Integrating the "3  Rs":
                       Remediation,  Restoration  and  Redevelopment
www.epa.gov/region8 1 THE MILLTOWN RESERVOIR SEDIMENTS SITE AND MISSOULA COUNTY, MONTANA
         ntroduction
       A new chapter is beginning in the storied history of the Clark
       Fork and Blackfoot Rivers in western Montana. Home to the
       ancestors of the Bitterroot Salish, Pend d'Oreille and Kootenai
       tribes, the  region's remarkable  fishery  and other natural
       resources have sustained communities for generations. From the
       1860s until the late twentieth century, the area was also part of
       one of the richest mining regions in the world. These operations
       generated mining and milling wastes that in turn have led to one
       of the largest hazardous waste cleanups in the country.

       Since the late 1990s, Missoula County and the communities of
       Milltown, West Riverside,  Pine Grove, Bonner, Missoula and
       Piltzville have worked together to plan the future of the  Two
       Rivers Area.  Coordinating closely with local, state, tribal and
       federal partners, Missoula County recognized that redevelopment
       planning could be integrated with the environmental remediation
       of the Milltown Reservoir Sediments site and the ecological
       restoration of the Clark Fork River, which included the removal
       of the historic, century-old Milltown Dam.

       Beginning in 2002, Missoula County worked with  the  U.S.
       Environmental Protection  Agency (EPA) and federal,  state
       and tribal  partners on a  coordinated  approach that linked
       remediation, restoration and redevelopment, with a protective
       remedy and land revitalization as overarching goals. Assisted
       by an EPA Superfund Redevelopment  pilot grant and  EPA
       funding,  the county formed the  Milltown  Superfund  Site
       Redevelopment Working  Group and  developed the Draft
       Conceptual Redevelopment Plan. First completed in 2005 and
       updated in 2008, the Plan calls for the creation of a state  park
       with  trails, river access, wildlife habitat and interpretive areas
       celebrating the region's history and heritage.

       The confluence of the Clark Fork and  Blackfoot Rivers  now
       flows freely for the first time in a century. More than three
       million tons of contaminated sediments have been removed and
       the restoration of the Clark Fork River's channel and floodplain
       will be completed by 2012. And in 2010, 415 acres at the site
       were transferred to the  State of Montana for a new state park.
       Interim redevelopment  activities, including several trails and
                     Milltown Reservoir Sediments I
                           Clark Fork River
                           Superfund Site
                               Silver Bow
                            Creek /Butte Area
                             SuperfundSi
                   Anaconda Smelter
                    Suoerfund Site
The Milltown Reservoir Sediments site is located in western Montana and
is part of a larger regional cleanup effort addressing much of the Clark Fork
River watershed.
a new pedestrian bridge, have been completed. More than
$3 million in grant funding has been allocated for the park's
development, on top of about $5 million already  allocated for
land acquisitions and adjoining trails and the pedestrian bridge.

This case  study explores the key  partnerships and effective
tools that have led to the successful remediation, restoration and
reuse  of the  Milltown Reservoir Sediments site. In particular,
the  case study examines  how EPA and state agencies  used
outreach and coordination to support the site's remediation and
restoration and how local communities leveraged partnerships
and resources to help make the state park a reality.

In the following pages, the case study discusses the evolution
of remediation, restoration and redevelopment efforts at the site
between local planning efforts and coordination with EPA and
state agencies in the early 2000s and ongoing reuse activities in
2011. This case study is intended to provide relevant information
and lessons  learned for  parties interested  in Superfund site
reuse, river  restoration and recreational and ecological land
revitalization.
       The Milltown Reservoir Sediments site is the location of the nation's largest river cleanup and restoration effort.
      I U.S. Environmental Protection Agency
      I Superfund Redevelopment Initiative

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Site History, Contamination and Remediation
From the 1860s until well into the twentieth century, mineral- and arsenic-laden waste from mining activities in the region
flowed into the headwaters of the Clark Fork River. The river, a renowned trout fishery, was located in one of the richest
mining areas in the world.

As contaminated  sediments and mine-mill wastes moved downstream, many of these sediments accumulated behind the
Milltown Dam near Milltown,  Montana, polluting the local drinking water aquifer and threatening the health  of local
ecosystems. Completed in 1908, approximately 6.6 million cubic yards of contaminated sediments accumulated behind the
dam over time.

