[Federal Register Volume 88, Number 77 (Friday, April 21, 2023)]
[Notices]
[Pages 24607-24610]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2023-08459]


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DEPARTMENT OF ENERGY


National Nuclear Security Administration; Notice of Intent To 
Prepare a Site-Wide Environmental Impact Statement for Continued 
Operation of Sandia National Laboratories, New Mexico

AGENCY: National Nuclear Security Administration, Department of Energy.

ACTION: Notice of intent.

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SUMMARY: The National Nuclear Security Administration (NNSA), a semi-
autonomous agency within the United States (U.S.) Department of Energy 
(DOE), announces its intent to prepare a new Site-Wide Environmental 
Impact Statement (SWEIS) for the Continued Operation of Sandia National 
Laboratories, New Mexico (SNL/NM SWEIS; DOE/EIS-0556). NNSA will 
prepare the SNL/NM SWEIS in accordance with the National Environmental 
Policy Act of 1969 (NEPA), and the Council on Environmental Quality 
(CEQ) and DOE regulations implementing NEPA. The SNL/NM SWEIS will 
analyze the potential environmental impacts of the reasonable 
alternatives for continuing operations of SNL/NM for approximately the 
next 15 years. While SNL has operations outside of New Mexico, the SNL/
NM SWEIS is limited to activities at SNL/NM within the Kirtland Air 
Force Base (KAFB) and the Albuquerque area. The purpose of this Notice 
is to encourage public participation in the SNL/NM SWEIS process and to 
invite comments on the scope of analysis, including the range of 
alternatives, associated actions, and environmental issues that should 
be considered in the SNL/NM SWEIS. Following completion of the SNL/NM 
SWEIS, NNSA will issue a Record of Decision (ROD) announcing any 
decisions associated with the SNL/NM SWEIS.

DATES: NNSA invites federal agencies, tribes, state and local 
governments, industry, organizations, public interest groups, local 
businesses, and members of the general public to submit comments on the 
scope of the SNL/NM SWEIS through June 5, 2023 (the Comment Period). 
NNSA will consider all comments on the scope of the SNL/NM SWEIS 
received or postmarked during the Comment Period. Comments received or 
postmarked after the Comment Period ends will be considered to the 
extent practicable. NNSA will accept public comments on the proposed 
scope of the SNL/NM SWEIS in written and verbal form, and it will give 
equal weight to comments provided by either method. NNSA will conduct 
two public scoping meetings at which verbal comments may be provided, 
including one in-person meeting with a virtual link for listen-in only 
and one virtual meeting, scheduled as follows:
     In-person Meeting: Tuesday, May 9, 2023; 6:30-8:50 p.m., 
Mountain Daylight Time, preceded by a poster session starting at 5:30 
p.m., at the New Mexico Veterans Memorial, Museum & Conference Center, 
1100 Louisiana Blvd. SE, Albuquerque, NM 87108. Listen-in for May 9: 
https://www.zoomgov.com/j/1618755753, toll-free 833-568-8864, Meeting 
ID: 161 875 5753.
     Virtual Meeting: Thursday, May 11, 2023, 6:30-8:50 p.m., 
Mountain Daylight Time, Listen-in and Participation for May 11: https://www.zoomgov.com/j/1608652437, toll-free 833-568-8864, Meeting ID: 160 
865 2437.
     Further information about the public scoping meetings, 
including any changes in dates, places, or times, will be posted on the 
NNSA NEPA Reading Room website at: https://www.energy.gov/nnsa/nnsa-nepa-reading-room.

ADDRESSES: Written comments on the scope of the SNL/NM SWEIS or 
requests for information related to the SNL/NM SWEIS may be sent via 
postal mail to SNL/NM SWEIS Comments, National Nuclear Security 
Administration, Sandia Field Office, P.O. Box 5400, Albuquerque, NM 
87185, or by email to: [email protected]. Before including your 
address, phone number, email address, or other personally identifiable 
information in your comment, please be advised that your entire 
comment--including your personally identifiable information--might be 
made publicly available. If you wish for NNSA to withhold your name 
and/or other personally identifiable information, please state this 
prominently at the beginning of your comment. You may submit comments 
anonymously.

