Partnerships for Watershed and
Ground Water Protection in Montana
Carole L. Mackin
Department of Environmental Quality
P.O. Box 200901
Helena, MT 59620-0901
Cmackin@mt.gov
ABSTRACT
After the Department of Natural Resources and Conservation (DNRC) published
the 1994 Montana Ground Water Plan, the Montana Department of Environmental
Quality (DEQ) incorporated the plan into the Montana Comprehensive Ground
Water Protection Program as prescribed in the Environmental Protection
Agency's guidance for endorsing Comprehensive State Ground Water Protection
Programs. While the EPA has not yet endorsed the Montana program, DEQ and
DNRC are committed to comprehensive ground water protection that addresses
both ground water quality and quantity issues. The agencies currently are
revising the Montana Ground Water Plan in the light of new federal and state
legislation. In 1997, the Montana Legislature directed DEQ to focus resources
on improvement of the water quality of impaired streams. The alluvial valley
aquifers are the major source of ground water used by Montanans. These
aquifers are intimately connected to the streams which drain the watersheds
and provide the baseflow to sustain the streams in late summer and fall.
Therefore, attempts to improve the water quality of impaired streams must
consider the interaction between surface water and ground water. The
Montana Watershed Coordination Council formed a Ground Water Work Group
to facilitate cooperation among all member agencies. The work group,
co-chaired by DEQ and DNRC, facilitates the exchange of water quality
and quantity information, focuses resources on areas of common concern,
reviews planning documents, and makes recommendations for improving ground
water management and protection. The linking of ground water concerns to
decisions on watershed activities ensures that ground water protection is
achieved along with watershed protection.
BACKGROUND
Montana's ground water goals and strategy were established by the Ground Water
Planning Committee appointed in 1994 by the directors of the Department of
Health and Environmental Sciences and the Department of Natural Resources
and Conservation (DNRC). The committee was charged in Issue 8 of the
Integrated Water Quality and Quantity Management Section of the 1992 State
Water Plan to: "develop a ground water plan to coordinate ground water
management and identify and address management gaps." Further, the committee
was to: "participate in the new EPA process for developing a comprehensive
state ground water protection program."
The recommendations of the committee were published in the 1994 Montana Ground
Water Plan. The Montana Comprehensive Ground Water Protection Program (MCGWPP),
based on the 1994 Montana Ground Water Plan, was then adopted by the state
April 7, 1995. The program provides for coordination to achieve effective
protection of Montana's ground water resource, education of its citizens,
and adequate, cost-effective, cleanup of groundwater contamination. A
unique feature of the MCGWPP is that it addresses both the quality and
quantity of ground water.
DNRC periodically evaluates the progress made in achieving the ground water
protection goals and makes recommendations for future action. Currently, the
l994 Montana Ground Water Plan is being revised and updated to reflect the
changes associated with reorganization of the state's natural resource agencies
and new legislation. Specifically, the new Department of Environmental Quality
(DEQ) covers all regulatory and protection programs affecting ground water
quality. The new DNRC covers all programs affecting ground water quantity.
In 1997, the Montana Legislature set a statewide priority to improve the water
quality of impaired streams and lakes. All water-related programs are asked
to focus resources on this effort.
THE MONTANA COMPREHENSIVE GROUND WATER PROTECTION PROGRAM
MCGWPP has three major components intended to achieve the goal of protecting
Montana's watersheds and improving the water quality of streams impaired by
pollutants transported to the stream via the baseflow component:
1) MCGWPP seeks to provide government, corporations, and individuals with the
best information and guidance for making decisions that improve and protect
Montana's ground water.
Alluvial valley aquifers are the major source of ground water used by Montanans.
These aquifers are intimately connected to the streams that drain the watersheds
and provide the baseflow to sustain the streams in late summer and fall. Over
5O percent of all Montanans depend on groundwater for their domestic water supply.
Ground water is also used for irrigation, stock water and industrial development.
