Florida Senate - 2020 CS for SB 1656 By the Committee on Innovation, Industry, and Technology; and Senator Albritton 580-03001-20 20201656c1 1 A bill to be entitled 2 An act relating to reclaimed water; amending s. 3 403.064, F.S.; prohibiting domestic wastewater 4 treatment facilities from disposing of effluent, 5 reclaimed water, or reuse water by surface water 6 discharge beginning on a specified date; providing 7 exceptions; creating s. 403.8531, F.S.; providing 8 legislative intent; defining terms; providing that 9 reclaimed water is a water source for public water 10 supply systems; providing specified groundwater and 11 surface water quality protections for potable reuse 12 projects; providing that potable reuse is an 13 alternative water supply and that projects relating to 14 such reuse are eligible for alternative water supply 15 funding; requiring the Department of Environmental 16 Protection to adopt specified rules; requiring the 17 department to review reclaimed water and potable reuse 18 rules and revise them as necessary; requiring the 19 department to review aquifer recharge rules and revise 20 them as necessary; requiring the department to 21 initiate rulemaking and to submit such rules to the 22 Legislature for approval by specified dates; requiring 23 the department and the water management districts to 24 develop and execute, by a specified date, a memorandum 25 of agreement for the coordinated review of specified 26 permits; providing that potable reuse projects are 27 eligible for certain expedited permitting and tax 28 credits; providing construction; creating s. 403.892, 29 F.S.; defining terms; requiring counties, 30 municipalities, and special districts to authorize 31 graywater technologies under certain circumstances and 32 to provide incentives for the implementation of such 33 technologies; requiring the department to adopt rules 34 for the implementation of potable reuse projects which 35 meet certain requirements; requiring the department to 36 convene at least one technical advisory committee for 37 specified purposes; providing for the composition of 38 the technical advisory committee; providing for the 39 applicability of specified reclaimed water aquifer 40 storage and recovery well requirements; providing a 41 directive to the Division of Law Revision; providing a 42 declaration of important state interest; providing an 43 effective date. 44 45 WHEREAS, sustainable water supplies are important to this 46 state’s economy, environment, and quality of life, and 47 WHEREAS, in 2019, Floridians used nearly 6.5 billion 48 gallons of water per day and are projected to need an additional 49 1.1 billion gallons of water per day by 2035, and 50 WHEREAS, more than 75 percent of this state’s water supply 51 comes from groundwater, and the availability of additional fresh 52 groundwater has become limited in many areas of this state, and 53 WHEREAS, this state’s continued growth and economic success 54 depend on the implementation of safe and sustainable alternative 55 water supplies, and 56 WHEREAS, the use of reclaimed water is an important 57 component of both wastewater management and water resource 58 management in this state, and 59 WHEREAS, in 2018, approximately 48 percent of the total 60 domestic wastewater flow in this state, 797 million gallons per 61 day, was reused for beneficial purposes, and 62 WHEREAS, the reuse of water is a critical component of 63 meeting this state’s existing and future water supply needs, and 64 WHEREAS, potable reuse is the augmentation of a drinking 65 water supply with reclaimed water from a municipal wastewater 66 source and is an alternative water supply source that can be 67 harnessed to help meet the additional water needs of this state 68 while protecting both the public health and the environment, and 69 WHEREAS, the Legislature finds that through the use of 70 advanced treatment technology, potable reuse is a safe and 71 sustainable alternative water supply source that can be used to 72 support a diverse, resilient, and sustainable water supply 73 portfolio, and is considered to be in the public interest, and 74 WHEREAS, potable reuse projects, when implemented in a 75 properly planned way using current environmental and engineered 76 treatment processes, have reduced, and will continue to reduce, 77 this state’s dependence on increased withdrawals from 78 groundwater and surface water sources, pollutant loadings to 79 waters of the state, and the nonbeneficial use of reclaimed 80 water, thus improving water quality and benefitting the 81 environment and local economies that depend on this state’s 82 natural resources, NOW, THEREFORE, 83 84 Be It Enacted by the Legislature of the State of Florida: 85 86 Section 1. Subsection (17) is added to section 403.064, 87 Florida Statutes, to read: 88 403.064 Reuse of reclaimed water.