Water reuse: technology to GreenUp our blue planet

Article #5 – Water reuse, a major public policy issue

This article is the last of this series advocating for an accelerated deployment of water reuse.

In the first four pieces, with colleagues from Veolia , we presented the global water crisis that pushes us to look for alternative water resources, we explained what is water reuse and how it helps us depollute and regenerate this precious resource, and we presented concrete examples illustrating the variety of situations in which it can help us save water.?

For this fifth and last piece, I want to highlight how different countries have taken up this subject, adopting very regulatory frameworks, and leading to highly contrasting situations regarding the adoption of this technology.

To do this, I have invited two colleagues from Veolia who are top specialists of Public Affairs: Denis Bonvillain , Head of EU Public Affairs, and Jon Freedman , Senior VP Global Government Affairs and Policy for Water Technologies.

How is water reuse progressing globally?

Anne Le Guennec:

The case for water reuse is gaining traction worldwide. Awareness of the increasing risk of water scarcity, driven by population growth, urbanization, and climate change, is growing among decision-makers at all levels and within civil societies. Water reuse is increasingly recognized as a crucial solution to these challenges. I want to acknowledge the outstanding outreach efforts of various associations, NGOs, and institutions across all continents, such as the World Resources Institute , the United Nations , 世界银行 , the IFC - International Finance Corporation , the International Desalination and Reuse Association (IDRA) , the WateReuse Association , Water Europe , AquaFed ... Their work emphasizes the urgency of adopting efficient water management practices and the benefits of water reuse – including mitigating the global water crisis, boosting economies, and supporting sectors such as agriculture, industry, and urban development – has been instrumental in rallying support for water reuse initiatives.

According to the UN World Water Development Report 2023, the adoption of water reuse technologies is vital for ensuring sustainable water management and achieving the Sustainable Development Goals, particularly SDG 6, which focuses on clean water and sanitation for all by 2030. The report notes that despite some progress, the pace of implementation must significantly increase to meet the 2030 targets. There remain various challenges to overcome, including technological and financial barriers, but also the establishment of a favorable regulatory framework.

Jon Freedman:

The approach to water recycling varies significantly from country to country, resulting in diverse regulatory landscapes today. In some nations, water reuse is either not permitted or severely restricted. By contrast, countries like Israel and Singapore have adopted proactive water reuse policies due to exposure to water scarcity and far-seeing leadership. These nations have established comprehensive and favorable regulatory frameworks that have led to high rates of wastewater recycling. For instance, Israel recycles approximately 85% of its wastewater, while reused water accounts for about 45% of Singapore’s total water supply.

Both Israel and Singapore have achieved these outcomes through well-developed water policies that include extensive education and outreach efforts to inform the population about the benefits and safety of water reuse. Additionally, setting national targets has proven to be an effective strategy to unite the country towards achieving common water sustainability goals. These examples underscore the importance of tailored policies and public engagement in successfully implementing water reuse strategies.

Denis Bonvillain:

The same is true within the European Union, where different countries exhibit varied levels of engagement with water reuse, largely dependent on their particular experience of water scarcity and their overall maturity regarding water management issues. Southern European countries, historically more vulnerable to water stress, have shown greater awareness and taken proactive measures concerning water reuse, especially as climate change intensifies these challenges.

Spain, a pioneer within Europe on this issue, has adopted water reuse extensively as a strategic response to sustain its economic activities. Typically, the agricultural sector in regions like Murcia, known as Spain's orchard, can be sustained only through water reuse. Currently, Spain recycles about 15% of its wastewater; Italy follows with a recycling rate of around 8%, while France is lagging behind, recycling only about 1% of its wastewater.

These disparities underscore a critical message that companies like Veolia advocate: Europe needs to shift its perspective on water from viewing it as an abundant resource to treating it as a precious one, that requires efficient management and conservation. This shift towards a more sustainable water use model is essential not only for addressing immediate environmental impacts but also for securing long-term water sustainability across the continent.

