[Federal Register Volume 63, Number 192 (Monday, October 5, 1998)]
[Notices]
[Pages 53398-53400]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 98-26594]



[[Page 53398]]

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DEPARTMENT OF ENERGY


Environmental Impact Statement for the Proposed Production of 
Plutonium-238 for Use in Advanced Radioisotope Power Systems for Future 
Space Missions

AGENCY: Department of Energy (DOE).

ACTION: Notice of Intent.

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SUMMARY: Pursuant to the National Environmental Policy Act (NEPA), DOE 
announces its intent to prepare an environmental impact statement (EIS) 
for the proposed production of plutonium-238 (Pu-238) using one or more 
DOE research reactors and facilities. The Pu-238 would be used in 
advanced radioisotope power systems for potential future space 
missions. Without a long-term supply of Pu-238, DOE would not be able 
to provide the radioisotope power systems that may be required for 
these potential future space missions, and the Department would not 
fulfill the intended space nuclear power role assigned to the 
Department in the National Space Policy statement issued on September 
19, 1996. This assigned role of maintaining the space nuclear 
capability is also consistent with the Department's charter under the 
Atomic Energy Act of 1954, as amended. The Department's space nuclear 
power role has been recognized for over 35 years in annual 
appropriations to the Department and its predecessor agencies. This EIS 
will analyze the potential environmental impacts of establishing a 
domestic capability to produce Pu-238 including the storage of 
neptunium-237 (Np-237), fabrication of Np-237 targets, irradiation of 
targets to produce Pu-238, and the processing of these targets to 
isolate the Pu-238 and recycle the Np-237. Alternatives to be analyzed 
for the fabrication of Np-237 targets and for processing the irradiated 
targets include the use of the Radiochemical Engineering Development 
Center in Oak Ridge, Tennessee, and the Fuels and Materials Examination 
Facility at the Hanford Site near Richland, Washington. Alternative 
facilities for the irradiation of targets for Pu-238 production include 
the Advanced Test Reactor near Idaho Falls, Idaho, the Fast Flux Test 
Facility at the Hanford Site, Washington, and the High Flux Isotope 
Reactor in Oak Ridge, Tennessee. The ``No Action'' alternative would 
assess the impacts of not establishing a domestic production source for 
Pu-238 while preserving the option to purchase Pu-238 from Russia. In 
addition, a second ``No Action'' alternative will evaluate the need for 
preserving Np-237 for potential future use even if a near-term domestic 
production capability is not established. The option to purchase Pu-238 
from Russia would still remain a viable alternative to domestic Pu-238 
production.
    DOE invites individuals, organizations, and agencies to submit oral 
and/or written comments regarding the scope of the EIS, including the 
environmental issues and alternatives that the EIS should analyze.

DATES: The public scoping period begins with the publication of this 
Notice in the Federal Register (FR) and will continue until November 4, 
1998. Written comments postmarked or submitted by fax or electronic 
mail by that date will be considered in preparation of the EIS. Later 
comments will be considered to the extent practicable.
    DOE will conduct public scoping meetings to assist in defining the 
appropriate scope of the EIS including the significant environmental 
issues to be addressed. DOE plans to hold scoping meetings in the 
vicinity of the proposed alternative sites under consideration (i.e., 
Oak Ridge National Laboratory, Idaho National Engineering and 
Environmental Laboratory, and Hanford sites). The date, time, and 
location will be announced through the local media as soon as 
determined but at least 15 days prior to the date of the meetings.

ADDRESSES: Please direct comments or suggestions on the scope of the 
EIS, requests to speak at the public scoping meetings, requests for 
special arrangements to enable participation at scoping meetings (e.g., 
interpreter for the hearing impaired), and questions concerning the 
project to: Colette Brown, Office of Nuclear Energy, Science and 
Technology (NE-50), U.S. Department of Energy, 19901 Germantown Road, 
Germantown, MD 20874, Telephone: 301-903-6924, Facsimile: 301-903-1510, 
Electronic Mail: [email protected].

FOR FURTHER INFORMATION CONTACT: To request information about this EIS, 
or to be placed on the EIS document distribution list, please call the 
24-hour toll-free information line at 1-800-708-2680. For general 
information about the DOE NEPA process, please contact: Carol 
Borgstrom, Director, Office of NEPA Policy and Assistance (EH-42), U.S. 
Department of Energy, 1000 Independence Ave, S.W., Washington, D.C. 
20585-0119, Telephone: 202-586-4600 or leave a message at 1-800-472-
2756.