Following initial environmental investigations, EPA listed the site on the National Priorities List (NPL) in September 1983.
The Milltown Reservoir / Clark Fork River Superfund site is divided into three parts, or operable units: Clark Fork River,
Milltown Water Supply and Milltown Reservoir Sediments, which is the focus of this case study. In turn, the site is part of
a larger regional effort addressing much of the Clark Fork River's watershed, including the Warm Springs Ponds, Anaconda
Smelter and Butte/Silver Bow Creek Superfund sites, which together comprise one of the largest toxic waste cleanups in the
country.

EPA selected a remedy for the Milltown Reservoir Sediments site in its 2004 Record of Decision. Components of the remedy
include:
  •   Construction of a bypass channel at the reservoir.
  •   Removal of contaminated sediment in the reservoir (2.2 million cubic yards).
  •   Off-site disposal and use of the contaminated sediments as vegetative capping media.
  •   Removal of the Milltown Dam.
  •   Continuation of a replacement water supply program and implementation of temporary ground water controls until the
     Milltown aquifer recovers.
  •   Long-term monitoring of surface water and ground water.

EPA worked with the State of Montana from the outset to coordinate the site's remedy with the state's restoration plan for the
area. The state's plan, developed in conjunction with the U. S. Fish and Wildlife  Service, the Confederated Salish and Kootenai
Tribes, and site trustees, is designed to  restore the confluence of the Clark Fork and Blackfoot Rivers near the Milltown Dam
to a naturally  functioning, stable system. Other coordination activities led to the removal of the Stimson Dam (located on the
Blackfoot River) and additional state restoration actions to provide additional habitat and stream bank improvements.

Throughout  all  planning and cleanup  activities,
EPA and state staff meet regularly  with community
stakeholders to share information and  updates and to
incorporate community feedback into  the Superfund
process. For example, EPA participates  in the meetings
of the Milltown Superfund Redevelopment Working
Group and works closely with the Clark Fork River
Technical Assistance Committee. The incorporation of
restoration and future land use considerations as part
of the remedial investigation and remedy  selection
process  has enabled the  community to plan  for the
reuse of the area in and around the site  as a state park.
Implementation of the site's  remedy began in 2006
and the final  remedial component - the reclamation
of the Clark  Fork  River bypass channel following
the  restoration of the Clark Fork River channel and
floodplain - will be in place in 2011.
The largest flood on record for the upper Clark Fork drainage occurred in
1908, transporting large quantities of contaminated sediments and mine-mill
wastes to the recently constructed Milltown reservoir.

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 Project  History

2002 - 2005
Building Relationships, Developing an Integrated Approach

For local communities, there was no doubt that the cleanup
and restoration of the Clark Fork and Blackfoot Rivers would
bring significant change to the Two Rivers Area. "People
could see possibilities and challenges, as well as a good deal
of uncertainty," recalled Peter Nielsen, Environmental Health
Supervisor for Missoula City-County's Health Department.
"Many had assumed that the dam would be there forever. The
idea that the whole area could be turned into an asset, rather
than just causing problems, was remarkably powerful. At the
same time, people also wanted to make sure that local history
was recognized and respected."

During this time, EPA was conducting studies and working
with the   State  of Montana, the  Confederated Salish and
Kootenai  Tribes,  and  the  U.S. Fish and Wildlife  Service
to negotiate the  site's Consent Decree with the Atlantic
Richfield Company (ARCO) and Northwestern Corporation.
the  site's  responsible  parties. The Consent Decree would
be the significant legal agreement guiding  remediation and
restoration activities at the site.
"We couldn't think about Superfund  remediation without
thinking about river restoration, and vice versa," said EPA
Project Manager Diana Hammer. "And we couldn't think about
cleanup  or restoration without asking, 'for what purpose?'
and  'what  happens next?' Bringing together remediation.
restoration and redevelopment was on everyone's minds from
the outset, and that integrated approach has been vital to the
entire project."

Listening and outreach formed the cornerstones of the working
relationships. EPA staff spent time in the communities, asking
residents about their long-term priorities for the area,  set up
information kiosks, provided bi-weekly update fact sheets.
provided regular site tours and open houses, and met with
area organizations like the Clark Fork Coalition and Friends
of Two Rivers. EPA also continued to provide grant resources
to a local  organization, the  Clark  Fork River Technical
Assistance  Committee (CFRTAC), to provide independent
technical assistance regarding the site's cleanup.

EPA also reached out to three key state agencies. The Montana
Department of Environmental Quality (MT DEQ) would be
the state's lead agency for remediation activities. The Montana
                       Milltown Reservoir
                         Operable Unit       \
Detailed site map.