What levers can public authorities use to promote the development of water recycling?

Jon Freedman:

There are essentially four levers that governments can use to advance water reuse through public policy. The first, and perhaps the most important, is education and outreach. This involves explaining to the population the stakes involved, why water reuse is necessary, what are its benefits, and, most importantly, assuring them that reused water is perfectly safe.

The second lever is to remove barriers that slow the development of water reuse. These barriers can be administrative, such as when procedures to authorize projects are excessively long and complex. They can also be economic, like inefficient water pricing schemes. Sometimes, however, the most significant barrier is uncertainty and the lack of regulatory clarity. In particular, the absence of standardized and widely accepted guidelines for the application of reused water remains a substantial hurdle.

The third lever is to provide economic incentives, such as grants, tax credits, and loans with low-interest rates. The goal here is to offer both rewards and recognition for positive contributions.

Lastly, the fourth lever that public authorities can use is to mandate and enforce requirements: for example, imposing water reuse requirements during droughts, as Israel has successfully implemented.

It is crucial for governments to have a menu of policy options from which to choose, including more flexible alternatives than mandating. Mandates are challenging to implement, often unpopular, and typically only efficient in emergencies.

Anne Le Guennec:

The issue of public acceptance is crucial for the successful implementation of water reuse programs. A prime example of effective education and outreach can be seen in Singapore, where authorities have not only explained how water reuse contributes to the country’s sovereignty but also demonstrated, through their own actions, that drinking recycled water is perfectly safe. This approach has been key in shifting public perceptions about water reuse.

I would like to highlight another example that underscores the importance of cultural norms in the public acceptance of water reuse. Effective communication that respects these norms can significantly enhance the acceptability of such projects. The term 'from toilet to tap' has often been used in a pejorative manner, vividly linking the water's origin with its use and eliciting negative reactions. In contrast, this phrase was later transformed into 'from shower to flower', which evokes a much more positive image. This rewording creates a benign and harmless connection between the water's source and its use, while suggesting a beneficial contribution to environmental sustainability. Such a shift from negative to positive publicity underscores the critical role of public communication strategies in garnering support for water reuse initiatives.

How is the topic approached within the European Union??

Denis Bonvillain:

There are deep differences in approach between Northern European countries, particularly the Nordic countries, which are not really exposed to water stress and therefore do not feel very concerned about the issue - even today - and the Southern countries, which have embraced the topic much earlier. For a long time, there was no regulatory framework in place at the European level, as there was no shared vision of these challenges. Each member state acted independently, with very different policies.

Since 2010, some voices, including those of several? water management associations, have called for the establishment of a normative framework at the European level. Having a stable framework that sets quality standards for different water uses is essential to give all stakeholders – both industrial players and public authorities – the visibility necessary to embark on ambitious projects. It is not about forcing anyone to do water reuse, but rather about stating what is permitted, and what standards must be met by each project, depending on the use made of the recycled water.

Discussions were lengthy and resulted in the establishment of a first regulation in 2020 focusing on the agricultural sector. This text, strictly limited to agricultural irrigation, sets the quality standards for reused water, distinguishing a whole typology of uses, depending on the nature of the crops, whether there is direct or indirect contact with the food, and the transformations they will undergo before being consumed. As of today, there is no other European framework than this one. Even though mentalities have changed a lot, following the droughts of 2022 and 2023, there is still strong resistance to extending this approach to other uses, such as urban cleaning, watering public gardens, industrial uses... These are not prohibited; however, it is up to the member states to set the regulatory framework.

Can you zoom in on France? What is the state of the regulatory framework in force?

