EPA Settles with Pixelle Specialty Solutions for Clean Air Act Violations
Kraft pulp and paper mill in Chillicothe, Ohio repeatedly failed to control hazardous air pollutants, exceeded emission limits, and delayed repairs, exposing the community to years of excess pollution before settling with the EPA for $234,440.
Pixelle Specialty Solutions LLC, a kraft pulp and paper mill in Chillicothe, Ohio, violated the Clean Air Act for years by failing to properly control hazardous air pollutants, operating pollution equipment well below required efficiency, exceeding carbon monoxide and opacity limits, and delaying critical repairs. Performance tests showed the facility removed only 8.0 pounds of hazardous air pollutants per ton instead of the required 10.2 pounds. The EPA settled the case for $234,440 without the company admitting wrongdoing, leaving questions about accountability and deterrence.
Environmental violations that span years show how corporate cost-cutting can override public health protections.
The Allegations: A Breakdown
| 01 | Pixelle failed to fully enclose and vent the Knockoff Shower section of its Chemi-washer pulp washing system into a closed-vent system, allowing hazardous air pollutants to escape directly into the atmosphere instead of being routed to pollution controls. | high |
| 02 | Performance tests conducted between August and September 2022 showed the facility removed an average of only 8.0 pounds of hazardous air pollutants per ton of oven-dried pulp, falling short of the required 10.2 pounds per ton on every single test day over 16 days. | high |
| 03 | The Steam Stripper, a key piece of equipment designed to remove hazardous air pollutants from wastewater, operated at only 48 to 68 percent efficiency during normal operations, far below the 92 percent efficiency expected for properly maintained equipment. | high |
| 04 | Pixelle exceeded carbon monoxide emission limits at its Package Boilers on three days in the fourth quarter of 2018 and two days in the fourth quarter of 2020, releasing more of this poisonous gas than permitted. | medium |
| 05 | The No. 9 Recovery Furnace repeatedly exceeded opacity limits (indicating excessive particulate matter emissions) during the first and second halves of 2018, the first half of 2020, and the second half of 2021. | medium |
| 06 | A visible leak in the Chemi-washer vent hood was first documented on January 31, 2018, but the company did not successfully repair it until April 18, 2019, more than 14 months later and far exceeding the 15-day repair requirement. | medium |
| 07 | Continuous emissions monitoring systems experienced significant downtime, including 7.94 percent for opacity monitoring in the second quarter of 2020, 3.45 percent for multiple pollutants in the second quarter of 2019, and over 9 percent for carbon monoxide monitoring in the fourth quarter of 2020. | medium |
| 08 | Pixelle provided 55 records of potential overflows from the Sludge Blend Tank between 2019 and 2021, and EPA inspectors observed sludge on the ground near the tank during a July 2021 inspection, indicating failures in operational controls. | low |
| 01 | The violations spanned at least four years (2018 through 2022), demonstrating that routine compliance checks and self-reporting mechanisms failed to catch or quickly remedy the problems. | medium |
| 02 | Pixelle operated under a Title V Permit issued in May 2004 that technically expired in May 2009, but remained in effect under an application shield until a renewed permit became effective in July 2024, nearly 15 years after the renewal application was submitted in November 2008. | medium |
| 03 | The EPA did not issue a Notice and Finding of Violation until March 27, 2023, for issues dating back to 2018, meaning the company operated in violation of Clean Air Act requirements for years before formal enforcement action. | medium |
| 04 | The settlement allows Pixelle to resolve all alleged violations by paying $234,440 without admitting to any of the factual allegations, limiting public accountability and the potential deterrent effect on other companies. | medium |
| 05 | The Consent Agreement requires Pixelle to certify it is now in full compliance with the regulations, but this certification comes only after years of documented non-compliance and only as part of the settlement. | low |
| 01 | Operating the Steam Stripper at 48 to 68 percent efficiency instead of the expected 92 percent suggests the company avoided investments in equipment upgrades, rigorous maintenance, or operational changes needed to meet its legal obligation to remove hazardous air pollutants. | high |
| 02 | The failure to fully enclose the Knockoff Shower section of the Chemi-washer, leaving it as the only section not vented to pollution controls, represents a design or operational choice that prioritized cost or convenience over capturing all hazardous emissions. | high |
| 03 | The company delayed repairing a known leak in the Chemi-washer vent hood for over a year, attempting only adjustments to vacuum pressure and one unsuccessful repair during an outage, rather than prioritizing immediate corrective action to stop pollution. | medium |
| 04 | Repeated exceedances of carbon monoxide and opacity limits, combined with significant monitoring system downtime, point to underinvestment in equipment maintenance, quality control, or operational oversight necessary to ensure continuous compliance. | medium |
| 05 | The $234,440 civil penalty, when measured against the potential costs of achieving full compliance over several years or the revenue generated during periods of non-compliance, may be perceived as simply a cost of doing business rather than a true deterrent. | medium |
| 01 | Hazardous air pollutants like those inadequately treated by Pixelle are known or suspected to cause cancer, reproductive harm, birth defects, and other serious health effects in exposed populations. | high |
| 02 | The facility released quantifiable excess amounts of hazardous air pollutants by removing only 8.0 pounds per ton of pulp instead of the required 10.2 pounds, meaning approximately 2.2 additional pounds of toxic substances per ton entered the air breathed by Chillicothe residents. | high |
