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New federal safety regulations could push PET plastic-makers out of the country for good.
There are an estimated 40,000 to 60,000 chemicals used commercially today worldwide, and the vast majority of them haven’t been tested for human safety. Many that have been tested are linked to serious human health risks like cancer and reproductive harm. And yet, they continue to pollute our air, water, food, and consumer products.
Among these is 1,4-dioxane, a chemical solvent that’s been linked to liver cancer in lab rodents and classified as a probable human carcinogen. It’s a multipurpose petrochemical, issuing from the brownfields of defunct industrial sites, chemical plants, and factories that use it in solvents, paint strippers, and degreasers. It shows up as an unintentional contaminant in consumer personal care products, detergents, and cleaning products and then goes down the drain into sewer systems.
It is also an unavoidable byproduct from the production of polyethylene terephthalate, more commonly known as PET, one of the most ubiquitous materials in the world. PET is the clear, odorless, food-safe plastic bottle you drink water out of. It’s also the basis of the world’s most popular fabric, used in everything from yoga leggings to baby onesies and area rugs; more than half of all fabric manufactured worldwide today is polyester. “You can't make PET polyester without creating this toxic byproduct 1,4-dioxane,” Mike Belliveau, co-founder of the advocacy organization Defend Our Health, told me. “It’s uniquely tied to the chemistry of the polymer.”
To be clear, there is no 1,4-dioxane in polyester products themselves. But like so-called “forever chemicals,” 1,4-dioxane dissolves quickly and completely into water, making it almost impossible to remove once it gets into a river or reservoir.
In 2012, the U.S. Environmental Protection Agency included 1,4-dioxane in the third iteration of what’s called the Unregulated Contaminant Monitoring Rule, a list the agency puts out every five years of chemicals it considers suspicious and wants states to start testing for. The EPA’s Toxic Release Inventory data shows that in 2019, the top four industrial producers of 1,4-dioxane in the U.S. were PET plastic or polyester factories; in 2022, it was five out of the top 10. That same year, a polyester manufacturer lost its permit to dispose of its waste at a treatment plant in New Jersey after state authorities discovered 1,4-dioxane in the drinking water and traced it back to the company.
Now, nearly 12 years later, not only has 1,4-dioxane proved to be shockingly prevalent, it has also been shown to be shockingly dangerous. The EPA may be on the verge of declaring, effectively, that almost any exposure to 1,4-dioxane constitutes an unreasonable risk to human health. Doing so would rock the American chemical and plastics manufacturing industry. But the alternative is being okay with rising cancer rates – an inconvenient fact the chemical industry would rather you not think about when you’re at the store.
North Carolina offers one representative case study. In 2013, a team from NC State University began testing for and finding 1,4-dioxane throughout the Cape Fear watershed, a network of rivers that starts in the mountains above Greensboro and flows southeast through Fayetteville and Wilmington before emptying into the ocean. At first, it was unclear exactly who the culprit of this widespread carcinogenic contamination could be. But by 2015, researchers had pinpointed a handful of sources: the wastewater treatment plants of Asheboro, Greensboro, and Reidsville.
Greensboro processed wastewater from an industrial waste transporter and chemical plant, Asheboro from a plastics plant, and Reidsville from Dystar, a dye and chemical manufacturer, and Unifi, a polyester manufacturer. DAK (now known as Alpek), another plastic manufacturer in Fayetteville, was also releasing 1,4-dioxane into the Lower Cape Fear River near Wilmington at a high enough level to consistently violate its permit. It is impossible at the moment to distinguish 1,4-dioxane’s impact on the health of people in the Cape Fear watershed from the impact of the more infamous class of carcinogenic forever chemicals that also lurk there: PFAS. But as with many pollutants, in the U.S., 1,4-dioxane’s is disproportionately found in Black and Brown communities.
Wherever PET or polyester is made, from the Gulf Coast to the Nakdonggang watershed in Korea, 1,4-dioxane is a problem. Typical water treatment technology can’t remove it, so when polyester manufacturers or other industries discharge contaminated wastewater to municipal treatment plants, the carcinogen flows right through and ends up in the groundwater or watershed.