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Department of Justice and  its Natural Resource  Damage
Program (MT NRDP) would be responsible for restoration
planning. Finally, Montana Fish, Wildlife and Parks would
be responsible for any potential state-managed uses of the
area following restoration. Project managers from each of the
state agencies indicate that coordination among federal, state
and local partners was vitally important. "Working with EPA,
state agencies and local stakeholders has been an integral part
of the project," recalled MT DEQ Project Officer Keith Large.

   Working Group Vision Statement

   We envision the Milltown/Bonner area as a healthy,
   participatory,  growing  community  of  individuals
   and families of diverse age, background and income,
   who want to make their home here.  We are focused
   on quality  education, maintenance of local heritage,
   conservation of  the  natural  setting,  opportunities
   for recreation and sense of community. Formal and
   informal  community  gathering  places  encourage
   ongoing research and education and maintenance of
   local history and culture.
                                                         To formalize EPA's commitment to evaluating future land use
                                                         considerations as an integral part of the area's remediation and
                                                         restoration, the Agency awarded a Superfund Redevelopment
                                                         pilot project to Missoula County in late 2002. The pilot project
                                                         led to the creation of the Milltown Superfund Redevelopment
                                                         Working Group in 2003.

                                                         "The  Working Group provided a way  for everyone  in the
                                                         community to  come together," recalled Working  Group
                                                         member Judy Matson. "Having a facilitated process  meant
                                                         that we could identify our shared goals and objectives to
                                                         guide our community discussions."

                                                         The  22-member  Working Group formed  subcommittees
                                                         focused on infrastructure, land use, community governance,
                                                         parks,  rivers, trails and  recreation, and local history  and
                                                         heritage preservation. Over eighteen months, the Working
                                                         Group  conducted a  detailed  assessment of  community
                                                         priorities, hosting two public meetings. The project enabled
                                                         area communities to  identify  future  land uses that  would
                                                         address community priorities  and fit appropriately with the
                                                         site's  remedy. The resulting Conceptual Development Plan,
                                                         published in February 2005, outlined opportunities for historic
                                                         preservation, heritage tourism, environmental education and
                                                         recreation.
 Timeline of Events

  1864 - 1970s:   Releases of mining and milling wastes
                 ongoing in the Clark Fork River basin
  1884:          Stimson Dam first built; rebuilt in 1885
  1908:          Milltown Dam constructed
  1908:          Largest flood on record for Clark
                 Fork River; contaminants transported
                 downstream to Milltown reservoir
  1980s:         Mining in Butte and Anaconda ceases and
                 environmental investigations begin
  Sept. 1983:     Site is the first area in Montana listed on
                 EPA's NPL of top-priority sites
  1984:          Response Action installed a new drinking
                 water system for Milltown
  1986:          Spillway and dam rehabilitation
  1990s - 2000s:  Remediation investigations and studies
  2002:          EPA Superfund Redevelopment Initiative
                 pilot project funding provided for the site
  2003:          Milltown Superfund Redevelopment
                 Working Group formed
  Dec. 2004:     EPA issues Record of Decision for the site
Dec. 2004:
Feb. 2005:
                 Draft Conceptual Redevelopment Plan for
                 site presented to local officials
Apr. 2005:     State of Montana issues Restoration Plan
               for the Clark Fork and Blackfoot rivers
Aug. 2005:     Consent Decree signed; Northwestern
               Corporation agrees to transfer 415-acre
               area to the State of Montana
Nov. 2005:     Stimson Dam removal completed
Fall 2006:     Remedial activities underway
Oct. 2007:     First trainload of contaminated sediments
               transported off site
2008:          Restoration activities underway
Jul. 2008:      Updated Conceptual Design Plan for site's
               redevelopment presented to local officials
Nov. 2008:     Missoula County completes new
               recreational trail and pedestrian bridge
               over the Blackfoot River
Sept. 2009:     Last trainload of contaminated sediments
               leaves the site
Jan. 2010:     Milltown Dam removal completed
Dec. 2010:     Site properties transferred to State of
               Montana to establish state park; Clark Fork
               River returned to restored channel and
               floodplain
2011:          Construction of site remedy completed

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Aerial view of remediation and restoration activities at the site, 2009.
The 2005 Plan outlined a general reuse framework that could
be adapted over time and included restoring the Milltown
Reservoir Sediments site as  a natural area, public park and
living museum as cleanup and restoration plans were finalized.
"There were lots of different views, and disagreements that
needed to be addressed along the way," recalled Working
Group member Judy Matson,  "but we all wanted to ensure that
the area remained a livable,  affordable  community that was
welcoming to all walks of life. We found from the beginning
that everyone agreed on the big picture."

