UNITED STATES OF AMERICA 

NUCLEAR REGULATORY COMMISSION 

COMMISSIONERS: 

Stephen G. Burns, Chairman 

Kristine L. Svinicki 

Jeff Baran 

 

In the Matter of 

 

DUKE ENERGY FLORIDA, LLC Docket Nos. 52-029-COL 

 52-030-COL 

(Levy Nuclear Plant, Units 1 and 2) 

 

CLI-16-16 

MEMORANDUM AND ORDER 

On July 28, 2016, we held a hearing on the combined license (COL) application of Duke 

Energy Florida, LLC to construct and operate two new nuclear reactors at the Levy Nuclear 

Plant site in Levy County, Florida. In this uncontested proceeding, we consider whether the 

review of the application by the NRC Staff has been adequate to support the findings set forth in 

10 C.F.R. §§ 52.97(a) and 51.107(a). As discussed below, we conclude that the Staff’s review 

was sufficient to support the regulatory findings and authorize issuance of the combined 

licenses. 

 
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 BACKGROUND 

A. Proposed Action 

Duke seeks to build two Advanced Passive 1000 (AP1000) reactors on a new site in 

Levy County, Florida. Duke’s predecessor, Progress Energy Florida, Inc. (Progress Energy), 

applied for the combined licenses in July 2008.1 The Staff accepted the application for review 

shortly thereafter.2 Duke took over as the applicant following a corporate merger between 

Progress Energy, Inc. and Duke Energy Corporation.3

Consistent with 10 C.F.R. Part 52, Appendix D, Duke’s application references the 

AP1000 certified design, as amended in design control document (DCD) Revision 19.4 

Accordingly, issues resolved in the AP1000 design certification rulemaking are closed and will 

 

1 Progress Energy Florida, Inc., Notice of Receipt and Availability of Application for a Combined 

License, 73 Fed. Reg. 60,726 (Oct. 14, 2008). 

2 Progress Energy Florida, Inc., Acceptance for Docketing of an Application for Combined 

License for Levy County Nuclear Power Plant Units 1 and 2, 73 Fed. Reg. 60,726 (Oct. 14, 

2008). 

3 See Letter from Christopher M. Fallon, Progress Energy, to NRC Document Control Desk (Apr. 

15, 2013) (ADAMS accession no. ML13109A046) (transmitting changes to combined license 

application for corporate name change from Progress Energy Florida, Inc., to Duke Energy 

Florida, Inc. following the merger between Duke Energy Corporation and Progress Energy, 

Inc.). Duke Energy Florida, Inc. subsequently changed its corporate name to Duke Energy 

Florida, LLC. See Ex. NRC-006A, Levy Nuclear Plant Units 1 and 2, COL Application, Part 1, 

General and Financial Information, rev. 8 (Apr. 2016), at 1-1 n.1 (ML16111A178). The 

combined license application was admitted into the record as exhibits NRC-006A through NRC006L (excluding the letter “I” to avoid confusion with the number “1”). See Revised NRC Staff 

Exhibit List, attach. at 1-2 & n.2 (Sept. 7, 2016). Exhibits NRC-006H and NRC-006J contain 

sensitive information and are not publicly available. Id., attach. at 2 n.3. 

4 See Ex. NRC-006B, Levy Nuclear Plant Units 1 and 2, COL Application, Part 2, Final Safety 

Analysis Report, rev. 9 § 1.1 (Apr. 6, 2016) (ML16111A957 (package)) (FSAR); see also

Westinghouse AP1000 Design Control Document, rev. 19 (June 13, 2011) (ML11171A287 

(package)) (AP1000 DCD). The Revision 19 design was certified in 10 C.F.R. Part 52, 

Appendix D, “Design Certification Rule for the AP1000 Design.” 
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not be revisited here, unless they are the subject of a departure or exemption. The Staff 

followed the design-centered review approach, under which the Staff performs one technical 

review for each standard issue outside the DCD. Under this approach, the first combined 

license application for a given design is designated the “reference COL” application (RCOLA) 

and later applications referencing the same design are designated “subsequent COL” 

applications (SCOLA). Where the Staff has already resolved an issue with respect to the 

RCOLA, its review of the same issue in an SCOLA consists of confirming that the information is 

identical in both applications. The application for Vogtle Electric Generating Plant, Units 3 and 4 

was designated as the RCOLA for the AP1000 design; the Levy combined license application is 

therefore considered an SCOLA, with a correspondingly limited review.5

Over the past eight years, the Staff has spent approximately 83,000 hours on the safety 

and environmental reviews of the application.6 During this time, the Staff conducted 

approximately 100 public meetings and teleconferences.7 Over the course of the review, Duke 

responded to approximately 690 requests for additional information from the Staff.8

 

5 See Ex. NRC-001, “Staff Statement in Support of the Uncontested Hearing for Issuance of 

Combined Licenses for the Levy Nuclear Plant Units 1 and 2 (Docket Nos. 52-029 and 52-030),” 

Commission Paper SECY-16-0076 (June 10, 2016), at 3-4 (ML16214A173) (Staff Information 

Paper). See generally NRC Regulatory Issue Summary 2006-06, New Reactor Standardization 

Needed to Support the Design-Centered Licensing Review Approach (May 31, 2006) 

(ML053540251). 

6 Tr. at 51 (Dr. Uhle). 

7 Ex. NRC-001, Staff Information Paper, at 5; Tr. at 51 (Dr. Uhle). 

8 Tr. at 51 (Dr. Uhle). 
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The Office of New Reactors led the Staff’s technical review, with support from across the 

agency.9 Because building on the proposed site will require permits from the U.S. Army Corps 

of Engineers (Corps), the Corps participated in preparing the Final Environmental Impact 

Statement (Final EIS) as a cooperating agency.10 In addition, the Staff consulted with federal, 

state, local, and tribal organizations and governments concerning a variety of issues, including 

those arising under the National Environmental Policy Act of 1969 (NEPA), the National Historic 

Preservation Act (NHPA), and the Endangered Species Act.11 The Advisory Committee on 

Reactor Safeguards (ACRS), a committee of technical experts advising the Commission, 

provided an independent assessment of the safety aspects of Duke’s application.12

Duke’s application does not reference an early site permit. Therefore, all site 

characteristics, including site geology, hydrology, seismology, and man-made hazards, as well 

as the potential environmental impacts of the project, were considered during the review of the 

combined license application. 

 

9 Id. at 51-52 (Dr. Uhle). 

10 See Exs. NRC-009A to NRC-009C, “Environmental Impact Statement for Combined Licenses 

(COLs) for Levy Nuclear Plant Units 1 and 2” (Final Report), NUREG-1941, vols. 1-3 (Apr. 

