Research on RF Energy Exposure from Mobile Phones Has Not Demonstrated Adverse Health Effects, but More Studies Are Under Way

		Scientific Research

Scientific research to date has not demonstrated adverse human health  effects from RF energy exposure from mobile phone use, but additional  research may increase understanding of possible effects. Also, studies and experts identified several areas for additional  laboratory studies. Current Research Activities

Current research activities of federal agencies, international  organizations, and the mobile phone industry include funding and  supporting ongoing research on the health effects of RF energy exposure  from mobile phones. Although other  federal agencies are not directly funding research in this area, some  agencies are providing support for ongoing studies. FCC’s RF Energy Exposure Limit May Not Reflect Latest Evidence on Thermal Effects, and Mobile Phone Testing Requirements May Not Identify Maximum Exposure

		RF Energy Exposure Limit

In 1996, FCC adopted the RF energy exposure limit for mobile phones of  1.6 watts per kilogram, averaged over one gram of tissue, a  measurement of the amount of RF energy absorbed into the body. exposure from mobile phone use, although actual exposure depends on a  number of factors, including the operating power of the phone, how the  phone is held during use, and where it is used in proximity to a mobile  phone base station. FCC officials told us that they rely heavily on the guidance and  recommendations of federal health and safety agencies when  determining the appropriate RF energy exposure limit and that, to date,  none of these agencies have advised FCC that its current RF energy limit  needs to be revised. Officials from FDA and EPA told us that FCC has not  formally asked either agency for an opinion on the RF energy limit. Nevertheless, by not formally reassessing its current RF energy exposure  limit, FCC cannot ensure that it is using a limit that reflects the latest  evidence on thermal effects from RF energy exposure, and may impose  additional costs on manufacturers and limitations on mobile phone  design. FCC has not reassessed its testing requirements to ensure that testing  identifies the maximum RF energy exposure for the other usage  conditions a user could experience when mobile phones are in use  without body-worn accessories or as advised by the manufacturer’s  instructions, rather than the head. Federal Agencies and Mobile Phone Industry Provide Information to the Public through Websites and User Manuals

		Information Provided by Federal Agencies

Federal agencies provide information to the public on the health effects of  mobile phone use and related issues primarily through their websites. The types of information that federal agencies’ websites provide on  mobile phone health effects and related issues vary, in part because of  the agencies’ different missions, though the websites provide a broadly  consistent message. The information provided in user manuals by  manufacturers is voluntary, as there are no federal requirements that  manufacturers provide any specific information to consumers about the   Most manuals we reviewed provide  health effects of mobile phone use.information about how the device was tested and certified, as well as the  highest energy exposure measurement associated with the device. This evidence has led to a new RF energy  exposure limit recommendation from international organizations. Reassess whether mobile phone testing requirements result in the  identification of maximum RF energy exposure in likely usage  configurations, particularly when mobile phones are held against the  body, and update testing requirements as appropriate. FCC also noted that a draft Order and Further Notice  of Proposed Rulemaking, along with a new Notice of Inquiry, which has  been submitted by FCC staff to the Commission for their consideration,  has the potential to address the recommendations made in this report. To determine the current research activities  of federal agencies related to mobile phone use and health, we  interviewed officials from the Department of Defense; Department of  Health and Human Services’ Centers for Disease Control and Prevention  (CDC), Food and Drug Administration (FDA), and National Institutes of  Health (NIH); Department of Labor’s Occupational Safety and Health  Administration (OSHA); Environmental Protection Agency (EPA); and  Federal Communications Commission (FCC). To determine the research  activities of other organizations, we interviewed representatives from  IARC, academic institutions, consumer groups, mobile phone industry  associations, mobile phone manufacturers, and mobile phone providers. We also reviewed and  summarized FCC testing and certification regulations and guidance for  mobile phones. To determine the actions federal agencies and the industry take to inform  the public about issues related to mobile phone health effects, we  reviewed the information on federal agency websites. French Environmental Health and Safety Agency. 2.
Why GAO Did This Study

The rapid adoption of mobile phones has occurred amidst controversy over whether the technology poses a risk to human health as a result of long-term exposure to RF energy from mobile phone use. FCC and FDA share regulatory responsibilities for mobile phones. GAO was asked to examine several issues related to mobile phone health effects and regulation. Specifically, this report addresses (1) what is known about the health effects of RF energy from mobile phones and what are current research activities, (2) how FCC set the RF energy exposure limit for mobile phones, and (3) federal agency and industry actions to inform the public about health issues related to mobile phones, among other things. GAO reviewed scientific research; interviewed experts in fields such as public health and engineering, officials from federal agencies, and representatives of academic institutions, consumer groups, and the mobile phone industry; reviewed mobile phone testing and certification regulations and guidance; and reviewed relevant federal agency websites and mobile phone user manuals.

What GAO Found

Scientific research to date has not demonstrated adverse human health effects of exposure to radio-frequency (RF) energy from mobile phone use, but research is ongoing that may increase understanding of any possible effects. In addition, officials from the Food and Drug Administration (FDA) and the National Institutes of Health (NIH) as well as experts GAO interviewed have reached similar conclusions about the scientific research. Ongoing research examining the health effects of RF energy exposure is funded and supported by federal agencies, international organizations, and the mobile phone industry. NIH is the only federal agency GAO interviewed directly funding studies in this area, but other agencies support research under way by collaborating with NIH or other organizations to conduct studies and identify areas for additional research.
The Federal Communications Commissions (FCC) RF energy exposure limit may not reflect the latest research, and testing requirements may not identify maximum exposure in all possible usage conditions. FCC set an RF energy exposure limit for mobile phones in 1996, based on recommendations from federal health and safety agencies and international organizations. These international organizations have updated their exposure limit recommendation in recent years, based on new research, and this new limit has been widely adopted by other countries, including countries in the European Union. This new recommended limit could allow for more RF energy exposure, but actual exposure depends on a number of factors including how the phone is held during use. FCC has not adopted the new recommended limit. The Office of Management and Budgets instructions to federal agencies require the adoption of consensus standards when possible. FCC told GAO that it relies on the guidance of federal health and safety agencies when determining the RF energy exposure limit, and to date, none of these agencies have advised FCC to change the limit. However, FCC has not formally asked these agencies for a reassessment. By not formally reassessing its current limit, FCC cannot ensure it is using a limit that reflects the latest research on RF energy exposure. FCC has also not reassessed its testing requirements to ensure that they identify the maximum RF energy exposure a user could experience. Some consumers may use mobile phones against the body, which FCC does not currently test, and could result in RF energy exposure higher than the FCC limit.
Federal agencies and the mobile phone industry provide information on the health effects of mobile phone use and related issues to the public through their websites and mobile phone manuals. The types of information provided via federal agencies websites on mobile phone health effects and related issues vary, in part because of the agencies different missions, although agencies provide a broadly consistent message. Members of the mobile phone industry voluntarily provide information on their websites and in mobile-phone user manuals. There are no federal requirements that manufacturers provide information to consumers about the health effects of mobile phone use.

What GAO Recommends

FCC should formally reassess and, if appropriate, change its current RF energy exposure limit and mobile phone testing requirements related to likely usage configurations, particularly when phones are held against the body. FCC noted that a draft document currently under consideration by FCC has the potential to address GAOs recommendations