Site-Wide Environmental Impact Statement (SWEIS); Oak Ridge Y-12 Plant

Federal RegisterMar 17, 1999

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DEPARTMENT OF ENERGY

Site-Wide Environmental Impact Statement (SWEIS); Oak Ridge Y-12

Plant

AGENCY: U.S. Department of Energy (DOE).

ACTION: Notice of Intent (NOI).

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SUMMARY: Pursuant to the National Environmental Policy Act (NEPA), DOE

announces its intent to prepare a Site-Wide Environmental Impact

Statement (SWEIS) for the Oak Ridge Y-12 Plant (Y-12), DOE's primary

site for enriched uranium operations and storage related to the

nation's nuclear weapons program. The SWEIS will analyze current levels

of Y-12 operations and foreseeable new operations and facilities for

approximately the next ten years. The alternatives to be analyzed in

the SWEIS include: an extensive upgrade/retrofit of existing processes

and facilities; construction of new facilities to replace existing

processes and facilities; a combination of upgrades of existing

processes and facilities and new construction; and the No Action

alternative. The No Action alternative is to continue current facility

operations throughout Y-12 in support of assigned missions. There is no

preferred alternative at this time. The purpose of this notice is to

invite public participation in the process and to encourage public

dialogue on the alternatives that should be considered.

DATES: The DOE invites other federal agencies; state, local and tribal

governments; and the general public to comment on the scope of this

SWEIS. The public scoping period starts with the publication of this

Notice in the Federal Register and will continue until May 17, 1999.

DOE will consider all comments received or postmarked by that date in

defining the scope of this SWEIS. Comments received or postmarked after

that date will be considered to the extent practicable. Public scoping

meetings will be held in the Oak Ridge area and their dates, times, and

locations will be published in local newspapers and other appropriate

media.

The DOE is requesting, by separate correspondence and this Notice,

that federal and state government agencies desiring to be designated as

cooperating

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agencies on the Y-12 SWEIS inform DOE by April 30, 1999.

ADDRESSES: Written comments or suggestions to assist the DOE in

identifying the appropriate scope of the Y-12 SWEIS should be directed

to: Gary S. Hartman, SWEIS Document Manager, U.S. Department of Energy,

Oak Ridge Operations Office, Post Office Box 2001, Oak Ridge, Tennessee

37831, or by facsimile at (423) 576-1237, or by E-Mail at

[email protected]

For general information on the DOE NEPA process, please contact:

Carol M. Borgstrom, Director, Office of NEPA Policy and Assistance, EH-

42, U.S. Department of Energy, 1000 Independence Avenue SW, Washington,

D.C. 20585.

Ms. Borgstrom can also be reached at (202) 586-4600, or by leaving

a message at 1-800-472-2756.

Additional information regarding DOE NEPA activities and access to

many NEPA documents is available on the Internet through the NEPA Home

Page at http://www.eh.doe.gov/nepa.

SUPPLEMENTARY INFORMATION:

Background

The DOE is the federal agency responsible for providing the nation

with nuclear weapons and ensuring that those weapons remain safe and

reliable. As one of the DOE major production facilities, Y-12 has been

DOE's primary site for enriched uranium processing and storage, and one

of the primary manufacturing facilities for maintaining the U.S.

nuclear weapons stockpile. Y-12 is located on the Oak Ridge Reservation

(ORR), approximately 40 km (25 mi) west of Knoxville, Tennessee. For

purposes of the SWEIS, the Y-12 Site is defined as approximately 5,000

acres of the 34,516 acre ORR, bounded by the DOE Boundary and Pine

Ridge to the north, Scarboro Road to the east, Bethel Valley Road to

the south, west to Mount Vernon Road, and then extending west down Bear

Creek Valley to the security fence-line near the Roane/Anderson County

boundary. Y-12 has a current annual budget of approximately $460

million and houses approximately 5,000 employees on site.

