The Florida Senate
BILL ANALYSIS AND FISCAL IMPACT STATEMENT
(This document is based on the provisions contained in the legislation as of the latest date listed below.)
Prepared By: The Professional Staff of the Committee on Environment and Natural Resources
BILL: SB 1208
INTRODUCER: Senator Truenow
SUBJECT: Service Lateral Assessment and Rehabilitation
DATE: March 14, 2025
ANALYST STAFF DIRECTOR REFERENCE ACTION
1. Barriero Rogers EN Favorable
2. RI
3. FP
I. Summary:
SB 1208 establishes the Florida Service Lateral Assessment and Rehabilitation Act. The bill
requires all utility systems to implement a condition assessment program for service laterals. A
condition assessment program is a structured inspection, data collection, and risk evaluation
methodology designed to identify and prioritize structural and infiltration and inflow issues in
sewer laterals. Utilities may either conduct assessments directly or contract licensed entities
certified by the National Association of Sewer Service Companies (NASSCO). Each service
lateral must be inspected at least once every seven years and include a full assessment from the
mainline sewer connection to the building structure. Inspections must use closed-circuit
television technology and NASSCO assessment protocols. Each service lateral must receive a
pipeline severity score indicating any observed or potential structural defects, infiltration, or
inflow concerns. Inspection videos, reports, condition ratings, and other data must be recorded
and stored in a secure, cloud-based platform. Condition assessment data must be maintained in a
publicly accessible database for properties where defective, damaged, or deteriorated service
laterals are identified.
The bill also requires utility systems to establish a lateral monolithic repair program for laterals
with a high risk of failure or infiltration and inflow events. Under the program, the utility system
must rehabilitate or replace such service laterals using trenchless technology methods. Any
lateral identified for rehabilitation must be repaired within 12 months by a certified general
contractor using specified methods and materials that meet industry standards.
The bill requires utility systems to submit annual compliance reports. The bill also directs the
Department of Environmental Protection to enforce the act’s provisions. Utility systems found to
be noncompliant may be subject to penalties, permit suspensions, or funding restrictions. The bill
allows for the establishment of state-funded incentives, grants, or matching funds to support
condition assessment and repair efforts. State or local funds for environmental preservation or
protection of water quality may also be applied to this program.
REVISED: BILL: SB 1208 Page 2
II. Present Situation:
Sanitary Sewer Laterals
Sanitary sewers convey wastewater from homes and businesses to a centralized treatment plant.
1
Sewer laterals are the portion of the sewer network connecting individual and private properties
to the public sewer system.
2
Private laterals typically make up half of the total length of a sewer
system.
3
Defects in sewer laterals can occur due to aging systems, structural failure, lack of maintenance,
or poor construction and design practices.
4
Such defects can have a significant impact on the
performance of the sewer system and treatment plant.
5
Cracked or broken laterals can allow
groundwater and infiltrating rainwater to enter the sewer system which, at high levels, can cause
problems at the treatment facility and overload sewer systems, leading to sanitary sewer
overflows.
6
Sewer rehabilitation involves repairing structural defects and extending the useful life of the
pipe.
7
Traditional sewer rehabilitation methods typically require full excavation of the existing
1
Water Environment Federation, Sanitary Sewer Rehabilitation Fact Sheet, 1 (2017), available at
https://www.wef.org/globalassets/
assets-wef/direct-download-library/public/03---resources/wsec-2017-fs-009---csc---sewer-rehabilitation---final---9.27.17.pdf.
2
U.S. Environmental Protection Agency (EPA), Private Sewer Laterals, 1 (2014), available at
https://www3.epa.gov/region1/sso/pdfs/PrivateSewerLaterals.pdf (showing graphic of sewer lateral).
3
Id.
4
Water Environment Federation, Sanitary Sewer Rehabilitation Fact Sheet at 1-2.
5
EPA, Private Sewer Laterals at 1.
6
Id.
7
See EPA, State of Technology for Rehabilitation of Wastewater Collection Systems, iv (2010), available at
https://nepis.epa.gov/Adobe/PDF/P1008C45.pdf. BILL: SB 1208 Page 3
pipeline to replace it or install a parallel sewer line.