Denis Bonvillain:

France is one of the countries that has evolved the most in recent years. The Water Plan of early 2023 marks a significant step toward more resilient water management. This plan sets an ambitious target of achieving 10% water reuse by 2030, which would mean a tenfold increase in the proportion of wastewater that is recycled compared to today. This plan reflects an awareness by public authorities of the end of water abundance. Businesses have also become aware of the situation: water scarcity is now one of the top three risks identified by many in their risk mappings.

Currently, in France, water reuse is permitted for agricultural irrigation, street cleaning, watering golf courses or other sports facilities, and indirect potable reuse as is being experimented by the Jourdain demonstrator project, initiated by the public water service Vendée Eau in the western part of France. In each of these cases, there are very strict standards to be met, and an administrative process to follow for the authorization of each project, including from health authorities. This process was very cumbersome until 2022, and one of the main goals of the Water Plan was to streamline these procedures by establishing a one-stop-shop. A few days ago, a new decree was passed that sets out the various possible uses in the food industry and the required quality standards. This is a new advancement that industry professionals have long awaited, and that will make the food sector more resilient.

And what about the United States?

Jon Freedman:

In the United States, water reuse policies are mainly shaped at three levels: federal, state, and local. The federal government launched a National Water Reuse Action Plan in 2019 to promote greater water reuse across the country. This plan creates action items that are designed to address technical, financial and institutional barriers.

In terms of incentives, the federal government provides grants to support water infrastructure. Notably, the Bipartisan Infrastructure Law, enacted 3 years ago, provides substantial funding for water infrastructure projects, including water reuse projects.

Although interest in reuse is growing across the US, typically the states most advanced in implementing water reuse policies are those in the West and Southwest, regions which face more arid conditions and thus have a higher urgency for sustainable water management. For example, California, Colorado, Arizona, and Texas have all recently taken action to advance reuse. The growing awareness of water scarcity has accelerated efforts in these areas, and communities experiencing the most severe water stress levels are particularly proactive in adopting water reuse strategies. For example, cities like Los Angeles have set ambitious targets for water reuse; LA’s former Mayor Eric Garcetti even pledged to recycle 100% of LA's wastewater by 2035! Water reuse is essentially a local issue, which needs to be addressed at local or regional level, and ideally even at the level of each river basin.

Today, many local governments are enacting regulations to authorize potable water reuse. States like California and Colorado have implemented significant Direct Potable Reuse (DPR) regulations. California is already permitting DPR, and there is a major project underway in San Diego which, upon completion, will be the largest of its kind in the U.S. Meanwhile, Veolia is involved in another project in Los Angeles, an Indirect Potable Reuse scheme which will be one of the world's largest.

It's important to note that while current efforts focus predominantly on municipal water reuse, there is a growing need to expand these initiatives to include industrial applications, where the potential for water savings is considerable due to the higher volume of water usage in this sector.

What are the best practices in public policy for water management?

Denis Bonvillain:

An effective water policy must operate on several levels: firstly, it should integrate measures promoting water conservation, educating citizens, elected officials, and industrial players. This policy can be reflected in contractual commitments to water conservation in public service delegation contracts – this already exists, for example, in the water management contract of the Metropolitan area? of Lille (MEL), which includes a goal to reduce water volumes by 10% over 10 years. Efforts must also be made to improve the efficiency of distribution networks, where too much water is still wasted. Similarly, it is essential to encourage industries to enhance their water efficiency, that is, to reduce the amount of water needed to produce the same output. Along with other sector stakeholders, we support the adoption by the European Union of mandatory water efficiency targets for industries, as is already the case with energy. Unfortunately, these various efforts are generally not enough, water policies must therefore also include a "water reuse" component to develop alternative water resources.

Anne Le Guennec:

Water is a finite resource. There is no plan B, so we need collectively to design policies and deploy solutions to preserve, reduce and reuse water whenever possible. Ideally, regulatory frameworks should be enriched both at the European level and within each member state, as water management remains a local or national issue – even though resources are sometimes transboundary. Therefore, each member state should develop a comprehensive "water plan" to better manage its water resources, as France did in 2023.?