Nondefense-related activities at the Y-12 Plant include

environmental monitoring, remediation, and deactivation and

decontamination activities of the Environmental Management Program;

management of waste materials from past and current operations;

research activities operated by the Oak Ridge National Laboratory;

support of other federal agencies through the Work-for-Others Program;

and the transfer of highly specialized technologies to support the

capabilities of the U.S. industrial base.

In response to the end of the Cold War and changes in the world's

political regimes, the emphasis of the U.S. weapons program has shifted

dramatically over the past few years from developing and producing new

weapons to dismantlement and maintenance of a smaller, enduring

stockpile. Even with these significant changes, however, DOE

responsibilities for the nuclear weapons stockpile continue, and the

President and Congress have directed DOE to continue to maintain the

safety and reliability of the nuclear weapons stockpile.

In order to meet the challenges of the post-Cold War era, DOE has

prepared several Programmatic Environmental Impact Statements (PEISs)

to determine how best to carry out its national security requirements.

The Stockpile Stewardship and Management PEIS (SSM PEIS, DOE/EIS-0236),

which was completed in September 1996, evaluated alternatives for

maintaining the safety and reliability of the nuclear weapons stockpile

without underground nuclear testing or production of new-design

weapons. The Storage and Disposition of Weapons-Usable Fissile Material

PEIS (S&D PEIS, DOE/EIS-0229), which was completed in December 1996,

evaluated alternatives for the long-term storage of fissile material,

and the disposition of surplus fissile material. The Records of

Decision (RODs) from these two PEISs form a starting point for the

scope of actions that are contemplated in this Y-12 SWEIS.

In the SSM PEIS ROD, DOE decided to maintain the national security

missions at Y-12, but to downsize the plant consistent with reduced

requirements. These national security missions include: (1) maintaining

the capability to fabricate uranium and lithium components and parts

for nuclear weapons, (2) evaluating components and subsystems returned

from the stockpile, (3) storing enriched uranium that is designated for

national security purposes (also referred to as non-surplus enriched

uranium), (4) storing depleted uranium and lithium materials and parts,

(5) dismantling nuclear weapon secondaries returned from the stockpile,

(6) processing uranium (which includes chemical recovery, purification,

and conversion of enriched uranium to a form suitable for long-term

storage and/or further use), and (7) providing support to weapons

laboratories. In the S&D PEIS ROD, DOE decided that Y-12 would also

store surplus enriched uranium pending disposition.

The DOE NEPA strategy for both the SSM and the S&D programs

consists of multiple phases. The first phase was to prepare PEISs (now

completed) to support program-wide decisions. In the second phase, DOE

would prepare any necessary site-wide and/or project-specific NEPA

documents required to implement any programmatic decisions. This Y-12

SWEIS is the next step for DOE's NEPA strategy for the Y-12 Plant. As

such, the proposals in this NOI are consistent with previous decisions

of the DOE in the PEIS RODs to downsize the Y-12 Plant and store non-

surplus and surplus enriched uranium. As described in the

``alternatives'' section of this NOI, DOE is proposing several

different approaches to carrying out these missions.

Public scoping meetings held in the Oak Ridge area will facilitate

dialogue between DOE and the public and provide an opportunity for

individuals to provide written or oral statements. In addition to

providing comments at the public scoping meetings, all interested

parties are invited to record their comments, ask questions concerning

the Y-12 SWEIS, request time to speak, request assistance for special

needs at the public meetings (e.g., an interpreter for the hearing

impaired or special access), or request to be placed on the Y-12 SWEIS

mailing or document distribution list. This may be done by contacting

the SWEIS Document Manager at the address given above.

Proposed Action

DOE proposes to continue to provide the capability and capacity to

maintain the nation's stockpile, in support of the U.S. Nuclear Weapons

Program. Further, DOE proposes to continue the processing and storage

of enriched and depleted uranium, lithium compounds, and other

materials; and the manufacturing and assembly/disassembly mission

assigned to the Y-12 Plant in the safest and most efficient manner

practicable. The SWEIS will provide a baseline of impacts associated

with current activities, analyze the potential impacts of constructing

a new enriched uranium storage facility, and address siting issues

associated with other possible modernization projects.

