10 Environmental Action December 7, 1974

Plutonium recycle or civil liberties? We can't have both

by Gus Speth, Arthur Tamplin and Cochran

Editor's note : This is the second of two articles on the pro- this case civilians - who would be subjected to security posed and potentially deadly practice of using in clearance and other "precautions" which are commonplace reactors. The first article appeared in the in the military weapons program. Indeed, the AEC makes the November 23 issue of Environmental Action . following disturbing statement in its draft impact assessment of plutonium recycle :

Security problems are much simplified when it can be he Atomic Energy Commission (AEC) established with high probability that the persons who are wants to permit Telectric utilities to use a new fuel to power responsible for the handling of plutonium or implementing their nuclear reactors - the plutonium created as a by-product of related safeguards programs are trustworthy . Various in the fission process . The commercial use of this extraor- court rulings in recent years have been favorable to the dinarily dangerous material - a small quantity can easily be protection of individual privacy and of individual right-to- fashioned into a nuclear bomb - and the security measures work. These rulings have made it difficult to make a that will inevitably follow, could push the U .S . and other personnel background check of an individual in commer- countries toward unprecedented restrictions of civil liberties . cial activities to assure with high probability that he is trustworthy and, hence, potentially acceptable as a stew- The AEC has released a draft environmental impact state- ard for the protection of plutonium. The AEC has re- ment on its proposal to authorize "plutonium recycle," and quested legislation which would allow background checks the final impact statement is due early next year . In its draft of individuals with access to plutonium and related mater- statement, the agency concludes that the theft of plutonium ial accountability records . by would-be saboteurs and blackmarketeers can be prevented by an elaborate safeguards system . But a foolproof safeguards Security and surveillance procedures at best infringe upon system is almost certainly an impossibility, and the system the privacy of employees, their families and friends . At worst, we are likely to get will cost dearly in terms of human free- they are the instruments of repression and reprisal . dom and privacy . Nor will police surveillance be limited to those associated Plutonium safeguards necessarily involve a large expansion with the nuclear industry . The "Rosenbaum Report" prepared of police powers. Some one million persons have been trained by AEC consultants last spring, made the following far in the handling, moving, and operation of nuclear weapons . reaching recommendations : The projected growth of the nuclear industry would require a The first and one of the most important lines of de- second and ultimately much larger group of persons - in fense against groups which might attempt to illegally acquire special nuclear materials to make a weapon, is Gus Speth is an attorney specializing in nuclear power prob- timely and in-depth intelligence . Such intelligence may lems with the office of the Natural Resources involve electronic and other means of surveillance, but its Defense Council, an environmental law firm. Dr. Arthur most important aspect is infiltration of the groups them- Tamplin is a biophysicist with the AEC's Lawrence Radiation selves. It is not the AEC's business to conduct this sort of Laboratory . Dr. Thomas Cochran is a nuclear physicist with intelligence, but it is the AEC's business to see that those the Natural Resources Defense Council and a former senior agencies of the Government which have research associate at Resources for the Future . intelligence gathering responsibilities, including the FBI, Environmental Action December 7, 1974 11