In North Carolina, the state, the cities, and manufacturers began arguing about what could, and should, be done about it. “My biggest concern in drinking water in North Carolina right now, it’s 1-4 dioxane,” Tom Reeder, Assistant Secretary for the Environment at the state Department of Environmental Quality, said in 2016.
Dystar and Unifi submitted remediation plans to Reidsville, and Dystar told the NC Department of Environmental Quality’s Division of Water Resources that it was distilling the 1,4-dioxane out of its wastewater and storing it on-site. Dystar didn’t answer Heatmap’s questions, and Unifi said the spokesperson qualified to speak on the topic wasn’t available. The NC DEQ referred Heatmap to Reidsville, which didn’t respond to calls and emails. The lead 1,4-dioxane researcher at NC State also did not respond to requests for information or an interview.
Perhaps this is because of how contentious this issue has been for all involved parties. In 2022, the NC Environmental Management Commission attempted to make a rule limiting 1,4-dioxane in factory wastewater to .35 parts per billion. Unifi and Dystar wrote letters protesting the rule and Asheboro filed a lawsuit against the limits, with Reidsville attempting to join. The rule was eventually nullified because it didn’t fully consider the financial burden it would impose on these cities.
But the way the science is going, these decisions may be taken out of North Carolina’s hands.
In 2016, Congress passed an amendment to the Toxic Substances Control Act (TSCA, or “toss kuh”) instructing the EPA to fast-track risk analyses of chemicals of concern. Under the new law, if the EPA finds that a chemical poses an “unreasonable risk” to human health, it is required to regulate it down to reasonable levels — regardless of the economic impact. One of the first 10 chemicals on the docket was 1,4-dioxane.
Then, of course, came 2017 and the arrival of the Trump administration, which interfered to weaken EPA’s published toxicity findings to make them cheaper for industry to comply with. For example, the 1,4-dioxane analysis excluded the risk of exposure via drinking water, even though more than 7 million people in the U.S. have drinking water with detectable levels of 1,4-dioxane. Many of the findings were repeatedly challenged in court.
When the Biden administration reanalyzed 1,4-dioxane, the draft findings published in 2023 said that 1,4-dioxane poses an “unreasonable risk” to the health of PET and polyester plant workers and people with contaminated drinking water. “As high as 2.3 in 100 exposed workers would be at risk of cancer over a lifetime of exposure,” Jon Kalmuss-Katz, a senior attorney with Earthjustice, which has submitted comments to the EPA, told me. “The EPA considers the range of unreasonable risk to be one in 10,000 to one in a million.” That’s a 100- to 10,000-fold difference.
Some advocates saw a death knell for any remaining environmental arguments for polyester. “The federal government basically concluded that polyester PET poses an unreasonable risk to human health,” Belliveau told me.
The risk evaluation has already gone through a comment period and a peer-review process, and the EPA expects to finalize its evaluation this year. When asked for comment, an EPA representative said, “Actual conditions and releases are highly variable and subject to site-by-site process conditions. The draft supplement to the risk evaluation should not be interpreted to suggest all sites that manufacture PET or polyester present unreasonable risk.”
Despite letters from the American Chemistry Council, the Cleaning Institute, the Plastics Industry Association, and the PET manufacturer Alpek (formerly DAK) attempting to poke holes in the science, the advocates I spoke to were confident the “unreasonable risk” determination will stay.
At that point, the EPA has several tools it can use. “EPA can regulate manufacturing, can ban the chemical, can ban uses of the chemical, can restrict releases of the chemical to the environment,” says Kalmuss-Katz. “But the underlying mandate is always the same. EPA has to ensure that the chemical no longer presents an unreasonable risk.”
According to Thomas Mohr, a hydrogeologist who wrote the book on the investigation and remediation of 1,4-dioxane, polyester plants could simply require employees to wear respirators, and there are commercially available technologies available to filter out the chemical from wastewater — things like vacuum stripping and incineration, collecting it on a resin, or blasting it with ultraviolet light. But these processes are specialized and come with added costs.
That latter consideration is important for an industry that is already struggling to compete with low-cost polyester from China and other developing countries. Of the 115 American polyester manufacturing companies in the 1970s, only 12 remain in business today, according to a history book by Unifi, the polyester manufacturer in Reidsville.
