IEEE 1654-2009

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IEEE Std 1654-2009

IEEE Guide for RF Protection of

Personnel Working in the Vicinity of

Wireless Communications Antennas

Attached to Electric Power Line

Structures

IEEE3 Park AvenueNew York, NY 10016-5997, USA

30 June 2009

IEEE Power & Energy Society

Sponsored by thePower System Communications Committee

16

54T

M

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IEEE Std 1654-2009

IEEE Guide for RF Protection ofPersonnel Working in the Vicinity ofWireless Communications AntennasAttached to Electric Power LineStructures

Sponsor

Transmission and Distribution Committeeof theIEEE Power & Energy Society

Approved 19 March 2009

IEEE-SA Standards Board

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Acknowledgements

Appreciation is extended to Bonneville Power Administration and American Electric Power for providing

data for determining the immunity of personal RF monitors to power-frequency magnetic and electric

fields. Also many thanks to all the electric utilities that provided information about their RF safety

programs and contributed to preparation of the RF safety program recommendations described in thisguide.

Abstract: Information on establishing an effective safety program to ensure compliance with theapplicable regulations for radio frequency (RF) protection of electrical workers in the vicinity ofwireless communication antennas adjacent or attached to electrical power line structures ispresented. The guide also provides information on power-frequency electric and magnetic fieldimmunity of RF personal monitors and RF protective clothing.Keywords: electrical workers, immunity, power frequency, RF personal monitors, RF protectiveclothing, RF safety program

The Institute of Electrical and Electronics Engineers, Inc.3 Park Avenue, New York, NY 10016-5997, USA

Copyright 2009 by the Institute of Electrical and Electronics Engineers, Inc.All rights reserved. Published 30 June 2009. Printed in the United States of America.

IEEE is a registered trademark in the U.S. Patent & Trademark Office, owned by the Institute of Electrical and ElectronicsEngineers, Incorporated.

PDF: ISBN 978-0-7381-5943-0 STD95926Print: ISBN 978-0-7381-5944-7 STDPD95926

No part of this publication may be reproduced in any form, in an electronic retrieval system or otherwise, without the prior written permissionof the publisher.

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ivCopyright 2009 IEEE. All rights reserved.

Introduction

This introduction is not part of IEEE Std 1654-2009, IEEE Guide for RF Protection of Personnel Working in theVicinity of Wireless Communications Antennas Attached to Electric Power Line Structures.

The rapid expansion of the wireless communications industry has led to new impacts on the power

transmission industry. Wireless companies are looking to share the advantages of existing power line

rights-of-way. Thousands of power transmission structures have been modified to perform a dual role as

communications towers. This dual role places an additional burden on electrical workers who must install

and maintain the communications antennas while performing their usual duties in the maintenance of the power transmission lines. Maintenance personnel are now faced with issues regarding possible hazards

arising from working in the presence of high-intensity RF fields.

The U.S. Federal Communications Commission (FCC) performed scientific studies and produced reports

and recommendations, and regulations,a which have also resulted in the promulgation of regulations by the

Occupational Safety and Health Administration (OSHA) to address worker exposures in RF fields. Utilitycompanies are obligated to develop plans, training, policies, and work practices to protect their workers

from excessive exposures to RF fields. In addition, it is incumbent upon utilities to evaluate the necessity of

equipping their workers with personal protective equipment, such as RF detectors and shielding apparel.

Questions and concerns about RF exposures of electrical workers were discussed at meetings of the IEEE

Power Engineering Society (PES), Engineering in the Safety, Maintenance, and Operation of Lines(ESMOL) Subcommittee in Las Vegas 2000 and Columbus 2001, as well as in panel presentations in

Edmonton, Montreal, and Vancouver, Canada, all of which provided foundation material for this guide.

The main decisions and recommendations arrived at during the Vancouver meeting were the following:

a) An RF exposure safety program should be developed by an electric utility if it plans to permit use ofits structures for attachment of RF antennas and/or the associated transmitters.

b) Personal RF monitors should be worn by each employee when RF antennas are located on structureswhere he or she is working, or on other structures in the vicinity.

A next milestone was the publication in 2003 of an IEEE conference paper entitled RF Protection ofPersonnel Working in the Vicinity of Wireless Communications Antennas Attached to Electric Power Line

Structures (ESMOL Subcommittee [B7]).b The purpose of this paper was to present a summary of presentelectric utility practices and proposed minimum requirements pertaining to RF protection of personnel

working in the vicinity of wireless communications antennas attached to electric power line structures. In

this respect, the paper provided information on RF exposure limits, RF safety compliance steps, power-

frequency electric and magnetic field immunity of RF personal monitors, and RF protective clothing. The

2003 paper served as the main basis for this guide. IEEE Std 1654-2009 was prepared by the ESMOLSubcommittee Task Force entitled Protection of Line Workers from RF Radiation Fields Emitted from

Antenna/Transmitter Arrays.

aInformation on references can be found in Clause 2.

bThe numbers in brackets correspond to those of the bibliography in Annex A.

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vCopyright 2009 IEEE. All rights reserved.

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viCopyright 2009 IEEE. All rights reserved.

Patents

Attention is called to the possibility that implementation of this guide may require use of subject mattercovered by patent rights. By publication of this guide, no position is taken with respect to the existence or

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Patent Claims for which a license may be required, for conducting inquiries into the legal validity or scope

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Participants

At the time this guide was submitted to the IEEE-SA Standards Board for approval, the RF ProtectionGuide for Electrical Workers Working Group had the following membership:

Nestor Kolcio, Chair

Ken Brown, Vice Chair

Kris BuchholtzThomas BuonincontriJames ChristensenEd Davis

Frederick DoeringGeorge GelaJim GilliesErnie Jones

Clayton King

George NilesTom RaslerJames TomaseskiTom Verdecchio

The following members of the individual balloting committee voted on this guide. Balloters may have

voted for approval, disapproval, or abstention.

