
Carbon dioxide (CO2) is a greenhouse gas that is emitted through human activities, primarily the burning of fossil fuels. While it is naturally present in the atmosphere as part of the Earth's carbon cycle, human activities have significantly increased its concentration since the Industrial Revolution. In the United States, CO2 accounted for 80% of all greenhouse gas emissions from human activities in 2022. The Environmental Protection Agency (EPA) has the mandate to regulate pollutants and has attempted to curb CO2 emissions. While carbon dioxide was not previously identified as a pollutant in the Clean Air Act (CAA), recent developments, such as the 2022 climate bill and new language in the IRA, have defined CO2 as a pollutant, giving the EPA the authority to regulate it and encourage the adoption of renewable energy sources.
| Characteristics | Values |
|---|---|
| Carbon dioxide (CO2) | Carbon dioxide is the primary greenhouse gas emitted through human activities. |
| Carbon dioxide is naturally present in the atmosphere as part of the Earth's carbon cycle. | |
| Human activities are altering the carbon cycle by adding more CO2 to the atmosphere and influencing the ability of natural sinks to remove and store CO2. | |
| EPA's Role | The EPA has a mandate to regulate pollutants and has repeatedly attempted to curb carbon dioxide emissions. |
| The EPA has set air quality standards for six common criteria pollutants, but carbon dioxide emissions are not specifically identified as a pollutant and no air quality standards for CO2 levels have been legally set. | |
| The 2022 climate bill lays the foundation for the EPA to regulate CO2. | |
| The EPA's GHG Tailoring Rule established thresholds for permitting GHG emissions. | |
| The EPA has announced plans regarding the treatment of biogenic CO2 emissions in the context of its air regulatory programs. |
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What You'll Learn

Carbon dioxide is a pollutant
The Environmental Protection Agency (EPA) in the United States has the mandate to regulate pollutants and protect public health and air quality. While carbon dioxide emissions are not specifically identified as pollutants in the Clean Air Act (CAA), the EPA has repeatedly attempted to curb them. The 2022 climate bill and its language define carbon dioxide as a pollutant, giving the EPA the authority to regulate it and promote renewable energy sources.
Carbon dioxide emissions have decreased by 1.5% in the United States between 1990 and 2022, excluding Land Use, Land-Use Change, and Forestry (LULUCF) sinks. However, in 2022, carbon dioxide still accounted for 80% of all U.S. greenhouse gas emissions from human activities. The management of forests and other lands has helped offset about 13% of total emissions in 2022, acting as a net sink of carbon dioxide.
The EPA's GHG Tailoring Rule, issued in 2010, established initial emission thresholds for permitting GHG emissions. The rule has since been improved to better regulate emissions and allow for the establishment of greenhouse gas applicability limitations. While the EPA now has the legal groundwork to take action against carbon dioxide pollution, it remains to be seen what specific regulations and restrictions will be implemented to address this pressing issue.
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The EPA's mandate to regulate pollutants
The Environmental Protection Agency (EPA) has a mandate to regulate pollutants. The Clean Air Act (CAA) requires the EPA to establish national ambient air quality standards for specific pollutants based on the latest science. The EPA has set air quality standards for six common criteria pollutants: particulate matter (also known as particle pollution), ozone, sulfur dioxide, nitrogen dioxide, carbon monoxide, and lead.
The EPA does not have a stated mandate to fight climate change. However, it has a mandate to regulate pollutants and has repeatedly attempted to curb carbon dioxide emissions in the spirit of the CAA's intent to protect public health and air quality. The EPA's mission is to protect human health and the environment, and it works with state, tribal, and local air agencies to attain the National Ambient Air Quality Standards throughout the country.
The EPA reviews chemicals in the marketplace for safety and implements environmental laws written by Congress by writing regulations and setting national standards. It also enforces its regulations and helps companies understand the requirements. The EPA has a budget for grants to state environmental programs, non-profits, and educational institutions, which are used for projects such as scientific studies and community cleanups.