looked carefully at the political and regulatory institutions that will be necessary to support a plutonium-based nuclear power economy . He has concluded that nuclear power will place unprecedented strains on our society : We nuclear people have made a Faustian bargain with society. On the one hand, we offer - in the catalytic 'nuclear burner - an inexhaustible source of energy . . . . But the price that we demand of society for this magi- cal energy source is both a vigilance and a longevity of our social institutions that we are quite unaccustomed to . . . . In a sense, we have established a military priesthood which guards against inadvertent use of nuclear weapons, which maintains what a priori seems to be a precarious balance between readiness to go to war and vigilance against hu- man errors that would precipitate war. Moreover, this is not something that will go away, at least not soon . The discovery of the bomb has imposed an additional demand on our social institutions . It has called forth this military priesthood upon which in a way we all depned for our survival. It seems to me (and in this I repeat some views ex- pressed very well by Atomic Energy Commissioner Wilfrid CIA, and NSA, focus their attention upon this particular Johnson) that peaceful nuclear energy probably will make threat to our national defense and security . demands of the same sort on our society, and possibly of even longer duration . Once the full police apparatus has been unleashed to protect us from the terrorist threat, there is no telling where the In an unpublished paper circulated prior to a conference process might end. Already the signs are ominous: the New at the Woodrow Wilson International Center for Scholars in York Times reported August 11 that state police were Washington, D.C., on June 18, 1973, Weinberg gave his views maintaining dossiers on nuclear power critics . on the type of new institutions required to cope with the A related AEC safeguards proposal is the creation of a plutonium economy : federal police force for the protection of plutonium plants One suggestion (proposed by Sidney Siegal) that is and shipments. The draft impact statement for plutonium relevant to the situation in the United States would be to recycle justifies such a federal force in the following terms: establish a national corporation patterned after COMSAT A federal security system would be less apt to have the to take charge of the generation of nuclear electricity. variations in staff and capability that would be encoun- Such an organization would have technical resources that tered in use of private security guards . In addition, it must exceed those available to even a large utility : and a should be noted that the consequences of a successful high order of technical expertise in operating reactors and theft or diversion of plutonium would undoubtedly have their sub-systems is essential to ensuring the continued nationwide impacts and could best be handled by Federal integrity of these devices . [Here Dr. Weinberg suggests authorities ; certainly, with Federal participation, there nationalization of the industry .] is the potential for a larger force, more effective weapons, Each country now has its own AEC that sets standards and better communications . or, in some cases, actually monitors or operates reactors . Perhaps this will be sufficient forever. Yet no government How large would such a force be . What standards should has lasted continuously for 1000 years : only the Catholic govern and restrain its operations? The AEC has already Church has survived more or less continuously for 2000 found it necessary, during the Yom Kippur War, to issue years or so. Our commitment to nuclear energy is assumed shoot-to-kill orders to personnel directing the production, to last in perpetuity - can we think of a national entity shipment and storage of atomic weapons . that possesses the resiliency to remain alive for even a Once a significant theft of plutonium or other weapons single half-life of plutonium-239? A permanent cadre of material has occurred, how can it be recovered? To prevent experts that will retain its continuity over immensely long traffic in heroin, police asked for no-knock search laws . This times hardly seems feasible if the cadre is a national body . It may be that an International Authority, operating . To live infringes upon one of our most cherished freedoms as an agent of the United Nations, could become the fo- with plutonium we may have to abandon this freedom along cus for this cadre of expertise . The experts themselves with others. In the presence of nuclear blackmail threats, the would remain under national auspices, but they would be institution of martial law seems inevitable . It has been sug- part of a worldwide community of experts who are held gested that the widespread availability of weapons material together, are monitored, and are given long-term stability and terrorists' targets in the nucelar fuel cycle will radically by the International Authority . The Catholic Church is alter the power balance between large and small social units . the best example of what I have in mind : a central author- It should be added that the threatened society will undoubt- ity that proclaims and to a degree enforces doctrine, edly attempt to redress that balance through sophisticated maintains its own long-term social stability, and has con- and drastic police action . nections to every country's own Catholic Church . (Em- phasis added.) r. Alvin Weinberg, former Director of the The concepts presented by Weinberg are far-reaching . The Oak Ridge NationalD Laboratory, is one of the few persons basic question they pose is: Will the plutonium economy raise closely associated with the nuclear power complex who has socio-political problems of such magnitude that their resolu- 12 Environmental Action December 7, 1974 Accident or murder l Karen , 28, was on her about the incident. documents required for these rods had way