Florida Senate - 2020 SB 1656 By Senator Albritton 26-01333B-20 20201656__ 1 A bill to be entitled 2 An act relating to reclaimed water; creating s. 3 403.8531, F.S.; providing legislative intent; defining 4 terms; providing that reclaimed water is a water 5 source for public water supply systems; providing 6 specified groundwater and surface water quality 7 protections for potable reuse projects; providing that 8 potable reuse is an alternative water supply and that 9 projects relating to such reuse are eligible for 10 alternative water supply funding; requiring the 11 Department of Environmental Protection to adopt 12 specified rules; requiring the department to review 13 reclaimed water and potable reuse rules and revise 14 them as necessary; requiring the department to review 15 aquifer recharge rules and revise them as necessary; 16 requiring the department to initiate rulemaking and to 17 submit such rules to the Legislature for ratification 18 by specified dates; requiring legislative ratification 19 of the rules; requiring the department and the water 20 management districts to develop and execute, by a 21 specified date, a memorandum of agreement for the 22 coordinated review of specified permits; providing 23 that potable reuse projects by private entities are 24 eligible for certain expedited permitting and tax 25 credits; providing construction; amending s. 403.064, 26 F.S.; prohibiting domestic wastewater treatment 27 facilities from disposing of effluent, reclaimed 28 water, or reuse water by surface water discharge; 29 providing exceptions; requiring the department to 30 adopt rules for the implementation of potable reuse 31 projects which meet certain requirements; requiring 32 the department to convene at least one technical 33 advisory committee for specified purposes; providing 34 for the composition of the advisory committee; 35 providing a directive to the Division of Law Revision; 36 providing an effective date. 37 38 WHEREAS, sustainable water supplies are important to this 39 state’s economy, environment, and quality of life, and 40 WHEREAS, in 2019, Floridians used nearly 6.5 billion 41 gallons of water per day and are projected to need an additional 42 1.1 billion gallons of water per day by 2035, and 43 WHEREAS, more than 75 percent of this state’s water supply 44 comes from groundwater, and the availability of additional fresh 45 groundwater has become limited in many areas of this state, and 46 WHEREAS, this state’s continued growth and economic success 47 depend on the implementation of safe and sustainable alternative 48 water supplies, and 49 WHEREAS, the use of reclaimed water is an important 50 component of both wastewater management and water resource 51 management in this state, and 52 WHEREAS, in 2018, approximately 48 percent of the total 53 domestic wastewater flow in this state, 797 million gallons per 54 day, was reused for beneficial purposes, and 55 WHEREAS, the reuse of water is a critical component of 56 meeting this state’s existing and future water supply needs, and 57 WHEREAS, potable reuse is the augmentation of a drinking 58 water supply with reclaimed water from a municipal wastewater 59 source and is an alternative water supply source that can be 60 harnessed to help meet the additional water needs of this state 61 while protecting both the public health and the environment, and 62 WHEREAS, the Legislature finds that through the use of 63 advanced treatment technology, potable reuse is a safe and 64 sustainable alternative water supply source that can be used to 65 support a diverse, resilient, and sustainable water supply 66 portfolio, and is considered to be in the public interest, and 67 WHEREAS, potable reuse projects, when implemented in a 68 properly planned way using current environmental and engineered 69 treatment processes, have reduced, and will continue to reduce, 70 this state’s dependence on increased withdrawals from 71 groundwater and surface water sources, pollutant loadings to 72 waters of the state, and the nonbeneficial use of reclaimed 73 water, thus improving water quality and benefitting the 74 environment and local economies that depend on this state’s 75 natural resources, NOW, THEREFORE, 76 77 Be It Enacted by the Legislature of the State of Florida: 78 79 Section 1. Section 403.8531, Florida Statutes, is created 80 to read: 81 403.8531 Potable reuse.— 82 (1) Recognizing that sufficient water supply is imperative 83 to the future of this state and that potable reuse is one source 84 of water that may assist in meeting future demands, the 85 Legislature intends for the department to adopt rules for 86 potable reuse which: 87 (a) Protect the public health and environment by ensuring 88 that the potable reuse rules meet federal and state drinking 89 water and water quality standards, including, but not limited 90 to, the Clean Water Act, the Safe Drinking Water Act, and water 91 quality standards pursuant to chapter 403, and, when possible, 92 implement such rules through existing regulatory programs. 93 (b) Support reclaimed water being used for potable reuse 94 purposes. 