SUPPLEMENTARY INFORMATION:

Background

    Under the Atomic Energy Act of 1954, as amended, DOE and its 
predecessor agencies have been developing radioisotope power systems 
(RPS) and Radioisotope Heater Units (RHUs) and supplying them to the 
National Aeronautics and Space Administration (NASA) for more than 30 
years. The radioisotope used in these systems is Pu-238. These systems 
have repeatedly demonstrated their value as enabling technologies in 
various NASA missions. DOE has projected that, over the next 20 to 25 
years, NASA will continue to conduct missions that will require or 
would be enabled or enhanced by RPS fueled with Pu-238.
    Under the National Space Policy issued by the Office of Science and 
Technology Policy in September 1996, and in accordance with its nuclear 
charter under the Atomic Energy Act of 1954, as amended, DOE has 
responsibility to assure that it maintains the capability to provide 
the nuclear infrastructure, including the Pu-238, needed to support 
these missions. The Intersector Guidelines section of the National 
Space Policy states that ``The Department of Energy will maintain the 
necessary capability to support space missions which may require the 
use of space nuclear power systems.'' Historically, the reactors and 
chemical processing facilities at DOE's Savannah River Site (SRS) have 
been used to produce Pu-238 by the irradiation of targets containing 
Np-237. The irradiated targets were moved from the reactor site to a 
chemical processing facility where the targets were processed and the 
Pu-238 was recovered as an oxide powder. The remaining Np-237 was 
recovered for recycle into additional targets. The Pu-238 oxide powder 
was then shipped to facilities for producing pellets that were in turn 
shipped to another DOE site to make the RPS unit. As a result of the 
downsizing of the DOE nuclear weapons complex due to end of the Cold 
War, the reactors used to produce Pu-238 at SRS have been shut down. 
The radiochemical processing facilities at SRS are also planned to be 
shut down in the near future after existing supplies of radioactive 
materials no longer needed to support DOE's missions have been 
processed into a form suitable for long-term storage or disposal.
    In 1992, DOE signed a contract to purchase Pu-238 from Russia 
allowing the U.S. to purchase up to 40 kilograms (kgs) of Pu-238. Under 
this contract, DOE purchased 9 kgs of Pu-238, and in 1997, extended the 
contract for another five years. This option, therefore,

[[Page 53399]]

continues to be viable. However, it is unclear whether this option will 
continue to be reliable or viable once the existing contract has 
expired. The political and economic climate in Russia creates 
uncertainties about the reliability of this source of Pu-238 to satisfy 
potential future NASA space mission requirements. Therefore, DOE 
proposes to reestablish a reliable domestic capability for producing 
Pu-238 to satisfy these foreseeable space mission requirements. Since 
the facilities previously used at SRS are no longer available for the 
production of Pu-238, DOE needs to evaluate other existing DOE reactors 
and chemical processing facilities for target irradiation and 
separation of Pu-238. The environmental impacts of purchasing Pu-238 
from Russia have already been evaluated and are documented in the 
Environmental Assessment of the Import of Russian Plutonium-238 (DOE/
EA-0841, June 1993) prepared by DOE's Office of Nuclear Energy, Science 
and Technology.

Purpose and Need for the Agency Action

    In accordance with its responsibilities under the National Space 
Policy issued in September 1996 and consistent with its charter under 
the Atomic Energy Act of 1954, as amended, DOE is proposing to 
establish a reliable domestic supply source for Pu-238 to meet the 
radioisotope-fueled power requirements for future space missions. A 
near-term decision is needed for two primary reasons. First, the 
existing inventory of Pu-238 which is available for space missions 
(approximately 9 kgs, primarily material purchased from Russia) will be 
exhausted by about 2004. Though additional firm missions cannot be 
specified at this time, over a planning horizon of the next 20 to 25 
years, some future space missions will require Pu-238-fueled RPS. A Pu-
238 production rate of 2-5 kgs/year would be sufficient to meet these 
projected long-term user requirements. Second, the production of Pu-238 
begins with the irradiation of Np-237 targets. The United States' only 
inventory of Np-237 is currently being stored at SRS in an aqueous 
nitrate solution and will require processing to an oxide form prior to 
fabrication into targets for irradiation. The environmental impact of 
converting this material to an oxide form has been addressed in DOE's 
Office of Environmental Management EIS on the Interim Management of 
Nuclear Materials at the Savannah River Site (DOE/EIS-0220, October 
1995). Unless the Np-237 is used in the production of Pu-238, the 
Department will establish plans for the future disposition of this 
material.

Alternatives to be Evaluated

    The EIS will analyze a range of reasonable alternatives for the 
proposed production and processing of 2-5 kgs per year of Pu-238. 
``Production'' includes the irradiation of Np-237 targets in 
reactor(s); ``processing'' includes a Np-237 storage capability and a 
target fabrication and processing capability (before and after 
irradiation). Transportation of Np-237 to and from the reactor site for 
storage and/or processing will also be addressed in this EIS. The 
alternatives identified for analysis have been selected on the basis of 
availability of facilities and technical feasibility for accomplishing 
the proposed production of Pu-238.