2012) (ML16214A178, ML16214A179, ML16214A181) (Final EIS); see Tr. at 52 (Dr. Uhle). 

Other federal agencies, including the U.S. Department of Homeland Security, also contributed 

to the Staff’s review. Ex. NRC-001, Staff Information Paper, at 6. 

11 Ex. NRC-001, Staff Information Paper, at 6. 

12 AEA § 182b., 42 U.S.C. § 2232(b); 10 C.F.R. §§ 1.13, 52.87; see Letter from Said AbdelKhalik, Chairman, ACRS, to Gregory B. Jaczko, Chairman, NRC (Dec. 7, 2011) (ML11339A126) 

(2011 ACRS Letter) (generally recommending approval of the combined license application); 

Letter from J. Sam Armijo, Chairman, ACRS, to R.W. Borchardt, Executive Director for 

Operations, NRC (Apr. 25, 2012) (ML12108A270) (requesting additional information with regard 

to generic issues); Letter from Dennis Bley, Chairman, ACRS, to Stephen G. Burns, Chairman, 

NRC (Apr. 18, 2016) (ML16102A149) (2016 ACRS Letter) (regarding exemptions to the AP1000 

certified design included in the Levy combined license application). 
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B. Review Standards 

Section 189a. of the Atomic Energy Act of 1954, as amended (AEA), requires that we 

hold a hearing on each application to construct a nuclear power plant, regardless of whether an 

interested member of the public requests a hearing on the application.13 With respect to safety 

matters, we must determine whether 

(1) the applicable standards and requirements of the AEA and the 

Commission’s regulations have been met; 

(2) any required notifications to other agencies or bodies have been duly 

made; 

(3) there is reasonable assurance that the facility will be constructed and will 

operate in conformity with the licenses, the provisions of the AEA, and the 

Commission’s regulations; 

(4) the applicant is technically and financially qualified to engage in the 

activities authorized by the licenses; and 

(5) issuance of the licenses will not be inimical to the common defense and 

security or to the health and safety of the public.14

With respect to environmental matters, we must: 

(1) determine whether the requirements of NEPA section 102(2)(A), (C), and 

(E), and the applicable regulations in 10 C.F.R. Part 51 (the NRC 

regulations implementing NEPA) have been met; 

(2) independently consider the final balance among conflicting factors 

contained in the record of the proceeding with a view to determining the 

appropriate action to be taken; 

(3) determine, after weighing the environmental, economic, technical, and 

other benefits against environmental and other costs, and considering 

reasonable alternatives, whether the combined licenses should be issued, 

denied, or appropriately conditioned to protect environmental values; and 

 

13 AEA § 189a., 42 U.S.C. § 2239(a). 

14 10 C.F.R. § 52.97(a). 
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(4) determine whether the NEPA review conducted by the NRC Staff has 

been adequate.15

We do not review Duke’s application de novo; rather, our inquiry is whether the Staff’s 

review was sufficient to support the findings described above.16

C. Contested Proceeding 

After the Staff accepted the application for review, the NRC provided an opportunity to 

challenge the application in an adjudicatory hearing.17 Three joint petitioners were granted a 

hearing in the contested proceeding: Nuclear Information and Resource Service, Inc. (NIRS), 

the Green Party of Florida, and the Ecology Party of Florida (collectively, Joint Intervenors).18 

The Atomic Safety and Licensing Board admitted three contentions at the outset of the 

proceeding.19 One of these, Contention 4 (later designated Contention 4A), concerned 

 

15 Id. § 51.107(a). 

16 See, e.g., DTE Electric Co. (Fermi Nuclear Power Plant, Unit 3), CLI-15-13, 81 NRC 555, 

560-61 (2015). 

17 Progress Energy Florida, Inc.; Application for the Levy County Nuclear Power Plant Units 1 

and 2; Notice of Order, Hearing, and Opportunity to Petition for Leave to Intervene, 73 Fed. 

Reg. 74,532 (Dec. 8, 2008). 

18 LBP-09-10, 70 NRC 51 (2009). The Green Party of Florida subsequently withdrew from the 

contested proceeding. See Notice of Withdrawal (May 17, 2012). 

19 Id. at 147. 
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hydroecology, particularly, salt drift20 and dewatering activities during construction and operation 

of the proposed facility and was the subject of an evidentiary hearing.21

Following the hearing, the Board held that the Staff’s Final EIS had satisfied NEPA in its 

discussion of issues relating to the contention.22 The Board made detailed findings of fact 

regarding dewatering in several areas: site characterization, groundwater modeling and 

modeling assumptions, seasonal fluctuations and hydroperiods, passive dewatering impact 

analysis, climate change and saltwater intrusion, cumulative impacts analysis, reliance on 

conditions of certification and state regulatory processes, connection to the Floridan Aquifer 

System, impacts to outstanding Florida waters, nutrient concentration impacts, and destructive 

wildfires.23 The Board also made detailed findings of fact regarding salt drift and salt 

deposition.24

As a matter of law, the Board concluded that (1) the Final EIS contained an “adequate 

and fair analysis” of the potential impacts of the proposed facility that satisfied the NEPA rule of 

reason, (2) the NRC exercised independent judgment in its identification and assessment of the 

potential environmental impacts, and (3) the Staff’s reliance in the Final EIS on certain 

 

20 The Levy site is located eight miles inland and includes freshwater wetlands. The applicant 

plans to use salt water as coolant, which will cause some salt drift and deposition from the 

cooling towers. The Final EIS discusses environmental impacts from salt drift and salt 

deposition. See Ex. NRC-009A, Final EIS § 5.3.1.1, at 5-19 to 5-26; id. § 5.7.2, at 5-85 to 5-86. 

21 Memorandum and Order (Admitting Contention 4A) (Feb. 2, 2011) (unpublished); see 

LBP-13-4, 77 NRC 107, 116 (2013). 

22 LBP-13-4, 77 NRC at 107. 

23 See id. at 143-50, 153-163, 165-67, 168-69, 170-71, 172-73, 178-97, 198-99, 200-02, 203-04, 

205-06. 

24 Id. at 207-09. 
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monitoring and mitigation measures required by the Florida Department of Environmental 

Protection (included in conditions of certification for the project) was reasonable.25 The Joint 

Intervenors did not seek review of the Board’s decision. 