95 (c) Implement the recommendations set forth in the Potable 96 Reuse Commission’s 2020 report “Advancing Potable Reuse in 97 Florida: Framework for the Implementation of Potable Reuse in 98 Florida.” 99 (d) Require that the point of compliance with drinking 100 water standards for potable reuse projects is the final 101 discharge point for finished water from the water treatment 102 facility. 103 (e) Protect the aquifer and Florida’s springs and surface 104 waters by ensuring that potable reuse projects do not cause or 105 contribute to violations of water quality standards in surface 106 waters, including groundwater discharges that flow by interflow 107 and affect water quality in surface waters, and that potable 108 reuse projects shall be designed and operated to ensure 109 compliance with groundwater quality standards. 110 (2) As used in this section, the term: 111 (a) “Advanced treated reclaimed water” means the water 112 produced from an advanced water treatment process for potable 113 reuse applications. 114 (b) “Advanced treatment technology” means the treatment 115 technology selected by a utility to address emerging 116 constituents and pathogens in reclaimed water as part of a 117 potable reuse project. 118 (c) “Direct potable reuse” means the introduction of 119 advanced treated reclaimed water into a raw water supply 120 immediately upstream from a drinking water treatment facility or 121 directly into a potable water supply distribution system. 122 (d) “Emerging constituents” means pharmaceuticals, personal 123 care products, and other chemicals not regulated as part of 124 drinking water quality standards. 125 (e) “Indirect potable reuse” means the planned delivery or 126 discharge of reclaimed water to groundwater or surface waters 127 for the development of, or to supplement, the potable water 128 supply. 129 (f) “Off-spec reclaimed water” means reclaimed water that 130 does not meet the standards for potable reuse. 131 (g) “Potable reuse” means the augmentation of a drinking 132 water supply with advanced treated reclaimed water from a 133 domestic wastewater treatment facility, and consists of direct 134 potable reuse and indirect potable reuse. 135 (h) “Reclaimed water” means water that has received at 136 least secondary treatment and basic disinfection and is reused 137 after flowing out of a domestic wastewater treatment facility. 138 (3) Reclaimed water is deemed a water source for public 139 water supply systems. 140 (4) Existing water quality protections that prohibit 141 discharges from causing or contributing to violations of water 142 quality standards in groundwater and surface waters apply to 143 potable reuse projects. In addition, when reclaimed water is 144 released or discharged into groundwater or surface waters for 145 potable reuse purposes, consideration of emerging constituents 146 may be required due to existing regulatory requirements, such as 147 antidegradation and discharge standards, as well as impacts to 148 other users of such groundwater or surface water. 149 (5) Potable reuse is an alternative water supply as defined 150 in s. 373.019, and potable reuse projects are eligible for 151 alternative water supply funding. The use of potable reuse water 152 may not be excluded from regional water supply planning under s. 153 373.709. 154 (6) The department shall: 155 (a) Adopt rules that authorize potable reuse projects that 156 are consistent with this section. 157 (b) Review existing rules governing reclaimed water and 158 potable reuse to identify obsolete and inconsistent requirements 159 and adopt rules that revise existing potable reuse rules to 160 eliminate such inconsistencies, while maintaining existing 161 public health and environmental protections. 162 (c) Review aquifer recharge rules, and, if revisions are 163 necessary to ensure continued compliance with existing public 164 health and environmental protection rules when reclaimed water 165 is used for aquifer recharge, adopt such rules. 166 (d) Initiate rulemaking by December 31, 2020, and submit 167 the adopted rules to the President of the Senate and the Speaker 168 of the House of Representatives by December 12, 2022, for 169 ratification. Such rules are effective only upon ratification by 170 the Legislature. 171 (7) The department and the water management districts shall 172 develop and execute a memorandum of agreement providing for the 173 procedural requirements of a coordinated review of all permits 174 associated with the construction and operation of an indirect 175 potable reuse project. The memorandum of agreement must provide 176 that the coordinated review will occur only if requested by a 177 permittee. The purpose of the coordinated review is to share 178 information, to avoid the redundancy of information requested 179 from the permittee, and to ensure consistency in the permit for 180 the protection of the public health and the environment. The 181 department and the water management districts shall develop and 182 execute the memorandum of agreement by December 31, 2022. 183 (8) To encourage investment in the development of potable 184 reuse projects by private entities, a potable reuse project 185 developed as a qualifying project pursuant to s. 255.065 is: 186 (a) Beginning January 1, 2025, eligible for expedited 187 permitting under s. 403.973. 