Under the Canadian Environmental Protection Act, 1999 (CEPA), the Government of Canada prepared a qualitative assessment report of the fate, sources, occurrence, and potential impacts of per- and polyfluoroalkyl substances (PFAS) on the environment and human health to inform decision-making on PFAS in Canada. This page provides some key information from the state of PFAS report and the risk management approach.
Fluoropolymers, as defined in the report, may have significantly different exposure and hazard profiles when compared with other PFAS. Therefore, fluoropolymers are not addressed in the assessment and are planned for consideration in a separate assessment. Their exclusion from the state of PFAS report should not be interpreted as meaning that they are or are not of concern.
The Government concluded that the class of PFAS (excluding fluoropolymers as defined in the state of PFAS report) is entering or may enter the environment at levels that are harmful or may be harmful to the environment and to human health. This is owing to the extreme persistence, widespread use of PFAS, and their presence throughout the environment as well as on the basis of what is known about well-studied PFAS, the potential for other PFAS to behave similarly, and on the expectation that combined exposures to multiple PFAS increase the likelihood of detrimental impacts.
The Government has proposed new risk management actions through a phased prohibition under CEPA for the class of PFAS (excluding fluoropolymers) as described in the Preventive actions and risk reduction section below.
About these substances
PFAS are a class of thousands of human-made substances. The common chemical characteristic of PFAS is their perfluoroalkyl moiety, which is extremely stable in the environment.
In the state of PFAS report, PFAS refers to the broad chemical definition by the Organisation for Economic Co-operation and Development (OECD) in 2021, which is: “fluorinated substances that contain at least 1 fully fluorinated methyl or methylene carbon atom (without any H/Cl/Br/I atom attached to it), that is with a few noted exceptions, any chemical with at least a perfluorinated methyl group (–CF3) or a perfluorinated methylene group (–CF2–) is a PFAS.” The class of PFAS is comprised of substances meeting this definition.
In the state of PFAS report, fluoropolymers are defined as polymers made by polymerization or copolymerization of olefinic monomers (at least one of which contains fluorine bonded to one or both of the olefinic carbon atoms) to form a carbon-only polymer backbone with fluorine atoms directly bonded to it. Given information suggesting their differences from other PFAS, additional work on fluoropolymers is warranted. PFAS meeting the definition of fluoropolymers, as defined in the report, are not addressed within the report and will be considered in a separate assessment.
The properties of PFAS (including oil and water repellency, high resistance to degradation, and low surface tension) have led to their use in a wide range of products available to consumers and in commercial and industrial applications. Some typical uses of PFAS include use as surfactants, lubricants, and repellents (for dirt, water, and grease). PFAS can also be found in certain firefighting foams (for example, aqueous film-forming foams [AFFF]), food packaging materials, drugs (including natural health products and non-prescription drugs), medical devices, cosmetics, pesticides, textiles (for example, carpets, furniture, and clothing), vehicles, and electronics.
PFAS are extremely persistent in the environment and are often termed "forever chemicals" as a result of their stability. Certain PFAS are prone to accumulation, are mobile, are able to migrate locally and over long distances, and are commonly detected in the environment and humans. Experience with contaminated sites management indicates that PFAS are very challenging to remediate from contaminated sites and it's not possible to remove them from the broader environment.
Class approach
CEPA defines a class of substances as any 2 or more substances that: (a) contain the same portion of chemical structure; (b) have similar physical-chemical or toxicological properties; or (c) have similar types of use. Substances included under the OECD definition of PFAS, which is used in the state of PFAS report, meet the definition of class under CEPA as they contain the same portion of chemical structure.
Addressing the large number of PFAS using a class-based approach is appropriate given the growing body of evidence suggesting that concerns for health and the environment identified from well-studied PFAS are more broadly applicable to other PFAS, and the expectation that combined exposures to multiple PFAS will increase the likelihood of harmful impacts.