| 03 | Carbon monoxide, which exceeded permitted limits on multiple days, is a poisonous gas that reduces oxygen delivery to the body and can cause harmful health effects at high levels, including death. | medium |
| 04 | Repeated exceedances of opacity limits from the Recovery Furnace indicate excessive emissions of particulate matter, which can cause serious respiratory and cardiovascular problems and contribute to environmental haze. | medium |
| 05 | The 55 documented overflows from the Sludge Blend Tank between 2019 and 2021, with sludge observed on the ground, pose contamination risks to local soil and potentially nearby water sources if not properly managed. | low |
| 06 | Residents living closest to the Chillicothe facility face the highest exposure risk from degraded air quality caused by these excess emissions, potentially experiencing increased respiratory illnesses, asthma attacks, and reduced quality of life. | medium |
| 01 | The release of excess hazardous air pollutants, carbon monoxide, and particulate matter directly degraded local air quality in Chillicothe and surrounding areas, with those living or working nearest the facility facing the highest exposure. | high |
| 02 | Community members faced years of increased health risks from air pollution that exceeded legal limits while the company continued operations without resolving the violations. | high |
| 03 | Hazardous air pollutants and other emissions can deposit on land and water, potentially harming local ecosystems, flora, and fauna, and posing risks to the Scioto River which flows near Chillicothe. | medium |
| 04 | Concerns about air quality, potential odors from the pulp mill, and health impacts can reduce quality of life for residents, limiting enjoyment of outdoor activities and creating ongoing anxiety about environmental safety. | medium |
| 05 | The repeated nature of violations over multiple years subjected the local environment to prolonged periods of pollution levels higher than those permitted by protective regulations designed to safeguard public health. | medium |
| 01 | Pixelle agreed to pay the civil penalty and comply with the settlement terms but explicitly neither admitted nor denied the factual allegations, avoiding any formal acknowledgment of wrongdoing. | medium |
| 02 | The settlement does not assign personal liability to any individual executives or managers who made or oversaw the decisions that led to years of environmental violations. | medium |
| 03 | Without a formal admission of the facts, the public does not receive a clear, undisputed account from the company itself about the extent and nature of the misconduct, even though the EPA documented substantial evidence. | medium |
| 04 | The Consent Agreement resolves numerous alleged violations spanning multiple years through a single payment, with no requirement for the company to publicly explain how or why the violations occurred or persisted. | low |
| 05 | Inspection records for the prolonged Chemi-washer hood leak were incomplete, missing required information about repair methods, reasons for delay, and expected completion dates, demonstrating inadequate documentation of the company’s own compliance failures. | low |
| 01 | The Chemi-washer hood leak was first documented on January 31, 2018, but not repaired until April 18, 2019, a delay of 442 days despite a regulatory requirement to complete repairs within 15 days, allowing continued emissions for over a year. | high |
| 02 | Violations of carbon monoxide and opacity limits occurred in 2018, 2020, and 2021, but the EPA did not issue a formal Notice and Finding of Violation until March 27, 2023, and the final settlement was not reached until 2025. | medium |
| 03 | The facility’s Title V Permit renewal application was submitted in November 2008, but the renewed permit did not become effective until July 2024, nearly 16 years later, during which time the facility operated under an expired permit via an application shield. | medium |
| 04 | The multi-year gap between the periods of violation and the payment of the civil penalty means the company continued generating revenue from operations during extended periods of non-compliance before facing financial consequences. | medium |
| 05 | Delaying repairs, equipment upgrades, and implementation of more rigorous operational practices deferred capital expenditures, freeing up funds for other corporate uses while the community bore the environmental and health costs. | medium |
| 01 | This settlement resolves documented Clean Air Act violations spanning multiple years, but the company paid a penalty without admitting the underlying facts, limiting full public accountability for the prolonged environmental harm. | medium |
| 02 | The case demonstrates how pollution control equipment can be present on paper but operated inefficiently or incompletely in practice, allowing companies to appear compliant while failing to achieve the emissions reductions the regulations intend. | medium |
| 03 | For the community of Chillicothe, the settlement brings an end to this enforcement action but cannot undo years of exposure to excess hazardous air pollutants, carbon monoxide, and particulate matter released during the violation periods. | medium |
| 04 | The $234,440 penalty represents the agreed resolution under Clean Air Act enforcement provisions, but the broader societal costs including potential health impacts and environmental degradation are not captured in this financial figure. | medium |
| 05 | This case illustrates systemic challenges in environmental enforcement, where limited regulatory resources, lengthy administrative processes, and settlement practices can result in delayed accountability for corporate violations of public health protections. | medium |
Timeline of Events
Direct Quotes from the Legal Record
“The section of the Chemi-washer where the Knockoff Shower is used is the only section of the Chemi-washer that is not vented to and controlled by the HVLC system.”