188 (b) Granted an annual credit against the tax imposed by 189 chapter 220 in an amount equal to 5 percent of the eligible 190 capital costs generated by a qualifying project for a period not 191 to exceed 20 years after the date that project operations begin. 192 The tax credit applies only to the corporate income tax 193 liability or the premium tax liability generated by or arising 194 out of the qualifying project, and the sum of all tax credits 195 provided pursuant to this section may not exceed 100 percent of 196 the eligible capital costs as defined in s. 220.191(1)(c). Any 197 credit granted pursuant to this paragraph may not be carried 198 forward or backward. 199 (c) Granted a 3-year extension of any deadlines imposed 200 under s. 403.064(17). 201 (d) Consistent with s. 373.707, eligible for priority 202 funding in the same manner as other alternative water supply 203 projects from the Drinking Water State Revolving Fund, under the 204 Water Protection and Sustainability Program, and for water 205 management district cooperative funding. 206 (9) This section is not intended and may not be construed 207 to supersede s. 373.250(3). 208 Section 2. Subsection (17) is added to section 403.064, 209 Florida Statutes, to read: 210 403.064 Reuse of reclaimed water.— 211 (17) Notwithstanding any other provisions in this section 212 to the contrary, beginning January 1, 2026, domestic wastewater 213 treatment facilities may not dispose of effluent, reclaimed 214 water, or reuse water by surface water discharge, except that 215 this prohibition does not apply to indirect potable reuse 216 projects; domestic wastewater treatment facility discharges 217 during wet weather which occur in accordance with the applicable 218 department permit; discharges into a stormwater management 219 system which are subsequently withdrawn by a user for irrigation 220 purposes; domestic wastewater treatment facilities located in 221 fiscally constrained counties as defined in s. 218.67(1); 222 projects where reclaimed water is recovered from an aquifer 223 recharge system and subsequently discharged into a surface water 224 for potable reuse; wetlands creation, restoration, and 225 enhancement projects; surface water minimum flows and levels 226 recovery or prevention strategy plan projects; or domestic 227 wastewater treatment facilities located in municipalities that 228 are entirely within a rural area of opportunity designated under 229 s. 288.0656. 230 Section 3. (1) In implementing s. 403.8531, Florida 231 Statutes, as created by this act, the Department of 232 Environmental Protection, in coordination with one or more 233 technical working groups pursuant to subsection (2), shall adopt 234 rules for the implementation of potable reuse projects. The 235 department shall: 236 (a) Revise the appropriate chapters in the Florida 237 Administrative Code, including chapter 62-610, Florida 238 Administrative Code, to ensure that all rules implementing 239 potable reuse are in the Florida Administrative Code division 62 240 governing drinking water regulation. 241 (b) Revise existing drinking water rules to include 242 reclaimed water as a source water for the public water supply 243 and require such treatment of the water as is necessary to meet 244 existing drinking water rules, including rules for pathogens. 245 The potable reuse rules must include the implementation of a log 246 reduction credit system using advanced treatment technology to 247 meet pathogen treatment requirements, and must require a public 248 water supplier to provide an approach to meet the required 249 pathogen treatment requirements in an engineering report as part 250 of its public water supply permit application for authorization 251 of potable reuse. To ensure protection of the public health, as 252 part of the public water supply permit application to authorize 253 potable reuse, a public water supplier shall provide a 254 department-specified level of treatment or propose an approach 255 to achieving the log reduction targets based on source water 256 characterization that is sufficient for a pathogen risk of 257 infection which meets the national drinking water criteria of 258 less than 1 x 10-4 annually. 259 (c) Prescribe the means for using appropriate treatment 260 technology to address emerging constituents in potable reuse 261 projects. The advanced treatment technology must be technically 262 and economically feasible and must provide for flexibility in 263 the specific treatment processes employed to recognize different 264 project scenarios, emerging constituent concentrations, desired 265 finished water quality, and the treatment capability of the 266 facility. The advanced treatment technology may also be used for 267 pathogen removal or reduction. 268 1. The rules must require appropriate monitoring to 269 evaluate advanced treatment technology treatment performance, 270 including the monitoring of surrogate parameters and controls, 271 which monitoring must occur either before or after the advanced 272 treatment technologies treatment process, or both, as 273 appropriate. 