The  Plan proposed that 415 acres of land owned by the
Northwestern Corporation, a responsible party, serve as the
location for a new state park. Several years in the making,
successful  negotiations by the  State of Montana with the
Northwestern Corporation led to agreement as part of the
site's 2005 Consent Decree that the company would  give its
property to the state and pay $1.4 million toward the state's
Natural Resource Damage claim for restoring injured natural
resources across the Upper Clark Fork River Basin.

The Working Group's Plan was also able to inform remedial
and  restoration planning. The  site's  Consent Decree, for
example,  included  a $100,000  appropriation for  historic
preservation activities, established local authority to  request
historic items from dismantled site structures, and recognized
that the State of Montana and area communities sought to
create a new state park around the Milltown Reservoir.

Remedial  and restoration planning also informed Working
Group discussions  as well as broader community sentiment.
Local support for dam removal grew, for example, as people
explored  longer-term  outcomes  and  discussed potential
safety  issues and  environmental impacts  associated with
dam retention.  "People saw  the possibility of restoring a
free-flowing river,  the  fishery and area ground  water, and
providing a remarkable  recreational resource," recalled EPA's
Diana Hammer. When  EPA selected the site's remedy  in its
December 2004 Record of Decision, the approximately 15,000
community  comments  received  during public  comment
periods overwhelmingly supported the proposed remedy.

By  2005, the  project's partnerships and integrated 3-R -
remediation, restoration and redevelopment - approach were
well-established. Through  its  Natural  Resource Damage
Fund,  the  State  of Montana  had allocated almost  $18
million dollars to fund restoration activities ($14.3 million)
and  redevelopment-related  infrastructure  ($3.6 million).
Locally, voters approved the creation of the Bonner Milltown
Community Council advisory  body  in 2006  to provide
county-level  representation  for the  unincorporated  Two
Rivers Area communities; the Council worked increasingly
with the Working Group over time. Now, it was time for next
steps: developing and  implementing detailed plans for the
site's remediation,  restoration and redevelopment. Over the
next three years, EPA  would work with state agencies and
local communities to turn the clock back more than a century,
restoring the Clark Fork River's channel and floodplain to
conditions similar  to those prior to  the construction of the
Milltown Dam in 1908.

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2006-2011
Making it Happen: Moving into Remediation, Restoration and Redevelopment

Between  2006 and 2011, one of the nation's largest river cleanup and restoration efforts moved forward. Given the scale and
scope of these efforts, key remediation, restoration and redevelopment activities are described briefly below and then presented
visually on the following pages.


 REMEDIATION
   •  A bypass channel on the Clark Fork River is constructed.
      A railroad  spur is built to  allow  loading  of sediments.
      Haul roads  are built to enable access to contaminated
      sediments.
   •  The Milltown Reservoir is drained and the Clark Fork River
      is diverted into the bypass channel.
   •  The Milltown Dam, powerhouse and spillway are removed.
   •  Over three million  tons  (2.2  million  cubic  yards) of
      contaminated  sediments are  excavated.  Trainloads of
      the sediments are transported to a waste repository at
      the Anaconda Smelter Superfund site.  The transported
      sediments   are   seeded,
      serving as a vegetated cap
      for 800 of the repository's
      4,000 acres.
   •  Temporary  ground water
      controls put in  place until
      the   Milltown    aquifer
      recovers, which is expected
      within  a decade.  Surface
RESTORATION
                                    to
      water and  ground water
      will   be  monitored  over
      long term.
The Stimson Dam is removed prior to remediation activities (2005).
A new channel, streambanks and floodplain for the Clark Fork River are constructed
and stabilized.
The  river  channel  is  designed
support high-quality habitat.
Streambanks and  the  floodplain are
revegetated using diverse native plant
communities.
Conditions  for  wetlands  and  side
channels  are created where feasible,
providing wildlife habitat.
The Clark Fork River is diverted into
its new channel; the bypass channel is
backfilled and regraded.
       REDEVELOPMENT

           Black Bridge, dedicated in November 2008, is designed to
           look like the historic Old Highway 200 Bridge it replaced. The
           removal of the old bridge's concrete piers also facilitates river
           restoration efforts.
           The Piltzville Trail, the first of many new trails envisioned for the
           area, is opened in 2007.
           The Confluence Area is envisioned as a  recreation area that
           recognizes the area's natural beauty, with panoramic views from
           a plaza and pavilion, trails and a picnic area, and fishing access.
           The Milltown Gateway is envisioned as  a recreation area that
           celebrates community history, with trails, a picnic area, education stations, a playground and fishing access.
           The Clark Fork Floodplain is envisioned  as a natural area, with a bluff overlook and opportunities for wildlife
           watching and  passive recreation.