The EPA has taken several actions to regulate pollutants, including tightening air pollution emission requirements for cars, trucks, and other motor vehicles, regulating emissions from power plants, and addressing violations by companies such as Volkswagen. The EPA has also developed a "cluster rule" for multimedia regulation of the pulp and paper industry and initiated the Energy Star program to foster energy efficiency.
In terms of carbon dioxide regulation, the EPA has the authority to regulate greenhouse gases and encourage the adoption of renewable energy sources. While carbon dioxide emissions are not specifically identified as a pollutant in the CAA, and no air quality standards for CO2 levels have been legally set, the EPA can now use its power to push for renewable energy sources and block future legal challenges to any action it takes to regulate CO2.
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The Clean Air Act and National Ambient Air Quality Standards
The Clean Air Act (CAA) is a comprehensive federal law that regulates air emissions from stationary and mobile sources. The Act authorises the Environmental Protection Agency (EPA) to establish National Ambient Air Quality Standards (NAAQS) to protect public health and welfare and regulate emissions of hazardous air pollutants. The Clean Air Act Amendments of 1970 instruct the EPA to set primary and secondary NAAQS. The former protects public health, including the health of "sensitive" populations such as asthmatics, children, and the elderly. The latter protects public welfare, including crops, vegetation, and buildings.
The Clean Air Act identifies six principal pollutants ("criteria" air pollutants) which can be harmful to public health and the environment. These are particulate matter (also known as particle pollution), ozone, sulfur dioxide, nitrogen dioxide, carbon monoxide, and lead. The Act requires the EPA to establish NAAQS for these pollutants based on the latest science. However, the CAA has not received a major revision in 30 years, and carbon dioxide emissions are not specifically identified as a pollutant. While the EPA has attempted to curb carbon dioxide emissions, it does not have a stated mandate to fight climate change.
The process of selecting NAAQS involves a comprehensive review of relevant scientific literature, which is summarised in the Integrated Science Assessment (ISA). Based on the ISA, the EPA performs a risk and exposure assessment, which is summarised in the Risk and Exposure Assessment (REA) document. The third document, the Policy Assessment (PA), integrates the findings and conclusions of the ISA and REA into a policy context and provides lines of reasoning for the retention or revision of existing NAAQS. Each of these three documents is released for public comment and peer review by the Clean Air Scientific Advisory Committee (CASAC). The committee ensures that the documents reflect the thinking of the scientific community and advises the EPA Administrator on technical and scientific aspects. Once all three documents are finalised, they are given to the EPA Administrator, who selects a proposed NAAQS, which is released for public comment. Following the comment period, the Administrator considers the comments received and makes any necessary changes to the proposed NAAQS before publishing the final standards.
The Clean Air Act has been amended several times, primarily to set new goals and dates for achieving NAAQS. The 1990 Clean Air Act Amendments revised Section 112 to require the issuance of technology-based standards for major sources and certain area sources. "Major sources" are defined as stationary sources or groups of stationary sources that emit or have the potential to emit 10 tons per year or more of a hazardous air pollutant. The EPA is required to review these standards periodically and revise them if necessary to address any residual risk.
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Sources of carbon dioxide emissions
Carbon dioxide (CO2) is a clear gas composed of one carbon atom and two oxygen atoms. It is produced by both natural and anthropogenic (man-made) sources, with natural sources being predominant. Oceans are the greatest annual source of natural CO2, followed by animal and plant respiration, decomposition of organic matter, forest fires, and volcanic eruptions.
Anthropogenic CO2 sources are part of our everyday activities, including power generation, transportation, industrial processes, chemical production, petroleum production, and agricultural practices. The burning of fossil fuels (coal, oil, and natural gas) for energy production and transportation is the primary source of anthropogenic CO2 emissions.
The top global sources of greenhouse gas emissions, including CO2, are electricity and heat production (31-34%), agriculture (11%), transportation (15%), forestry (6%), and manufacturing (12%).
