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

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,

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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.

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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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