William J. Ackerman

Ali Al Awazi

Kraig BaderHarvey BowlesGernot Brandt

Gustavo BrunelloThomas BuonincontriWilliam ByrdWeijen Chen

Keith ChowRobert ChristmanMichael ClodfelderTommy Cooper

F. A. DenbrockBostjan K. DergancErnest Duckworth

Gary EngmannRabiz Foda

George Gela

William Goldbach

Charles GroseRandall GrovesRichard W. Hensel

Werner HoelzlEdward HuntEfthymios KarabetsosGael Kennedy

Robert O KlugeJoseph L. Koepfinger

Nestor KolcioJim Kulchisky

Lisardo LouridoGary MichelAbdul Mousa

Dennis NeitzelMichael S. Newman

Gary Nissen

Tim Olson

Carl OrdeDonald ParkerPercy Pool

Charles RogersBartien SayogoMark SimonJerry Smith

Richard TellJames TomaseskiJoseph TumidajskiJohn Vergis

Daniel WardWilliam WessmanJames Wilson

Larry YoungTheodore Zeiss

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viiCopyright 2009 IEEE. All rights reserved.

When the IEEE-SA Standards Board approved this guide on 19 March 2009, it had the following

membership:Robert M. Grow, Chair

Thomas Prevost, Vice ChairSteve M. Mills, Past ChairJudith Gorman, Secretary

John BarrKaren BartlesonVictor Berman

Ted BurseRichard DeBlasioAndy DrozdMark Epstein

Alexander GelmanJim HughesRich Hulett

Young Kyun KimJoseph L. Koepfinger*John Kulick

David LawTed OlsenGlenn Parsons

Ron PetersenNarayanan RamachandranJon RosdahlSam Sciacca

*Member Emeritus

Also included are the following nonvoting IEEE-SA Standards Board liaisons:

Howard Wolfman, TAB Representative

Michael Janezic,NIST RepresentativeSatish Aggarwal,NRC Representative

Lisa Perry

IEEE Standards Program Manager, Document Development

Malia ZamanIEEE Standards Program Manager, Technical Program Development

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viiiCopyright 2009 IEEE. All rights reserved.

Contents

1. Overview .................................................................................................................................................... 1

1.1 Scope ................................................................................................................................................... 1

1.2 Purpose ................................................................................................................................................ 1

2. Normative references.................................................................................................................................. 2

3. Definitions.................................................................................................................................................. 2

4. Application................................................................................................................................................. 3

5. RF exposureFCC and OSHA guidelines and requirements.................................................................... 3

6. Exposure situations..................................................................................................................................... 4

7. RF emittersTypical measurements ......................................................................................................... 4

8. Electric utility RF safety practices.............................................................................................................. 5

8.1 Background.......................................................................................................................................... 5

8.2 RF exposure safety compliance steps .................................................................................................. 5

9. RF safety considerations for third-party antennas and transmitters............................................................ 8

9.1 Establishing RF safety in third-party situations................................................................................... 8

9.2 RF safety for other nearby third-party RF antennas ............................................................................ 9

10. RF safety standard work procedures......................................................................................................... 9

11. Documentation and training ..................................................................................................................... 9

12. Immunity of RF personal monitors to electric and magnetic fields from transmission lines ................. 10

12.1 General information......................................................................................................................... 10

12.2 RFPM immunity to power-frequency electric fields ....................................................................... 10

12.3 Immunity to power-frequency magnetic fields................................................................................ 11

13. Available RF protection methods ........................................................................................................... 11

13.1 General ............................................................................................................................................ 1113.2 Conductive clothing......................................................................................................................... 11

Annex A (informative) Bibliography ........................................................................................................... 13

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1Copyright 2009 IEEE. All rights reserved.

IEEE Guide for RF Protection ofPersonnel Working in the Vicinity ofWireless Communications AntennasAttached to Electric Power LineStructures

IMPORTANT NOTICE: This standard is not intended to ensure safety, security, health, or

environmental protection in all circumstances. Implementers of the standard are responsible for

determining appropriate safety, security, environmental, and health practices or regulatory

requirements.

This IEEE document is made available for use subject to important notices and legal disclaimers.

These notices and disclaimers appear in all publications containing this document and may

be found under the heading Important Notice or Important Notices and Disclaimers

Concerning IEEE Documents. They can also be obtained on request from IEEE or viewed at

http://standards.ieee.org/IPR/disclaimers.html.

1. Overview

1.1 Scope

This guide presents information on establishing an effective safety program to ensure compliance with the

applicable regulations for radio frequency (RF) protection of electrical workers in the vicinity of wireless

communication antennas adjacent or attached to electrical power line structures. The guide also providesinformation on power-frequency electric and magnetic field immunity of RF personal monitors (RFPM)

and RF protective clothing.

1.2 Purpose

Electric utilities are required to meet the requirements established by applicable regulations [e.g.,Occupational Safety and Health Administration (OSHA), Federal Communications Commission (FCC)] for

protection of electrical workers in the vicinity of wireless communication antennas adjacent or attached to

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IEEE Std 1654-2009IEEE Guide for RF Protection of Personnel Working in the Vicinity of Wireless Communications Antennas

Attached to Electric Power Line Structures


electrical power line structures. This guide presents information on establishing an effective safety program

to assure compliance with these regulatory requirements, including information on RF exposure limits,

power-frequency electric and magnetic field immunity of RFPM, and RF protective clothing.