In the United States, the transportation sector is the largest source of direct greenhouse gas emissions, primarily from burning fossil fuels for cars, trucks, ships, trains, and planes. The industrial sector is the third-largest source of direct emissions, with fossil fuels burned on-site at facilities for energy being the primary source of emissions.
Agriculture is another significant source of CO2 emissions, with livestock, agricultural soils, rice production, and deforestation contributing to emissions.
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The impact of carbon dioxide on climate change
Carbon dioxide (CO2) is a greenhouse gas that enters the atmosphere through human activities such as burning fossil fuels (coal, natural gas, and oil), solid waste, trees and other biological materials, and also as a result of certain chemical reactions (e.g., cement production). It is called a greenhouse gas because carbon dioxide molecules trap heat in the atmosphere, causing climate change. While CO2 emissions come from a variety of natural sources, human-related emissions are responsible for the increase in the atmosphere since the Industrial Revolution.
CO2 is the primary greenhouse gas emitted through human activities. In 2022, CO2 accounted for 80% of all U.S. greenhouse gas emissions from human activities. Human activities have raised the atmosphere's carbon dioxide content by 50% in less than 200 years. The annual rate of increase in atmospheric carbon dioxide over the past 60 years is about 100-200 times faster than previous natural increases, such as those that occurred at the end of the last ice age. The global average carbon dioxide concentration set a new record high in 2024: 422.7-422.8 parts per million ("ppm",), with an increase of 3.75 ppm over 2023, the largest one-year increase on record.
The combustion of fossil fuels is the largest source of CO2 emissions. Changes in emissions from fossil fuel combustion are influenced by factors such as population growth, economic growth, changing energy prices, new technologies, changing behavior, and seasonal temperatures. In 2022, the increase in CO2 emissions from fossil fuel combustion corresponded with an increase in energy use due to economic recovery after the COVID-19 pandemic and an increase in coal use in the electric power sector.
Natural "sinks" such as plant growth and ocean absorption remove about half of the carbon dioxide emitted by humans from the atmosphere. The rest stays in the atmosphere, contributing to the total amount of CO2 in the atmosphere. These sinks have acted as a net sink of CO2, removing more CO2 from the atmosphere than is emitted. However, human activities are also influencing the ability of these natural sinks to remove and store CO2, with activities such as deforestation reducing the capacity of forests to act as carbon sinks.
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Frequently asked questions
Carbon dioxide (CO2) is the primary greenhouse gas emitted through human activities. It is released into the atmosphere through the burning of fossil fuels, solid waste, trees, and other biological materials. While it is naturally present in the atmosphere as part of the Earth's carbon cycle, human activities have altered this cycle by adding more CO2 and influencing the ability of natural sinks like forests and soils to remove and store it. Therefore, CO2 is considered a pollutant.
The Environmental Protection Agency (EPA) has a mandate to regulate pollutants and has repeatedly attempted to curb carbon dioxide emissions to protect public health and air quality. The EPA's GHG Tailoring Rule, issued in 2010, established emission thresholds for permitting GHG emissions. While the Clean Air Act requires the EPA to set National Ambient Air Quality Standards (NAAQS) for specific pollutants, carbon dioxide emissions are not specifically identified as a pollutant in the CAA, and no air quality standards for CO2 levels have been legally set.
Carbon dioxide is a greenhouse gas that contributes to global warming by trapping heat in the Earth's atmosphere. The concentration of CO2 and other greenhouse gases in the atmosphere affects climate change. Larger emissions lead to higher concentrations, and these gases can remain in the atmosphere for extended periods, ranging from years to thousands of years. Human activities, particularly the combustion of fossil fuels, have substantially increased CO2 levels since the Industrial Revolution, contributing to climate change.











