— 89 (17) Notwithstanding any other provisions in this section 90 to the contrary, beginning January 1, 2026, domestic wastewater 91 treatment facilities may not dispose of effluent, reclaimed 92 water, or reuse water by surface water discharge, except that 93 this prohibition does not apply to indirect potable reuse 94 projects; domestic wastewater treatment facility discharges 95 during wet weather which occur in accordance with the applicable 96 department permit; discharges into a stormwater management 97 system which are subsequently withdrawn by a user for irrigation 98 purposes; domestic wastewater treatment facilities located in 99 fiscally constrained counties as defined in s. 218.67(1); 100 projects where reclaimed water is recovered from an aquifer 101 recharge system and subsequently discharged into a surface water 102 for potable reuse; wetlands creation, restoration, and 103 enhancement projects; minimum flows and levels recovery or 104 prevention strategy plan projects; domestic wastewater treatment 105 facilities with reuse systems that provide a minimum of 90 106 percent of a facility’s annual average flow, as determined by 107 the department using monitoring data for the prior 5 consecutive 108 years, for reuse purposes authorized by the department; domestic 109 wastewater treatment facilities located in municipalities that 110 have less than $10 million in total revenue, as determined by 111 the most recent annual financial report submitted to the 112 Department of Financial Services in accordance with s. 218.32; 113 or domestic wastewater treatment facilities located in 114 municipalities that are entirely within a rural area of 115 opportunity designated under s. 288.0656. 116 Section 2. Section 403.8531, Florida Statutes, is created 117 to read: 118 403.8531 Potable reuse.— 119 (1) Recognizing that sufficient water supply is imperative 120 to the future of this state and that potable reuse is one source 121 of water which may assist in meeting future demands, the 122 Legislature intends for the department to adopt rules for 123 potable reuse which: 124 (a) Protect the public health and environment by ensuring 125 that the potable reuse rules meet federal and state drinking 126 water and water quality standards, including, but not limited 127 to, the Clean Water Act, the Safe Drinking Water Act, and water 128 quality standards pursuant to chapter 403, and, when possible, 129 implement such rules through existing regulatory programs. 130 (b) Support reclaimed water being used for potable reuse 131 purposes. 132 (c) Implement the recommendations set forth in the Potable 133 Reuse Commission’s 2020 report “Advancing Potable Reuse in 134 Florida: Framework for the Implementation of Potable Reuse in 135 Florida.” 136 (d) Require that the point of compliance with drinking 137 water standards for potable reuse projects is the final 138 discharge point for finished water from the water treatment 139 facility. 140 (e) Protect the aquifer and Florida’s springs and surface 141 waters by ensuring that potable reuse projects do not cause or 142 contribute to violations of water quality standards in surface 143 waters, including groundwater discharges that flow by interflow 144 and affect water quality in surface waters, and that potable 145 reuse projects shall be designed and operated to ensure 146 compliance with groundwater quality standards. 147 (2) As used in this section, the term: 148 (a) “Advanced treated reclaimed water” means the water 149 produced from an advanced water treatment process for potable 150 reuse applications. 151 (b) “Advanced treatment technology” means the treatment 152 technology selected by a utility to address emerging 153 constituents and pathogens in reclaimed water as part of a 154 potable reuse project. 155 (c) “Direct potable reuse” means the introduction of 156 advanced treated reclaimed water into a raw water supply 157 immediately upstream from a drinking water treatment facility or 158 directly into a potable water supply distribution system. 159 (d) “Emerging constituents” means pharmaceuticals, personal 160 care products, and other chemicals not regulated as part of 161 drinking water quality standards. 162 (e) “Indirect potable reuse” means the planned delivery or 163 discharge of reclaimed water to groundwater or surface waters 164 for the development of, or to supplement, the potable water 165 supply. 