At the end of February 2004 the German Institute for Urban Affairs (DIFU) published the anthology "Mobile communications as a source of conflict: Local scopes of action and solution strategies". The different authors describe in 14 articles their diverging experiences and positions as parties "involved in" and "affected by" the entire topic of mobile communications, in particular with respect to mobile phone base stations. The editor, Cornelia Rösler, is a member of DIFU staff. The anthology (in German language) can be ordered at the DIFU for a low fee.

The publication was initiated in order to highlight the difficult situation of local authorities to mediate between the public�s fears and the interests of mobile phone operators while trying to meet precaution, information and counselling, transparency and coordination requirements when new base stations are built. The DIFU arranged two seminars in Cologne in September 2002 and January 2003 in cooperation with the German Association of Towns and Cities (Deutscher Städtetag). At these seminars, the participants examined the local authorities� options in fulfilling the tasks mentioned. The diverging approaches of different parties involved were presented and discussed. The above mentioned anthology comprises a summary of seminar contributions and discussion results as well as the positions of mobile phone operators and a citizens' initiative.

The objective of this publication is to help reduce conflicts by presenting the different views of local authorities, mobile phone operators, citizens� initiatives etc. since it is necessary to be fully aware of the different positions and diverging attitudes in order to avoid and resolve conflicts.

Content

The articles cover the subjects of precaution and planning laws for the expansion of the mobile phone network in Germany, exposures caused by mobile phone base stations, importance of risk communication, experiences and procedures in different cities, mobile communications in the view of consumer protection and the public, scopes of action for local authorities and network operators as well as success factors for their cooperation. Some contributions provide a profound insight into a specific subject matter (such as the remarks on planning laws or exposures caused by base stations) so that they might serve as a type of �guidepost� to this subject. Some other articles deliver a process-related overview of the local handling of the siting problem by describing the experiences made in different German cities (Nuremberg, Munich, Heidelberg, Duisburg and Düsseldorf) with the expansion of the mobile communications network. The city of Munich, e.g., has attached great importance to informing the public comprehensively from the start as well as reducing the exposures. Nuremberg emphasises Round Table procedures and specifically respects sensitive areas in the siting process. A working group was formed from the outset in Heidelberg, which brought together representatives of the principal parties involved and affected in order to adopt a consensual siting process from the very first. This process was supported by public discussions, exposure measurements and public presentations of the results in order to encourage a constructive debate. The city of Duisburg developed a concept called the "Duisburg model", which was supposed to meet the public�s concerns and fears. This model does not strictly rule out sensitive areas such as nurseries, schools and hospitals as potential sites for base stations but rather considers these areas with respect to the so-called "umbrella or lighthouse effect". If any uncertainties arise in the public, additional measuring campaigns are carried out. In Düsseldorf, a "Voluntary Agreement" (agreement on the exchange of information and participation of the local authorities in the expansion of the mobile communications network concluded between the central municipal associations and network operators) is taken as the basis for the siting process. First of all, measurements were carried out in order to gain an overview of the radiation burden and a "Round Table" of network operators and initiatives opposing mobile communications tried to establish concerted precautionary criteria for the expansion of the mobile communications network.

The importance of informing the public adequately and at an early stage (by, e.g., information sessions, brochures, through measurements and publication of measuring results) appears to be a central aspect in the articles of this anthology. The consumer protection representatives underline that the public�s fears must be considered seriously instead of being perceived as a source of irritation. Above all, the essence of the articles is that a continued dialogue between all parties involved is the only way to come to a consensus in parts before conflicts arise. If a dialogue is initiated as early as possible before the diverging attitudes harden, it is all the more likely that agreements between the different parties can be reached.

BfS assessment

The numerous and varied articles illustrate in a comprehensive way the local authorities� tasks in their role as mediators between the conflicting priorities associated with mobile communications. The experiences from different German cities show that in spite of the "common framework" – in particular the voluntary agreement on mobile communications networks between the central municipal associations and network operators as well as the operators� voluntary commitment – every city reaches a specific conclusion for the siting process of base stations through discussion and deliberation.

Yet a reader concerned with the whole subject might be interested in a more detailed insight into the specific problems, the conflicts arising from the implementation of the different approaches and/or models (e.g. �Duisburg model�) and the resulting possibilities for improvement. It is in particular this critical positive and negative evaluation of existing procedures which might help local authorities who are interested in the assessment and adoption of implemented models and/or approaches to make practical use of these experiences.

It would be reasonable to actively distribute this publication to the actors of mobile communications and to encourage them to discuss the "other" positions. This is the only way to provide an insight into the numerous views of the subject of mobile communications by describing the approaches and positions of the different parties involved and to contribute to a gradual and constructive rapprochement of the different players and positions in order to reduce conflicts.