FOR FURTHER INFORMATION CONTACT: For further information about this 
Notice, please contact Dr. Adria Bodour, NEPA Compliance Officer, 
Sandia Field Office, by postal mail at National Nuclear Security 
Administration, Sandia Field Office, P.O. Box 5400, Albuquerque, NM 
87185, by phone (505) 845-6314, or by email at [email protected] 
or [email protected]. This Notice, related NEPA documents, and 
additional information about the NEPA process are available on the NNSA 
NEPA Reading Room website at: https://

[[Page 24608]]

www.energy.gov/nnsa/nnsa-nepa-reading-room. Information will also be 
posted on the SNL/NM website at: https://www.sandia.gov/about/environment.

SUPPLEMENTARY INFORMATION:

Background

    SNL/NM is managed and operated as a Federally Funded Research and 
Development Center (FFRDC), as defined in Federal Acquisition 
Regulation 35.017, and a national security laboratory, as defined by 50 
U.S.C. 2471, whose multidisciplinary research capabilities, tools, and 
teams of experts focus on the nation's priorities in science, energy, 
and national security. The purpose of FFRDCs is to bring scientific and 
technical expertise to bear on pressing national challenges. SNL 
personnel participate in the formal annual weapons certification 
process of the nuclear weapons stockpile. Through routine surveillance 
of the systems and annual stockpile assessment, weapons issues that 
could lead to future performance degradation, such as aging effects, 
are discovered and addressed. SNL/NM personnel also focus on developing 
technologies to sustain, modernize, and protect the nuclear arsenal; 
prevent the spread of weapons of mass destruction; defend against 
terrorism; protect the national infrastructure; ensure stable energy 
and water supplies; and provide new capabilities to the Department of 
Defense.
    SNL personnel also perform research and development in science, 
technology, and engineering programs. SNL/NM operations are primarily 
sponsored by NNSA, but SNL personnel also do work for other 
governmental agencies and partner with a wide variety of entities.
    SNL/NM is located within KAFB to the southeast of Albuquerque, NM. 
KAFB spans approximately 50,000 acres located at the foothills of the 
Manzano Mountains. The SNL/NM campus covers approximately 16,000 acres 
on KAFB and contains approximately 900 buildings with approximately 
seven million square feet. The SNL/NM eastern boundary is U.S. Forest 
Service land, and the southern boundary is Pueblo of Isleta land. The 
new SNL/NM SWEIS will analyze SNL/NM operations within KAFB and the 
City of Albuquerque area where SNL/NM has leased facilities. SNL/NM 
contains five secure technical areas on DOE fee-owned land as well as 
buildings and structures on properties permitted from KAFB, including 
Coyote Test Field, National Solar Thermal Test Facility, Robotic 
Vehicle Range, remote testing sites, and others.
    SNL/NM currently operates under a SWEIS issued in 1999, Final Site-
Wide EIS for Sandia National Laboratories, New Mexico (1999 SNL/NM 
SWEIS; DOE/EIS-0281), its four supplement analyses (SAs) (DOE/EIS-0281-
SA-01, 2001; DOE/EIS-0281-SA-02, 2002; DOE/EIS-0281-SA-03, 2004; and 
DOE/EIS-0281-SA-04, 2006), and other project-specific NEPA documents.
    The 1999 SNL/NM SWEIS examined existing and potential impacts to 
the environment from ongoing and anticipated future NNSA operations 
conducted over approximately a 10-year period for SNL/NM operations 
within and around KAFB. Since issuance of the 1999 SNL/NM SWEIS and its 
associated ROD (64 FR 69996; December 15, 1999), SNL/NM operations have 
evolved and additional information about the SNL/NM environmental 
setting has become available. Security requirements have also evolved 
in response to changes in recognized threats.
    An SA is a document prepared pursuant to DOE NEPA regulations (10 
CFR 1021.314(c)) to determine whether a supplemental or new EIS should 
be prepared, or whether no further NEPA documentation is required. 
Three of the four SNL/NM SAs based on the 1999 SNL/NM SWEIS dealt with 
implementing new or changed operations and replacing facilities; the 
fourth SA (DOE/EIS-028-SA-04, August 2006), prepared pursuant to 10 CFR 
1021.330(d), assessed whether potential environmental impacts from site 
operations remained within those projected in the 1999 SNL/NM SWEIS for 
the level of operations selected in the ROD. Based on each of these 
SAs, NNSA determined that a new SWEIS was not necessary.
    Subsequently, given the length of time since the previous SWEIS was 
issued, new information, and the evolution of mission needs, NNSA 
determined that preparation of a new SWEIS was appropriate. On June 24, 
2011, NNSA issued a notice of intent (NOI) to prepare a new SWEIS for 
SNL/NM (76 FR 37100). NNSA's completion of that SWEIS, however, was 
delayed by competing program and resource priorities. Since the NOI was 
issued in 2011, mission needs have continued to evolve and further 
information has become available. Consequently, NNSA has now determined 
that preparation of a new SWEIS with a fresh scoping process would best 
serve the purposes of NEPA by providing NNSA and the public with the 
most current environmental and programmatic information. Accordingly, 
NNSA has administratively canceled the SWEIS originally announced in 
2011 and will prepare a new SWEIS, DOE/EIS-0556.