166 (f) “Off-spec reclaimed water” means reclaimed water that 167 does not meet the standards for potable reuse. 168 (g) “Potable reuse” means the augmentation of a drinking 169 water supply with advanced treated reclaimed water from a 170 domestic wastewater treatment facility, and consists of direct 171 potable reuse and indirect potable reuse. 172 (h) “Reclaimed water” means water that has received at 173 least secondary treatment and basic disinfection and is reused 174 after flowing out of a domestic wastewater treatment facility. 175 (3) To comply with drinking water quality standards, 176 reclaimed water is deemed a water source for public water supply 177 systems. 178 (4) Existing water quality protections that prohibit 179 discharges from causing or contributing to violations of water 180 quality standards in groundwater and surface waters apply to 181 potable reuse projects. In addition, when reclaimed water is 182 released or discharged into groundwater or surface water for 183 potable reuse purposes, there shall be a consideration of 184 emerging constituents and impacts to other users of such 185 groundwater or surface water. 186 (5) Potable reuse is an alternative water supply as defined 187 in s. 373.019, and potable reuse projects are eligible for 188 alternative water supply funding. The use of potable reuse water 189 may not be excluded from regional water supply planning under s. 190 373.709. 191 (6) The department shall: 192 (a) Adopt rules that authorize potable reuse projects that 193 are consistent with this section. 194 (b) Review existing rules governing reclaimed water and 195 potable reuse to identify obsolete and inconsistent requirements 196 and adopt rules that revise existing potable reuse rules to 197 eliminate such inconsistencies, while maintaining existing 198 public health and environmental protections. 199 (c) Review aquifer recharge rules and, if revisions are 200 necessary to ensure continued compliance with existing public 201 health and environmental protection rules when reclaimed water 202 is used for aquifer recharge, adopt such rules. 203 (d) Initiate rulemaking by December 31, 2020, and submit 204 the adopted rules to the President of the Senate and the Speaker 205 of the House of Representatives by December 12, 2021, for 206 approval and incorporation into chapter 403 by the Legislature. 207 Such rules may not be published as administrative rules by the 208 department. 209 (7) The department and the water management districts shall 210 develop and execute a memorandum of agreement providing for the 211 procedural requirements of a coordinated review of all permits 212 associated with the construction and operation of an indirect 213 potable reuse project. The memorandum of agreement must provide 214 that the coordinated review will occur only if requested by a 215 permittee. The purpose of the coordinated review is to share 216 information, to avoid the redundancy of information requested 217 from the permittee, and to ensure consistency in the permit for 218 the protection of the public health and the environment. The 219 department and the water management districts shall develop and 220 execute the memorandum of agreement by December 31, 2022. 221 (8) To encourage investment in the development of potable 222 reuse projects by private entities, a potable reuse project 223 developed as a qualifying project pursuant to s. 255.065 is: 224 (a) Beginning January 1, 2025, eligible for expedited 225 permitting under s. 403.973. 226 (b) Granted an annual credit against the tax imposed by 227 chapter 220 in an amount equal to 5 percent of the eligible 228 capital costs generated by a qualifying project for a period not 229 to exceed 20 years after the date that project operations begin. 230 The tax credit applies only to the corporate income tax 231 liability or the premium tax liability generated by or arising 232 out of the qualifying project, and the sum of all tax credits 233 provided pursuant to this section may not exceed 100 percent of 234 the eligible capital costs as defined in s. 220.191(1)(c). Any 235 credit granted pursuant to this paragraph may not be carried 236 forward or backward. 237 (c) Granted a 3-year extension of any deadlines imposed 238 under s. 403.064(17). 239 (d) Consistent with s. 373.707, eligible for priority 240 funding in the same manner as other alternative water supply 241 projects from the Drinking Water State Revolving Fund, under the 242 Water Protection and Sustainability Program, and for water 243 management district cooperative funding. 244 (9) This section is not intended and may not be construed 245 to supersede s. 373.250(3). 