Plutonium Mountain: Inside the 17-year mission to secure a dangerous legacy
of Soviet nuclear testing
2
Two years later, in 1997, Siegfried S. Hecker, just retiring as director of Los Alamos, decided to
look more closely. Hecker, who helped pioneer cooperation with his counterparts in the Soviet
and later Russian nuclear weapons laboratories, used personal connections to push for action. He
succeeded in enlisting the cooperation of Russian nuclear scientists who had been involved in the
testing program in Kazakhstan before the Soviet collapse.
Source: U.S. Department of Defense
Monument commemorating the completion of the Degelen Mountain Proliferation Prevention Program
in English, Kazakh, and Russian languages.
Scientists and engineers from the United States, Russia, and Kazakhstan overcame deep-rooted
suspicions in their governments to find technical solutions to the plutonium threat at Degelen
Mountain. The operation was based almost entirely on ad-hoc agreements struck at a lower level,
and was carried to a conclusion without elaborate, negotiated state-to-state agreements of the
kind used for arms control during the Cold War. Each country played a crucial role.
The operation took 17 years to complete, a period in history that saw the rise of al-Qaeda and its
nuclear ambitions, the 9/11 attacks, and spanned three different U.S. administrations, the latter
two of which proclaimed nuclear terrorism the greatest threat to U.S. security and spent billions
of dollars to prevent it. Serious logistical difficulties were just one reason the Semipalatinsk op-
eration took so long. Another was lingering mistrust, inertia and excessive secrecy. Until prodded
by the scientists, the governments had done very little about the plutonium abandoned at the test
site.
The informal approach was effective, but slow, and it left some issues unresolved or partly unex-
plored. For example, although Kazakhstan signed the 1968 Nuclear
Non-proliferation Treaty in
1993 and had a legal obligation to declare all the fissile material on its territory, the three coun-
tries overseeing the operation decided not to formally notify or involve the International Atomic
Energy Agency. Each country felt it had good reasons for excluding the IAEA. They shared a
concern that information leaks from the agency would compromise the secrecy of the operation.
Now, the IAEA and Kazakhstan face long-term uncertainties about whether the material can be
safely left in its current form forever, or whether it may pose a risk that someone might seek to
Belfer Center for Science and International Affairs |
Harvard Kennedy School
3
recover it someday, or that it could cause environmental contamination beyond the radiation al-
ready polluting some portions of Semipalatinsk.
This paper begins with a narrative reconstruction of the threat reduction work at Semipalatinsk. It
is based on interviews with U.S., Russian, and Kazakh scientists and officials—conducted in the
United States and Kazakhstan—and is supported by documents provided to the authors. It con-
cludes with observations about the lessons for future efforts to reduce and ultimately eliminate
the threat posed by nuclear weapons and the essential nuclear materials needed to construct them.
Source: Autonavi / Basarsoft / Google
Map of Soviet test site at Semipalatinsk within Kazakhstan.
Plutonium Mountain: Inside the 17-year mission to secure a dangerous legacy of Soviet nuclear testing
4
The Mountain and its Legacy
The town once known as Semipalatinsk-21 is an isolated, misbegotten city built at great human
cost on the steppes of eastern Kazakhstan by prisoners between 1947-1949 for the purpose of
providing a staging ground for Soviet nuclear weapons testing.
4
In the post-Soviet vacuum of the
early 1990s, the conditions at Semipalatinsk-21 resembled the apocalypse that nuclear weapons
have long portended. A city of 40,000 that was once serviced by two daily direct flights from
Moscow had been transformed into a dystopia of a few thousand stragglers and feral dogs whose
main challenge was finding food and warmth.
5
Many regions of the former Soviet Union were
impoverished in the first years after the collapse; this one was so poor and lawless that people
who lived there resorted to scavenging the nuclear testing infrastructure. Even the highest-rank-
ing officials were desperate. The Russian director of Semipalatinsk-21 was dismissed in 1993 on
charges of selling equipment from the site’s facilities.
6
From 1949 to 1961, the Soviet Union had turned the area around Semipalatinsk-21 into the
equivalent
of a nuclear battlefield, detonating 116 nuclear blasts in the atmosphere.
7
The last
Soviet air test was in December, 1962. Following a global outcry over the ecological and health
effects of atmospheric testing, the Soviets moved the testing program underground, where they
conducted 340 underground explosions. The United States had conducted atmospheric testing in
Nevada, and primarily in the Pacific. The United States similarly shifted to underground testing
in this period, and ceased atmospheric testing in 1963 upon entering into a limited test ban treaty
with the Soviet Union.
At Semipalatinsk, a sprawling
network of tunnels built under
a series of hills near Semi-
palatinsk-21 known locally as
Degelen Mountain became a
central location for the un-
derground testing program. A
ragged mound of granite, De-
gelen Mountain rises from the
prairie grass of the steppes like
the crested back of a half-sub-
merged, prehistoric beast. To
many local Kazakhs, the tests
imbued it with a sinister air.
“Out there,” one senior Kazakh
scientist once told a reporter,
4
After Kazakhstan’s independence, the city was renamed Kurchatov City.
5
See: Russian Television Network, April 28, 1994, in JPRS-TND-94-012, “Reduced Staffing Causes Problems at Semipala-
tinsk,” June 7, 1994, p. 34 and “Glowing, But Not With Health,” The Economist, July 25, 1998, pp. 3-4.
6
See: Izvestiya, “Semipalatinsk Chief Removed from Test Site,” December 28, 1993, in FBIS-USR-94-001, January 5, 1994, p.
31.
7
Hecker, “Dealing with Kazakhstan’s Nuclear Legacy,” p. 16.
Source: Carl Willis
Abandoned building in Center of Kurchatov City, 2012.