Unifi barely survived the great textile offshoring of the late 1990s and early 2000s, mostly by shrinking and laying off large swaths of its workforce, buying and setting up plants in China and South America, and specializing in premium recycled polyester in its North Carolina plant. At the beginning of February, Unifi announced it would cut costs to shore up its finances. Adding a high-price treatment unit might be too much for it to bear. (Unifi said its spokesperson on this topic was not available for comment.)
Belliveau of Defend Our Health said he would be happy to see PET and polyester go away. But that’s a far-off vision for such a popular material. “EPA is not known for its radical vision, so I doubt they’re going to call for the shut-down of PET polyester in the U.S.,” he told me. “They might say that we need to adopt a drinking water standard or put better control in plants for workers.”
“Often there is a multi-year phase-out period,” Kalmuss-Katz said. “There is time to respond to innovate and to develop safer alternatives and to get those out into use.” Some of those alternatives could be polyester recycling technologies. France-based Carbios and California-based Ambercycle, both startups working on textile-to-textile polyester recycling, say their processes don’t produce 1,4-dioxane. A representative for Circ, a Virginia-based textile recycling startup, would only say that it, “is adhering to all local and federal regulations to ensure its process is in line with the highest regulatory standards for safe chemistry… this is something the team will be following closely as data becomes more available.”
Polyester has become a core part of almost everyone’s wardrobe, used for its high performance, versatility, and affordability. More importantly for the Carolinas, it provides some of the few remaining jobs in a formerly vibrant textile center. To that, Kalmuss-Katz said, “Congress made pretty clear that the price of producing polyester cannot be fenceline communities are left with disproportionate and unreasonable cancer burdens.”
Still, even if the EPA’s decision is the final nail in the coffin of the PET and polyester industry in the U.S., it doesn’t really solve the problem, or rather, not for everyone. Like other industries before it — leather tanning, rayon manufacturing, dye houses and dye manufacturing — it will continue to exist in its dirtiest form in other, less regulated countries. If the United States’ past history of offshoring turns out to be prologue, most consumers probably won’t notice the difference, except perhaps in slightly cheaper prices. Fashion companies will certainly notice, but are incentivized to look the other way.
For a few people paying attention, polyester will simply join a long list of products — chocolate, electronics, cheap meat — that come with a niggling feeling in the back of our minds: this has probably harmed someone on its way to me.
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Investing in red states doesn’t make defying Trump any safer.
In the end, it was what the letters didn’t say.
For months — since well before the 2024 election — when asked about the future health and safety of the clean energy tax credits in the Inflation Reduction Act, advocates and industry folks would point to the 20 or so House Republicans (sometimes more, sometimes fewer) who would sign on to public statements urging their colleagues to preserve at least some of the law. Better not to pull out the rug from business investment, they argued. Especially not investment in their districts.
These letters were “reassuring to a lot of folks in clean energy and climate communities,” Chris Moyer, the founder of Echo Communications and a former staffer for longtime Senate Majority Leader Harry Reid, told me.
“I never felt reassured,” Moyer added.
Plenty of people did, though. The home solar company Sunrun, for instance, told investors in a presentation earlier this monththat a “growing number of Republicans in Congress — including 39 overall House members and four Senators — publicly support maintaining energy tax credits through various letters over the past few months.” The company added that “we expect a range of draft proposals to be issued, possibly including draconian scenarios, but we expect any extreme proposals will be moderated as they progress.”
Instead, the draft language got progressively worse for the residential solar industry, with the version that passed the House Thursday morning knocking billions of dollars off the sector, as tax credits were further squeezed to help make room for other priorities that truly posed an existential threat to the bill’s passage.
What Sunrun and others appear to have failed to notice — or at least publicly acknowledge — is that while these representatives wanted to see tax credits preserved, they never specified what they would do if their wishes were disregarded. Unlike the handful of Republicans who threatened to tank the bill over expanding the deduction for state and local taxes (each of whom signed one of the tax credit letters, at some point), or the Freedom Caucus, who tend to vote no on any major fiscal bill that doesn’t contain sizable spending cuts (so, until now, every budget bill), the tax credit Republicans never threatened to kill the bill entirely.