In the two other admitted contentions the Joint Intervenors asserted that Progress 

Energy lacked a plan for disposal of low-level radioactive waste. Specifically, Contentions 7 and 

8 concerned the environmental and safety aspects, respectively, of storing class B and C lowlevel radioactive waste onsite beyond two years.26 The Board ultimately dismissed both 

contentions as moot after Progress Energy developed a plan for handling low-level radioactive 

waste beyond the initial two years of plant operation; Joint Intervenors did not appeal the 

dismissals.27 The issues litigated in Contentions 4A, 7, and 8 were resolved via the contested 

proceeding; therefore, we do not consider them further. 

 

25 LBP-13-4, 77 NRC at 209-20. 

26 LBP-09-10, 70 NRC at 121-25. We upheld the Board’s decision to admit these two 

contentions but narrowed both to exclude consideration of greater-than-class-C waste. 

CLI-10-2, 71 NRC 27, 47-48 (2010). 

27 The Board dismissed Contention 7 as moot following issuance of the Draft EIS. Order 

(Granting Motion for Summary Disposition of Contention 7 as Moot) (Sept. 8, 2010) 

(unpublished). The Joint Intervenors subsequently proposed Contention 7A, which asserted 

that the low-level radioactive waste analysis in the Draft EIS did not comply with NEPA. The 

Board found Contention 7A to be untimely and declined to admit it. Memorandum and Order 

(Denying Contention 7A) (Mar. 16, 2011) (unpublished). 

Contention 8 was dismissed by consent and replaced by Contention 8A, which challenged the 

adequacy of Progress Energy’s initial low-level radioactive waste management plan. See 

Memorandum and Order (Ruling on Joint Intervenors’ Motion to File and Admit New Contention 

8A) (Aug. 9, 2010) (unpublished). The Board denied Progress Energy’s initial motion for 

summary disposition of Contention 8A, concluding that, as a matter of law, the plan did not 

contain enough information to enable the NRC to resolve whether Progress Energy’s means for 

controlling and limiting effluents and radiation exposures would be within 10 C.F.R. Part 20 

limits. See LBP-10-20, 72 NRC 571 (2010), reconsideration denied, Memorandum and Order 

(Denying Motion for Reconsideration of LBP-10-20) (Dec. 22, 2010) (unpublished). The Board 
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Joint Intervenors unsuccessfully sought to litigate several other matters after they filed 

their initial intervention petition. In 2011, the Board rejected as untimely a proposed Contention 

12A that challenged the alternative site analysis in the Draft EIS.28 The Board likewise rejected 

as untimely a proposed Contention 14/14A, in which Joint Intervenors claimed that the plant’s 

proposed use of the Cross Florida Barge Canal would violate several federal and state 

statutes.29 And the Board rejected motions to admit a proposed Contention 13, which related to 

the agency’s activities following the Fukushima Dai-ichi accident and to reconsider a previously 

rejected Contention 5, which concerned consideration in the environmental review of the 

impacts of an accident at the neighboring Crystal River Energy Complex.30 The Joint 

Intervenors did not appeal these decisions. 

 

granted a second motion for summary disposition following Progress Energy’s further revision of 

its plan. LBP-11-31, 74 NRC 643 (2011). 

28 See Memorandum and Order (Denying Contention 12A) (Mar. 29, 2011) (unpublished). The 

Joint Intervenors asserted that the Staff improperly concluded that none of the alternative sites 

was preferable to the Levy site because the Staff, in the Draft EIS, did not adequately consider 

the consequences of placing the cooling water intake structure in the Cross Florida Barge 

Canal. Id. at 1-2. 

29 Memorandum and Order (Ruling on Motion for Leave to File Proposed Contentions 14 and 

14A) (Mar. 19, 2012) (unpublished). 

30 Memorandum and Order (Denying Motion to Admit Contentions 13 and 5 and Granting Motion 

to Supplement) (Dec. 15, 2011) (unpublished). Contention 13 asserted that the Environmental 

Report and Draft EIS did not satisfy NEPA because they failed to address “the new and 

significant environmental implications of the findings and recommendations raised by NRC’s 

Fukushima Task Force Report.” Id. at 3 (internal quotations omitted). Crystal River Unit 3 (the 

only nuclear unit on the Crystal River Energy Complex, located approximately 9.6 miles from the 

Levy site) shut down permanently in February 2013. 
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Certain intervenors also joined unsuccessful petitions for Commission action filed on 

several licensing dockets following the Fukushima Dai-ichi accident.31 Relatedly, NIRS joined 

several petitioners that sought to suspend reactor licensing decisions pending the resolution of 

a petition for rulemaking concerning the environmental impacts of the expedited transfer of 

spent fuel from the spent fuel pool to dry cask storage.32 We denied the suspension petition and 

provided direction on related requests.33 

Also during the pendency of the contested proceeding, the U.S. Court of Appeals for the 

District of Columbia Circuit vacated and remanded our 2010 Waste Confidence Decision and 

Temporary Storage Rule, which for this and other NRC licensing actions served as part of the 

environmental analysis of the impacts of spent fuel storage after the end of a reactor’s license 

term pending ultimate disposal in a repository.34 NIRS and the Ecology Party of Florida joined a 

suspension petition filed on multiple dockets and a proposed “continued storage” contention.35 

 

31 Union Electric Co. d/b/a Ameren Missouri (Callaway Plant, Unit 2), CLI-11-5, 74 NRC 141 

(2011); Environmental Impacts of Severe Reactor and Spent Fuel Pool Accidents, 80 Fed. Reg. 

48,235 (Aug. 12, 2015) (internal quotations omitted). 

32 See Petition to Suspend Reactor Licensing Decisions and Reactor Re-licensing Decisions 

Pending Completion of Rulemaking Proceeding Regarding Environmental Impacts of HighDensity Pool Storage of Spent Fuel and Mitigation Measures (Feb. 27, 2014). 

33 See DTE Electric Co. (Fermi Nuclear Power Plant, Unit 3), CLI-14-7, 80 NRC 1 (2014). The 

rulemaking petition was subsequently denied. Generic Determinations Regarding the 

Environmental Impacts of Spent Fuel Storage and Disposal When Considering Nuclear Power 

Reactor License Applications, 81 Fed. Reg. 31,532 (May 19, 2016). 

34 See New York v. NRC, 681 F.3d 471 (D.C. Cir. 2012). See generally Consideration of 

Environmental Impacts of Temporary Storage of Spent Fuel After Cessation of Reactor 

Operation; Final Rule, 75 Fed. Reg. 81,032 (Dec. 23, 2010); Waste Confidence Decision 

Update, 75 Fed. Reg. 81,037 (Dec. 23, 2010). 