2. Normative references

The following referenced documents are indispensable for the application of this document (i.e., they must

be understood and used, so each referenced document is cited in text and its relationship to this document isexplained). For dated references, only the edition cited applies. For undated references, the latest edition of

the referenced document (including any amendments or corrigenda) applies.

Code ofFederal Regulations Title 29 Part 1960 Section 16 (29 CFR 1960.16), Compliance with OSHAstandards.1,2

Code of Federal Regulations Title 29 Part 1960 Section 17 (29 CFR 1960.17), Alternate standards.

Code of Federal Regulations Title 47 Part 1 Section 1307 (47 CFR 1.1307), Actions that may have a

significant environmental effect, for which environmental assessments (EAs) must be prepared.

Code of Federal Regulations Title 47 Part 1 Section 1310 (47 CFR 1.1310), Radiofrequency radiation

exposure limits.

FCC LSGAC, A Local Government Officials Guide to Transmitting Antenna RF Emission Safety: Rules,

Procedures, and Practical Guidance, June 2000.3

FCC OET Bulletin 65 (Edition 97-01, August 1997), Evaluating Compliance with FCC Guidelines for

Human Exposure to Radiofrequency Electromagnetic Fields.4

IEEE Std C95.6-2002, IEEE Standard for Safety Levels with Respect to Human Exposure to

Electromagnetic Fields, 03 kHz.5,6

3. Definitions

For the purposes of this document, the following terms and definitions apply. The Authoritative Dictionary

of IEEE Standards Terms[B11]7should be referenced for terms not defined in this clause.

3.1 cellular: Wireless phone systems.

3.2 electric field: An electrically charged field that surrounds a high voltage energized conductor.

3.3 HV line towers: Towers used to support high voltage transmission lines.

1 CFR publications are available from the Superintendent of Documents, U.S. Government Printing Office, P.O. Box 37082,

Washington, DC 20013-7082, USA.2 Available at http://www.fcc.gov/oet/info/documents/bulletins/.3 Available at http://wireless.fcc.gov/siting/FCC_LSGAC_RF_Guide.pdf.4 Available at http://www.fcc/gov/.5 IEEE publications are available from the Institute of Electrical and Electronics Engineers, 445 Hoes Lane, Piscataway, NJ 08854,

USA (http://standards.ieee.org/).6 The IEEE standard or product referred to in Clause 2 is a trademark owned by the Institute of Electrical and Electronics Engineers,Incorporated.7 The numbers in brackets correspond to those of the bibliography in Annex A.

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3.4 magnetic field: A magnetically charged field that surrounds a high voltage energized conductor.

3.5 PCS: Personal communications systems such as pagers.

3.6 radio frequency (RF): A frequency that is useful for radio transmission.

NOTEFor purposes of this standard, the frequency range of interest is 3 kHz to 300 GHz.

8

3.7 RF fields: RF electrical and magnetic fields emitted from antenna/transmitter arrays.

3.8 RF personal monitors (RFPM): Monitors designed to alert workers when the field approaches

designated safe limits. Syn:personal RF monitor.

3.9 RF protective clothing: Clothing specifically designed to provide protection for the wearer from

excessive exposures to RF fields.

4. Application

This guide presents a reference source for electric utilities on how to establish a safety program to meetOSHA and FCC RF exposure compliance requirements and protect electrical workers in the vicinity of

wireless communication antennas adjacent or attached to electric power line structures. The information

that the guide provides is geared more specifically towards the electrical workers that perform maintenance

or construction work on electric power lines or structures with attached active wireless communications

antennas. It would be of less interest to other utility workers, such as communications workers. The guide

deals with the RF protection aspect only to the extent of meeting the already established RF compliancerequirements. These OSHA and FCC requirements also encompass the health and safety issues, in addition

to the RF exposure limits. Main contributions of this guide include that it describes for electric utilities the

minimum requirements for establishing a RF safety program, and specific guidelines on the immunity ofRFPM to the power-frequency fields from transmission lines, as well as the use of conductive clothing for

worker protection.

5. RF exposureFCC and OSHA guidelines and requirements

The rules regarding human RF exposures enacted by the FCC establish regulatory requirements for FCC-

licensed radio services, including human exposure limits more stringent than those of OSHA, and more

rigorous compliance requirements for transmitter facilities. The FCC states that compliance with RFexposure regulations is the responsibility of the transmitter licensee. Private and commercial mobile radio

service (CMRS) providers and operators were required to have their transmitter facilities in compliance

with the revised FCC exposure guidelines by no later than September 1, 2000, if major modifications were

made or a license was renewed. These federal government regulations have the greatest impact on easilyaccessible high-powered transmitter and antenna systems, such as broadcast systems. Implications for

electric utilities are mostly limited because the majority of the utilities communications equipment is

elevated on telecommunications towers, although some may be located on buildings or other utilitystructures. The power levels of the utilities transmitters are also relatively low in comparison to the powerlevels of broadcast transmitters. However, in recent years, especially with the advent of deregulation, it has

become a common practice to lease space on utilities transmission and telecommunications structures to

external parties who provide personal communication services (PCS), cellular and sometimes PCS mobile

phone services. As a result, there are now more locations where electric utility employees, particularlyelectric transmission workers, may be exposed to RF energy in their work environment. There is also

8Notes in text, tables, and figures of a standard are given for information only and do not contain requirements needed to implementthis standard.

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greater potential for exposure due to the cumulative effects of the RF fields from multiple transmitters.

Therefore, persons may be exposed occupationally, in which case OSHA guidelines become applicable.