Risk managing the class of PFAS, as opposed to using a substance-by-substance approach, addresses potential cumulative effects of co-exposure to multiple PFAS and reduces the chance of regrettable substitution (replacing one PFAS with another less-well characterized, but equally problematic PFAS). A phased approach to risk management is proposed as summarized in the Preventive actions and risk reduction section below.
Some other jurisdictions around the world are exploring various approaches to addressing PFAS as a class, including the European Union and some states within the United States.
Human and ecological exposures
People living in Canada can be exposed to PFAS from various sources such as food and food packaging materials, cosmetics, products available to consumers, ambient air, indoor air and dust, and drinking water.
Canadian biomonitoring studies (including the Canadian Health Measures Survey [CHMS], the Maternal-Infant Research on Environmental Chemicals Study, as well as studies that are funded in part by the Northern Contaminants Program) have found certain PFAS in the blood of people in Canada. CHMS data shows that levels are declining for certain PFAS (including perfluorooctanoic acid [PFOA], perfluorononanoic acid [PFNA], perfluorohexanesulfonic acid [PFHxS], perfluorooctane sulfonate [PFOS]); however, these PFAS continue to be present in almost 100% of the Canadian population.
PFAS is found nearly everywhere in the environment, including in air, surface and groundwater, oceans, soils, and biota, as well as in wastewater, landfill leachate, sewage sludge, and biosolids worldwide. Some PFAS and their precursors can be transported long distances, such as in the air or in water.
PFAS contamination is present throughout Canada, including in remote areas such as the Arctic, and is not limited to a few sources and areas.
Contaminated sites associated with the use of AFFFs through fighting liquid fuel fires, training activities and maintenance of firefighting equipment at airports, and military facilities have elevated concentrations of PFAS.
Key health and ecological effects (hazard)
Exposure to PFAS can affect multiple organs and systems. The main targets include the liver, immune system, kidney, reproduction, development, endocrine disruption (thyroid), nervous system, and metabolism (lipids, glucose homeostasis, body weight). Effects on most of these endpoints have been observed in both animal and human studies.
In the environment, effects of PFAS on wildlife include toxicity to the immune and nervous systems, and general effects on growth, reproduction and development. Several well-studied PFAS have been found to bioaccumulate in living organisms. PFAS have been reported to significantly biomagnify (accumulate to increasingly higher levels up the food chain) in air-breathing organisms (for example, mammals, birds), which may increase the likelihood of adverse effects being seen. Certain PFAS have also been shown to have hazardous effects on plants.
Humans and the environment are exposed to multiple PFAS at the same time. This cumulative exposure to unknown mixtures of PFAS could increase the potential for adverse effects.
Consideration of subpopulations who may have greater susceptibility or greater exposure
There are groups of individuals within the Canadian population who, due to greater susceptibility or greater exposure, may be more vulnerable to experiencing adverse health effects from exposure to substances.
Certain subpopulations were identified as having a potential for greater exposure to PFAS. Some northern Indigenous communities (as measured in adults, including pregnant women), Indigenous youth and children in other parts of Canada, and firefighters internationally were considered to have higher levels of certain PFAS in blood than found in national biomonitoring surveys. Firefighters and people living near sites contaminated with PFAS (for example, sites associated with the use of AFFFs for firefighting) may also be disproportionately exposed to higher levels of PFAS.
Report findings
The State of PFAS Report focused on information to support a conclusion on whether the substances are harmful to human health or the environment under CEPA. This was done by examining scientific information, including information, if available, on subpopulations who may have greater susceptibility or greater exposure, and cumulative effects, and by incorporating a weight of evidence approach and precaution.
The broad use of PFAS, their ability to move locally and over long ranges, and their presence throughout the environment have resulted in continuous environmental and human exposure to multiple PFAS. Exposure to PFAS has the potential to cause effects on multiple systems and organs in both humans and wildlife.
It has been shown that certain PFAS may bioaccumulate and biomagnify in food webs to an extent that can cause adverse effects in biota, even at low environmental concentrations.