35 Intervenors’ Motion for Leave to File a New Contention Concerning Temporary Storage and 

Ultimate Disposal of Spent Reactor Fuel at Levy Nuclear Power Plant (July 9, 2012). 
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In light of the D.C. Circuit’s vacatur and remand of the rule, and in response to the suspension 

petitions, we held in abeyance the issuance of final licensing decisions for affected matters 

while we addressed the court’s remand.36

To address the remand and provide comprehensive analysis of the environmental 

impacts of continued storage, we issued a final Continued Storage Rule and supporting Generic 

Environmental Impact Statement.37 Concurrent with this action, we lifted the licensing 

suspension and dismissed, or directed licensing boards to dismiss, proposed contentions that 

had been filed with the multi-docket suspension petitions and held in abeyance.38 The Board 

dismissed the “continued storage” contention filed by NIRS and the Ecology Party of Florida in 

this proceeding consistent with our direction.39 The Ecology Party of Florida and NIRS also 

 

36 Calvert Cliffs 3 Nuclear Project, LLC and UniStar Nuclear Operating Services, LLC (Calvert 

Cliffs Nuclear Power Plant, Unit 3), CLI-12-16, 76 NRC 63, 67-69 (2012); see Petition to 

Suspend Final Decisions in All Pending Reactor Licensing Proceedings Pending Completion of 

Remanded Waste Confidence Proceedings (June 18, 2012). 

37 Calvert Cliffs 3 Nuclear Project, LLC and UniStar Nuclear Operating Services, LLC (Calvert 

Cliffs Nuclear Power Plant, Unit 3), CLI-14-8, 80 NRC 71, 77 (2014). See generally Continued 

Storage of Spent Nuclear Fuel; Final Rule, 79 Fed. Reg. 56,238 (Sept. 19, 2014); Generic 

Environmental Impact Statement for Continued Storage of Spent Nuclear Fuel, 79 Fed. Reg. 

56,263 (Sept. 19, 2014); “Generic Environmental Impact Statement for Continued Storage of 

Spent Nuclear Fuel” (Final Report), NUREG-2157, vols. 1 and 2 (Sept. 2014) (ML14196A105 

and ML14196A107) (Continued Storage GEIS). The D.C. Circuit recently upheld the Continued 

Storage Rule. New York v. NRC, No. 14-1210 (D.C. Cir. June 3, 2016), reh’g en banc denied

per curiam (Aug. 8, 2016). 

38 Calvert Cliffs, CLI-14-8, 80 NRC at 79-81. 

39 Memorandum and Order (Dismissing Environmental Waste Confidence Contention) (Oct. 1, 

2014) (unpublished); see Duke Energy Carolinas, LLC (William States Lee III Nuclear Station, 

Units 1 and 2), CLI-15-15, 81 NRC 803 (2015) (declining to admit a “placeholder” contention in 

this and other proceedings in anticipation that the court of appeals would overturn the 2014 

Continued Storage Rule). 
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joined other unsuccessful multiple-docket petitions related to continued storage that were later 

denied.40 In March 2015, the Board terminated the contested proceeding.41

D. Uncontested Proceeding 

All safety and environmental matters relevant to the combined license application, 

except those resolved in the contested proceeding, are subject to our review in the uncontested 

proceeding.42 The uncontested portion of the proceeding begins once the Staff has completed 

both its environmental and safety reviews; here, because the Final EIS was completed in 2012, 

the release of the Final Safety Evaluation Report (FSER) on May 31, 2016, triggered the 

uncontested proceeding.43 Shortly after the FSER was released, we received the Staff’s 

statement in support of the uncontested hearing, which serves as the Staff’s initial testimony 

and provides an overview of its safety and environmental review of this application.44 

Consistent with the design-centered review approach, the Staff’s paper focused on “non-routine 

matters, such as unique features of the facility or novel issues that arose as part of the review 

process.”45

 

40 DTE Electric Co. (Fermi Nuclear Power Plant, Unit 3), CLI-15-4, 81 NRC 221 (2015) (holding 

that the Commission is not required, under the Atomic Energy Act, to make predictive findings 

regarding the technical feasibility of spent fuel disposal as part of its reactor licensing decisions); 

DTE Electric Co. (Fermi Nuclear Power Plant, Unit 3), CLI-15-10, 81 NRC 535 (2015) (declining 

to order the supplementation of final EISs to reference the Continued Storage GEIS). 

41 LBP-15-8, 81 NRC 393 (2015). 

42 See, e.g., Fermi, CLI-15-13, 81 NRC at 564-65. 

43 See Exs. NRC-007A & NRC-007B, “Final Safety Evaluation Report for Combined Licenses for 

Levy Nuclear Plant Units 1 and 2” (May 2016) (ML16214A176 and ML16214A177) (FSER). 

Chapter 19 of the FSER is non-public and was admitted into the record as NRC-008. 

44 Ex. NRC-001, Staff Information Paper. 

45 Id. at 2. 
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1. Pre-Hearing Activities 

We issued a Notice of Hearing on June 17, 2016, which set a schedule for the Staff and 

Duke to file their witness lists and for Duke to file its pre-hearing testimony.46 The Notice of 

Hearing also invited interested states, local government bodies, or federally recognized Indian 

tribes to provide a statement of issues for us to consider as part of the uncontested 

proceeding.47 We also issued pre-hearing questions to both the Staff and Duke.48 Finally, the 

Secretary of the Commission transmitted a scheduling note to the Staff and Duke setting the 

hearing topics and order of presentations.49

2. The Hearing 

The hearing presentations were made by witness panels. The first panel of witnesses 

for Duke and the Staff gave an overview of the license application and the Staff’s review, 

respectively. The second panel focused on safety-related issues, and the third panel focused 

on environmental issues. Overall, the Staff made available eighty-five witnesses at the hearing, 

 

46 Duke Energy Florida, LLC, Levy Nuclear Plant, Units 1 and 2; Combined License Application, 

81 Fed. Reg. 39,720 (June 17, 2016) (Notice of Hearing); see also Ex. DEF-001, Duke Energy 

Florida’s Corrected Pre-Filed Testimony in Support of the Mandatory Hearing for the Levy 

Nuclear Plant Units 1 and 2 Combined Licenses (July 7, 2016) (ML16214A164) (Duke Pre-Filed 

Testimony); Ex. DEF-002, Curriculum Vitae of Robert H. Kitchen (ML16214A165). 

47 Notice of Hearing, 81 Fed. Reg. at 39,721. We received no responses to this invitation. 

48 See Order (Transmitting Pre-Hearing Questions) (June 24, 2016) (unpublished) (Pre-Hearing 

Question Order); Ex. DEF-003, Duke Energy Florida’s Responses to Pre-Hearing Questions

(July 7, 2016) (ML16214A167) (Duke Pre-Hearing Responses); Ex. NRC-004, NRC Staff 

Responses to Pre-Hearing Questions (July 7, 2016) (ML16214A175) (Staff Pre-Hearing 

Responses). 