OSHA has reviewed other safety program documents (i.e., FCC) and has publicly stated that when

consensus, state-of-the-art limits are implemented they provide protection equal to or greater than

29 CFR 1910.97 [B4]. Thus, OSHA agrees that industry may use FCC limits in place of 29 CFR 1910.97 toregulate occupational exposures to nonionizing radiation. The FCC exposure limits are well recognized andsupported by the safety and health community, as well as OSHA by reference [e.g. American Conference

of Governmental Industrial Hygienists (ACGIH), threshold limit values (TLV) and American National

Standards Institute (ANSI)]. Although more restrictive than the OSHA standards, complying with the

selected consensus standards is feasible and will provide a more protective workplace. The selection of the

more restrictive public exposure limits from the current FCC limits as an action level determines when anRF safety program is necessary.

Of course, full implementation of any safety program is critical to providing the intended worker

protection. Accordingly, the utility industry is permitted, i.e., by 29 CFR 1960.16, 9 to prescribe and enforce

more stringent permissible exposure levels or threshold limit values and may require more frequent

monitoring of exposures without recourse to the approval procedures for alternate standards described in29 CFR 1960.17.

6. Exposure situations

Exposures from intentional emitters, such as wireless communications antennas, are common in rooftop,

mobile platforms (such as service vehicles), and towers. Tower environments can be complicated due to thepresence of high-voltage (HV) transmission lines.

7. RF emittersTypical measurements

Cellular and PCS phone service providers are prime users of HV transmission line towers because of the

large number and locations of these towers across wireless service areas. Wireless systems have powerlevels that vary with the number of active channels employed (i.e., the number of phone conversations

going through each base station) and the reach of each particular base station. In rural areas, it is common

to have higher signal levels transmitted to cover a larger area than would be done in a more congested,urban environment. The antennas employed to transmit these RF signals have directional radiation patterns

in the elevation plane, and do not radiate the signal directly in a downward (other than a few degrees of

mechanical or electrical down-tilt) direction. In addition, these cellular and PCS service frequencies follow

the inverse square-law rule, which attenuates signal strength. This dissipation supports unencumberedaccess to areas around the base of these towers.

As an example, for illustration purposes, Table 1 lists minimum working distances for a typical cellular

installation with panel antenna versus the maximum power output of the transmitter with all channels

simultaneously active. As can be seen in Table 1, the keep-out distance (see 8.2.2.3.2) in front of the panel antenna (in the directional RF field radiation pattern) can vary greatly depending on the actual

number of channels transmitting at any one time. There are also time limits that allow exposure within

these distances (see 8.2.2.3.1). When multiple carriers are located on the same structure, an analysis of the

exposure should be made to determine the level of exposure, and Table 1 should not be used for these

instances.

9Information on references can be found in Clause 2.

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Table 1 Stand-off / keep-out distances, in meters/feet, vs. transmitter output power

# channels 100 W 50 W 40 W 25 W 12.5 W 6.4 W

1 0.36 / 1.18 0.19 / 0.61 0.15 / 0.50 0.10 / 0.32 0.05 / 0.18 0.03 / 0.11

5 1.63 / 5.34 0.86 / 2.82 0.70 / 2.29 0.44 / 1.46 0.23 / 0.76 0.12 / 0.41

10 2.93 / 9.61 1.63 / 5.34 1.33 / 4.36 0.86 / 2.82 0.44 / 1.46 0.23 / 0.77

15 3.96 / 13.0 2.31 / 7.59 1.91 / 6.27 1.25 / 4.11 0.66 / 2.15 0.35 / 1.14

20 4.76 / 15.62 2.93 / 9.61 2.44 / 8.02 1.63 / 5.34 0.86 / 2.82 0.46 / 1.50

25 5.37 / 17.63 3.48 / 11.41 2.93 / 9.61 1.98 / 6.50 1.06 / 3.48 0.56 / 1.85

30 5.84 / 19.17 3.96 / 12.99 3.37 / 11.06 2.31 / 7.59 1.25 / 4.11 0.67 / 2.20

35 6.21 / 20.37 4.39 / 14.39 3.77 / 12.38 2.63 / 8.63 1.44 / 4.73 0.77 / 2.54

40 6.52 / 21.38 4.76 / 15.62 4.14 / 13.57 2.93 / 9.61 1.63 / 5.34 0.88 / 2.89

8. Electric utility RF safety practices

8.1 Background

Electric utilities vary in their awareness of present RF exposure standards and the development of

associated safety considerations. There are some common compliance practices among electric utilities that

are currently leading the electric industry in RF safety awareness. Regardless of the methods and practicesused by an electric utility to achieve compliance with RF regulations, employees must be informed of any

potential RF hazard situations in their working environments. Utility employees, particularly those who

work in close proximity to RF wireless communication equipment on electric transmission or distribution

facilities, need to understand the ways in which the wireless-service licensee can achieve compliance as

well as mitigating actions that are available to both the licensee and the utility employee. To protectworkers from RF energy exposure, electric utilities have developed RF safety programs incorporating

standard communications industry compliance methods (Corley [B5], PCIA Compliance Paper[B13]).

8.2 RF exposure safety compliance steps

8.2.1 Preliminary compliance steps

8.2.1.1 Appoint personnel knowledgeable in RF safety

A first step toward compliance and addressing RF safety issues in electric utilities is to designate personnel

knowledgeable and specialized in RF safety and exposure assessment. Utility company internal personnel

are typically given the responsibility to develop an RF safety program, which includes RF safety workpolicies. These knowledgeable personnel are also available to address questions regarding RF safety. Theexpertise of third-party RF safety companies and/or consultants is utilized when necessary to assist with

compliance.