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REMEDIATION
Thanks to the detailed costs, responsibilities  and scope
of work outlined in the  site's 2005 Consent Decree, the
project's  Remedial Design Team was  able  to  develop
remediation plans rapidly and smoothly, working in concert
with a Design Review Team with representatives from state
and federal agencies, the Confederated  Salish and Kootenai
Tribes, and community organizations including CFRTAC,
the Milltown Superfund Redevelopment Working Group and
the Bonner Milltown Community Council. "Restoration and
redevelopment considerations were with us throughout the
design and implementation of the site's remedy," recalled
EPA's Diana Hammer. "That coordination led to significant
time savings and reduced cleanup costs and the amount of
materials that were required."

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                                                             Project Goals: Restoration
                                                                  Maintain water quality.
                                                                  Create a channel appropriate for the valley setting
                                                                  that transports sediment and is connected to its
                                                                  floodplain.
                                                                  Provide habitat for fish and wildlife.
                                                                  Establish functional wetlands and riparian
                                                                  (streamside) plant communities.
                                                                  Provide visual and aesthetic values consistent with
                                                                  a natural condition.
                                                                  Offer safe recreational opportunities compatible
                                                                  with the above goals.
RESTORATION

The  project's  overall restoration goal is to "restore the
confluence of the  Blackfoot  and Clark Fork Rivers to a
naturally functioning, stable  system."  Led by  Montana's
Natural Resource  Damage Program, the project's  2005
Restoration Plan relies on features - diverse native  plant
communities,  side channels  and wetlands - that mimic
natural river  systems. "The river's restoration  is a  long-


term process," said MT NRDP Restoration Project Manager
Doug Martin.  "At first, the river channel and stabilization
structures put in place will help control erosion and enable
native vegetation to become established on the floodplain.
Over time, plant and tree communities will become well-
established, and those structures will decompose or become
buried, enabling the river to meander across its floodplain."

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REDEVELOPMENT

In 2007, the Milltown Superfund Redevelopment Working
Group  updated its  2005  Plan.  Working  with partners
including Missoula  County,  the  National Park  Service's
Rivers and Trails Program, the Idaho-Montana Chapter of
the American Society of Landscape Architects, and  state
and federal agencies, the Working Group hosted a two-day
charrette, or design  workshop. "The goal was  to take the
concept plan to the next level and develop designs for key
focal  areas in  sufficient detail to allow for cost estimates,"
said CFRTAC Coordinator and Working Group member
Michael Kustudia. "We were really fortunate to be able to
work  with the National Park Service and our other partners
on this. The charrette was really effective in helping us move
from conceptual ideas to concrete details and implementation
planning." The workshop resulted in the Working Group's
2008  Conceptual Design Plan.

Today, Montana Fish, Wildlife and Parks' planning process
for the Milltown/Two  Rivers  State  Park is underway,
informed by the community's 2008 Plan. Land (415 acres)
for the new park was transferred to the State of Montana
in December 2010. Additional proposed future acquisitions
would bring the park to more than 700 acres. $2.7 million in
funding has been allocated for the park's creation, with an
additional five-year grant planned for the  park's operation
and maintenance. It is anticipated that the park will open to
the public in 2012.

"It's going to take a few years to get everything in place.
Construction of park  facilities  is scheduled  to  begin in
2011," said Montana Fish, Wildlife and Parks Regional Park
Manager Lee Bastian. "This is a really exciting project. The
extent of community  visioning and planning is especially
remarkable, there  has been so  much  partnership and
discussion that has gone on. And now there is such energy
and excitement in support of the state park."
                                                        Conceptual illustration from the Milltown Superfund Site Redevelopment
                                                        Working Group's 2008 Conceptual Design Plan.  The Plan provides
                                                        proposed designs and recommendations for Milltown/Two Rivers State
                                                        Park, a recreation area with trails, river access, wildlife habitat and
                                                        interpretive areas celebrating the region's history and heritage.
                                                        Drawing by Gary Wemer, National Park Service Rivers and Trails Program

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 Lessons  Learned

Participants agree that a combination of significant factors
have  contributed  to  the  successful  effort  to  integrate
remediation, restoration and redevelopment at the Milltown
River Sediments site.

  •  The confluence of the Clark Fork and Blackfoot Rivers is
     a remarkable natural and historic resource that generated
     significant community interest and engagement in
     project activities.