Alternatives to be Analyzed

As described below, DOE will analyze three broad alternatives

involving upgrades of existing facilities, construction of new

facilities, and a combination of these two approaches. Analysis will be

performed at a level of detail sufficient to enable DOE to make

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decisions regarding approach (i.e., upgrade or construct) and location

(i.e., where on the site) for each function or activity. Environmental

considerations will be addressed for footprint reduction activities as

Y-12 surplus facilities are transitioned into the Environmental

Management program consistent with the SSM PEIS and the Department's

Lifecycle Asset Management Order. For most major functions or

activities, additional NEPA evaluations would be required as more

detailed information becomes available in order to make subsequent

decisions regarding construction and operation. However, as an

exception to this general approach, DOE will analyze the potential

impacts of designing, constructing, and operating a new enriched

uranium storage facility, for which conceptual design has begun and

sufficient information is available.

Under the Upgrade Alternative, the SWEIS will assess impacts from

extensive upgrade/retrofit of existing processes and facilities, such

as: enriched uranium manufacturing, depleted uranium manufacturing,

lithium manufacturing, assembly/disassembly, general manufacturing,

office facilities, and other support facilities.

Under the Construction Alternative, the SWEIS will assess the

impacts of replacing existing processes and facilities with newly

designed and constructed processes and facilities, such as: enriched

uranium manufacturing, depleted uranium manufacturing, lithium

manufacturing, assembly/disassembly, general manufacturing, office

facilities, and other support facilities.

Under the Upgrade/Construction Alternative, the SWEIS will assess

the impacts of the combination of extensive upgrades to certain

existing processes and facilities and the design and construction of

certain new processes and facilities. This alternative will include a

combination of both existing upgraded/new processes and facilities,

such as: enriched uranium manufacturing, depleted uranium

manufacturing, lithium manufacturing, assembly/disassembly, general

manufacturing, office facilities, and other support facilities.

The No Action Alternative would continue current facility

operations throughout Y-12 in support of assigned missions. NEPA

regulations require analysis of the No Action alternative to provide a

benchmark for comparison with environmental effects of the other

alternatives. This alternative reflects the current nuclear weapons

program missions at Y-12, and includes the manufacture and assembly/

disassembly of weapons components, and the continued processing and

storage of enriched uranium materials in existing facilities. As

specified in the SSM PEIS and the S&D PEIS, these operations would

continue in a reduced footprint of consolidated operations. This

alternative also includes environmental considerations of footprint

reduction activities as Y-12 surplus facilities are transitioned into

the Environmental Management program consistent with the SSM PEIS and

the Department's Lifecycle Asset Management Order. Limited upgrades of

existing facilities are underway and their completion would be included

in the No Action alternative.

Other Alternatives Considered

Members of the public have in the past expressed interest in

shutting down all operations at Y-12 and deactivating some or all

facilities. As discussed in the Background section above, DOE has

considered these suggestions in previous PEIS documents. DOE recognizes

that Y-12 has unique capabilities and diverse roles supporting a

variety of national programs, and that there is an essential near-term

need to manage and maintain the safety and stability of the existing

nuclear materials inventory. In addition, the National Security

Strategy for a New Century, issued by The White House in October 1998,

emphasizes the need to ``ensure the continued viability of the

infrastructure that supports U.S. nuclear forces and weapons.''

Accordingly, the DOE view at this time is that a decision to shut down

or further reduce Y-12 missions within the time frame of the SWEIS

would be highly unlikely. Therefore, DOE does not plan to analyze an

alternative involving an orderly shutdown or further reduction during

this period.