No Action Alternative #1

    Under this alternative, DOE would maintain the status quo. No 
domestic Pu-238 production capability would be established. DOE would 
rely on its existing Pu-238 inventory to meet the power requirements of 
near-term space missions and on additional Pu-238 purchases from Russia 
to enable future space missions. The Department would dispose of the 
Np-237 currently stored at SRS.

No Action Alternative #2

    Under this alternative, no domestic Pu-238 production capability 
would be established. However, to fulfill DOE's responsibility to 
maintain the RPS supply infrastructure, including the capability to 
produce Pu-238, DOE will evaluate the alternative of transferring the 
Np-237 (converted to an oxide form) from SRS to a new storage site for 
possible future Pu-238 production. This alternative would preserve the 
Np-237 for potential future use. DOE would rely on additional purchases 
of Pu-238 from Russia for future space missions.

Alternative Sites for Irradiation

    Advanced Test Reactor (ATR) at the Idaho National Engineering and 
Environmental Laboratory (INEEL): Under this alternative, DOE would 
irradiate targets (fabricated from Np-237 currently stored at SRS) in 
the ATR to produce up to 2-5 kgs/year of Pu-238. ATR is an operating 
test reactor with a main programmatic mission to support the Naval 
Reactor Fuels Program. Not impacting the primary mission of the reactor 
would be a prerequisite of applying this alternative.
    Fast Flux Test Facility (FFTF) at the Hanford Site: Under this 
alternative, DOE would irradiate Np-237 targets in FFTF to produce up 
to 2-5 kgs/year of Pu-238 FFTF is currently in a standby mode and is 
being evaluated for potential production of tritium and medical 
isotopes and for other missions. Operating FFTF for the Pu-238 mission 
alone would not be economic; however, if a decision is made to restart 
FFTF for other purposes, it would be a reasonable alternative for Pu-
238 production. A decision on the future of FFTF is anticipated during 
the timeframe of this EIS.
    High Flux Isotope Reactor (HFIR) at the Oak Ridge National 
Laboratory (ORNL): Under this alternative, DOE would irradiate Np-237 
targets in HFIR to produce 1 to 2 kgs/year of Pu-238. The use of HFIR 
for production of small quantities of Pu-238 is compatible with the 
primary neutron scattering and transuranic radioisotope production 
mission of that reactor. However, current estimates are that Pu-238 
production would need to be limited to a rate of 1 to 2 kgs/year. 
Production of more than this amount would disrupt experimental programs 
currently being conducted in the HFIR core. Therefore, use of this 
irradiation facility would have to be supplemented by additional 
facilities to meet the projected demand.

Alternative Sites for Storage of Np-237, Fabrication of Targets, and 
Processing of Irradiated Targets

    Radiochemical Engineering Development Center (REDC) at ORNL: Under 
this alternative, DOE would use REDC to perform all the processing 
activities, including Np-237 storage and target fabrication and post-
irradiation processing to extract the Pu-238, and to recycle the 
unconverted Np-237 into new targets. REDC is located in the same 
complex as HFIR.
    Fuels and Materials Examination Facility (FMEF) at the Hanford 
Site: Under this alternative, DOE would use FMEF to perform all the 
processing activities, including Np-237 storage and target fabrication 
and post-irradiation processing to extract the Pu-238, and to recycle 
the unconverted Np-237 into new targets. FMEF, which is located near 
FFTF, could be modified to install all required support facilities for 
the Pu-238 program. In its Surplus Plutonium Disposition Draft 
Environmental Impact Statement (July 1998), DOE is also analyzing the 
use of FMEF as a reasonable alternative for the siting of surplus 
plutonium disposition facilities, and this analysis could impact the 
use of FMEF as a reasonable alternative to perform these chemical 
processing operations.