8.2.1.2 Analyze and document the system of RF transmitters

The next step in RF safety compliance is for electric utilities to review and document the systems of RF

transmitters that are located on a utilitys property, including electric transmission and distribution systems.

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Sites may be evaluated by performing measurements to characterize the RF energy in the area. However,

the information obtained through measurements is only accurate for the snapshot of time when the

measurements are taken, and may not represent maximum exposure scenarios. Therefore, care must be

taken when extrapolating and generalizing measurement data to characterize an environment. Theoretical

calculations, based on maximum exposure scenarios of known sources, are also used to determine themaximum expected RF field levels and energy in an area. Formulas provided in FCC OET Bulletin 65 can

be used to perform such calculations. Another more sophisticated means of estimating RF energy in the

environment is by use of computer-modeling software. Computer-modeling software allows maximumexposures, normal operating conditions, and other scenarios to be simulated. If modifications or changes

are made to a site that might affect the potential for RF exposure after an RF analysis is performed, the site

should be re-analyzed.

8.2.2 RF safety program

Once an electric utility has designated RF safety personnel and the RF environments within the utilityfacilities have been reviewed and understood, many utilities have found it advantageous and often

necessary to develop an RF safety program. RF safety programs are usually documented formally and

based on present federal and/or state RF regulations and standards. Written RF safety programs

demonstrate efforts of an electric utility to comply with RF regulations, and serve as reference documents

for employees. Several components are typically included in a comprehensive RF safety program,

including: engineering practices, administrative controls, work practices and procedures, use of protectiveequipment, and addressing situations where external (to the utility) personnel and equipment are located on

utility property.

8.2.2.1 Engineering practices

Engineering practices should be specified in RF safety programs to reduce the potential exposure ofemployees to RF energy. New antenna installations should be engineered such that their mounting locations

minimize RF exposure in places that could be occupied by personnel, such as electrical workers. The

antenna type should be selected so that it serves its purpose while minimizing RF exposure in work areas.

Existing antenna installations should be reengineered and moved so that they are located and directed away

from personnel. Engineering practices should consider RF effects and require systems to be designed sothat RF exposure to the general public and all electric utility personnel is eliminated or minimized.

8.2.2.2 Administrative controls

Administrative controls are another component implemented as part of an RF safety program. Controls,

such as posting RF warning signs, help create a safe work environment and ensure compliance with RF

exposure regulations by raising the awareness of RF energy. RF energy warning signs are posted to conveyinformation about the RF energy in an area and should be consistent with applicable federal

(47 CFR 1.1307) or state requirements. Another means of control is to use calculations and/or RF field

measurements to categorize RF exposure levels within an environment into different RF zones or areas. Inthese RF zones, specific actions are to be followed to help ensure worker safety and compliance. Zones can

be marked on the building floor or specific tower sections by posting RF hazard signs or by painting theappropriate locations with colors that signify defined RF levels. Exposure to RF energy is also limited by

restricting access to high-level RF energy areas with fencing, locked doors, and roped-off areas.

8.2.2.3 RF safety standard work practices

Another typical component of an RF safety program is specifying work practices that consider RF energylevels in the work environment and that provide ways to compensate for it. Defining such work practices

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helps ensure utility worker safety by reducing, limiting, or eliminating exposure to RF energy. One way of

eliminating exposure to RF energy is to completely de-energize (disable) all RF sources installed upon an

electric utility structure.

8.2.2.3.1 Time limits

The amount of time employees are exposed to RF energy can be limited, per the applicable guidelines, toallow personnel to work in various environments. Although time averaging may be a useful way of

remaining compliant while climbing through RF fields on towers, an electric utility may want to minimize

the use of time averaging due to the complexity of accurately and safely balancing the level of RF exposure

and the permitted length of exposure.

8.2.2.3.2 Minimum working distances

Establishing minimum safe working distances (example keep-off distances are shown in Table 1 ofClause 7) from different types of antennas or wireless communication devices can provide additional

worker protection. Defining minimum working distances can be useful when an electric utility has same

and similar types of transmitter/antenna configurations across its system, but uniform distances may not beapplicable in all situations. Establishing minimum working distances becomes a more complicated task for

structures that have multiple types of wireless communication attached devices.

8.2.2.3.3 Auxiliary transmitters and power reduction

When it is necessary to perform work in the vicinity of a transmitter or its antenna, switching to a remotely

located auxiliary transmitter is an option to temporarily reduce the exposure to RF energy. If an auxiliarytransmitter is not available, the transmitter may need to have its power reduced or be de-energized so that

personnel are not exposed to RF energy levels that exceed permissible limits. When de-energizing an RF

transmitter, workers must ensure that all backup power sources (such as generators, battery power, etc.) are

disconnected, so that no power output is available to the antenna.

8.2.2.3.4 RF personal monitors

8.2.2.3.4.1 RFPM work practices

Establishing work practices for proper adornment of RF monitoring devices is a typical way to inform

personnel and reduce their exposure to RF energy. Use of these monitors can help make workers aware of

unanticipated sources of RF energy. RFPM, which are small clip-on devices, are used to warn workerswhen they are in the presence of RF energy that approaches or exceeds applicable limits. Personal monitors

alert workers when preset RF threshold levels are present; the workers are then able to remove themselves

from the risk area and move to an area where the alarm thresholds of the monitor are not exceeded. In this

way, use of an RFPM enables workers to control their exposure to RF energy. A variety of personal

monitors are commercially available, ranging from simple devices with an alarm threshold set at 50% ofthe applicable standard, to devices that alarm at multiple levels. Some monitors even have the capability to

record RF energy levels for data-logging purposes. However, electric utilities must consider that its electric

workers may function in environments having both RF energy and strong 60 Hz electric and magneticfields. Therefore, before RFPM devices are sanctioned for use by an electric utility, the utility should verify

that the monitors are designed to perform properly while in the presence of both RF energy and strong