The Role of the SWEIS in the DOE NEPA Compliance Strategy

The SWEIS will be prepared pursuant to the NEPA of 1969, 42 USC

4321 et seq., the Council on Environmental Quality (CEQ) NEPA

regulations (40 CFR Parts 1500-1508) and the DOE NEPA regulations (10

CFR Part 1021). The DOE has a policy (10 CFR 1021.330) of preparing

SWEISs for certain large, multiple-facility sites such as Y-12. The

purpose of a SWEIS is to: (1) provide DOE and its stakeholders with an

analysis of the individual and cumulative environmental impacts

resulting from ongoing and reasonably foreseeable new operations and

facilities (and reasonable alternatives) at a DOE site; (2) provide a

basis for site-wide decision making; and (3) improve and coordinate

agency plans, functions, programs, and resource utilization. A SWEIS

can be used to efficiently and effectively analyze multiple proposals

and help establish an efficient, environmentally sound, and cost-

effective plan for operating the site and its facilities. Additionally,

a SWEIS provides an overall NEPA baseline for a site that is useful as

a reference when project-specific NEPA documents are prepared. The NEPA

process allows for federal, state, tribal, county, municipal, and

public participation in the environmental review process.

In accordance with 10 CFR 1021.330(d), DOE will evaluate the SWEIS

at least every five years after its completion to determine whether it

remains adequate, should be supplemented, or should be replaced with a

new SWEIS.

The Y-12 Site-Wide Analysis

The SWEIS will address operations and activities that DOE foresees

at Y-12 for the ten years following the publication of the ROD. The

SWEIS is expected to facilitate and streamline subsequent NEPA reviews

at Y-12 by allowing DOE to focus on project-specific issues and narrow

and simplify the scope of later reviews. This process is called

``tiering'' (40 CFR 1508.28). DOE believes that the SWEIS analysis will

provide adequate NEPA analysis for impacts related to existing and

reasonably foreseeable activities and projects covered within the

SWEIS.

Preliminary Environmental Analysis

The following issues have been identified for analysis in the

SWEIS. The list is tentative and intended to facilitate public comment

on the scope of this SWEIS. It is not intended to be all-inclusive, nor

does it imply any predetermination of potential impacts. The DOE

specifically invites suggestions for the addition or deletion of items

on this list.

1. Potential effects on the public and workers from exposures to

radiological and hazardous materials during normal operations,

construction, and credible accident scenarios.

2. Impacts on surface and groundwater, floodplains and wetlands,

and on water use and quality.

3. Impacts on air resources.

4. Impacts to plants and animals and their habitat, including

species which are federal- or state-listed as threatened or endangered,

of special concern, or economically/recreationally important.

5. Impacts on physiography, topography, geology, and soil

characteristics.

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6. Impacts to cultural resources such as historic, archaeological,

scientific, or culturally important sites.

7. Socioeconomic impacts to affected communities.

8. Environmental Justice, particularly whether or not activities at

Y-12 have a disproportionately high and adverse effect on minority and

low-income populations.

9. Potential impacts on land use plans, policies, and controls.

10. Transportation of radiological and hazardous materials on and

off the Y-12 Plant.

11. Pollution prevention and waste management practices and

activities.

12. Impacts on aesthetics and noise levels of the Y-12 facilities

on the surrounding communities and ambient environment.

13. Unavoidable adverse impacts due to natural phenomena (e.g.,

floods, earthquakes, etc.).

14. Cumulative effects of past, present, and future operations

within the Y-12 region of influence.

15. Reasonably foreseeable impacts associated with the shutdown of

excess facilities.

16. Status of compliance with all applicable federal, state, and

local statutes and regulations; required federal and state

environmental consultations and notifications; and DOE orders on

environmental protection and waste management.

Related NEPA Reviews

The following is a list of recent NEPA and other documentation

related to the scope of this SWEIS. The summaries below are intended to

familiarize the reader with the purpose of these other NEPA reviews and

how Y-12 is considered in them.

Programmatic NEPA Reviews

Stockpile Stewardship and Management PEIS (DOE/EIS-0236). A ROD was

issued on December 19, 1996 (61 FR 68014, December 26, 1996). The DOE

decided to maintain, but downsize, the weapons secondary and case

component fabrication capability at Y-12.