In most cases, the ground water is wholesome and plentiful. Yet where ground
water is contaminated, the public is becoming aware that the cost of cleanup is
often beyond the financial ability of most communities and, sometimes, even the
State of Montana. Therefore, citizens need the means to prevent contamination
and protect this vital resource. Between 1986 and 1996, the state took great
strides in establishing programs protecting Montana's ground water quality and
quantity. The objective of MCGWPP is to coordinate the implementation of these
programs, discover gaps, and eliminate duplication.
2) MCGWPP develops and supports effective ground water education including
information, training, and action for Montana's citizens.
Ground water education is important for watershed protection. Action to protect
stream ecosystems is particularly critical during baseflow periods. Protection
requires pollution prevention, which is accomplished by citizens who are well
aware of the impacts their activities can have on water under the land surface.
Informational materials, education programs, technical assistance, and training
on basic ground water characteristics, contamination threats, and overdraft
potential can inspire effective public action to protect ground water. The
objective of MCGWPP is to coordinate delivery of educational programs and
information.
3) MCGWPP coordinates regulatory activities to address adequate, cost-effective,
clean up of ground water contamination.
State legislation passed in the past 10 years established or enhanced a variety
of regulatory programs for solid waste landfills, underground fuel storage tanks,
mines, agricultural chemicals, and several other sources of pollution. Due to
pollution liability concerns, property assessments at a site that is up for sale
document any contaminant sources that may affect the location. As a result,
ground water contamination has been discovered at numerous sites in Montana.
The MCGWPP objective is to ensure that appropriate and coordinated action is
taken at those sites. Controlling or eliminating contaminants in ground water
will ensure that the contaminants do not migrate into the streams.
ADMINISTRATION OF THE MCGWPP
The Planning, Prevention and Assistance Division of DEQ will implement the
MCGWPP jointly with DNRC's Water Resources Division. The Pollution Prevention
Bureau of the Planning, Prevention and Assistance Division, DEQ will be the
primary contact for the EPA, Region VIII, Office of Pollution Prevention and
coordinate implementation of water quality recommendations. The Water Management
Bureau of DNRC's Water Resources Division will be the primary contact for the
Montana Legislature through the water planning process and coordinate
implementation of water quantity reconnnendations.
DEQ administers the Ground Water Pollution Control System regulations, establishes
ground water quality standards and enforces the nondegradation policy, issues
industrial expansion and pollutant discharge control permits, oversees the
cleanup of spills and the remediation of contaminated sites, administers the
Source Water and Wellhead Protection Program, coordinates the activities of
Local Water Quality Districts, and administers the following ground water related
programs: Nonpoint Source Pollution Control, Water Quality Monitoring, Public
Water Supplies, and Municipal Wastewater Assistance. DEQ coordinates with the
Montana Department of Agriculture in implementing pesticides and ground water
managementplans, assists the Board of Water Well Contractors which is administered
by DNRC, and coordinates with the Montana Bureau of Mines and Geology (MBMG) and
the Natural Resource Information System of the State Library to characterize,
classify and compile data on Montana's aquifers. DEQ is affiliated with
educational organizations such as: Montana State University's Water School,
Montana Environmental Training Center, and Water Education for Teachers--WET.
DNRC administers the Montana water planning process established by the legislature
to identify and prioritize water-related issues and seek a consensus on
recommendations for future action. The recommendations are published as the
Montana Water Plan after each planning cycle. DNRC also establishes and
administers Controlled Ground Water Use Areas to prevent overdraft of aquifers
or to protect the public from contaminated ground water. The agency also is
responsible for watershed planning and management, river basin studies, drought
management and water conservation, water reservations and basin closures,
international and interstate compacts concerning water, hydrological
investigations and technical assistance on water development and water rights,
and public education through the Montana WaterCourse. DNRC compiles data on
water use and availability, conducts studies on a variety of issues such as
irrigation return flow and stream sedimentation, and coordinates the activities
of county conservation districts. Other DNRC programs include Darn Construction
and Safety, Floodplain Management, State-owned Hydropower and Irrigation Projects,
Water Right Appropriation and Adjudication, and Weather Modification Administration.