274 2. For direct potable reuse projects, the rules must 275 require reclaimed water to be included in the source water 276 characterization for a drinking water treatment facility and, if 277 that source water characterization indicates the presence of 278 emerging constituents at levels of public health interest, must 279 specify how appropriate treatment technology will be used to 280 address those emerging constituents. 281 3. For indirect potable reuse projects, the department 282 shall amend the existing monitoring requirements contained 283 within part V of chapter 62-610, Florida Administrative Code, to 284 require monitoring for one or more representative emerging 285 constituents. The utility responsible for the indirect potable 286 reuse project shall develop an emerging constituent monitoring 287 protocol consisting of the selection of one or more 288 representative emerging constituents for monitoring and the 289 identification of action levels associated with such emerging 290 constituents. The monitoring protocol must provide that, if 291 elevated levels of the representative emerging constituent are 292 detected, the utility must report the elevated detection to the 293 department and investigate the source and cause of such elevated 294 emerging constituent. The utility shall submit the monitoring 295 protocol to the department for review and approval and shall 296 implement the monitoring protocol as approved by the department. 297 If the monitoring protocol detects an elevated emerging 298 constituent, and if the utility’s investigation indicates that 299 the use of the reclaimed water is the cause of such elevated 300 emerging constituent, the utility must develop a plan to address 301 or remedy that cause. The utility’s monitoring results, 302 investigation of any detected elevated emerging constituent 303 levels, determination of cause, and any plan developed to 304 address or remedy the cause must be submitted to the department 305 for review and approval. 306 (d) Specify industrial pretreatment requirements for 307 potable reuse projects. These industrial pretreatment 308 requirements must match the industrial pretreatment requirements 309 contained in chapter 62-625, Florida Administrative Code, as of 310 the effective date of this act. If necessary, the department 311 also must require the utility operating a potable reuse project 312 to implement a source control program, and the utility shall 313 identify the sources that need to be addressed. 314 (e) Provide off-spec reclaimed water requirements for 315 potable reuse projects which include the immediate disposal, 316 temporary storage, alternative nonpotable reuse, or retreatment 317 or disposal of off-spec reclaimed water based on operating 318 protocols established by the public water supplier and approved 319 by the department. 320 (f) Revise existing rules to specify the point of 321 compliance with drinking water standards for potable reuse 322 projects as the point where the finished water is finally 323 discharged from the drinking water treatment facility to the 324 water distribution system. 325 (g) Ensure that, as rules for potable reuse projects are 326 implemented, chapter 62-610.850, Florida Administrative Code, is 327 applicable. 328 (h) Revise the definition of the term “indirect potable 329 reuse” provided in chapter 62-610, Florida Administrative Code, 330 to match the definition provided in s. 403.8531, Florida 331 Statutes. 332 (2) The department shall convene and lead one or more 333 technical advisory committees to coordinate the rulemaking and 334 review of rules required by s. 403.8531, Florida Statutes. The 335 technical advisory committees, which shall assist in the 336 development of such rules, must be composed of knowledgeable 337 representatives of a broad group of interested stakeholders, 338 including, but not limited to, representatives from the water 339 management districts, the wastewater utility industry, the water 340 utility industry, the environmental community, the business 341 community, the public health community, and the agricultural 342 community, and consumers. 343 Section 4. To further promote the reuse of reclaimed water 344 for irrigation purposes, the rules that apply when reclaimed 345 water is injected into a receiving groundwater having 1,000 to 346 3,000 mg/L total dissolved solids are applicable to reclaimed 347 water aquifer storage and recovery wells injecting into a 348 receiving groundwater of less than 1,000 mg/L total dissolved 349 solids if the applicant demonstrates that there are no public 350 supply wells within 3,500 feet of the aquifer storage and 351 recovery wells and that it has implemented institutional 352 controls to prevent the future construction of public supply 353 wells within 3,500 feet of the aquifer storage and recovery 354 wells. 355 Section 5. The Division of Law Revision is directed to 356 replace the phrase “the effective date of this act” wherever it 357 occurs in this act with the date the act becomes a law. 358 Section 6. This act shall take effect upon becoming a law.