49 Scheduling Note, “Hearing on Combined Licenses for Levy Nuclear Project Units 1 and 2: 

Section 189a. of the Atomic Energy Act Proceeding (Public Meeting)” (July 20, 2016) 

(ML16202A515). 
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including scheduled panelists.50 Seven witnesses offered testimony on behalf of Duke at the 

hearing and in pre-filed written testimony.51

Duke’s overview panelists discussed the general qualifications of Duke and the choice to 

reference the AP1000 design;52 information regarding the Levy site’s location, size, proximity to 

the Crystal River Energy Complex, and water intake and discharge systems and locations;53

emergent issues related to the AP1000 design based on issues discovered through construction 

of AP1000 plants at the Vogtle and V.C. Summer sites and in China;54 and the environmental 

impacts of the proposed project.55

The Staff panelists provided background on the review of the combined license 

application.56 These panelists discussed the focus of the Staff’s review on the plant-specific 

aspects of the application—operational programs, site-specific design features, combined 

license information items, and departures from the certified design;57 the ACRS review of the 

 

50 See Revised NRC Staff Witness List (July 22, 2016). Five of the listed witnesses did not 

appear at the hearing. Tr. at 12 (Mr. Roach); NRC Staff Motion to Correct the Hearing 

Transcript and to Admit Exhibit NRC-013 (Aug. 9, 2013), attach. at 1 n.1. 

51 See Duke Energy Florida’s Witness List (filed July 7, 2016); Ex. DEF-001, Duke Pre-Filed 

Testimony. 

52 Tr. at 17-20 (Mr. Fallon); id. at 30-31 (Mr. Kitchen); Ex. DEF-004, Levy Nuclear Plant—

Overview Panel (July 28, 2016), at 7 (ML16214A168) (Duke Overview Presentation). 

53 Tr. at 24-26 (Mr. Kitchen); Ex. DEF-004, Duke Overview Presentation, at 2-6. 

54 Tr. at 31-33 (Mr. Kitchen); Ex. DEF-004, Duke Overview Presentation, at 8. 

55 Tr. at 34-35 (Mr. Snead); Ex. DEF-004, Duke Overview Presentation, at 10. 

56 Tr. at 49-67; Ex. NRC-010, Combined License Application Review LNP Units 1 and 2—

Overview Panel (July 28, 2016) (ML16214A183) (Staff Overview Presentation). 

57 Tr. at 53 (Dr. Uhle); Ex. NRC-010, Staff Overview Presentation, at 5. 
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application, its recommendations, and the Staff’s responses;58 and the Staff’s safety and 

environmental findings under 10 C.F.R. § 52.97(a), NEPA sections 102(2)(A), (C), and (E), and 

10 C.F.R. § 51.107(a).59

The safety panel focused on aspects of the Levy COL application requiring special 

engineering solutions, including the geologic and geotechnical characteristics of the site; design 

and construction of the proposed roller compacted concrete foundation; and a departure from 

the certified design associated with the passive core cooling system condensate return.60 The 

environmental panel discussed alternative sites and the U.S. Fish and Wildlife Service’s 

Biological Opinion for the project.61 These issues are discussed further in sections II.B.1.a. 

through c. and II.B.2.a. and b. 

 

 

58 Tr. at 54-57 (Mr. Akstulewicz); Ex. NRC-010, Staff Overview Presentation, at 6-7. 

59 Tr. at 58-60 (Mr. Akstulewicz), 64-67 (Mr. Lee); Ex. NRC-010, Staff Overview Presentation, at 

8-10, 17-20. 

60 Tr. at 80-82 (Mr. Thrasher), 82-84 (Mr. Kitchen), 86-89 (Dr. Stirewalt), 89-93 (Mr. Thomas), 

93-97 (Mr. Travis); see Ex. DEF-005, Levy Nuclear Plant—Safety Panel (July 28, 2016) 

(ML16214A169) (Duke Safety Presentation); Ex. NRC-011-R, Combined License Application 

Review Levy Nuclear Plant Units 1 and 2—Safety Panel (July 28, 2016) (ML16214A186) (Staff 

Safety Presentation). 

61 Tr. at 114-17 (Mr. Snead), 118-21 (Ms. Sutton), 121-25 (Mr. Kugler); see Ex. NRC-012, 

Combined License Application Review Levy Units 1 and 2—Environmental Panel (July 28, 

2016) (ML16214A182) (Staff Environmental Presentation); Ex. DEF-006, Levy Nuclear Plant—

Environmental Panel (July 28, 2016) (ML16214A170). 
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3. Post-Hearing Activities 

After the hearing, we posed a single additional question to the Staff concerning the 

project’s impacts to wetlands.62 The Staff’s written response was admitted as an exhibit, and 

after adopting corrections to the hearing transcript, we closed the evidentiary record.63

 DISCUSSION 

Although our review encompassed the entire application, we discuss here a brief 

selection of topics. We first consider Duke’s requested exemptions from our regulatory 

requirements and departures from the AP1000 certified design. Our discussion then turns to 

site-specific and novel issues. 

A. Exemptions and Departures 

Duke requested seven exemptions and identified eleven departures from the AP1000 

certified design.64 Where a combined license applicant references a certified design, changes 

to the design may be made in the combined license if proposed as a departure from the certified 

design. Some departures from the certified design may be made without prior Commission 

approval.65 However, departures that involve a change to the design as described in the rule 

certifying the design require an exemption from our regulations.66 The Staff may approve an 

 

62 Order (Transmitting Post-Hearing Question) (Aug. 4, 2016) (unpublished) (Post-Hearing 

Order). 

63 Order (Adopting Proposed Transcript Corrections, Admitting Post-Hearing Exhibits, and 

Closing the Record of the Proceeding) (Sept. 12, 2016) (unpublished). 

64 Ex. NRC-001, Staff Information Paper, at 17. 

65 10 C.F.R. pt. 52, app. D, VIII.B.5.a. 