8
While these traditional methods require
unearthing and replacing the deficient pipe (the dig-and-replace method), trenchless methods of
rehabilitation use the existing pipe as a host for a new pipe or liner.
9
Trenchless sewer
rehabilitation techniques offer a method of correcting pipe deficiencies that require less
restoration and cause less disturbance and environmental degradation than traditional methods.
10
Examples of trenchless sewer rehabilitation methods include:
• Pipe bursting or in-line expansion, where the existing pipe is forced outward and opened by a
bursting tool and a new pipe is inserted;
• Sliplining, where a new liner of smaller diameter is inserted inside the existing pipe;
• Cured-in-place pipe or pipelining, where a flexible fabric liner coated with resin is inserted
into the existing pipeline and curing it to form a new liner;
• Modified cross section liner, where the pipe’s cross sectional profile is modified or reduced
so that the liner can be extruded through the existing pipe.
11
There are no statewide requirements for inspections of sanitary sewer laterals. Generally, local
governments are responsible for maintaining sewer mains and the portions of sewer laterals in
public rights-of-way, but the property owner is responsible for the maintenance and repair of
laterals on their private property.
12
Some local governments offer rebates for the costs of private
sewer lateral replacement or rehabilitation.
13
Inspection Technologies
Before camera and robotic equipment became widely available, sewer inspections relied upon
visual and lamping approaches.
14
Workers would enter a maintenance access point (manhole)
and visually examine the pipes. Sometimes workers would also attempt to illuminate the interior
of a pipe to determine whether the light could reach the adjacent manhole (an approach known as
lamping). If light was observed, the pipe was assumed to be relatively free from obstructions, but
if light was not observed, the pipe was assumed to have a blockage that could obstruct flow.
15
Smoke has also been used to test sewer lines. Smoke testing of sewer lines is primarily used to
find places where groundwater and stormwater runoff can enter the sewer system.
16
It involves
forcing smoke into the sewer pipes to detect leaks, breaks, and defects in the lines.
17
8
See EPA, Collection Systems O&M Fact Sheet: Trenchless Sewer Rehabilitation, 1 (1999), available at
https://www3.epa.gov/npdes/pubs/rehabl.pdf.
9
Id.
10
Id.
11
Id. at 1-3. See also EPA, State of Technology for Rehabilitation of Wastewater Collection Systems at 16-36.
12
See ss. 125.569 and 166.0481, F.S.
13
See Pinellas County, Private Sewer Lateral Program, https://pinellas.gov/programs/private-sewer-lateral-program/ (last
visited Mar. 8, 2025); Emerald Coast Utilities Authority, Private Sewer Lateral Program, https://ecua.fl.gov/services/private-
sewer-lateral-program (last visited Mar. 8, 2025).
14
EPA, Demonstration of Innovative Sewer System Inspection Technology: SL-RAT, s. 1.2 (2014), available at
https://nepis.epa.gov/Adobe/PDF/P100IY1P.pdf.
15
Id.
16
City of Tallahassee, Smoke Testing of Sewer Lines, https://www.talgov.com/projects/smoketesting (last visited Mar. 13,
2025).
17
Id. BILL: SB 1208 Page 4
More recently, workers conduct remote, non-entry, camera-based inspections using closed-
circuit television (CCTV), laser profiling, or sonar assessment.
18
Workers mount a camera on a
pole and lower it into a manhole; an equipment operator can then remotely view what the camera
observes in the pipe. Another option is to use robotic systems mounted with CCTV camera
equipment, which can be remotely operated, controlled, and monitored.
19
Laser profiling goes
beyond visual inspection and allows for geometric measurements to be obtained. Sonar profiling
equipment requires the sensing apparatus to be completely submerged and only provides an
assessment of the pipe condition under the water level; therefore, sonar equipment is often
coupled with CCTV equipment so that the pipe above and below the water level can be
inspected.
20
Sanitary Sewer Lateral Inspection Programs for Counties and Municipalities
Counties and municipalities are encouraged to establish an evaluation and rehabilitation program
for sanitary sewer laterals
21
on residential and commercial properties to identify and reduce
extraneous flow from leaking sanitary sewer laterals.