60 Hz electric and magnetic fields. Typically, transmitters and antennas that may expose utility workers can

operate in several frequency ranges. Commercial television and radio broadcast, paging systems, mobile

phones, wireless data and satellite systems all operate at different frequencies. Depending on a workers

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proximity, these emitters can also cause exposures above applicable limits. Therefore, most utilities would

find it necessary to procure RFPM devices that operate over a frequency range of at least, e.g., 50 MHz to

40 GHz. Clause 12 provides further details about performance characteristics of RFPM devices.

8.2.2.3.4.2 RFPM certification and electric and magnetic field immunity testing

RF/microwave detection products such as an RFPM must be tested to ensure the intended RF/microwavesignals are accurately detected and are not affected adversely by the power-frequency electric and magnetic

field strength levels associated with close proximity to high-voltage lines.

8.2.2.3.4.3 Periodic re-certification for RFPM

In addition to the initial test, an RFPM must also undergo periodic certification testing for RF signal

detection and power-frequency electric and magnetic field immunity. This testing should be done in

accordance with manufacturers recommendations.

8.2.2.3.5 RF protective equipment

RF protective equipment, such as RF protective clothing, can be worn to allow electric utility work to be

performed in areas where the RF levels exceed federal and/or state limits. However, the same

considerations similar as with the RFPM devices must be applied, i.e., a utility should verify that the RF

protective clothing is rated to work in both high-level 60 Hz electric fields and RF fields. Clause 13provides further details about performance characteristics of RF protective equipment.

8.2.2.3.6 Lock-out/tag-out procedures

Lock-out/tag-out policies for RF transmitters are another form of work practice that prevents the

inadvertent exposure of personnel to RF energy when working in close proximity to RF sources. Lockingout and tagging de-energized RF transmitters is a means of verifying that a transmitter is de-activated and

helps prevent the transmitter from being accidentally re-energized.

9. RF safety considerations for third-party antennas and transmitters

9.1 Establishing RF safety in third-party situations

Another important component included in the RF safety programs of electric utilities is determining how

RF exposure compliance and RF safety will be accomplished when an outside partys transmitters and

associated antennas are mounted on electric utility property. Ideally, RF exposure compliance is determined

before an external party is permitted to attach radiating elements on utility facilities. There are a few typicalmethods for determining RF exposure compliance for third-party situations. For new leases, the electricutility can request that the licensee provide complete transmitter system information to allow the utility to

determine the risk of exposure to RF energy from the lessees equipment. The electric utility could also

require the licensee to submit an RF exposure analysis for its transmitter system or for the entire site. If oneor more outside parties are already co-located with electric utility transmitters or if there is more than one

proposed outside party at a location, it may be prudent for the electric utility and the outside parties to work

together to perform a single RF exposure evaluation applicable for the entire site. Working with external

parties to perform a single analysis for an entire site saves time and reduces costs associated with

performing an RF analysis.

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9.2 RF safety for other nearby third-party RF antennas

In some cases RF transmitters/antennas could be located nearby on structures not belonging to the electric

utility. These RF transmitters/antennas could affect the electric utility employees working on electric power

line structures. In such cases the electric utility employees should wear RFPM for safety reasons.

10. RF safety standard work procedures

Specific work procedures for emergencies, planned maintenance, and new installations ofantenna/transmitter systems located on the utilitys communication towers, rooftops, and transmission and

distribution structures are frequently part of a utilitys RF safety program. Many of the work practices

mentioned in preceding sub-clauses are commonly incorporated into installation, emergency, and plannedmaintenance procedures. Regardless of the work practices used in the procedures, work is only performed

after it has been verified that the RF energy in the work environment has been eliminated, reduced, or

limited to maximum permissible exposure levels, refer to ANSI/IEEE Std C95.1-2005 [B1]. When

defining installation, emergency, and planned maintenance procedures for antennas mounted on

transmission or distribution structures, electric utilities should specify personal protective equipment thathas been designed for use in both 60 Hz electric and magnetic fields and RF fields.

The safety of personnel external to the utility is also taken into account in an electric utilitys RF safety

program. In locations that are accessible by the general public or workers who are unaware of RF hazards

and have not been trained in RF safety, RF levels are reduced such that they are continually in compliance

with the applicable federal and/or state general public limits. Expectations for contractors regarding

compliance with RF exposure standards and worker safety are incorporated in utilities RF safety programsand in the contractors work agreements. When external parties RF sources are located on electric utility

property, such as telecommunications, transmission, or distribution structures, specific procedures and

responsibilities for de-energizing their sources should be negotiated. The procedures that are developed forthe deactivation of external sources are usually included in agreements with the external parties so that

procedures and responsibilities are clear when routine or emergency work, such as changing insulators on a

transmission tower, is performed on or around the external parties RF sources.

11. Documentation and training

It is important to fully document RF safety work practices and procedures, RF safety analyses, and all otherassociated facets of an RF safety program. Once an electric utility has created and documented its RF

safety policy, personnel must be trained in the RF safety program so that they are aware of RF hazards and

ways to control them. Training also must cover the proper use of any protective equipment, such as

protective clothing and RFPM. Electrical workers who work around RF energy sources and radiators must

receive RF safety training in accordance with the developed RF Safety Program. Successful completion ofemployee RF training must be documented and records maintained for reference.