Recent information on well-studied PFAS, particularly PFOA and PFOS, shows negative effects on human health at lower levels than indicated by previous studies.
Environmental concentrations and uptake by biota will increase in the absence of intervention due to the extreme persistence of PFAS, their potential for bioaccumulation in organisms and biomagnification through the food chain, and the impossibility of their removal from the broader environment.
The potential for cumulative exposure and effects are important considerations as most wildlife and human exposures involve an unknown mixture of PFAS.
Conclusions
Owing to the extreme persistence of PFAS and their potential for adverse effects, impacts on the environment are expected to increase if entry to the environment continues.
Despite uncertainties, owing to the widespread use of PFAS along with their presence throughout the environment, humans and wildlife are continuously exposed to multiple PFAS, which has the potential to cause effects of concern.
On the basis of what is known about well-studied PFAS and the potential for other PFAS to behave similarly, and on the expectation that combined exposures to multiple PFAS increase the likelihood of detrimental impacts:
the Government concluded that the class of PFAS, excluding fluoropolymers as defined in the state of PFAS report, is entering or may enter the environment at levels that are harmful or may be harmful to the environment, and
the Government also concluded that the class of PFAS, excluding fluoropolymers as defined in the report, is entering or may enter the environment at levels that are harmful or may be harmful to human health.
Well-studied PFAS meet the persistence criteria as set out in the Persistence and Bioaccumulation Regulations of CEPA. Based on available information and structural similarities, it is expected that other substances within the class of PFAS are also highly persistent or transform to persistent PFAS. It is therefore determined that the class of PFAS meets the persistence criteria as set out in the Persistence and Bioaccumulation Regulations of CEPA. As fluoropolymers are excluded from this assessment, they are also excluded from this determination with regard to the Persistence and Bioaccumulation Regulations of CEPA.
There is a high concern identified for the biomagnification and trophic magnification potential of well-studied PFAS in air-breathing organisms. However, the numeric criteria for bioaccumulation, outlined in the Persistence and Bioaccumulation Regulations, are based on bioaccumulation data for freshwater aquatic species, which do not account for biomagnification potential. Therefore, application of the criteria would not reflect the concern for dietary-based biomagnification, the primary route of foodweb exposure identified for well-studied PFAS. Therefore, the bioaccumulation potential of PFAS cannot reasonably be determined according to the regulatory criteria set out in the Persistence and Bioaccumulation Regulations of CEPA.
Existing risk management
Several PFAS are subject to risk management controls in Canada, including the following:
As a result of previous assessments under CEPA and conclusions of harm to the environment, PFOS and its salts and precursors, PFOA and its salts and precursors, and long-chain perfluorocarboxylic acids (LC-PFCAs) and their salts and precursors are listed on Schedule 1 to CEPA.
Other domestic activities that target certain PFAS include:
The Objective for Canadian Drinking Water Quality – Per- and Polyfluoroalkyl Substances was published by Health Canada in 2024. It recommends a single treatment-based value for a group of PFAS in Canadian drinking water. The objective of 30 ng/L applies to the sum of 25 specific PFAS and serves to reduce potential exposure to PFAS through drinking water while the formal guidelines are being revised.
Federal Environmental Quality Guidelines for PFOS in surface water for the protection of aquatic life, fish tissue, wildlife diet for mammalian and avian consumers of aquatic biota, and in bird eggs. The development of guidelines for PFOA is currently underway.
The Canadian Food Inspection Agency (CFIA) began enforcing an interim standard for PFAS in biosolids in October 2024 as part of the Government's coordinated suite of risk mitigation measures intended to minimize human and environmental exposure to PFAS. The CFIA, provinces, municipalities, and biosolids industry are working together to implement the interim standard for PFAS in biosolids imported or sold in Canada as fertilizers.
Also in October 2024, Innovation Science and Economic Development Canada (ISED) launched a challenge under the Innovation Solutions Canada Program, focused on advancing the destruction of PFAS compounds in contaminated media. This initiative seeks to identify innovative, cost-effective, safe, and scalable solutions that lead to the destruction of PFAS across various contaminated solid or aqueous media.