22
Counties and municipalities that opt to
establish such a program are authorized to do the following:
• Establish a system to identify defective, damaged, or deteriorated sanitary sewer laterals on
residential and commercial properties within their respective jurisdictions;
• Consider economical methods for a property owner to repair or replace a defective, damaged,
or deteriorated sanitary sewer lateral; and
• Establish and maintain a publicly accessible database to store information concerning
properties where a defective, damaged, or deteriorated sanitary sewer lateral has been
identified. For each property, the database must include, but is not limited to, the address of
the property, the names of any persons the county or municipality notified concerning the
faulty sanitary sewer lateral, and the date and method of such notification.
23
National Association of Sewer Service Company (NAASCO) Certification
Established in 1976 as a trade association, NASSCO specializes in underground infrastructure
and trenchless technology.
24
NAASCO provides training and resources to the industry and
administers several certification programs, including for pipeline assessment, manhole
assessment, and lateral assessment. To maintain certification, professionals must be recertified
every three years.
25
18
EPA, Demonstration of Innovative Sewer System Inspection Technology: SL-RAT at s. 1.2, available at
https://nepis.epa.gov/Adobe/PDF/P100IY1P.pdf.
19
Id.
20
Id.
21
A sanitary sewer lateral is defined in Florida law as a privately owned pipeline connecting a property to the main sewer
line which is maintained and repaired by the property owner. Section 125.569(1), F.S.
22
See generally ss. 125.569 and 166.0481, F.S.
23
Sections 125.569(2) and 166.0481(2), F.S.
24
NAASCO, About NAASCO, https://www.nassco.org/about/ (last visited Mar. 8, 2025).
25
NAASCO, Recertification, https://nassco.org/education-and-training/pacp-lacp-macp/pacp-lacp-macp-recertification/ (last
visited Mar. 8, 2025). BILL: SB 1208 Page 5
III. Effect of Proposed Changes:
The bill contains several whereas clauses that provide the following:
• Numerous studies, including data from the Department of Environmental Protection (DEP)
and Water Environment Federation case analyses, indicate that a substantial percentage of
infiltration and inflow into wastewater collection systems originates from private-side service
laterals and that lack of oversight and limited enforcement authority over privately owned
lateral segments compound this issue.
• In the past 20 years, the state’s wastewater systems have spilled or improperly discharged
over 2.5 billion gallons of raw or partially treated sewage into the environment and a
significant portion reached waterways, causing catastrophic environmental damage and
public health threats.
• The state is projected to exceed 3 billion gallons of sewage leakage since 2000, most of
which can be traced back to failing or leaky lateral pipelines.
• Excessive infiltration from deteriorated service laterals frequently overloads utility treatment
capacities, leading to sanitary sewer overflows and environmental hazards and these
overflows compromise water quality, harm aquatic ecosystems, and pose severe public health
risks.
• Insufficient monitoring and lack of clear remedial protocols for laterals have allowed
structural defects and infiltration and inflow sources to remain largely unaddressed.
• This act aims to rectify these deficiencies through uniform inspection, public transparency,
and mandatory rehabilitation requirement.
Section 1 creates s. 403.4156, F.S., which establishes the Florida Service Lateral Assessment
and Rehabilitation Act. The bill provides that the act’s purpose is to:
• Ensure that all utility systems, public and private, deploy comprehensive inspection methods
to evaluate the structural integrity and infiltration and inflow risks of service laterals from the
utility mainline connection to the edge of each building structure.
• Establish minimum requirements for data collection, long-term archiving, and accessible
reporting, thereby enhancing infrastructure reliability and protecting Florida’s water
resources.
• Promote complete and proper structural rehabilitation of service laterals, ensuring a
monolithic seal at the main-lateral connection point that mitigates infiltration, enhances
infrastructure lifecycles, ensures environmental compliance, and lowers the risk of sanitary
sewer overflow events.
The bill requires every utility system
26
operating within this state to establish and maintain a
comprehensive condition assessment program
27
for all service laterals
28
under its jurisdiction.