246 Section 3. Section 403.892, Florida Statutes, is created to 247 read: 248 403.892 Incentives for the use of graywater technologies.— 249 (1) As used in this section, the term: 250 (a) “Developer” has the same meaning as in s. 380.031. 251 (b) “Graywater” has the same meaning as in s. 252 381.0065(2)(e). 253 (2) To promote the beneficial reuse of water in this state, 254 a county, municipality, or special district shall do all of the 255 following: 256 (a) Authorize the use of residential graywater technologies 257 in their respective jurisdictions which comply with the Florida 258 Building Code; and 259 (b) Provide incentives to developers to fully offset the 260 costs of their beneficial reuse of water contribution through 261 graywater technology. Such incentives may include, but are not 262 limited to: 263 1. Allowing the developer density or intensity bonus 264 incentives or more floor space than allowed under the current or 265 proposed future land use designation or zoning; 266 2. Reducing or waiving fees, such as impact fees or water 267 and sewer charges; or 268 3. Granting other incentives. 269 (3) If the local government has already applied one of the 270 incentives identified in paragraph (2)(b) to the development, 271 the local government must provide the developer with an 272 additional incentive identified in paragraph (2)(b) to meet the 273 requirements of this section. 274 Section 4. (1) In implementing s. 403.8531, Florida 275 Statutes, as created by this act, the Department of 276 Environmental Protection, in coordination with one or more 277 technical working groups pursuant to subsection (2), shall adopt 278 rules for the implementation of potable reuse projects. The 279 department shall: 280 (a) Revise the appropriate chapters in the Florida 281 Administrative Code, including chapter 62-610, Florida 282 Administrative Code, to ensure that all rules implementing 283 potable reuse are in the Florida Administrative Code division 62 284 governing drinking water regulation. 285 (b) Revise existing drinking water rules to include 286 reclaimed water as a source water for the public water supply 287 and require such treatment of the water as is necessary to meet 288 existing drinking water rules, including rules for pathogens. 289 The potable reuse rules must include the implementation of a log 290 reduction credit system using advanced treatment technology to 291 meet pathogen treatment requirements, and must require a public 292 water supplier to provide an approach to meet the required 293 pathogen treatment requirements in an engineering report as part 294 of its public water supply permit application for authorization 295 of potable reuse. To ensure protection of the public health, as 296 part of the public water supply permit application to authorize 297 potable reuse, a public water supplier shall provide a 298 department-specified level of treatment or propose an approach 299 to achieving the log reduction targets based on source water 300 characterization that is sufficient for a pathogen risk of 301 infection which meets the national drinking water criteria of 302 less than 1 x 10-4 annually. 303 (c) Prescribe the means for using appropriate treatment 304 technology to address emerging constituents in potable reuse 305 projects. The advanced treatment technology must be technically 306 and economically feasible and must provide for flexibility in 307 the specific treatment processes employed to recognize different 308 project scenarios, emerging constituent concentrations, desired 309 finished water quality, and the treatment capability of the 310 facility. The advanced treatment technology may also be used for 311 pathogen removal or reduction. 312 1. The rules must require appropriate monitoring to 313 evaluate advanced treatment technology treatment performance, 314 including the monitoring of surrogate parameters and controls, 315 which monitoring must occur either before or after the advanced 316 treatment technologies treatment process, or both, as 317 appropriate. 318 2. For direct potable reuse projects, the rules must 319 require reclaimed water to be included in the source water 320 characterization for a drinking water treatment facility and, if 321 that source water characterization indicates the presence of 322 emerging constituents at levels of public health interest, must 323 specify how appropriate treatment technology will be used to 324 address those emerging constituents. 