At the European level, we – Veolia and other industry stakeholders – are not calling for European goals for water reuse; reuse is not always the best solution, as it largely depends on the local context. What we do want, however, is an expansion of the current framework to include various use cases of water reuse, by setting quality standards for urban cleaning, watering parks or sports facilities, and establishing shared rules at the European level for industrial reuse. Otherwise, we have to deal with each case individually, completely reinventing a new system each time, based on different specifications. That is not efficient.

What can professional organizations that bring together water management professionals do to promote water reuse?

Jon Freedman:?

At a high level, there is a considerable focus on promoting municipal water reuse across various geographies, yet industrial water reuse does not receive sufficient attention. Recognizing the importance of industrial water reuse as a key lever to alleviate water stress, we – the WateReuse association, on the board of which I am sitting, and Veolia – have teamed up with the US Chamber of Commerce, the US Environmental Protection Agency, the University of Pennsylvania Water Center, and the International Desalination and Reuse Association, to set up a “Global Industrial Water Reuse Champion Award”. This prestigious award honors Fortune 1000 companies that exemplify best-in-class practices in water recycling and reuse, enhancing their water stewardship and achieving their water management objectives. The award is part of the National Water Reuse Action Plan (WRAP), a collaborative effort led by the U.S. Environmental Protection Agency to promote advancements in the science, policy, and practice of water reuse and recycling. Last year, the award was presented to Carlsberg Brewery and Kimberly-Clark, in recognition of their exemplary water reuse practices.

Currently, we are also advocating for the establishment of an investment tax credit for industrial water reuse. Given that tax credits have successfully contributed to make wind and solar energy competitive, we believe a similar incentive for water reuse is equally justified. We are actively working with members of Congress to advocate for such legislation. As a board member of the WateReuse Association, I am deeply involved in these efforts to promote legislative changes that support industrial water reuse, aiming to reduce water scarcity and enhance sustainability in industrial practices.

Denis Bonvillain:

Veolia has been championing the cause of water reuse at the European level for over a decade, recognizing that the absence of a comprehensive European framework on the subject was detrimental for national water management policies and initiatives. It took more than ten years to establish a framework for the agricultural use of treated wastewater, and we are now promoting the extension of this framework to other uses.

How do we do about this? Through thought leadership, comprehensive studies and analyses, and by showcasing exemplary references. For instance, our reference project in California demonstrates our capability to produce five different qualities of water tailored to specific needs, and respecting different specifications. This example not only highlights the technical feasibility of sophisticated water reuse systems, but also serves as a model of efficiency and innovation in water management. Presenting what has already been implemented in other geographies, and how these projects have successfully contributed to water conservation is the most efficient way to influence policy and promote the adoption of similar strategies across Europe.

Anne Le Guennec:?

This series of articles was designed with precisely these objectives: explaining why water reuse is perfectly safe and indispensable to make water management more efficient and sustainable, and presenting the positive contributions it can deliver in a wide variety of situations. In many places around the world, I observe the same growing awareness of the increasing scarcity of water, and the same willingness to make the investments required for the conservation of this resource. As industrial players, our role is to continue innovating, to design the most efficient systems that meet these needs. But it is also our responsibility to make our voice heard, both to the general public and to public decision-makers, to share our experiences about what is currently available and the solutions we are capable of offering.

As this series wraps up, I want to emphasize a few very simple messages.

Continuing to meet the growing water needs worldwide in the coming decades, while the availability of natural freshwater resources becomes increasingly unpredictable, will be a great challenge.

To overcome it, technology is our indispensable ally, which we must fully and wisely mobilize. We must learn new ways to manage our resources, and in particular, learn to manage several different qualities of water, based on the specific requirements of each use.

Lastly, we must always keep in mind that the key to the successful implementation of these technologies will be their acceptance by the general public; hence the importance of carefully designing efficient outreach and communication strategies.