COORDINATION OF MCGWPP VIA THE MONTANA WATERSHED COORDINATING COUNCIL
Cooperation between DEQ and DNRC encompasses a wide variety of ground water
protection activities; but, by no means, all. Other federal, state and local
agencies play key roles in ground water protection and must be involved to
provide effective coordination of MCGWPP. Key among these agencies are: the
Environmental Protection Agency which administers the Class V Underground
Injection Control (UIC) Permit Program,the Montana Board of Oil and Gas
Conservation which administers the Class ll UIC Permit Program, tribal
governments which administer ground water programs on the seven reservations,
USGS and MBMG which conduct ground water monitoring and assessment, and local
water quality districts which administer pollution prevention programs on the
county level.
The Montana Watershed Coordinating Council is composed of federal, state and
local agencies that manage or protect water resources in Montana. According
to the Memorandum of Understanding establishing the organization, the purpose
of the council is to cooperate to sustain ecosystems, watersheds and communities
in Montana. The signatory members are: DEQ, DNRC, U.S. Forest Service, Bureau
of Land Management, Bureau of Indian Affairs, Bureau of Reclamation, National
Park Service, USGS, U.S. Fish and Wildlife Service, Montana Department of Fish
Wildlife and Parks, Montana Department of Transportation, Montana University
System, Environmental Quality Council, Montana Department of Agriculture,
Montana State Library, and U.S. Corps of Engineers. Other state, tribal, and
local agencies are invited to participate in all council activities.
This council provides the diverse coordination that is needed to implement
the Montana Comprehensive Ground Water Protection Program. Further, the
alluvial valley aquifers, which are the major source of ground water used
by Montanans, naturally fall under the purview of this council because they
are intimately connected to the streams which drain the watersheds and provide
the baseflow to sustain the streams in late summer and fall. In 1996, DEQ and
DNRC requested that the council establish a ground water work group. The council
formed the work group and asked DEQ and DNRC to cochair the activities of the
group and report progress to the full council at each quarterly meeting. The
linking of ground water concerns to decisions on watershed activities ensures
that ground water protection is achieved along with watershed protection.
The work group meets quarterly and has adopted the following list of tasks to
guide its activities. Share information about ground water project locations,
staffs and budgets. Promote coordinated service to the public. Facilitate
transfer of educational materials and success of educational events. Encourage
partnerships among federal/state/local agencies to solve groundwater problems
identified by local groups. Acknowledge and implement agreements and MOUs
between Tribes and other govemment agencies. Promote flexibility from EPA
regarding ground water programs. Identify ground water projects that implement
the Montana Ground Water Plan and prioritize the projects for funding via EPA's
Comprehensive State Ground Water Protection Grants. Review and recommend changes
to the Montana Comprehensive Ground Water Protection Program, the Montana
Ground Water Plan, and the application for EPA grant funds.
CONCLUSIONS
Efforts to improve the water quality of impaired streams must consider the
interaction between surface water and the ground water of the alluvial valley
aquifers. The linking of ground water concerns to decisions designed to
improve impaired streams should assure that ground water protection is
achieved along with watershed protection.
DEQ and DNRC are pleased with the advantages gained in implementing and updating
the Montana Comprehensive Ground Water Protection Program by coordinating the
program through the Ground Water Work Group of the Montana Watershed Coordinating
Council. Linking ground water protection with watershed protection proved to be
an advantage when the 1997 Montana Legislature decided to focus state resources
on the improvement of the water quality of impaired streams.
CAROLE MACKIN
Carole Mackin joined the Montana Department of Environmental Quality (MDEQ)
as a Water Quality Specialist in 1991, coordinating the Montana Wellhead
Protection Program and the Montana Comprehensive Ground Water Protection Program.
She holds a Bachelor of Science degree in Zoology and Chemistry from Northeast
Missouri State University and Master of Science degree in Geosciences with an
emphasis on Geochemistry and Hydrogeology from Montana Tech, the University of
Montana. Currently, she is dividing her time between MDEQ and serving as an
adjutant professor at the Helena College of Technology, University of Montana.
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