  •  Missoula County and local communities energetically
     pursued the site's cleanup  and redevelopment over
     the long-term to put in place the requisite resources,
     partnerships and infrastructure. Working with the
     Missoula Board of County Commissioners, state
     agencies and state and federal elected officials and EPA,
     the Milltown Superfund Redevelopment Working Group
     has guided the site's redevelopment.

  •  EPA, MT DEQ, MT NRDP and Montana Fish, Wildlife
     and Parks were engaged partners who understood the
     community's redevelopment priorities in the context
     of the site's cleanup and restoration, enabling the
     development of decision documents that reflected
     remedy, restoration and redevelopment considerations.

  •  The State of Montana's leadership led to successful
     negotiations with the Northwestern Corporation to
     transfer 415 acres of its property for the location of the
     Milltown/Two Rivers State Park. The state also provided
     almost $18 million in funding from its Natural Resources
     Damage Program for the site's integrated restoration and
     redevelopment activities.

  •  EPA and state agencies provided timely reuse planning
     assistance and supported significant community outreach
     and education activities throughout the process.

  •  The development of a Consent Decree that provided
     detailed roles, responsibilities, costs and timeframes for
     the site's cleanup and restoration provided a clear road
     map for all parties to work together.

  •  All parties involved were patient and flexible,
     recognizing that site cleanup, river restoration and
     redevelopment planning was a complex process reliant
     on seasonal conditions, available resources, multiple
     parties and other factors.

  •  EPA selected a remedy that would be consistent with
     the area's reasonably anticipated future land uses.
MOVING  PARTS: COORDINATION
OF THE "3  Rs"

  •  Clean dirt excavated during remediation was
    stockpiled in easily accessible areas for use in
    restoration work like the establishment of new
    stream banks.

  •  Restoration planning guided design and location
    of trails to ensure the protection of sensitive
    habitat.

  •  Reuse planning identified locations for fishing and
    boating access, informing floodplain grading and
    design.

  •  Haul roads were designed to be easily reduced in
    size following remediation to serve as trails.

  •  Historic mill equipment was removed prior to
    demolition and will be part of educational exhibits
    at the new state park.

  •  Restoration features like earthen berms were
    designed for double duty, to also serve as wildlife
    viewing areas.

  •  Some reuses will be designed later and phased
    in over time, as the rivers adjust to their
    surroundings.

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The   Bigger  Picture
While these factors created an ideal climate for the successful
reuse of the Milltown Reservoir Sediments site, there are also
a range of broader lessons learned that can help guide similar
projects at contaminated lands across the country.
The project's integrated 3-R - remediation, restoration
and redevelopment  -  approach  can  be  applied  at
contaminated lands nationwide.
Community members  and organizations in the Two Rivers
Area developed compelling big-picture goals  and worked
with state agencies and EPA to enable the coordinated cleanup
of contamination, the restoration of the Clark Fork River, and
the  development of a  regional recreational resource. Long-
term planning, partnership  building and strong working
relationships can enable similar outcomes at small sites as
well as larger-scale cleanups.


Development  of detailed  agreements outlining project
roles  and  responsibilities  enables  effective  working
relationships and timely completion of project milestones.
The site's  2005 Consent Decree provided the  road  map
for  the cleanup and restoration of the Clark Fork River. "It
was ultimately  EPA's  cooperation and willingness to allow
restoration to be integrated with the remediation at the site
that really made [the agreement] work," recalled MT NRDP
Restoration Project Manager Doug Martin. "It took three-and-
a-half years to negotiate the Consent Decree, and it was time
well spent," said EPA Project Manager Diana Hammer. "The
agreement explained clearly which parties were responsible
for  which parts of the cleanup, it explained  parties' cost-
share responsibilities, and outlined a detailed scope of work.
Having the agreement in place made the process of designing
and implementing the remedy much more straightforward."


While  EPA provides tools and   resources  to support
Superfund  reuse, communities and public and private
sector organizations make it happen.
EPA's mission is to protect human health and the environment.
EPA relies on engaged  community  stakeholders to bring
their future land use goals and priorities to the table so  that
this information can be incorporated as  part of the remedial
process, linking cleanup,  restoration and redevelopment. In
Missoula County, the creation of the Milltown  Superfund
Redevelopment Working  Group ensured that EPA and  state
agencies  could incorporate  the feedback  of  diverse  site
stakeholders into the cleanup and restoration of the Milltown
Reservoir Sediments site.
EPA and Site Reuse: Lessons Learned

Since the inception of the Superfund program, EPA has been
building on its expertise in conducting site characterization
and remediation to ensure that contamination is not a barrier
to the reuse of property.  Today, consideration of future use
is an integral part of EPA's cleanup programs from initial site
investigations and remedy  selection through to the design,
implementation, and operation and maintenance of a  site's
remedy.