Purpose and Need for Agency Action

    The purpose and need for continued operation of SNL/NM has not 
changed from those identified in the 1999 SNL/NM SWEIS and continues to 
include supporting NNSA and other DOE missions as directed by Congress 
and the President. Currently, facilities and capabilities that support 
many NNSA and other DOE mission priorities are found only at SNL/NM. 
NNSA needs to continue SNL/NM operations to meet its core mission 
requirements. A further purpose of the continued operation of SNL/NM is 
to provide capabilities available at the site in support of strategic 
partnership projects, under which SNL/NM oversees national security-
related research, development, and testing programs, and conducts work 
for other entities, including other federal and state government 
agencies, industry, and academic institutions.
    SNL/NM operations support the following NNSA mission priorities: 
(1) to enhance U.S. national security through the military application 
of nuclear energy, (2) to maintain and enhance the safety, reliability, 
and performance of the U.S. nuclear weapons stockpile, including the 
ability to design, produce, and test, in order to meet national 
security requirements, (3) to promote international nuclear safety and 
nonproliferation, (4) to reduce global danger from weapons of mass 
destruction; and (5) to support U.S. leadership in science and 
technology (50 U.S.C. 2401).
    SNL/NM operations support NNSA national security objectives through 
the engineering of nuclear weapons components and other nuclear and 
non-nuclear activities. NNSA missions for SNL/NM have evolved over time 
in response to national needs, and NNSA expects that evolution will 
continue for the foreseeable future. NNSA, on behalf of the U.S. 
Government, requires SNL/NM management and operating contractor to 
continue providing support for NNSA mission lines, programs, and 
projects in national security, energy resources, environmental quality, 
and science and technology. SNL personnel maintain specific core 
competencies in activities associated with research, development, 
design, and surveillance of nuclear weapons; supports the assessment 
and certification of their safety, reliability, and performance; and 
produces components for the stockpile. The continued operation of SNL/
NM is

[[Page 24609]]

critical to NNSA's ability to meet its missions.
    SNL/NM operations also include non-weapons research and science 
services in multiple areas, including waste management, environmental 
restoration, hazardous and radioactive material transportation, energy 
efficiency and renewable energy, nuclear energy, fossil energy, 
magnetic fusion, basic energy sciences, supercomputing, and biological 
and environmental research. SNL/NM operations are needed to support 
other important DOE missions, including energy security and long-term 
energy needs, transportation research and development, homeland 
infrastructure security and resiliency, and advanced science and 
technology. Much of the same infrastructure used to support national 
security supports these other missions.

Preliminary Alternatives

    The scoping process is an opportunity for the public to assist NNSA 
in determining the alternatives, issues, and analyses that should be 
included in the SNL/NM SWEIS. NNSA welcomes specific comments or 
suggestions on the content of these alternatives or on other 
alternatives that should be considered. NNSA has identified a 
preliminary set of alternatives and issues for evaluation in the SNL/NM 
SWEIS below; during the development of the SWEIS, NNSA could identify 
and include other reasonable alternatives.

No-Action Alternative

    Under the No-Action Alternative, current operations throughout SNL/
NM that support currently assigned missions would continue. NEPA 
regulations require analysis of the No-Action Alternative to provide a 
benchmark for comparison with the environmental effects of action 
alternatives. This alternative represents maintaining the status quo 
and would include the programs and activities for which NEPA reviews 
have been completed and decisions have been made.