The Government of Canada works with other governments internationally on initiatives that address PFAS, including through the OECD and the Stockholm Convention on Persistent Organic Pollutants. Canada has successfully nominated LC-PFCAs, their salts and related compounds to be listed to the Stockholm Convention.
Generally speaking, toxic substances that pose the highest risk (that is, meet certain criteria) are added to Part 1 of Schedule 1. These are prioritized for total, partial or conditional prohibition.
Other toxic substances are added to Part 2 of Schedule 1 and are prioritized for pollution prevention actions, which may include prohibition.
Regulations specifying criteria for the classification of substances that pose the highest risk or that are carcinogenic, mutagenic or toxic to reproduction are under development. When these criteria become available, some substances considered for addition to Part 2 of Schedule 1 may instead be considered for addition to Part 1 of Schedule 1.
Publication of the risk management approach aims to inform interested parties of proposed risk management actions and continue discussion about their development. To address the potential concerns for human health and the environment from the class of PFAS, excluding fluoropolymers as defined in the report, the Government of Canada is proposing the following new risk management actions through a phased prohibition under CEPA:
Phase 1: prohibition of the use of PFAS, excluding fluoropolymers, not currently regulated in firefighting foams, due to high potential for environmental and human exposure.
Phase 2: prohibition of the uses of PFAS, excluding fluoropolymers, not needed for the protection of health, safety or the environment, which includes consumer applications. Prioritization of uses for prohibition is based on and will take into account costs and benefits, availability of suitable alternatives, and other socio-economic considerations.
Phase 3: prohibition of the uses of PFAS, excluding fluoropolymers, requiring further evaluation of the role of PFAS for which currently there may not be feasible alternatives and taking into consideration socio-economic factors. Details on the proposed uses to be regulated in Phase 2 and Phase 3 are provided in the risk management approach.
At each phase of risk management, exemptions will be considered when necessary with attention to feasible alternatives and socio-economic factors. The information gathered through the various stages of consultation will help inform any risk management actions to be developed.
In addition, other ongoing actions on PFAS will continue, such as the development of environmental quality guidelines, management of contaminated sites, and the continued administration of existing risk management actions outlined above. Furthermore, voluntary risk management actions are also being considered as described in the risk management approach.
Recent initiatives, including a Notice under section 71 of CEPA and the proposed addition of individual PFAS to the National Pollutant Release Inventory have been taken.
Additional information is being sought by the Government to inform risk management decision-making. Details can be found in the risk management approach, including where to send information during the public comment period on the approach, ending May 7, 2025.
Risk management actions may evolve through consideration of assessments and risk management options or actions published for other substances under the CMP. This is to ensure effective, coordinated, and consistent risk management decision-making.
Use the Substances Search tool to find substances that are referenced in certain legislative or regulatory instruments or on Government of Canada websites.
In May 2023, Environment and Climate Change Canada published the Supporting Document: Ecological State of the Science Report on Short-chain PFCAs, Short-chain PFSAs, and Long-chain PFSAs that provides a summary of environmental data that has become available on 3 subgroups of PFAS: Short-chain (C4 – C7) Perfluorocarboxylic Acids (SC-PFCAs); Short-chain (C4 – C7) Perfluorosulfonic Acids (SC-PFSAs); and Long-chain (C9 – C20) Perfluorosulfonic Acids (LC-PFSAs).
Assessments conducted under CEPA focus on risks of exposure of the general population, including populations who may be disproportionately impacted. Hazards related to chemicals used in the workplace are defined within the Workplace Hazardous Materials Information System (WHMIS). The Government of Canada recognizes that it is the responsibility of the federal, provincial and territorial occupational health and safety organizations to coordinate legislation for the safe use of chemicals in the workplace. We are working to support this role by integrating the information, tools, and/or technical expertise of the CMP and Health Canada's Workplace Hazardous Products Program.