This requirement applies uniformly to all utility systems, regardless of public or private
ownership, size, or service area.
26
The bill defines “utility system” as a government agency, a municipality, a private utility entity, or an entity under contract
with such agencies or entities which owns, operates, or maintains sewer infrastructure in this state.
27
The bill defines “condition assessment program” means a structured inspection, data collection, and risk evaluation
methodology designed to identify and prioritize structural and infiltration and inflow issues in sewer laterals.
28
The bill defines “service lateral” or “lateral” as the underground sewer pipeline that connects a property or building to a
utility’s mainline sewer pipe. The term includes the entire length of the lateral pipe from the utility system’s mainline sewer
to the edge of the building structure, and not just up to the property line or utility easement. BILL: SB 1208 Page 6
The bill provides that, if a utility system chooses not to undertake the condition assessment
program assessments directly, it may contract the assessments to a reputable licensed entity
holding either a general contractor’s license with a plumbing license, or an underground utility
license. All contractors and technicians performing assessments must be certified by the National
Association of Sewer Service Company (NASSCO) Pipeline Assessment Certification Program,
Lateral Assessment Certification Program, or Manhole Assessment Certification Program to
ensure quality and consistency with industry standards.
The bill requires each service lateral within the utility system to be inspected at least once every
seven years. Inspections must include a full assessment from the mainline sewer connection
point to the edge of the building structure.
The bill also requires utilities to develop and maintain a proactive schedule ensuring that 100
percent of all service laterals are inspected within each seven-year cycle. Closed-circuit
television lateral launch camera systems
29
must be used to perform all inspections. The bill
requires all inspections to follow the NASSCO Lateral Assessment Certification Program
protocols,
30
including standardized coding and condition ratings.
The bill requires each service lateral to be assigned a unique pipe identification or asset
identification number which must appear on all corresponding condition assessment
documentation and inspection reports. This unique identifier must be compatible with and easily
integrable into any existing geographic information system or asset management database
maintained by the utility system. Each lateral must receive a pipeline severity score
31
indicating
any observed or potential structural defects, infiltration, or inflow concerns.
The bill requires all inspection videos, reports, condition ratings, and supplementary data to be
recorded and retained in a secure, cloud-based platform. The data must be maintained for at least
two full inspection cycles, a minimum of 14 years, ensuring availability for regulatory review
and historical reference. In addition, condition assessment data must be maintained in a publicly
accessible database for properties where defective, damaged, or deteriorated service laterals are
identified. For each property, the database must include, at a minimum:
• The property address.
• The date of inspection.
• The pipeline severity score.
• The general condition summary.
• The unique pipe identification or asset identification number.
29
The bill defines “CCTV lateral launch camera system” as a closed-circuit television inspection system capable of
traversing from the mainline sewer into the service lateral for the purpose of visual evaluation.
30
The bill defines “NASSCO LACP protocols” as the guidelines for standardized inspection, coding, and condition rating of
sewer laterals.
31
The bill defines “pipeline severity score” as a composite condition rating applied to each lateral pipeline after a proper
assessment under NASSCO LACP protocols which includes both the pipe rating index score and the likelihood of failure
score. BILL: SB 1208 Page 7
The bill provides that any lateral with a pipe rating index score above 3.5 or a likelihood of
failure score at or above 4 must be flagged for immediate consideration under the lateral
monolithic repair
32
program.
The bill requires each utility system to establish and maintain a lateral monolithic repair
program. The program applies to any service lateral identified during the condition assessment
program to have a pipe rating index score above 3.5 or a likelihood of failure score at or above 4.
The bill provides that such laterals are deemed to have a detrimental effect on the utility system’s
capacity and are at high risk for infiltration and inflow events likely to contribute to sanitary
sewer overflows, environmental damage, and public health threats.
The bill provides that, under the lateral monolithic repair program, the utility system must
execute timely rehabilitation or replacement of the flagged service laterals using non-disruptive
trenchless technology methods, thereby mitigating infiltration, restoring structural integrity, and
minimizing community impact and costs. A complete seal at the main and lateral connection
point must be ensured to create a monolithic system that prevents infiltration and extends asset
lifecycle.