66 Id. pt. 52, app. D, VIII.A.4. The requirements that combined license applicants must meet 

when seeking an exemption from the Commission’s regulations are found at 10 C.F.R. § 52.93. 
- 17 - 

exemption where it finds that the exemption is authorized by law, will not present an undue risk 

to the public health and safety, is consistent with the common defense and security, and special 

circumstances exist that warrant the exemption.67 In addition, the Staff must determine that the 

special circumstances outweigh any decrease in safety resulting from the reduction in 

standardization that may result from the exemption.68

1. Exemptions 

Duke requested two exemptions that are similar to those previously granted to other 

combined license holders. The first of these corresponds to standard departure 

STD DEP 1.1-1, which relates to the numbering and organization of the application.69 The 

second exempts the combined license holder from certain requirements pertaining to material 

control and accounting for special nuclear materials, such that the same requirements apply to 

both Part 52 and Part 50 licensees.70

Additionally, Duke requested five exemptions that are common to other combined 

license applicants referencing the AP1000 design.71 The Staff’s technical evaluation of these 

exemptions is described in FSER Chapter 21.72 The ACRS reviewed these exemptions, found 

 

67 See id. §§ 52.63(b)(1), 52.7, 50.12(a). 

68 Id. § 52.63(b)(1). 

69 Ex. NRC-007A, FSER § 1.5.4, at 1-44 to 1-46; see Ex. NRC-001, Staff Information Paper, at 

18. 

70 Ex. NRC-007A, FSER § 1.5.4, at 1-46 to 1-47; see Southern Nuclear Operating Co. (Vogtle 

Electric Generating Plant, Units 3 and 4), CLI-12-2, 75 NRC 63, 84 (2012) (citations omitted); 

Ex. NRC-001, Staff Information Paper, at 18. 

71 See Ex. NRC-001, Staff Information Paper, at 19-21. 

72 Ex. NRC-007B, FSER, ch. 21. 
- 18 - 

them necessary to enable components of the certified design to perform their intended 

functions, and recommended their approval.73

The first of the five exemptions concerns modifications to the passive core cooling 

system condensate return.74 This exemption involves a proposed design departure, LNP DEP 

3.2-1, which would add components to the condensate return system to increase the amount of 

recovered condensate from the containment shell to the in-containment refueling water storage 

tank during accident scenarios.75 The exemption also involves a second departure, LNP DEP 

6.3-1, that would change the duration that the passive residual heat removal heat exchanger 

can maintain safe shutdown from an “indefinite” period of time to “at least [fourteen] days.”76 

This issue is discussed further in section II.B.1.c., infra. 

 

73 2016 ACRS Letter at 1. We asked the Staff and Duke prior to the hearing whether the 

cumulative risk of the design changes associated with these five exemptions had been 

assessed. See Pre-Hearing Question Order at 19. Duke explained that because the design 

changes were all “implemented to restore the design to comply with the design basis 

assumptions . . . their cumulative risk impact is deemed insignificant.” Ex. DEF-003, Duke PreHearing Responses, at 32. The Staff stated that because a qualitative analysis of each design 

change confirmed that each was too small to affect core damage frequency or large release 

frequency, and the number of changes is limited, the cumulative risk impact is too small to 

require revising the risk assessment. See Ex. NRC-004, Staff Pre-Hearing Responses, at 22. 

The Staff testified that two AP1000 combined license holders are expected to seek the same 

exemptions and departures for the units currently under construction. See Tr. at 57-58 (Mr. 

Akstulewicz). 

74 See Ex. NRC-001, Staff Information Paper, at 19, 25-27; Tr. at 93-97 (Mr. Travis); see also

Ex. NRC-004, Staff Pre-Hearing Responses, at 21-26; Ex. DEF-003, Duke Pre-Hearing 

Responses, at 32-43. 

75 Ex. NRC-001, Staff Information Paper, at 19; see Ex. NRC-007B, FSER § 21.1.2. 

76 See Ex. NRC-007B, FSER § 21.1.2. 
- 19 - 

The second exemption common to AP1000 applicants concerns the main control room 

habitability dose analysis. According to the Staff, the vendor for the AP1000 design, 

Westinghouse Electric Company, identified inaccuracies in its design basis accident dose 

analyses due to a failure to account for the main control room emergency habitability system 

filter direct dose and because the radiation monitor in the control room did not account for all 

release scenarios.77 As a result, Duke submitted site-specific revisions to the AP1000 design 

and associated dose consequence analyses to ensure that operator dose following a design 

basis accident is maintained below regulatory limits.78 The Staff evaluated Duke’s exemption 

request and found that it met the regulatory requirements for approval.79 Duke also submitted a 

site-specific departure, LNP DEP 6.4-1, to reflect the revised dose analyses and associated 

design changes.80

The third common exemption concerns design changes necessary to limit heating in the 

control room during a design basis event. According to the Staff, Westinghouse identified 

additional potential heat sources not accounted for in the original control room habitability 

analysis.81 The Staff considered the design changes and determined that the changes support 

 

77 Ex. NRC-001, Staff Information Paper, at 19. Prior to the hearing, the parties responded to 

several questions about this exemption. See Ex. DEF-003, Duke Pre-Hearing Responses, at 

43-47; Ex. NRC-004, Staff Pre-Hearing Responses, at 26-29. At the hearing, we asked the 

Staff about the instruments used to monitor control room radiation levels and the level of burden 

the monitoring would impose on plant staff. See Tr. at 99-103. 

78 See Ex. DEF-001, Duke Pre-Filed Testimony, at 7; see also Ex. NRC-007B, FSER § 21.2.2. 

79 Ex. NRC-007B, FSER § 21.2.4.A.3, at 21-32 to 21-36. 

80 Ex. NRC-001, Staff Information Paper, at 19. 

81 Id. at 19-20; see also Ex. NRC-007B, FSER § 21.3; id. § 21.3.4.A.3, at 21-59 to 21-63. 
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the system’s intended design functions and will ensure that the system will maintain heat loads 

inside the control room within design-basis assumptions. Departure LNP DEP 6.4-2 is 

associated with this exemption.82

The fourth common exemption concerns the need to revise the Inspections, Tests, 

Analyses, and Acceptance Criteria (ITAAC) in the AP1000 DCD for control of containment 

hydrogen concentrations during a beyond-design-basis event.83 According to the Staff, the 

applicant identified inconsistencies between the current detailed design and the ITAAC for 

hydrogen vents inside containment.84 The Staff found that a change to the acceptance criteria 

for certain primary ventilation paths and the proximity of those paths to the containment shell 

would maintain the design margins of the containment hydrogen control system; the changes 

therefore would support the intended design function.85 The exemption relates to departure 

LNP DEP 6.2-1.86

The fifth common exemption concerns revision of the boron dilution block safety system 

bypass to comply with Institute of Electrical and Electronics Engineers (IEEE) standard 603-

1991, Clause 6.6, “Operating Bypasses.” That standard requires that where conditions exist to 

allow a safety system to be bypassed, the safety system must automatically reset if conditions 

 

82 Ex. NRC-007B, FSER § 21.3.2. 

83 Id. § 21.4.2, at 21-88. 

84 Ex. NRC-001, Staff Information Paper, at 20; see also Ex. NRC-007B, FSER § 21.4.2, at 21-

88. 