Finally, RF safety programs and associated training must be reviewed and, if necessary, revised

periodically to ensure that programs are up to date, accurate, and effective. Reviewing programs mustinclude periodic site assessments and evaluations, particularly when changes are made that might affect the

RF levels in the environment. Reviewing and revising the RF safety program and training help ensure the

safety of the public and all electric utility employees, as well as continued compliance with federal and/orstate RF regulations.

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12. Immunity of RF personal monitors to electric and magnetic fields fromtransmission lines

12.1 General information

Most of the RFPM available on the market were originally developed for telecommunications use and werenot designed for an environment at transmission line towers where power-frequency electric (E) and

magnetic (H) field strengths are present. In the power-frequency fields environment, the potential

interference to RFPM devices from E and H fields can be observed for at least two possible modes:

a) False alarm while the RF radiation is below the maximum permissible exposure (MPE) limit.

b) Alarm inhibition while the RF radiation is above the MPE limit.

In order to avoid these problems, the RFPM must be immune to certain levels of the E and H fieldstrengths. The level of immunity depends on the required magnitude of the E and H field strengths

corresponding to the activity performed near or on the transmission lines or equipment. Electric utility

employees who are in the exposed RF field may be performing normal inspection or maintenance tasks,

such as changing insulators, where their RFPM may be exposed to strong power-frequency fields. The level

of exposure depends on the particular line live working method. For example, the highest exposure on the

RFPM would occur when the workers are using the barehand method. In such cases, the RFPM (located inthe breast pocket) could be 0.15 m to 0.46 m (0.5 ft to 1.5 ft) from the energized conductor. The objective

here is to assure immunity of the RFPM to the E and H fields that would be conservative and reflect the

highest practical (barehand) exposure to these fields.

12.2 RFPM immunity to power-frequency electric fields

12.2.1 Shielding of the RFPM by users bodyMannequin/phantom tests

a) Tests with and without a mannequin in a conductive suit show that at distances between 15.2 cmto 76 cm (6 in to 30 in) from the energized component (conductor), a conductive body provides

about 70% shielding of the power-frequency E-field on the RFPM located in the breast pocket.

This means that an RFPM with immunity up to 100 kV/m can be used in locations where E-fieldis about 330 kV/m.

b) For practical purposes, it can be assumed that a worker with a RFPM in his breast pocket willprovide at least 50% shielding of the RFPM from the E-field. This would allow a RFPM with

100 kV/m immunity to be used in a 200 kV/m E-field. However, in the event that the RFPM is

held away from the workers body, the shielding effect may be greatly reduced, and from a

conservative point of view it can be assumed that no shielding of the RFPM due to workers bodyexists.

12.2.2 An estimate of the electric fields inside tower windows and at mid-spans of 138 kV,230 kV, 345 kV, 500 kV, and 765 kV lines

The highest E-field exposure occurs during barehand work in a tower window. In this case, the workersRFPM, held in a breast pocket, is about 0.15 m to 0.46 m (0.5 ft to 1.5 ft) away from the energized

conductor. The range of E-fields for exposure from energized transmission lines is between approximately

100 kV/m to 300 kV/m. However, actual exposure of the RFPM depends on the workers position during

barehand work, which will be determined by the conductor configuration, such as four-sub conductorbundle for 765 kV and single-conductor for 138 kV lines. In this respect, for practical purposes, the highest

range of E-field exposures on an RFPM is between 100 kV/m and 200 kV/m. When taking into account a

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50% E-field reduction due to workers body shielding of the RFPM, then the actual E-field exposure upon

the RFPM is down to 50 kV/m to 100 kV/m. Based on this reasoning, it appears that 100 kV/m should be

the target immunity level for RFPM. This would cover most of the cases, when body shielding of the

RFPM is used, or for the remote possibility when it is not. In summary, in order to assure proper operation

of RFPM when used by workers in close proximity (inspection or maintenance work) to energizedtransmission lines, the RFPM must be certified for immunity to power-frequency electric field strengths of

up to 100 kV/m. Refer to IEEE Std C95.6-2002.

12.3 Immunity to power-frequency magnetic fields

The magnitude of a power-frequency magnetic field is proportional to the power-frequency load current in

the transmission line conductors. For each transmission line, there are typically two types of loading;

normal and high (emergency) current. In order to estimate the magnetic flux density (B) exposure

incident upon an RFPM during maintenance and inspection work, consideration was given to normal andhigh load currents for energized transmission lines. Similarly to the electric field, the magnetic field was

calculated for the RFPM located between 0.15 m to 0.46 m (0.5 ft to 1.5 ft) from energized conductors

carrying load current. The results show that at 0.46 m (1.5 ft), the range for the B-field, covering both

normal and high load currents, is between 0.4 G and 8 G. Because barehand work typically is avoided

during high loading (emergency) conditions, the range for normal loading is between 0.4 G and 4 G. Therecommended conservative value of magnetic flux density for immunity testing of RFPM is 5 G. Whereas

an RFPM can be shielded from electric field effects, for magnetic field effects there are no available

practical means of protecting an RFPM. The purpose of the immunity test is simply to show that at 5 G themagnetic field is not affecting the performance of the RFPM.

13. Available RF protection methods

13.1 General

Worker safety must be maintained if utilities are to accommodate installation of wireless communicationequipment on utility structures (towers). One consideration is to utilize similar protection in the form of

protective clothing (conductive clothing) now used by the barehand live-line maintenance crews on high

voltage transmission lines.

13.2 Conductive clothing

Presently, live-line maintenance crews wear conductive clothing that is designed to protect against high

power-frequency electric fields. Live-line conductive clothing has been shown to be highly reflective of RF

energy and is in fact used by broadcast and wireless tower workers for protection against RF exposureswhen levels exceed federal and/or state limits. Moreover, recent guidelines put forth by the FCC and

OSHA further increased the awareness of such hazards, thereby creating additional market demand for RF protective clothing. It should be noted, however, that the configuration of this live-line clothing is

somewhat different from the conductive clothing that is specifically designed for protection against

exposure at much higher-frequencies, and it is here that attention must be paid in order to appropriatelyextend its usefulness to cover both kinds of hazards.