Ultimately, the only Republicans to outright oppose the bill did so because it didn’t cut the deficit enough. All of the House Republicans who signed letters or statements in support of clean energy tax credits voted yes on the legislation, with a single exception: New York’s Andrew Garbarino, who reportedly slept through the roll call. (He later said he would have voted for it had he been awake.)
“The coalition of interests effectively persuaded Republican members that tax credits were driving investment in their districts and states,” Pavan Venkatakrishnan, an infrastructure fellow at the Institute for Progress, told me in a text message. “Where advocates fell short was in convincing them that preserving energy tax credits — especially for mature technologies Republicans often view skeptically — should take precedence over preventing Medicaid cuts or addressing parochial concerns like SALT.”
The Inflation Reduction Act itself was, after all, advanced on a party-line basis, as was Biden’s 2021 American Rescue Plan. Combined, those two bills received a single Democratic no vote and no Republican yes votes.
In the end, Moyer said, Republican House members in the current Congress were under immense political pressure to support what is likely to be the sole major piece of legislation advanced this year by President Trump — one that contained a number of provisions, especially on SALT, that they agreed with.
“There are major consequences for individual house members who vote against the president’s agenda,” Moyer said. “They made a calculation. They knew they were going to take heat either way. They would rather take heat from clean energy folks and people affected by the projects.”
It wasn’t supposed to be this way.
White House officials and outside analysts frequently touted job creation linked to IRA investments in Republican House districts and states as a tangible benefit of the law that would make it politically impossible to overturn, even as Congress and the White House turned over.
“President’s Biden’s policies are leading to more than 330,000 new clean energy jobs already created, more than half of which are in Republican-held districts,” White House communications director Ben LaBolt told reporters last year, previewing a speech President Biden would give on climate change.
Even after Biden had been defeated, White House climate advisor Ali Zaidi told Bloomberg that “we have grown the political consensus around the Inflation Reduction Act through its execution,” citing one of the House Republican letters in support of the clean energy tax credits.
One former Biden White House climate official told me that having projects in Republican districts was thought by the IRA’s crafters to make the bill more politically sustainable — but only so much.
“A [freaking] battery factory is not going to save democracy,” the official told me, referencing more ambitious claims that the tax credits could lead to more Democratic electoral victories. (The official asked to remain anonymous in order not to jeopardize their current professional prospects.) Instead, “it was supposed to make it slightly harder for Republicans to overturn the subsidies.”
Congresspeople worried about jobs weren’t supposed to be the only things that would preserve the bill, either, the official added. Clean energy and energy-dependent sectors, they thought, should be able to effectively advocate for themselves.
To the extent that business interests were able to win a hearing with House Republicans, they were older, more traditionally conservative industries such as nuclear, manufacturing, agriculture, and oil and gas.The biofuels industry (i.e. liquid Big Agriculture) won an extension of its tax credit, 45Z. The oil and gas industry’s favored measure, the 45Q tax credit for carbon sequestration, was minimally fettered. Nuclear power was the one sector whose treatment notably improved between the initial draft from the House’s tax-writing committee and the version voted on Thursday. Advanced nuclear facilities can still claim tax credits if they start construction by 2029, while other clean energy projects have to start construction within 60 days of the bill’s passage and be in service by the end of 2028.
“I think these outcomes are unsurprising. In places where folks consistently engaged, things were protected,” a Republican lobbyist told me, referring to manufacturing, biofuels, and nuclear power, requesting anonymity because they weren’t authorized to speak publicly. “But assuming a project in a district would guarantee a no vote on a large package was always a mistake.”
“The relative success of nuclear is a testament to the importance of having strong champions — predictable but notable show of political might,” a second Republican lobbyist told me, who was also not allowed to speak publicly about the bill.
But all hope isn’t lost yet. The Senate still has to pass something that the House will agree with. Some senators had made noises about how nuclear, hydropower, and geothermal were treated in the initial language.
“Budget reconciliation is, first and foremost, a fiscal exercise,” Venkatakrishnan told me. “Energy tax credits offer a path of least resistance for hitting lawmakers’ fiscal targets. As the Senate takes up this bill, the case must be made that the marginal $100 billion to $200 billion in cuts seriously jeopardizes grid reliability and energy innovation.” Whether that will be enough to generate meaningful opposition in the Senate, however, is the $600 billion question.