85 See Ex. NRC-007B, FSER § 21.4.4.A.3, at 21-91 to 21-94. 

86 See id. § 21.4.2. 
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change so that bypassing the safety system is no longer permissible.87 The AP1000 certified 

design does not comply with the IEEE standard in that it allows manual bypass of the boron 

dilution block safety system without including a mechanism to restore the function automatically 

when plant conditions require it.88 The Staff evaluated the exemption and found that the design 

changes enable the plant-specific technical specifications to meet the requirements of IEEE 

603-1991.89 Departure LNP DEP 7.3-1 describes the changes to the final safety analysis report 

(FSAR) and technical specifications associated with this exemption.90

2. Departures 

In addition to seven departures relating to the exemptions described above, the 

applicant proposed four additional departures from the AP1000 DCD. Two departures are 

standard for all combined license applicants adopting the AP1000 design.91 A third departure 

“corrects an inconsistency in a DCD table” and does not involve a change to the reactor 

design.92 The fourth departure, LNP DEP 3.7-1, unique to the Levy combined license 

 

87 See Ex. NRC-001, Staff Information Paper, at 20. More specifically, the safety system must 

either restore plant conditions so that the bypass is permissible, remove the active bypass, or 

initiate the safety function. Id.; see also Ex. NRC-007B, FSER § 21.5.1. 

88 Ex. NRC-007B, FSER § 21.5.1; see also 2016 ACRS Letter at 4. 

89 See Ex. NRC-007B, FSER § 21.5.4.A.3, at 21-103 to 21-105. 

90 Id. § 21.5.2. 

91 STD DEP 1.1-1 relates to organization of the application. Ex. NRC-007A, FSER § 1.5.4, at 1-

44 to 1-46; see Ex. NRC-001, Staff Information Paper, at 21. STD DEP 8.3-1 involves using 

breakers and fuses to isolate current in Class 1E voltage regulating transformers and was 

previously evaluated with respect to the Vogtle and Summer COL applications. Ex. NRC-007A, 

FSER §§ 8.3.2.4, 8.3.2.6; see Ex. NRC-001, Staff Information Paper, at 23. 

92 Ex. NRC-001, Staff Information Paper, at 23; see Ex. NRC-007A, FSER § 3.11.4, at 3-115 to 

3-116. 
- 22 - 

application, involves the foundation design for the Annex and Turbine buildings.93 It permits the 

use of site-specific horizontal seismic response spectra for the design of drilled shafts 

supporting the seismic Category II structures.94 The Staff assessed the departure, and 

specifically, how the departure will impact the potential seismic interaction between the nuclear 

island and the adjacent structures.95 The Staff determined that there was “reasonable 

assurance that the drilled shaft design under the horizontal site-specific seismic demands will be 

adequate to support the adjacent structures to the [nuclear island] so as to preclude seismic 

interaction under the [Levy Nuclear Plant] site-specific seismic demands.”96 Accordingly, the 

Staff found the departure acceptable.97

B. Site-Specific Issues Addressed in the Proceeding 

1. Safety-Related Issues 

a. Site Characteristics 

The FSAR identified one geologic hazard at the Levy site: the potential for subsurface 

voids due to the dissolution of limestone (or karst development) in the foundation rock unit 

known as the Avon Park Formation.98 The Staff provided an overview of site characteristics at 

the hearing and noted that its conclusions supported Duke’s expectation that the majority of the 

 

93 See Ex. NRC-001, Staff Information Paper, at 21-22. 

94 See id. at 22; Ex. NRC-007A, FSER § 3.7.2.4, at 3-52 to 3-53; see also Ex. NRC-004, Staff 

Pre-Hearing Responses, at 8-10; Ex. DEF-003, Duke Pre-Hearing Responses, at 13-14, 16-18. 

95 Ex. NRC-007A, FSER § 3.7.2.4, at 3-52 to 3-53. 

96 Id. § 3.7.2.5, at 3-53. 

97 Id.

98 See Ex. NRC-006B, FSAR § 2.5.0.1.2, at 2.5-4; Ex. NRC-007A, FSER § 2.5.1.2.2.6; see also

Ex. NRC-011-R, Staff Safety Presentation, at 4; Tr. at 81 (Mr. Thrasher), 86 (Dr. Stirewalt). 
- 23 - 

karst features are less than one foot in diameter and stated that the “subsurface voids will not 

detrimentally affect the stability or the suitability of the Avon Park.”99

The Staff concluded that Duke had provided a “thorough and accurate description of the 

potential for tectonic and non-tectonic surface deformation at the site.”100 The Staff has 

proposed a license condition under which Duke will perform geologic mapping during safetyrelated excavations at the site.101 Prior to the hearing, we sought further information on the 

need for the license condition.102 The Staff responded that the data it has reviewed is sufficient 

to support its safety finding, but additional site-specific information regarding geologic features 

will be available once excavations are completed.103 And the Staff explained that if excavations 

reveal potentially detrimental geologic features, our regulations may require Duke to conduct 

additional site investigations.104 At the hearing, the Staff further explained that the site 

characterization is based on both surface characteristics and borehole data, which do not give 

as complete a picture as will be available after completion of the foundation excavation.105 

 

99 Tr. at 86-89 (Dr. Stirewalt); see id. at 86-88 (Dr. Stirewalt); see also id. at 81 (Mr. Thrasher). 

100 Ex. NRC-007A, FSER § 2.5.3.4.8. 

101 Ex. NRC-002-R2, Draft Combined License, Levy Nuclear Plant Unit 1, Duke Energy Florida, 

LLC, Docket No. 52-029 (Sept. 6, 2016), at 15 (ML16258A238) (Draft Combined License). 