to a meeting with a reporter for Mazzocchi has also asked the Justice been falsified . If these charges are true, and an official of Department to conduct a formal inves- the safe operation of the AEC's fast the Oil, Chemical, and Atomic Workers tigation . Justice officials told EA the breeder facility is also in question . Union when her car swerved into a department is "looking into it," but Kerr-McGee has promised full co- cement structure, killing her instantly . has yet to initiate a full-scale inquiry . operation with any justice Department The meeting had been called to discuss The AEC and Oklahoma State Health investigation which develops. safety hazards at the Kerr-McGee Cor- Department are investigating the death, In a frightening analysis of con- poration plutonium processing plant with the AEC probe scheduled to be ditions at private plutonium processing where she had worked, and where she completed before Christmas. plants, Science magazine, a highly re- had been exposed to a large amount of The Kerr-McGee plant, situated near spected publication of the American radiation in an accident that the Atom- Crescent, Oklahoma, manufactures Association for the Advancement of ic Energy Commission is still investi- plutonium fuel rods that will be used Science, wrote recently, "The record gating. in an . experimental liquid metal fast reveals a dismal repetition of leaks in Police concluded that Silkwood fell breeder reactor being constructed for glove boxes ; of inoperative radiation asleep at the wheel. the A EC near Richland, Washington . monitors; of employees who failed to Not so, says Anthony Mazzocchi, At a meeting with AEC officials in follow instructions ; of managers ac- the Washington, D .C. representative of Washington, D.C., in September, Silk- cused by the AEC of ineptness and the union. Mazzocchi believes "there wood and two of her colleagues from failing to provide safety supervision or is evidence to suggest that Miss Silk- the plant charged that officials there training to employees ; of numerous wood's car was hit from behind by had endangered the lives of the work- violations of federal regulations and another vehicle, causing her car to ers. Three technicians meanwhile pro- license requirements ; of plutonium leave the road and hit the concrete vided the union with additional allega- spills traced through corridors, and, culvert." He has hired a private inves- tions that the plant was making some in half a dozen cases, beyond plant tigator to gather more information faulty fuel rods and that inspection boundaries . . . ." (From news reports) tion will be unacceptable to society? In attempting to do the new technology become the commonplace operations of an impossible - live with plutonium - we may create the established industry . We suggest that it is beyond human intolerable . capability to develop a cadre of sufficient size and expertise that can be counted upon to understand nuclear technology, ommercialization of plutonium will bring to control it, and to prevent accidents and diversion over with it a majorC escalation of the risks and problems already many generations. associated with nuclear power . Plutonium will further strain There is considerable evidence at the present time to in- the already weakened regulatory fabric of the nuclear in- dicate that the fledgling nuclear industry is already unman- dustry. Dr. Hannes Alfven, Nobel Laureate in Physics, has ageable. Consider, for example, a previously secret 1973 AEC described the regulatory imperatives applicable to the nuclear study obtained and released by , which concludes industry : that: Fission energy is safe only if a number of critical de- The large number of reactor incidents [850 abnormal vices work as they should, if a number of people in key occurrences], coupled with the fact that many of them positions follow all their instructions, if there . is no sabo- had real safety significance, were generic in nature, and tage, no hijacking of the transports, if no reactor fuel were not identified during the normal design, fabrication, processing plant or reprocessing plant or repository any- erection, and preoperational testing phases, raises a serious where in the world is situated in a region of riots or question regarding the current reveiw and inspection guerilla activity, and no revolution or war - even a practices both on the part of the nuclear industry and the `conventional one' - takes place in these regions. The AEC. enormous quantities of extremely dangerous material must In addition, recall that 115,000 gallons of high-level radio- not get into the hands of ignorant people or desperados . active wastes leaked from the tank at Hanford, Washington, No acts of God can be permitted. over a period of 51 days while no one monitored the tank. Weinberg similarly stresses the need ". . . of creating a con- Recall that the radioactive releases from the famed Shipping- tinuing tradition of meticulous attention to detail" and port reactor in Pennsylvania were higher than recorded . suggests that "What is required is a cadre that, from now on, Recall that the executives of Consumers Power Corporation can be counted upon to understand nuclear technology, to failed to notify the AEC that their radioactive gas holdup control it, to prevent accidents, to prevent diversion ." system was not functioning . Recall that two reactors were The public and its decisionmakers must seriously question half completed before the AEC was informed that they were whether it will be possible to attract, train, and motivate the being constructed over an earthquake fault . Recall that . personnel required for these functions. These must be highly Congress' General Accounting Office found the security at qualified persons who will maintain a tradition of "meticulous plutonium storage areas totally inadequate after the AEC attention to detail" even when the glamorous aspects of a inspectors had certified the facilities . Given all this, there is