A loophole created by the House Ways and Means text disappeared in the final bill.
Early this morning, the House of Representatives launched a full-frontal assault on the residential solar business model. The new language in the budget reconciliation bill to extend the Tax Cuts and Jobs Act passed Thursday included even tighter restrictions on the tech-neutral investment tax credits claimed by businesses like Sunrun when they lease solar systems to residential buyers.
While the earlier language from the Ways and Means committee eliminated the 25D tax credit for those who purchased home solar systems after the end of this year (it was originally supposed to run through 2034), the new language says that no credit “shall be allowed under this section for any investment during the taxable year” (emphasis mine) if the entity claiming the tax credit “rents or leases such property to a third party during such taxable year” and “the lessee would qualify for a credit under section 25D with respect to such property if the lessee owned such property.”
This is how you kill a business model in legislative text.
“Expect shares of solar companies to take a significant step back,” Jefferies analyst Julien Dumoulin-Smith wrote in a note to clients Thursday morning, calling the exclusion “scathing.” Investors are “losing the now false sense of security that we had 'seen the worst' of it with the initial House draft.”
Joseph Osha, an analyst for Guggenheim, agrees. “Considering the fact that ~70% of the residential solar industry is now supported by third-party (e.g. lease or PPA) financing arrangements, the new language is disastrous for the residential solar industry,” he wrote in a note to clients. “We believe the near-term implications are very negative for Sunrun, Enphase, and SolarEdge.”
Shares of Sunrun are down 37.5% in mid-day trading, wiping off almost $1 billion worth of value for its shareholders. The company did not respond to a request for comment. Shares of fellow residential solar inverter and systems Enphase are down 20%, while residential solar technology company SolarEdge’s shares are down 24.5%.
“Families will lose the freedom to control their energy costs,” Abigail Ross Hopper, chief executive of the Solar Energy Industries Association, said in a statement, in reference to the last-minute alteration to the investment tax credit.
When the House Ways and Means Committee released the initial language getting rid of 25D by the end of this year but keeping a limited version of the investment tax credit, analysts noted that Sunrun was an unexpected winner from the bill. It typically markets its solar products as leases or power purchase agreements, not outright sales of the system.
The reversal, Dumoulin-Smith wrote, “comes as a surprise especially considering how favorable the initial markup was” to the Sunrun business model.
“Our core solar service offerings are provided through our lease and power purchase agreements,” the company said in its 2024 annual report. “While customers have the option to purchase a solar energy system outright from us, most of our customers choose to buy solar as a service from us through our Customer Agreements without the significant upfront investment of purchasing a solar energy system.”
The new bill, Dumoulin-Smith writes is “‘leveling the playing field’ by targeting all future residential solar originations, whether leased or owned.” The bill is “negative to Sunrun with intentional targeting of the sector.
Last year, Sunrun generated over $700 million from transferring investment tax credits from its solar and storage projects. The company said that it had $117 million of “incentives revenue” in 2024, which includes the tax credits, out of around $1.4 billion in total revenue.
But the tax credits play a far larger role in the business than just how they’re recognized on the company’s earnings statements. The company raises investment funds to help finance the projects, where investors get payments from customers as well as monetized tax credits. Fund investors “can receive attractive after-tax returns from our investment funds due to their ability to utilize Commercial ITCs,” the company said in its report. Conversely, the financing “enables us to offer attractive pricing to our customers for the energy generated by the solar energy system on their homes.”
Morgan Stanley analyst Andrew Perocco wrote to clients that “this is a noteworthy change for the residential solar industry, and Sunrun in particular, which dominates the residential solar [third-party owned] market and has recognized ITC credits under 48E.”
Current conditions: A late-season nor’easter could bring minor flooding to the Boston area• It’s clear and sunny today in Erbil, Iraq, where the country’s first entirely off-grid, solar-powered village is now operating • Thursday will finally bring a break from severe storms in the U.S., which has seen 280 tornadoes more than the historical average this year.
1. House GOP passes reconciliation bill after late-night tweaks to clean energy tax credits
The House passed the sweeping “big, beautiful” tax bill early Thursday morning in a 215-214 vote, mostly along party lines. Republican Representatives Thomas Massie of Kentucky and Warren Davidson of Ohio voted no, while House Freedom Caucus Chair Andy Harris of Maryland voted “present;” two additional Republicans didn’t vote.