Modernized Operations Alternative

    Under the Modernized Operations Alternative, existing programs and 
activities would continue and be supported by modernizing facilities. 
This alternative includes the scope of the No-Action Alternative, as 
described above, plus additional modernization activities. This 
alternative includes (1) construction of replacement facilities, (2) 
upgrades to existing facilities and infrastructure, and (3) 
decontamination, decommissioning, and demolition (DD&D) projects. Under 
this alternative, NNSA would replace facilities that are approaching 
their end-of-life, upgrade facilities to extend their lifetimes, and 
improve work environments to enable NNSA to meet operational 
requirements. The alternative would also include projects that would 
reduce the carbon footprint of operations and/or are net zero 
initiatives. The proposed DD&D of older facilities would eliminate 
excess facilities and reduce costs and risks. This alternative would 
not expand capabilities and operations at SNL/NM beyond those that 
currently exist. Examples of projects that will likely be proposed and 
analyzed in the SNL/NM SWEIS under this alternative include: (1) 
Neutron Generator Enterprise Consolidation, which would consolidate 
operations from existing facilities into a new facility that would have 
improved workflow; and (2) Weapons Component Engineering Capability, 
which would consolidate capabilities from existing facilities into a 
new facility.

Expanded Operations Alternative (NNSA's Preferred Alternative)

    The Expanded Operations Alternative would include the modernization 
actions included in the Modernized Operations Alternative, as described 
above. This alternative would expand operations and missions to respond 
to future national security challenges and meet increasing 
requirements. This alternative includes (1) construction and operation 
of new facilities and (2) upgrades to existing facilities that result 
in changing the nature and capabilities of these facilities. This 
alternative would expand capabilities at SNL/NM beyond those that 
currently exist. Examples of projects that will likely be proposed and 
analyzed in the SNL/NM SWEIS under this alternative include: (1) 
Combined Radiation Environments for Survivability Testing (CREST) 
facility, which would replace the Annular Core Research Reactor (ACRR), 
which is reaching its end-of-life. Because the CREST facility would 
expand the capabilities and support additional missions compared to the 
existing ACRR, it would be proposed under the Expanded Operations 
Alternative; and (2) Next Generation Pulsed Power Facility, which would 
address important nuclear weapon primary and secondary physics 
questions and would produce large x-ray and neutron outputs that would 
help certify weapons survivability in hostile environments in larger 
test objects than possible today. Such a capability does not currently 
exist at SNL/NM.
    In the Draft SNL/NM SWEIS, NNSA will identify and analyze other 
actions and specific projects that could expand the capabilities at 
SNL/NM.

Other Alternatives

    Although the 1999 SNL/NM SWEIS included a Reduced Operations 
Alternative, NNSA does not plan to analyze such an alternative in the 
new SNL/NM SWEIS. NNSA does not consider a reduction in operations to 
be a reasonable alternative under NEPA because it does not meet the 
purpose and need for agency action. That is, under a reduced operations 
alternative, NNSA would not be able to meet its essential mission needs 
for the foreseeable future. NNSA welcomes comments on this and any 
other alternative the public thinks are reasonable and should be 
analyzed in the SWEIS.

Preliminary Identification of Environmental Issues

    The issues listed below have been identified for analysis in the 
SNL/NM SWEIS. The list is tentative and intended to facilitate public 
comment on the scope of the document. It is not intended to be all 
inclusive, nor does it imply any predetermination of potential impacts. 
NNSA invites suggestions for the addition or deletion of items on this 
list.
     Potential effects on the public and workers from exposures 
to radiological and hazardous materials during normal operations, 
construction, reasonably foreseeable accidents (including from natural 
phenomena hazards), and intentional destructive acts;
     Impacts on surface water, groundwater, floodplain and 
wetlands, and on water use and quality;
     Impacts on air quality from potential releases of 
radiological and non-radiological pollutants;
     Impacts associated with climate change, including 
greenhouse gas emissions and reductions, potential effects of climate 
change on analyzed alternatives, and potential mitigation measures;
     Impacts to plants and animals and their habitats, 
including species that are federally or state listed as threatened or 
endangered, or of special concern;
     Impacts on physiography, topography, geology, and soil 
characteristics;
     Impacts to cultural resources, such as those that are 
historic, prehistoric, archaeological, scientific, or paleontological;
     Socioeconomic impacts to affected communities;
     Environmental justice impacts, particularly whether or not 
activities at SNL/NM would have a