[[Page 53400]]

Preliminary Environmental Analysis

    The following issues have been tentatively identified for analysis 
in the EIS. This list is neither intended to be all inclusive nor is it 
a predetermination of potential environmental impacts. The list is 
presented to facilitate comments on the scope of the EIS. Additions to 
or deletions from this list may occur as a result of the public scoping 
process.
     Health and Safety: potential public and occupational 
consequences from construction, routine operation, transportation, and 
credible accident scenarios.
     Waste Management/Pollution Prevention: types of wastes 
expected to be generated, handled, and stored; pollution prevention 
opportunities and the potential consequences to public safety and the 
environment.
     Hazardous Materials: handling, storage, and use; both 
present and future.
     Background Radiation: cosmic, rock, soil, water, and air 
and the potential addition of radiation.
     Water Resources: surface and groundwater hydrology, water 
use and quality, and the potential for degradation.
     Air Quality: meteorological conditions, ambient 
background, sources, and potential for degradation.
     Earth Resources: physiography, topography, geology, and 
soil characteristics.
     Land Use: plans, policies, and controls.
     Noise: ambient, sources, and sensitive receptors.
     Ecological Resources: wetlands, aquatic, terrestrial, 
economically/recreationally important species, and threatened and 
endangered species.
     Socioeconomic: demography, economic base, labor pool, 
housing, transportation, utilities, public services/facilities, 
education, recreation, and cultural resources.
     Natural Disasters: floods, hurricanes, tornadoes, and 
seismic events.
     Unavoidable Adverse Impacts.
     Natural and Depletable Resources: requirements and 
conservation potential.
     Environmental Justice: any potential disproportionately 
high and adverse impacts to minority and low income populations.

Scoping Meetings

    The purpose of this Notice is to encourage public involvement in 
the EIS process and to solicit public comments on the proposed scope 
and content of the EIS. DOE will hold public scoping meetings near 
ORNL, INEEL, and Hanford to solicit both oral and written comments from 
interested parties. The date, time, and location will be announced 
through the local media as soon as determined but at least 15 days 
prior to the date of the meetings.
    In order to facilitate an understanding of the program's 
objectives, DOE personnel will be available at the scoping meetings to 
explain the program to the public and answer questions. DOE will 
designate a facilitator for the scoping meetings. At the opening of 
each meeting, the facilitator will establish the order of speakers and 
will announce any additional procedures necessary for conducting the 
meetings. To ensure that all persons wishing to make a presentation are 
given the opportunity, each speaker may be limited to five minutes, 
except for public officials and representatives of groups, who will be 
allotted ten minutes each. DOE encourages those providing oral comments 
to also submit them in writing. Comment cards will also be available 
for those who prefer to submit their comments in written form. Speakers 
may be asked clarifying questions, but the scoping meetings will not be 
conducted as evidentiary hearings.
    A toll free telephone number has been established to receive public 
comments. Interested parties may call (800) 708-2680 and leave a 
detailed message with their comments.
    DOE will make transcripts of the scoping meetings and project-
related materials available for public review in the following reading 
rooms:

U.S. Department of Energy, Freedom of Information Public Reading Room, 
Forrestal Building, Room 1E-190, 1000 Independence Avenue, S.W., 
Washington, D.C. 20585, Telephone: (202) 586-3142
Oak Ridge Operations Office, DOE Oak Ridge Public Reading Room, U.S. 
Department of Energy, 200 Administration Road, Room G-217, P.O. Box 
2001, Oak Ridge, TN 37831, Telephone: (423) 576-1216 or (423) 241-4780
Richland Operations Office, DOE Public Reading Room, 2770 University 
Drive CIC, Room 101L, P.O. Box 999, mail stop H2-53, Richland, WA 
99352, Telephone: (509) 372-7443
Idaho National Engineering and Environmental Laboratory, DOE-Idaho 
Operations Office Public Reading Room, 1776 Science Center Drive, Idaho 
Falls, ID 83415, Telephone: (208) 526-0271

NEPA Process

    The EIS for the proposed Production of Plutonium-238 for Use in 
Advanced Radioisotope Power Systems for Space Missions will be prepared 
in accordance with the National Environmental Policy Act of 1969, the 
Council on Environmental Quality's Regulations for Implementing the 
Procedural Provisions of NEPA (40 CFR Parts 1500-1508), and DOE's NEPA 
Regulations (10 CFR Part 1021).
    A 45-day comment period on the draft EIS is planned, and public 
hearings to receive comments will be held approximately 3 weeks after 
distribution of the draft EIS. The draft EIS is expected to be issued 
during Spring 1999. Availability of the draft EIS, the dates of the 
public comment period, and information about the public hearings will 
be announced in the Federal Register and in the local news media when 
the draft EIS is distributed.
    The final EIS, which will consider the public comments received on 
the draft EIS, is expected to be published during Fall 1999. No sooner 
than 30 days after the U.S. Environmental Protection Agency's notice of 
availability of the final EIS is published in the Federal Register, DOE 
will issue its Record of Decision and publish it in the Federal 
Register.

    Signed in Washington, D.C., this 29th day of September 1998.
Peter N. Brush,
Acting Assistant Secretary Environment, Safety and Health.
[FR Doc. 98-26594 Filed 10-2-98; 8:45 am]
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