Colorado is trying to move things along in an effort to expand our understanding of air pollution.
It's not just the hydrocarbons like methane and CO2. Those are important - obviously - but we've been neglecting the problems of airborne toxic substances for a very long time.
Colorado identifies its top five toxic air contaminants. Next comes rules to regulate them.
House Bill 1244, passed in 2022, laid out a roadmap to a street-level toxic air pollution program
The Colorado Air Quality Control Commission on Friday named five pollutants as priority air toxics, one of the key steps in a multiyear process to ratchet back neighborhood air pollution.
Those hazardous pollutants, known as air toxics, are formaldehyde, benzene, hexavalent chromium compounds, ethylene oxide and hydrogen sulfide.
(You may remember "hexavalent chromium" from the movie Erin Brockovich - very bad in water, and not particularly better in the air. It's bad shit.)
The contaminants are separate from the U.S. Environmental Protection Agency’s greenhouse gas and ozone regulations, though four of the five of them appear on both lists. The new list, known as regulation 30, was created to target street-level toxins with adverse health effects on individuals, and to fill in gaps in the federal framework.
The list is the latest move to comply with Colorado House Bill 1244, passed in 2022, which laid out a roadmap to a more robust toxic contaminants program. One of the bill’s statutes required the Air Quality Control Commission and Air Pollution Control Division to identify “up to five” priority toxins by April 30, which will become the focus of a yearlong regulation-building process.
By April 30, 2026, the commission must create “health-based” standards for each of the toxins, and establish new monitoring and enforcement protocols.
The state-led program is meant to be more stringent than the EPA’s regulations, and will be shielded from any federal changes to the EPA. The new program also gives the commission more flexibility in determining which compounds to target.
The bill allows contaminants to be added at any time, within reason, and requires a review of the list at least once every five years. Advocacy groups like Green Latinos encouraged the division to review the list on a more frequent, rolling basis. While representatives from Weld County’s Board of Commissioners were concerned about the feasibility of constantly creating new regulations.
“All legislation as it pertains to air quality is not just a matter of, you know, meeting ambitious goals around (nitrogen oxide) reduction or greenhouse gas reduction, but rather what are the specific things we’re doing to improve the health of residents in Colorado,” said Michael Ogletree, director of the Air Pollution Control Division.
Those specifics were debated by representatives from the oil and gas industry, environmental justice groups, local governments and county commissioners Thursday and Friday.
Meet your top five toxics
Almost every toxin selected by the Air Pollution Control Division was challenged at some point during the two days of testimony. The biggest headaches for the commission were the inclusion of acrolein — swapped for formaldehyde at the eleventh hour — and hydrogen sulfide, a compound that is not flagged by the EPA as a hazardous air pollutant.
So, what are the first five toxics?
The compound formaldehyde was presented by the Green Latinos advocacy group as a substitute for acrolein, which was originally included on the list. Both are combustion-related compounds emitted from natural gas processing plants. However, formaldehyde is considered a probable cancer-causing compound by the EPA, where acrolein is not. A number of other parties followed Green Latino’s suit and pushed to include formaldehyde instead of acrolein.
The largest emitter by far of formaldehyde in Colorado is wildfires. But looking only at sources that can be directly regulated, the impacts of regulation would mostly be felt in the oil and gas industry.
Benzene, on the other hand, received almost no pushback.
It’s a widely used chemical found in everyday sources like cleaning products, paint and gasoline, and is also emitted from combustion sources, like vehicle exhaust and fires. Most of the stationary benzene emissions in Colorado — about 70% — come from oil and gas activities.
Residents in Commerce City and northeast Denver have criticized the nearby Suncor refinery for exposing them to benzene for years, and the EPA has repeatedly cited and fined the refinery for its out-of-control emissions.
Hexavalent chromium was chosen because of its cancer risk. The vast majority of hexavalent chromium emitted in Colorado comes from coal-fired power plants, which the state is in the process of shutting down by 2031. The division maintained that the greatest risks to individuals’ health comes from smaller manufacturers that work with metals and glass.