"At  older  sites,  EPA did  not  focus on taking  reuse
considerations into account early in the cleanup  process,"
reflected  EPA Region  5's Matthew Mankowski,  a former
project manager at Superfund sites. "Today, that has changed.
Superfund cleanups can be very creative and flexible in
allowing for future site uses, but that information needs to be
plugged in early to be as effective as possible."

At  the Milltown Reservoir Sediments site, future  land
use considerations were able to  inform EPA Region 8's
selection of the site's  remedy and the  State of Montana's
river restoration planning,  which enabled the site's reuse
as a state park, and the phased remediation, restoration and
redevelopment of the area meant that the local communities,
EPA, state agencies and other parties could coordinate plans
and activities over time.

Thanks to lessons learned at Superfund sites like the Milltown
Reservoir Sediments  site,  EPA  has  developed  additional
tools to ensure an integrated approach to the cleanup and
redevelopment of contaminated  lands.  For example, EPA
has developed a partial deletions guidance. Partial deletions
allow EPA  to  remove the  cleaned and  uncontaminated
portions of a Superfund site from the NPL, expediting the
reuse of those properties.

Second, EPA works with site stakeholders to consider how
future land use considerations can inform the implementation
and long-term stewardship of site remedies as well as cleanup
planning. At some sites, for example, reuse considerations
can inform the future location of ground water monitoring
wells and other operation and maintenance  equipment that
might inadvertently hinder redevelopment efforts. At  other
sites,  detailed site reuse plans  have provided  additional
benefits that  save time and reduce  redevelopment  costs.
For example,  future  infrastructure corridors or building
footers can be installed in coordination with site cleanup
activities. At the Milltown Reservoir Sediments  site, EPA
was able to store excavated dirt in accessible locations for
river restoration and design haul roads so that they could be
converted into trails following remediation.

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State agencies can play a vital role across remediation,
restoration and redevelopment activities at contaminated
lands and provide critical resources and expertise.
MT DEQ, MT NRDP, and Montana Fish, Wildlife and Parks
have each played lead roles in the project's integrated 3-R
approach, while the  state's  Natural Resource Damages
program  has  provided almost $18  million in  funding  for
restoration actions and the development of features associated
with the area's redevelopment.
        "We started out committing to six
     meetings and now it has been six years.
        It has definitely been worth  it.  The
      project's results have  turned out to be
       much bigger than we ever dreamed
      they would be. Working with EPA and
      our state government to clean up our
      drinking water and restore a beautiful,
      naturally functioning river, it's a pretty
                amazing outcome."
           -Judy Matson,  Milltown Superfund
             Redevelopment Working Group
As the organizations  responsible for their communities'
general welfare, local governments are well-positioned to
host reuse projects, bring together diverse stakeholders
to discuss site reuse opportunities, and  use planning tools
and resources to foster positive site outcomes.
In Missoula County,  the  sustained support of the County
Commissioners  and the creation of the Bonner Milltown
Community  Council  advisory  body  raised  the  project's
profile, enabled local government staff to work on the project,
and led to the eventual award of more than $3 million in grant
resources for the Milltown/Two Rivers State Park.


The diverse stakeholders  at  contaminated lands often
have shared interests underlying sometimes contentious,
opposing  positions,  which  can lead  to  unexpected
partnerships and innovative reuse plans.
At the outset of the project, there were significant community
divisions   and considerable concern  regarding the  site's
cleanup and long-term impacts. Facilitated Working Group
meetings,  sustained community outreach by  EPA and state
agencies,  and coordination with area organizations including
the Clark Fork Coalition and Friends of Two Rivers led to a
striking outcome. Regardless of whether the Milltown Dam
would be removed or not, a community  consensus emerged
that the former reservoir area should remain a public resource,
with public access for uses like fishing and boating maintained
in perpetuity. This consensus served as the foundation for
subsequent community reuse planning activities.


Responsible  parties  and  site  owners are  important
stakeholders who can contribute to restoration and reuse
planning activities as well as site cleanup discussions.
In Missoula County, ARCO's interest in improved community
relations and mitigating its long-term obligations at the site
meant that the responsible party was willing to fund restoration
activities, including the removal of all dam structures and the
reconstruction of the Clark Fork River floodplain, as part of
its responsibilities at the site. In return, the State of Montana
assumed responsibility for the long-term revegetation of the
site.