💡 The company’s own performance test plan admitted that a key pollution source was not connected to required emission controls.
“The results of the 2022 Performance Test showed that the amount of HAP per ton of ODP removed by the Steam Stripper, as an average over 16 test days, was 8.0 pounds of HAP per ton of ODP. Each daily removal amount was below 10.2 pounds of HAP per ton of ODP.”
💡 Every single day of testing confirmed the facility failed to remove enough hazardous air pollutants, releasing excess toxic substances.
“A properly operated and maintained steam stripper is expected to achieve an actual HAP removal efficiency of 92%. During the 2022 Performance Test, the Steam Stripper was tested over a range of operating conditions consistent with normal operations. The Steam Stripper achieved between 48% and 68% HAP removal efficiency.”
💡 The equipment operated at roughly half the efficiency it should, indicating inadequate maintenance or operational investment.
“Respondent provided records of 55 potential overflows from the Sludge Blend Tank in 2019 to 2021. During EPA’s on-site inspection on July 21, 2021, EPA inspectors observed sludge on the ground near the sludge blend tank.”
💡 Persistent operational failures led to contamination visible to federal inspectors during their visit.
“According to Respondent’s visual inspection records, Respondent documented a leak in the Chemi-washer vent hood on January 31, 2018. Respondent continued to document a leak in the Chemi-washer vent hood during each visual inspection through March 28, 2019. Respondent completed repair of the leak on April 18, 2019.”
💡 Despite a 15-day repair requirement, the company allowed a known emission leak to persist for 442 days.
“Respondent admits the jurisdictional allegations in this CAFO and neither admits nor denies the factual allegations in this CAFO.”
💡 The company paid a penalty but never formally acknowledged doing what the EPA documented over multiple years.
“Respondent reported 7.94% downtime for the CEMS for monitoring opacity at the No. 9 Recovery Furnace in the Second Quarter of 2020.”
💡 Required continuous monitoring systems were offline for significant periods, leaving pollution levels untracked.
“These are pollutants known or suspected to cause cancer or other serious health effects, such as reproductive effects or birth defects, or adverse environmental and ecological effects.”
💡 The substances Pixelle failed to adequately control are recognized as severely harmful to human health.
“CO is a poisonous gas that can cause harmful health effects by reducing oxygen delivery to the body’s organs and tissues. High levels can be fatal.”
💡 Exceedances of carbon monoxide limits exposed the community to a potentially deadly pollutant.
“At all times, the owner or operator must operate and maintain any affected source, including air pollution control equipment and monitoring equipment, in a manner consistent with safety and good air pollution control practices for minimizing emissions.”
💡 Federal regulations required the company to minimize emissions at all times, not just meet minimum thresholds when convenient.
“The repair or corrective action shall be completed no later than 15 calendar days after the problem is identified.”
💡 Clear regulatory language required rapid repair, which the company ignored for over a year.
“Respondent’s records of visual inspections between January 31, 2018 and March 28, 2019 do not include information required by 40 C.F.R. § 63.454(b), including: repair methods applied in each attempt to repair the defect or leak; the reason for the delay if the defect or leak is not repaired with 15 days after discovery; the expected date of successful repair of the defect or leak if the repair is not completed within 15 days; and the date of successful repair of the defect or leak.”
💡 The company not only delayed repairs but also failed to properly document why it wasn’t following the rules.
“The Administrator and the Attorney General of the United States, each through their respective delegates, have determined jointly that an administrative penalty action is appropriate for the period of violations alleged in this CAFO.”
💡 The violations spanned so many years that special approval was needed to pursue them administratively rather than in court.
“Based on analysis of the factors specified in Section 113(e) of the CAA, 42 U.S.C. § 7413(e), the facts of this case and Respondent’s cooperation, Complainant has determined that an appropriate civil penalty to settle this action is $234,440.”
💡 The EPA considered multiple factors including cooperation, but the penalty still may not reflect the full societal costs of years of excess pollution.
“Respondent certifies that it is complying fully with NESHAP S, the Permit, and 40 C.F.R. §§ 60.13(e), and 60.48b(c).”
💡 The company only certified full compliance as part of the settlement, after years of documented violations.
Frequently Asked Questions
You can read the Consent Agreement and Final Order between the EPA and Pixelle Specialty Solutions by visiting the EPA’s website: https://yosemite.epa.gov/oa/rhc/epaadmin.nsf/Filings/46C69A4F1D57BEA785258C700063134C/$File/CAA-05-2025-0033_CAFO_PixelleSpecialtySolutionsLLC_ChillicotheOhio_31PGS.pdf
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