Environmental Action December 7, 1974 13

good reason to suggest, because of the meticulous attention percent and reduce the light water reactor fuel cycle cost by to detail that will be required at every stage of plutonium about the same amount. But the cycle cost rep- recycle, that a decision to proceed with plutonium recycle resents less than 20 percent of the total cost of power from will precipitate an already unmanageable situation into a nuclear plants, and nuclear plants by 1985 will represent less national crisis . than 40 percent of the electric, or about 15 percent of the total, domestic energy supplied. In other words, plutonium ar are our options? Are there alternatives recycle involves an economic savings of less than one-half of to the AEC'sW proposal to proceed now with plutonium re- one percent . cycle? We believe that there are essentially three options, Plutonium differs from the high-level wastes in the spent each of which is preferable to the AEC's announced plan . fuel in one critical respect : whereas the radioactivity of high- First, we could phase out nuclear power reactors . There is level wastes will continue for thousands of years, that of mounting apprehension among knowledgeable persons con- plutonium will continue for hundreds of thousands . Thus, cerning the human and societal hazards of fission reactors while the problem of effectively storing both these materials which would only be compounded by plutonium recycle . It and preventing their entering the environment are unprece- is important to recognize that energy conservation can be our dented in human history, plutonium must be contained for major new "energy source" between now and the year 2000 . eons longer . For this reason, an argument can be made that, Conservation means using our present energy more efficient- ultimately, the safest thing that can be done with plutonium ly; it need not mean a change in life styles . Coupled with the is to burn or fission it in reactors, thus making it into high- use of solar and geothermal energy, energy conservation level wastes rather than plutonium . But that is an activity could eliminate the need for new nuclear power stations . that is best left for decades or even centuries hence - for a Second, we could continue with the present generation of society more capable and less violent than today's . light-water reactors but prohibit plutonium recycle for the Third - and we believe that this is an option that must foreseeable future. Such a decision would be premised upon command general support - a decision regarding plutonium a judgment that plutonium is too dangerous because of its recycle, and of course plutonium recycle itself, could be toxicity and explosive potential to be allowed to become an deferred several years until present uncertainties regarding article of commerce . Of course, we would still have plutoni- safeguards and plutonium toxicity are satisfactorily resolved um to cope with, because it is produced in present-day reac- and a basis has been laid for a more intelligent judgment . Too tors . But without plutonium recycle there should be little many questions, both technical and social, are unanswered incentive to reprocess the plutonium out of the spent fuel, so today, and until these questions are answered it would be a the plutonium could remain in the spent fuel where it is grave error to rush into the AEC's plutonium economy. effectively protected from theft and, hopefully, confined and The basic question which must be answered is whether contained. the public is willing to accept the risks of plutonium in ex- The benefits of plutonium recycle are small. It would re- change for the promised benefits. The national debate which duce the annual uranium requirements by about 10 to 15 must occur on this basic question has hardly begun . ∎

In this nuclear-age parking lot, AEC personnel move 10-ton tanks of uranium hexafluoride, an ingredient in the uranium enrichment process. (Photo courtesy of the Atomic Energy Administration)