325 3. For indirect potable reuse projects, the department 326 shall amend the existing monitoring requirements contained 327 within part V of chapter 62-610, Florida Administrative Code, to 328 require monitoring for one or more representative emerging 329 constituents. The utility responsible for the indirect potable 330 reuse project shall develop an emerging constituent monitoring 331 protocol consisting of the selection of one or more 332 representative emerging constituents for monitoring and the 333 identification of action levels associated with such emerging 334 constituents. The monitoring protocol must provide that, if 335 elevated levels of the representative emerging constituent are 336 detected, the utility must report the elevated detection to the 337 department and investigate the source and cause of such elevated 338 emerging constituent. The utility shall submit the monitoring 339 protocol to the department for review and approval and shall 340 implement the monitoring protocol as approved by the department. 341 If the monitoring protocol detects an elevated emerging 342 constituent, and if the utility’s investigation indicates that 343 the use of the reclaimed water is the cause of such elevated 344 emerging constituent, the utility must develop a plan to address 345 or remedy that cause. The utility’s monitoring results, 346 investigation of any detected elevated emerging constituent 347 levels, determination of cause, and any plan developed to 348 address or remedy the cause must be submitted to the department 349 for review and approval. 350 (d) Specify industrial pretreatment requirements for 351 potable reuse projects. These industrial pretreatment 352 requirements must match the industrial pretreatment requirements 353 contained in chapter 62-625, Florida Administrative Code, as of 354 the effective date of this act. If necessary, the department 355 also must require the utility operating a potable reuse project 356 to implement a source control program, and the utility shall 357 identify the sources that need to be addressed. 358 (e) Provide off-spec reclaimed water requirements for 359 potable reuse projects which include the immediate disposal, 360 temporary storage, alternative nonpotable reuse, or retreatment 361 or disposal of off-spec reclaimed water based on operating 362 protocols established by the public water supplier and approved 363 by the department. 364 (f) Revise existing rules to specify the point of 365 compliance with drinking water standards for potable reuse 366 projects as the point where the finished water is finally 367 discharged from the drinking water treatment facility to the 368 water distribution system. 369 (g) Ensure that, as rules for potable reuse projects are 370 implemented, chapter 62-610.850, Florida Administrative Code, is 371 applicable. 372 (h) Revise the definition of the term “indirect potable 373 reuse” provided in chapter 62-610, Florida Administrative Code, 374 to match the definition provided in s. 403.8531, Florida 375 Statutes. 376 (2) The department shall convene and lead one or more 377 technical advisory committees to coordinate the rulemaking and 378 review of rules required by s. 403.8531, Florida Statutes. The 379 technical advisory committees, which shall assist in the 380 development of such rules, must be composed of knowledgeable 381 representatives of a broad group of interested stakeholders, 382 including, but not limited to, representatives from the water 383 management districts, the wastewater utility industry, the water 384 utility industry, the environmental community, the business 385 community, the public health community, and the agricultural 386 community, and consumers. 387 Section 5. To further promote the reuse of reclaimed water 388 for irrigation purposes, the rules that apply when reclaimed 389 water is injected into a receiving groundwater having 1,000 to 390 3,000 mg/L total dissolved solids are applicable to reclaimed 391 water aquifer storage and recovery wells injecting into a 392 receiving groundwater of less than 1,000 mg/L total dissolved 393 solids if the applicant demonstrates that there are no public 394 supply wells within 3,500 feet of the aquifer storage and 395 recovery wells and that it has implemented institutional 396 controls to prevent the future construction of public supply 397 wells within 3,500 feet of the aquifer storage and recovery 398 wells. 399 Section 6. The Division of Law Revision is directed to 400 replace the phrase “the effective date of this act” wherever it 401 occurs in this act with the date the act becomes a law. 402 Section 7. The Legislature determines and declares that 403 this act fulfills an important state interest. 404 Section 8. This act shall take effect upon becoming a law.