[[Page 24610]]

disproportionately high and adverse effect on minority and/or low-
income populations;
     Impacts on land use and applicable plans and policies;
     Impacts from traffic and transportation of radiological 
and hazardous materials/waste;
     Pollution prevention and materials, and waste management 
practices and activities;
     Impacts of SNL/NM facilities on visual aesthetics of the 
surrounding communities and ambient environment;
     Impacts of noise and vibration on the surrounding 
communities and ambient environment;
     Impacts to community services, including fire protection, 
police protection, schools, and solid waste disposal to landfills;
     Impacts from the use of utilities, including water and 
electricity consumption, fuel use, sewer discharges, and resource 
conservation;
     Impacts from site contamination and remediation;
     Unavoidable adverse impacts;
     Environmental compliance and inadvertent releases;
     Energy conservation, renewable energy, and sustainability;
     Short-term uses and long-term productivity;
     Irreversible and irretrievable commitment of resources;
     Cumulative effects of past, present, and reasonably 
foreseeable future actions; and
     Mitigation commitments.

NEPA Requirements and the SWEIS Process

    DOE NEPA implementing regulations at 10 CFR 1021.330(c), state: 
``[A]s a matter of policy when not otherwise required, DOE shall 
prepare site-wide EISs for certain large, multiple-facility DOE sites; 
DOE may prepare EISs or EAs for other sites to assess the impacts of 
all or selected functions at those sites.'' NNSA has determined that 
preparation of a new SWEIS for SNL/NM is appropriate and is preparing 
the SNL/NM SWEIS in accordance with NEPA, and CEQ and DOE regulations 
implementing NEPA (40 CFR parts 1500-1508 and 10 CFR part 1021, 
respectively).
    NNSA will solicit public input at two points in the SNL/NM SWEIS 
process: during the scoping process announced by this Notice, and after 
issuance of a draft SNL/NM SWEIS. The scoping process is intended to 
involve all interested parties, including agencies (federal, state, and 
local), public interest groups, tribes, local businesses, industry, 
organizations, and members of the public. Interested parties are 
invited to participate in the SNL/NM SWEIS process to refine the 
preliminary alternatives and identify environmental issues for 
analysis. NNSA will consider all comments received during the Comment 
Period in defining the scope of the SNL/NM SWEIS. Comments on the 
proposed scope may be provided verbally at the two public scoping 
meetings described under the DATES section, or in writing by any of the 
means described under the ADDRESSES section. The scoping meetings will 
provide the public with an opportunity to present comments, ask 
questions, and discuss issues with NNSA officials regarding the SNL/NM 
SWEIS.
    Following the scoping process announced in this Notice, and after 
consideration of comments received during scoping, NNSA will prepare a 
Draft SNL/NM SWEIS. NNSA anticipates issuing the Draft SNL/NM SWEIS to 
the public in 2024. NNSA will announce the availability of the Draft 
SNL/NM SWEIS in the Federal Register and local media outlets. NNSA will 
consider comments received on the Draft document and will address them 
in the Final SNL/NM SWEIS, which the NNSA anticipates issuing to the 
public in 2025. NNSA will then issue a ROD no sooner than 30 days after 
publication by the Environmental Protection Agency of a Notice of 
Availability of the Final SNL/NM SWEIS.
    Preparation of the SNL/NM SWEIS will require participation of other 
federal agencies. Accordingly, NNSA invites agencies with jurisdiction 
by law or special expertise to participate in the SNL/NM SWEIS process. 
NNSA has invited the U.S. Air Force and U.S. Forest Service to 
participate as cooperating agencies in preparation of the document.

Signing Authority

    This document of the Department of Energy was signed on April 17, 
2023, by Jill Hruby, Under Secretary for Nuclear Security and 
Administrator, NNSA, pursuant to delegated authority from the Secretary 
of Energy. That document with the original signature and date is 
maintained by DOE. For administrative purposes only, and in compliance 
with requirements of the Office of the Federal Register, the 
undersigned DOE Federal Register Liaison Officer has been authorized to 
sign and submit the document in electronic format for publication, as 
an official document of the Department of Energy. This administrative 
process in no way alters the legal effect of this document upon 
publication in the Federal Register.

    Signed in Washington, DC, on April 18, 2023.
Treena V. Garrett,
Federal Register Liaison Officer, U.S. Department of Energy.
[FR Doc. 2023-08459 Filed 4-20-23; 8:45 am]
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