As long as the worker properly wears all the gear while in the presence of these RF antennas, it can be

stated with a reasonably high degree of certainty that he or she will be safe and in compliance with the FCC

guidelines. However, although the worker can wear the presently available conductive hood to protect the

back of the head, the present configuration does not provide for the appropriate gear to protect against RF

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exposures to the face. This is the critical aspect, and as has been previously stated, the cellular and PCS

emitters hold special concerns for this area of the body.

At the time of writing, investigations are underway by the manufacturers of conductive clothing in order to

address both types of exposure concerns for the HV tower worker who may come into the vicinity of RF

energy from antennas. One approach being considered is retrofitting a full hood attachment to the existing

live-line conductive clothing, similar to the one used by the RF tower crews. This configuration wouldallow the transmission line worker to continue using the existing conductive apparel, and by using the

retrofit attachment, would appropriately address the RF safety issue. A second approach may be to redesign

the upper part of the live-line conductive, which would include a newer hood attachment as an add-on

feature to the jacket.

In any case, the RF headgear will need to be affixed to the jacket of the conductive clothing so as to

provide a secure attachment. It would also need to overlap the garment at the collar, and be held firmly inplace so as to prevent RF leakage, and will need to be relatively stable in high-wind conditions. Other

alternatives may take the form of new garments which are specifically designed to address both the

extremely low frequency (ELF) and potential RF hazards. This investigation is currently being carried out

to address the concerns of the utility industry.

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Annex A

(informative)

Bibliography

[B1] ANSI/IEEE Std C95.1-2005, IEEE Standard for Safety Levels with Respect to Human Exposureto Radio Frequency Electromagnetic Fields, 3 kHz to 300 GHz.10,11,12

[B2] ANSI/IEEE Std C95.3-1992, American National Standard Recommended Practice for theMeasurement of Potentially Hazardous Electromagnetic FieldsRF and Microwave.

[B3] ANSI/IEEE Std C95.7-2005, American National Recommended Practice for Radio FrequencySafety Programs, 3 kHz to 300 GHz.

[B4] Code of Federal Regulations Title 29 Part 1910 Section 97 (29 CFR 1910.97), Nonionizingradiation.13

[B5] Corley, B., EME ElectroMagnetic Energy Evaluation and Management for Antenna Sites, Oct.

1997.

14

[B6] Curtis, R. A., Elements of a Comprehensive RF Protection Program: Role of RF Measurements,

presented at National Association of Broadcasters Broadcast Engineering Conference, Las Vegas, NV,

USA, 1995.15

[B7] ESMOL Subcommittee paper, RF Protection of Personnel Working in the Vicinity of WirelessCommunications Antennas Attached to Electric Power Line Structures, ESMO03 Conference

Proceedings, Apr. 610, 2003, Orlando, FL.

[B8] FCC, Guidelines for Evaluating the Environmental Effects of Radiofrequency Radiation, Reportand Order, ET Docket 93-62, FCC 96-326, adopted Aug. 1, 1996, 61 Federal Register 41006 (1996)

[B9] FCC, Office of Engineering and Technology (OET), Evaluating Compliance with FCC-SpecifiedGuidelines for Human Exposure to Radiofrequency Radiation, OET Bulletin 65, Edition 97-01, Aug.

1997, Washington, DC 20554 [NTIS Order No. PB86-127081]. Three supplements to this bulletin

have also been issued: Supplement A (additional information for radio and television broadcasters),

Supplement B (additional information for amateur radio operators), and Supplement C (additional

information for evaluating mobile and portable RF devices).

[B10]FCC, OET, Questions and Answers about Biological Effects and Potential Hazards ofRadiofrequency Electromagnetic Fields, OET Bulletin 56, Fourth Edition, Aug. 1999, Washington, DC

20554.

[B11]IEEE 100, The Authoritative Dictionary of IEEE Standards Terms, Seventh Edition. New York:Institute of Electrical and Electronics Engineers, Inc.

10ANSI publications are available from the Sales Department, American National Standards Institute, 11 West 42nd Street, 13thFloor, New York, NY 10036, USA (http://www.ansi.org/).11IEEE publications are available from the Institute of Electrical and Electronics Engineers, 445 Hoes Lane, Piscataway, NJ 08854,USA (http://standards.ieee.org/).12 The IEEE standards or products referred to in Annex A are trademarks owned by the Institute of Electrical and Electronics

Engineers, Incorporated.13 CFR publications are available from the Superintendent of Documents, U.S. Government Printing Office, P.O. Box 37082,

Washington, DC 20013-7082, USA.14Available at http://www.osha.gov/SLTC/radiofrequencyradiation/index.html.15Available at http://www.osha.gov/SLTC/radiofrequencyradiation/rfpresentation/intro.html.

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[B12] NCRP, Biological Effects and Exposure Criteria for Radiofrequency Electromagnetic Fields,NCRP Report No. 86, Copyright NCRP, 1986, Bethesda, MD 20814.16

[B13]PCIA Compliance Paper, Priority Actions for Timely Compliance Safety Measures for Building-based Antenna Sites, Nov. 1997.17

16NCRP publications are available from the National Council on Radiation Protection and Measurements, 7910 Woodmont Avenue,Suite 800, Bethesda, MD 20814, USA.17Available at http://www.pcia.com/industryconnect/htm/rfpaper.htm.