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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