Nuclear fission releases far more energy per kilogram of fuel than conventional hydrocarbon sources. However, proposed nuclear rocket engines like NERVA (https://en.wikipedia.org/wiki/NERVA), while having potentially 2x the $I_{sp} $ as chemical rockets (800 - 1000 seconds), have never been shown (in testing) to generate a T/W ratio high enough to be practically usable for payload launches to LEO and beyond. NERVA for example was supposed to be around 7.5:1. Why is this?
Compare these statistics to the state-of-the-art chemical rockets: the SpaceX Merlin engines achieve close to a MN of thrust at a T/W ratio of ~150. And yet nuclear rocket engines which take advantage of a much more energetic reaction, and could thus presumably pass much more energy for a given amount of mass into the reaction mass, thereby generating potentially extremely high exhaust velocities, cannot generate high T/W ratios?
I understand that nuclear engines have a lot more complexity to them in the form of the reactor itself (heavy!) and shielding. But, the energy density of a fission reaction is not simply 2-3x higher than a chemical reaction, it's 16,000+x (depending on the enrichment level of the fuel) higher. It seems to me that intuitively, the massive energy gain should be able to compensate for the extra complexity and weight needed. But in practice this has not shown to be the case for proposed nuclear rockets (none have actually flown).
An exception (not the only one) to this fact is the proposed Project Orion, which uses literal nuclear bombs and generates extremely high $I_{sp} $ and MNs of thrust. Why is this design so much better at "tapping" the energy in the fission reaction?
What accounts for these facts?