The bill provides that, for any lateral placed into the lateral monolithic repair program,
rehabilitation must be completed within 12 months from the date the issues are discovered. The
rehabilitation work must be performed by a certified general contractor who also holds either a
certified plumbing or underground utility license. A two-way cleanout must be installed at the
property and utility easement line to facilitate future inspections and minimize further
disruptions. A seamless, single-piece lateral connection seal must be installed at the main-lateral
connection point to fully close the annular space. This seal may not rely on any additional
mechanical means such as hydrophilic gaskets. The service lateral itself must be rehabilitated to
create a fully monolithic system from the mainline sewer to the structure, bonded to the host pipe
for maximum structural durability and longevity. All materials used must have a minimum life
expectancy of 50 years and comply with American Society for Testing and Materials standards
governing cured-in-place pipe in alignment with the Florida Building Code.
The bill requires DEP or any successor agency to implement and enforce the provisions of this
bill. Utility systems must submit annual compliance reports to DEP detailing progress toward
meeting inspection schedules, summary of condition findings, and any follow-up actions,
particularly under the lateral monolithic repair program, for at-risk laterals.
The bill provides that utility systems found to be noncompliant with any provision of this bill
may be subject to administrative fines, notices of violation, or other enforcement measures
deemed appropriate by DEP. Continued noncompliance may result in escalated penalties,
including, but not limited to, suspension of certain operational permits and eligibility for state
funding or grants.
32
The bill defines “monolithic repair” as pipe repair or rehabilitation resulting in no joints or seams, including all points
where the lateral connects to the structure, the mainline, and any required cleanouts, ensuring a fully sealed and continuous
system. BILL: SB 1208 Page 8
The bill allows the state to establish incentive programs, grants, or matching funds to support
utility systems in developing or enhancing their condition assessment programs and monolithic
repair efforts.
The bill provides that state or local funds allocated for environmental preservation or protection
of water quality may be applied to this program in order to expedite sewer system improvements
and reduce infiltration and inflow impacts.
Section 3 provides an effective date of July 1, 2025.
IV. Constitutional Issues:
A. Municipality/County Mandates Restrictions:
The municipality/county mandates provision of Art. VII, s. 18(a) of the Florida
Constitution may apply to this bill. The Florida Constitution limits the ability of the State
to impose unfunded mandates on local governments. This bill requires municipalities and
other government agencies to expend funds to implement a comprehensive condition
assessment program and inspect and repair sewer laterals. However, because the bill
would have the same impact on all sewer utility systems, it likely complies with the
constitutional exception for all persons similarly situated. Therefore, an exception to Art.
VII, s. 18(a) of the Florida Constitution may apply if the Legislature determines that the
bill fulfills an important state interest.
B. Public Records/Open Meetings Issues:
None.
C. Trust Funds Restrictions:
None.
D. State Tax or Fee Increases:
None.
E. Other Constitutional Issues:
None.
V. Fiscal Impact Statement:
A. Tax/Fee Issues:
None. BILL: SB 1208 Page 9
B. Private Sector Impact:
Private utility entities will incur costs to implement a comprehensive condition
assessment program and inspect and repair sewer laterals.
C. Government Sector Impact:
Government entities will incur costs to implement a comprehensive condition assessment
program and inspect and repair sewer laterals. The Department of Environmental
Protection may also incur costs to enforce the provisions of the bill.
VI. Technical Deficiencies:
None.
VII. Related Issues:
Sections 125.569 and 166.0481, F.S., encourage counties and municipalities to establish
evaluation and rehabilitation programs for sanitary sewer laterals on residential and commercial
properties. This bill may render ss. 125.569 and 166.0481, F.S., unnecessary.
VIII. Statutes Affected:
This bill creates section 403.4156 of the Florida Statutes.
IX. Additional Information:
A. Committee Substitute – Statement of Changes:
(Summarizing differences between the Committee Substitute and the prior version of the bill.)
None.
B. Amendments:
None.
This Senate Bill Analysis does not reflect the intent or official position of the bill’s introducer or the Florida Senate.