for interagency preview, coordination, and communication regarding scientific knowledge, research programs, and funding levels for federally supported nonionizing radiation research. Until February 1968, ERMAC was an advisory body to the Office of Telecommunications Policy (OTP) in the Executive Office of the President. It now resides with OTP in the National Telecommunications and Information Administration (NTIA) within the Department of Commerce. Although ERHAC's focus has been primarily on microwaves and higher frequency radio waves, it has addressed the impacts of ELF radiation from HVTL operations. HTIA also directs an Interagency Task Force on the Biological Effects of Nonionizing Electromagnetic Radiation (the BENER Task Force), now involving 37 representatives of 15 Federal bodies. The BENER Task Force recently completed its formulation of a program of coordinated Federal activities related to biological effects of nonionizing electromagnetic radiation (0-300,000,000 Hz), which includes reference to research on the effects of ELF fields produced by transmission lines. 2e2er:msn:-9£.§nsr91 The Interagency Advisory Committee on Electric Field Effects from High Voltage Lines was formed by EBDA in 1976 and is now chaired by a representative of DOE's Division of Electric Energy Systems. This committee includes representatives from more than a dozen Federal agencies and meets arterly to review all ongoing research and to exchange other information related to HVTL field hioeffects. 2s2ar:mem:_9f-§eelth-e2d-§uma2_§s;zise§ In 1976 NIEHS established a Task Force for Research Planning in CRS- 5 HB80222 UPDATE-10/22/80 Environmental Health Sciences, which has addressed the need for coordinated asearch on the bioeffects of HVTL fields. NIEHS currently coordinates a uS—USSR cooperative research program on "the biological effects of static and low-frequency electromagnetic fields." At the request of the Soviet Union, this area of cooperative research was formally added in October 1977 to the Program of 3.5.-0.5.5.3. Cooperation on the Problem of Environmental Health (signed in 1973, and refocused in 1975 to address the "study of Biological Effects of Physical Factors in the Environment"), which resulted from the US-USSR Agreement to Cooperate in the Fields of Medical Science and. Public Health signed in 1972. , 2e2ar:nent_2£_Lah2r The Occupational Safety and Health Administration (OSHA) has a number of general regulations which apply to workers who might be in the vicinity of HVTL operations, construction, or maintenance. For workers actually working on such lines, OSHA's regulations governing the construction (broadly defined to include erection, alteration, conversion, and improvement) of electric transmission and distribution lines would apply. There are no OSHA regulations specifically governing worker safety in the context of HVTL maintenance operations, although OSHA is currently considering drafting such regulations. HVTL worker safety is also generally addressed by the National Electrical Code and the National Electrical Safety Code, which are national consensus standards adopted by the American National Standards Institute and used by industry as a guide to recognized safety procedures in the electrical ield. The OSHA regulations and the consensus standards referred to concern only protection from the possibility of electric shock; no reference is made to limiting exposure to electric or magnetic fields produced by high voltage transmission lines. STATE REGULATIONS All States have adopted the National Electrical Safety Code or some modification of it, limiting body current due to possible electrostatic effects of high voltage transmission lines. As of June 1978, 25 States have enacted legislation requiring the preparation of environmental impact statements for proposed overhead transmission lines which specifically address electrical effects. Two additional States require environmental impact statements, but not specifically for electrical effects. minimum transmission line voltage levels for which these regulations apply vary from 60 kv (Nevada) to 400 kV (Kentucky). Oregon has enacted a law limiting electric field levels within HVTL right-of-way areas to 9 kV/m. The remaining States evaluate health and safety impacts of transmission lines on a case-by-case basis. In the past, ten States have conditionally permitted line construction upon implementation of specified safety precautions. such as grounding of metal objects. North Dakota and Minnesota have administered a maximum possible AC electric field level of 8 kv/m beneath, power lines. The New York Public Service Commission has ordered that for one recently energized 765 kV line, a 1 kv/m electric field limit must be maintained at Le edge of a 350 foot-wide right-of—way. POLICY ISSUES The following are examples of emerging policy issues regarding the Federal role in HVTL research and regulation: CRS- 6 MBBOZZZ UPDATE-10/22/80 - Should the Department of Energy continue to he the primary Federal supporter of research on possible hazards of HVTL field exposure? What alternative agency might be a more appropriate primary source of funding for this research? Has DOE been unbiased in its evaluation and support of HVTL field effects research? Host federally supported research and most Federal coordination efforts relating to electromagnetic radiation bioeffects have concentrated on higher frequency radiation, such as microwaves. Have the lower frequencies relevant to power lines been unduly neglected in this context? should the Federal Government establish occupational or environaental exposure standards for extremely low frequency radiation in general or for HVTL fields in particular? Should the Federal Government, instead, formulate model State legislation in this area?