Beyond User Acceptance: A Legitimacy Framework for Potable Water Reuse in California

Abstract

Water resource managers often tout the potential of potable water reuse to provide a reliable, local source of drinking water in water-scarce regions. Despite data documenting the ability of advanced treatment technologies to treat municipal wastewater effluent to meet existing drinking water quality standards, many utilities face skepticism from the public about potable water reuse. Prior research on this topic has mainly focused on marketing strategies for garnering public acceptance of the process. This study takes a broader perspective on the adoption of potable water reuse based on concepts of societal legitimacy, which is the generalized perception or assumption that a technology is desirable or appropriate within its social context. To assess why some potable reuse projects were successfully implemented while others faced fierce public opposition, we performed a series of 20 expert interviews and reviewed in-depth case studies from potable reuse projects in California. Results show that proponents of a legitimated potable water reuse project in Orange County, California engaged in a portfolio of strategies that addressed three main dimensions of legitimacy. In contrast, other proposed projects that faced extensive public opposition relied on a smaller set of legitimation strategies that focused near-exclusively on the development of robust water treatment technology. Widespread legitimation of potable water reuse projects, including direct potable water reuse, may require the establishment of a portfolio of standards, procedures, and possibly new institutions.

Newspaper Coverage of Potable Water Recycling at Orange County Water District’s Groundwater Replenishment System, 2000–2016

“…Non-potable water recycling, for example using recycled water for irrigation purposes, is a rather non-controversial form of reuse. In order to enhance urban water sustainability, recycling wastewater for potable purposes is emerging as an attractive alternative, either for immediate or future use [2,3]. The success of potable water recycling projects varies between cities and increasingly requires public approval and political support [3,4].…”

“…In order to enhance urban water sustainability, recycling wastewater for potable purposes is emerging as an attractive alternative, either for immediate or future use [2,3]. The success of potable water recycling projects varies between cities and increasingly requires public approval and political support [3,4]. While many potable reuse projects have been proposed, some have been halted due to public opposition and flat-out refusal to drink what was once sewage water, as was the case in San Diego County, California, United States (US).…”

“…While many potable reuse projects have been proposed, some have been halted due to public opposition and flat-out refusal to drink what was once sewage water, as was the case in San Diego County, California, United States (US). Given the possibility of public upset, the success of the Groundwater Replenishment System (GWRS) in Orange County, California, US has emerged as the international model for potable water recycling [3,5].…”

“…De facto reuse is unplanned. For example, when an upstream community discharges treated effluent in a river or tributary that serves as the water supply for downstream communities, this is a form of de facto Under normal conditions, urban water systems operate in semi-obscurity [27] (p. 45), however, proposals for potable water recycling projects can be-and often are-frustrated by lack of political support and public skepticism during the planning process [3,5]. Although potable reuse is not new, it is an adaptation that planners recognize requires rebranding, engagement, and demonstration projects, which are directed at elected officials, opinion leaders, as well as the general public [4,28].…”

“…Newspaper coverage is considered by scholars to be an appropriate proxy for a topic's prominence in society [35]. Recognizing newspapers as critical conduits of public information, we focus exclusively on operations at OCWD because it is "considered best practice in the potable water reuse community" [3] (p. 7554) in "one of the very few regions worldwide where this technology is becoming common practice" [5] (p. 249).…”