Had this a few times. Often its that there is no proper incoming earth(from the supplier - bad cable joint in the road somewhere or at sub station or a little bit of copper theft) or the earth fault loop impedance is high so even when the is a fault to earth(as Andy says 2 faults) the fault current flowing is so low its not enough to trip the breaker.
Some dopey electrician come in and uses a multi meter and gets 220v between live and earth and "yes there is earth" but the shocks continue. Yes there is earth, those water pipes go into the ground and you get a kind of earth through the bonding and yes there is 220 between live and "kind of earth". I come in with my nice loop tester and find the external earth fault loop is high(or non existent). Not enough to trip the earth leakage but when the poor customer in question when he/she is soaking wet in a shower the resistance is a little lower and he/she gets a surprises.
First thing to check. Do i have an incoming earth(test with a proper loop tester not a multimeter). Then find the other fault.
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