The bill will effectively kill the Inflation Reduction Act, as my colleague Emily Pontecorvo has written — although the Wednesday night manager’s amendment included some tweaks to how, exactly, as well as a few concessions to moderates. Updates include:
The bill now heads to the Senate — where more negotiations will almost certainly follow — with Republicans aiming to have it on President Trump’s desk by July 4.
2. FEMA cancels 4-year strategic plan, axing focus on ‘climate resilience’
The combative new acting administrator of the Federal Emergency Management Agency, David Richardson, rescinded the organization’s four-year strategic plan on Wednesday, per Wired. Though the document, which was set to expire at the end of 2026, does not address specific procedures for given disasters, it does lay out goals and objectives for the agency, including “lead whole of community in climate resilience” and “install equality as a foundation of emergency management.” In axing the strategic plan, Richardson told staff that the document “contains goals and objectives that bear no connection to FEMA accomplishing its mission.”
A FEMA employee who spoke with Wired stressed that while rescinding the plan does not have immediate operational impacts, it can still have “big downstream effects.” Another characterized the move by the administration as symbolic: “There are very real changes that have been made that touch on [equity and climate change] that are more important than the document itself.”
3. Energy Department redirects Puerto Rican rooftop solar investment to upkeep of fossil fuel plants
The U.S. federal government is redirecting a $365 million investment in rooftop solar power in Puerto Rico to instead maintain the island’s fossil fuel-powered grid, the Department of Energy announced Wednesday. The award, which dates to the Biden administration, was intended to provide stable power to Puerto Ricans, who have become accustomed to blackouts due to damaged and outdated infrastructure. The Puerto Rico Electric Power Authority declared bankruptcy in 2017, and a barrage of major hurricanes — most notably 2017’s Hurricane Maria — have destabilized the island’s grid, Reuters reports.
In Energy Secretary Chris Wright’s statement, he said the funds will go toward “dispatching baseload generation units, supporting vegetation control to protect transmission lines, and upgrading aging infrastructure.” But Javier Rúa Jovet, a public policy director for Puerto Rico’s Solar and Energy Storage Association, added to The Associated Press that “There is nothing faster and better than solar batteries.”
4. EDF, Shell, and others to collaborate on hydrogen emission tracker
The Environmental Defense Fund announced Wednesday that it is launching an international research initiative to track hydrogen emissions from North American and European facilities, in partnership with Shell, TotalEnergies, Air Products, and Air Liquide, as well as other academic and technology partners. Hydrogen is an indirect greenhouse gas that, through chemical reactions, can affect the lifetime and abundances of planet-warming gases like methane and ozone. Despite being a “leak-prone gas,” hydrogen emissions have been poorly studied.
“As hydrogen becomes an increasingly important part of the energy system, developing a robust, data-driven understanding of its emissions is essential to supporting informed decisions and guiding future investments in the sector,” Steven Hamburg, the chief scientist and senior vice president of EDF, said in a statement. Notably, EDF took a similar approach to tracking methane over a decade ago and ultimately exposed that emissions were “a far greater threat” than official government estimates suggested.
5. The best-selling SUV in America will now be available only as a hybrid
Toyota
The bestselling SUV in America, the Toyota RAV4, will be available only as a hybrid beginning with the 2026 model, Car and Driver reports. The car will be available both as a conventional hybrid and as a plug-in that works with CCS-compatible DC fast chargers, meaning “owners can quickly fill up its battery during long road trips” to minimize their fossil fuel mileage, The Verge adds. The RAV4 will also beat the Prius for electric range, hitting up to 50 miles before its gas engine kicks in.
Toyota’s move might not come as a complete surprise given that the automaker already introduced a hybrid-only lineup for its Camry. But given the popularity of the RAV4, Car and Driver notes that “if you ever wondered whether or not hybrids have entered the mainstream yet, perhaps this could be a tipping point.”
Nathan Hurner/USFWS
The Fish Lake Valley tui chub, a small minnow threatened by farming and mining activity, could become the first species to be listed as endangered under the second Trump administration.