Simple answer, no one knows. Regulatory authorities assume that
radiation doses follow a linear plot based on cases of high dose
exposure alone, and do extrapolate down to zero, because there is
little to no information of effects of low doses, and they have to
assume something (they cannot simply ignore low doses, so they
assume the worst).
Currently, all knowledge of radiation and it's effects comes
from relatively high doses, i.e. from accidents like Chernobyl,
since you can't actually experiment to see what happens, and low
dose effects are very long term and any conditions the do later
develop cannot be specifically assigned to low dose radiation
exposure conclusively.
However, there is some study on a principle called radiation
hormesis that suggests that low doses in addition to the natural
background are actually beneficial.