Environmental   restoration   and  recreational  reuse
represent  an  economic  development  opportunity in
addition to providing social and ecological benefits.
As documented in the 2009  Trust  for Public Land report
Conservation: An Investment  That Pays, parks  and open
space boost land values and property taxes, attract businesses
and residents, generate tourist revenues and provide reduced
costs for  environmental services.  Missoula City-County
Environmental  Health Supervisor  Peter  Nielsen recalled
that local  government, residents, and area businesses and
organizations in  Missoula County increasingly  saw  the
creation of Milltown/Two Rivers State  Park as making long-
term economic sense. "This kind of asset is something that
makes the area a special place," he said.  "It gives us a different
future, helps make the area a place where people want to visit
and live and work. That's a real economic driver for us."
The Milltown Dam, powerhouse and spillway prior to removal.

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Conclusions:   2011+

Transitioning to New Roles, Returning to Historic Paths

In 2009, the last trainload of contaminated sediment left the
Milltown Reservoir Sediments site. On December 16, 2010.
the Clark Fork River returned to its restored channel and
floodplain. The site's remediation and restoration are largely
complete and interim reuses are already in place.

With so much accomplished over  the past decade, the local
communities,  state agencies and EPA are  now  working
together  to transition into  new roles and responsibilities.
"EPA will remain responsible for monitoring and ensuring
the protectiveness of the site's remedy," said Project Manager
Diana Hammer. "At the same time, it feels like we're handing
off the baton  to the local communities  and the  State of
Montana for most of what happens next."

The  communities  and Montana Fish,  Wildlife  and Parks
are ready. With more than $3 million in grant resources
already allocated for the Milltown/Two Rivers State Park.
Montana Fish,  Wildlife and Parks' will soon transition from
park planning  to construction and operation of Montana's
newest state park.  The Milltown Superfund Redevelopment
Working  Group is transitioning into a non-profit organization
dedicated to assisting with the park's development. Montana
Fish, Wildlife and Parks anticipates that construction of park
facilities  will begin in 2011, with  portions of the park open
to the public by 2012, according to Regional Parks Manager
Lee Bastian.

"It is both something new and  a return," said CFRTAC
Coordinator and Working Group member Michael Kustudia.
"The  state  park will help  welcome a  new chapter in the
community's history, while at the same  time the river is
returning to its original path." Indeed,  reminders of the
community's past can be found across the former reservoir
area, where the stumps of old trees dating back to the early
1800s were uncovered during remediation.

Even Mother Nature is lending  a helping  hand.  During
restoration, natural re-growth - an unusual assemblage of
native vegetation - was spotted in these areas. Botanists think
that some of these plants may be  growing from native seed
that had been buried for 100 years under reservoir sediment.
In ways large and small, years of shared hard work are paying
off, creating unexpected benefits as well as carefully planned
outcomes.
Sources and Resources

Sources

Images and maps for this case study were obtained from EPA
Region 8, the Milltown Superfund Redevelopment Working
Group, CFRTAC and the Jack Demmons Collection at the
University of Montana.

Resources
EPA site profile:
cfpub.epa.gov/supercpad/cursites/csitinfo.cfm?id=0800445

EPA Region 8 Superfund Program and project Web page:
www.epa.gov/region8/superfund and www.epa.gov/region8/
superfund/mt/milltown

EPA Superfund Redevelopment Initiative:
www. epa. gov/superfund/pro grams/recycle

Missoula County and Milltown Superfund Redevelopment
Working Group:
www.co.missoula.mt.us/wq/MilltownDam

The Clark Fork River Technical Assistance Committee
(CFRTAC):
www.cfrtac.com

Friends of Two Rivers:
www.friendsof2rivers.org
Clark Fork Coalition:
www.clarkfork.org

Two Rivers Virtual Interpretive Center:
tworivershistory. net

Montana Department of Environmental Quality, site Web
page:
deq.mt.gov/rem/mwcb/ConstructionServicesSection/
ClarkFork/default. mcpx

Montana Fish, Wildlife and Parks:
fwp.mt.gov

Montana Department of Justice, Natural Resources
Damage Program:
www.doi .mt. gov/lands/naturalresource
Trust for Public Land, 2009 Conservation: An Investment
That Pays report:
www.tpl.org/tier3_cd.cfm?content_item_id=23056&folder_
id=188

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&EPA
    United States
    Environmental Protection
    Agency
    EPA Region 8
    1595 Wynkoop Street
    Denver, CO 80202-1129

    EPA Montana Operations Office
    lOWest 15th Street
    Suite 3200
    Helena, MT  59626-0096

    April 2011

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