Storage and Disposition of Weapons-Usable Fissile Materials PEIS

(DOE/EIS-0229). A ROD was issued on January 14, 1997 (62 FR 3014,

January 21, 1997). Oak Ridge, in particular Y-12, will continue to

store non-surplus highly enriched uranium and surplus highly enriched

uranium pending disposition in upgraded and consolidated facilities.

Waste Management PEIS (DOE/EIS-0200). The Final PEIS was issued in

May 1997. Multiple RODs are being prepared for various categories of

waste. A ROD for the Treatment of Non-Wastewater Hazardous Waste was

issued on July 30, 1998 (63 FR 41810, August 5, 1998). The DOE decided

to continue to use off-site facilities for the treatment of major

portions of the non-wastewater hazardous waste generated at DOE sites.

The ORR will treat some of its own non-wastewater hazardous waste on

site, where capacity is available in existing facilities and where this

is economically favorable. A ROD for Transuranic Waste was issued on

January 20, 1998 (63 FR 3629, January 23, 1998). Transuranic waste at

the ORR will be packaged to meet waste acceptance criteria for the

Waste Isolation Pilot Plant (WIPP) in New Mexico and then stored on

site for eventual disposal at the WIPP. Decisions for managing low-

level radioactive waste, low-level radioactive and hazardous mixed

waste, and high-level radioactive waste are still pending.

Project-Specific NEPA Reviews

Disposition of Surplus Highly Enriched Uranium EIS (DOE/EIS-0240).

A ROD was issued on August 5, 1996 (61 FR 40619, August 5, 1996). The

ORR, particularly Y-12, is one of four DOE sites selected for

implementing blending technologies for highly enriched uranium.

Interim Storage of Enriched Uranium Environmental Assessment (EA)

(DOE/EA-0929). A Finding of No Significant Impact (FONSI) was issued on

September 14, 1995. This allowed for the continued interim storage of

enriched uranium at Y-12, with an increase in the amount of material

stored above the historical maximum level. The S&D PEIS, discussed

above, confirmed and extended this mission beyond the ten years

assessed in the EA.

Replacement and Operation of the Anhydrous Hydrogen Fluoride (AHF)

Supply and Fluidized-Bed Chemical Processing Systems EA (DOE/EA-1049).

A FONSI was issued on September 20, 1995. This allowed for replacement

of the AHF supply and fluidized-bed reactor systems at Y-12 to meet

operational and safety requirements and extend the life of the process

by approximately 20 years.

ORR Related NEPA Reviews

Spallation Neutron Source (SNS) EIS (DOE/EIS-0247). The draft EIS

was issued for review in December 1998. This document evaluates four

alternative DOE sites for construction and operation of a new SNS

facility. The preferred alternative is a site at the Oak Ridge National

Laboratory (ORNL) on the ORR.

Lease of Land and Facilities Within the East Tennessee Technology

Park (ETTP) EA (DOE/EA-1175). A FONSI was issued on December 1, 1997.

The EA evaluated impacts of alternatives on future use and/or

disposition of surplus facilities at the former K-25 Site on the ORR,

and allowed for the lease of some facilities and land to commercial

entities.

Long-Term Management and Use of Depleted Uranium Hexafluoride PEIS

(DOE/EIS-0269). The final PEIS and ROD are scheduled to be issued in

1999. The ETTP is an alternative site for management and storage of

this material.

Receipt and Storage of Uranium Materials from the Fernald

Environmental Management Project Site EA (DOE/EA-1291). The draft EA

was issued for review in February 1999. Y-12 and ETTP are among the

candidates for storage of materials being removed in the cleanup effort

at the Fernald site in Ohio.

Transuranic Waste Treatment Facility EIS (DOE/EIS-030J). An NOI was

published in January 1999. DOE proposes to treat wastes at ORNL at a

new facility to be constructed near the Melton Valley Storage Tanks,

where the material is currently being stored.