Ethylene oxide is a colorless gas used in making a range of everyday products, including antifreeze, textiles, plastics, detergents and adhesives, according to the division. It’s primarily emitted from commercial sterilizers, like Terumo BCT in Lakewood, which is already under ethylene oxide restrictions after pressure from nearby residents and the EPA.
Finally, hydrogen sulfide, the colorless gas that smells like rotten eggs at low levels (the one that signals a nearby hot spring), is emitted from natural sources, like decaying organic matter, and industrial activities like petroleum refining and wastewater processing.
Hydrogen sulfide is not on the EPA’s list of hazardous air pollutants, and has not been shown to cause cancers. According to the division’s report, it was added to the list because of its cumulative effects — its ability to join with other toxic compounds and cause headache, nausea and chronic coughs, among other symptoms. The data showing hydrogen sulfide as a significant risk was primarily taken from monitors by the nonprofit advocacy group Cultivando, which tracks the air quality around Commerce City.
The limited data around hydrogen sulfide raised questions from groups like the Colorado Petroleum Association and Metro Water Recovery. The toxin is emitted from the wastewater treatment center’s massive “digesters,” tanks where the matter is broken down. Metro asked the commission to exempt wastewater facilities from its regulations.
But advocacy groups from Commerce City and northeast Denver provided resident testimony and data that encouraged the commission to include the compound in its priority list. As the commission later reiterated, one of the reasons the air toxics program was created is to fill in gaps in the federal framework, and the lack of widespread data didn’t preclude its inclusion.
Representatives from the City and County of Denver went a step further and insisted that “lived experience” should be considered relevant data for choosing new toxins.
What’s in and what’s out
To narrow it down to the first five targeted toxics, the Air Pollution Control Division started with a list of 477 possible contenders — basically, anything found in Colorado air that has been known to cause cancer or other serious health effects.
They surveyed state-controlled air quality monitors, and EPA measurements and models, to whittle that list down to 142 contaminants with enough data available to analyze, then screened each one for its cancer and noncancer risks.
That process popped out 41 contaminants that exceeded the risk thresholds. For cancer risk, that threshold is anything greater than 100 cancer cases per million people caused by a single compound. For noncancer risk, that threshold is measured as a “hazard quotient.” Anything above a hazard quotient of 1 is expected to cause adverse effects.
Finally, the division ruled out any toxics emitted mainly by vegetation, soils or wildfires, and excluded mobile sources of toxics. The remaining toxics were ranked from highest to lowest in terms of cancer and noncancer risks, and the five compounds were chosen.
Three toxins were chosen because they had the highest risk rankings in each category, two were chosen because of their high risk and wide exposure.
A chicken and a rotten egg situation
One major point of contention at Thursday’s hearing was about the order of operations. The statute requires the commission to pick out their priority toxics before April 30, after which, the regulatory discussions can begin.
The Colorado Chamber of Commerce, the Colorado Oil and Gas Association, the American Petroleum Institute and Weld County commissioners all argued that the process was too stripped of context to make informed decisions. Weld County argued for a more “holistic” approach to the decision process, and urged the commission not to get “caught up” in the step-by-step deadlines.
All of the groups emphasized the need to gain the public’s trust with the new program, and argued that prematurely deciding which contaminants to regulate, without assessing feasibility or economic impacts, could ruin the chances of a successful program rollout.
Advocacy groups like Cultivando and Green Latinos, on the other hand, pushed for establishing the priority contaminants. And the Air Pollution Control Division, which will be responsible for implementing the new program, acknowledged that the new program is a “paradigm shift” in how the commission and division manage risks.
“(We) have spent a lot of effort recently before this commission to address global pollution, climate change, and regional pollutants in our areas of non-attainment,” said Amanda Damweber, air toxics regulation supervisor for the Colorado Department of Public Health and Environment. “Air toxics are fundamentally different. They require new policies and regulations to better manage risk for Colorado.”