102 Pre-Hearing Question Order at 2-3; see Ex. NRC-002-R2, Draft Combined License, at 15. 

103 Ex. NRC-004, Staff Pre-Hearing Responses, at 2-3. 

104 Id. at 3; see 10 C.F.R. § 100.23(d)(2). 

105 Tr. at 110-11 (Dr. Stirewalt). 
- 24 - 

Nonetheless, the Staff continues to support its finding that Duke provided an adequate 

description of the potential for tectonic and non-tectonic surface deformation at the Levy site.106

b. Roller Compacted Concrete Foundation 

Duke has proposed a roller compacted concrete bridging mat for the Levy site.107 The 

bridging mat, a structure not previously used at a nuclear plant, is the only safety-related 

structure outside the scope of the certified design.108 The bridging mat, which will be 

constructed below the nuclear island, will address unique geologic characteristics and a lack of 

subsurface uniformity that could otherwise affect the stability of the nuclear island.109 The thirtyfive-foot-thick mat is proposed to be constructed on top of the Avon Park Formation.110 It will 

replace undifferentiated soils and sediments and bridge conservatively postulated voids 

between the nuclear island basemat and the grouted portion of the Avon Park Formation.111 

Duke designed the roller compacted concrete bridging mat to transmit the nuclear island loads 

to the grouted portion of the Avon Park Formation.112

 

106 See id. at 111 (Dr. Stirewalt). 

107 Ex. NRC-001, Staff Information Paper, at 24-25; see Tr. at 89-90 (Mr. Thomas). 

108 Ex. NRC-001, Staff Information Paper, at 25; Ex. NRC-007A, FSER § 3.2.1.2; see 2011 

ACRS Letter at 3; Tr. at 90 (Mr. Thomas), 106 (Mr. Thomas). 

109 See Tr. at 90 (Mr. Thomas); Ex. NRC-007A, FSER § 2.5.4.4.12. 

110 Ex. NRC-001, Staff Information Paper, at 24-25; Tr. at 81-82 (Mr. Kitchen), 90 (Mr. Thomas); 

see 2011 ACRS Letter at 3. 

111 Ex. NRC-001, Staff Information Paper, at 25; Tr. at 90 (Mr. Thomas). 

112 Ex. NRC-001, Staff Information Paper, at 25; Tr. at 90 (Mr. Thomas). 
- 25 - 

Prior to the hearing, the Staff explained that the bridging mat is designed to be able to 

bridge a ten-foot diameter dissolution cavity in the Avon Park Formation.113 The Staff found this 

design sufficient because the ten-foot diameter is a conservative estimate for cavity size at the 

Levy site.114 Additionally, Duke will place a waterproof membrane between the bridging mat and 

the mudmat.115 The Staff assessed both Duke’s and Westinghouse’s calculations and analysis 

and found that the stability of the nuclear island is not vulnerable to potential soil liquefaction.116 

The Staff also approved an ITAAC covering the interfaces between the roller compacted 

concrete bridging mat, waterproof membrane, and concrete mudmat to ensure the stability of 

the nuclear island against sliding.117 The Staff added that Duke has committed to construct the 

bridging mat according to industry codes and standard methods, including American Concrete 

Institute code requirements.118

Given the novelty of this design concept in nuclear construction, we asked how other 

commercial uses of the roller compacted concrete foundation informed Duke’s proposed 

 

113 Ex. NRC-001, Staff Information Paper, at 25; see Ex. NRC-007A, FSER § 2.5.4.4.3.7 

(explaining that the Staff concluded “that the foundation system is designed to accommodate 

isolated voids of up to [ten feet] in size, which is at least double the conservatively estimated 

lateral dimension of any actual void intercepted”); see also 2011 ACRS Letter at 3. 

114 See, e.g., Ex. NRC-007A, FSER § 2.5.1.4.2.5.2; see also Ex. NRC-001, Staff Information 

Paper, at 25; 2011 ACRS Letter at 3. 

115 See Ex. NRC-007A, FSER § 3.8.5.4, at 3-69; see Ex. NRC-001, Staff Information Paper, at 

25. 

116 Ex. NRC-001, Staff Information Paper, at 25. 

117 Id.

118 Tr. at 91 (Mr. Thomas); see Ex. NRC-001, Staff Information Paper, at 25; Ex. NRC-007A, 

FSER § 3.8.5.4, at 3-75. 
- 26 - 

design.119 The Staff explained that Duke has studied the use of roller compacted concrete in 

dams and pavements.120 Duke concurred that results from other uses of the roller compacted 

concrete foundation will inform Duke’s construction of the foundation at the Levy site.121 

Additionally, Duke proposed a license condition for testing the roller compacted concrete 

bridging mat, as well as an ITAAC, both of which the Staff has included in the draft combined 

licenses.122

c. Condensate Return Design Change 

General Design Criterion (GDC) 34, Residual Heat Removal, requires that nuclear 

power plant designs include “a system capable of removing residual heat, defined such that the 

decay heat does not exceed design limits for the fuel and pressure boundary” in the event of an 

accident unrelated to the loss of coolant.123 In the event of such an accident, the AP1000 is 

designed to perform passive heat removal through closed-loop cooldown.124 Reactor coolant 

circulates through a passive residual heat removal (PRHR) heat exchanger in the in-

 

119 Tr. at 105-06 (Chairman Burns). 

120 Id. at 106 (Mr. Thomas); see Ex. NRC-007A, FSER § 3.8.5.4, at 3-75. 

121 Tr. at 106 (Mr. Thrasher); see Ex. NRC-006B, FSAR § 3.8.5.11.1. 

122 Ex. NRC-002-R2, Draft Combined License, at 16 (requiring Duke to complete roller 

compacted concrete strength verification and constructability testing and provide the results to 

the NRC no later than 180 days before beginning construction); Ex. NRC-007A, FSER, at 3-130 

tbl. 3.8-1 (requiring inspection of the bridging mat placement, roller compacted concrete mix and 

bedding mix, and the as-built roller compacted concrete thickness); see Ex. NRC-002-R2, Draft 

Combined License, at C-19. 

123 Ex. NRC-001, Staff Information Paper, at 25; see 10 C.F.R. pt. 50, app. A, Criterion 34; Tr. at 

95 (Mr. Travis). 

124 See Tr. at 83 (Mr. Kitchen), 93-94 (Mr. Travis); see 2016 ACRS Letter at 2. 
- 27 - 

containment refueling water storage tank (IRWST).125 The PRHR heat exchanger then converts 

IRWST water to steam, which condenses on the interior surface of the containment vessel, 

passively transferring residual heat by conduction through the containment wall.126 In order for 

this closed-loop cooling to work effectively, sufficient condensed water must return to the 

IRWST to continue the PRHR process.127

The AP1000 design assumes a condensate return rate of ninety percent, with a constant 

loss rate of ten percent.128 At the hearing, Duke explained that Westinghouse determined 

thorough testing involving full-scale mock-ups that the percent of condensate returning to the 

IRWST would be “much lower” than that assumed in the DCD.129 The existing approved design, 

therefore, could not meet the design goal of passively bringing the reactor to a safe shutdown 

condition of 420 degrees or lower within thirty-six hours following a non-loss-of-coolant 

accident.130 In 2013 and 2014, Duke submitted to the NRC proposed design changes to 

 

125 2016 ACRS Letter at 2; see Tr. at 93-94 (Mr. Travis); Ex. NRC-001, Staff Information Paper, 

at 25; Ex. NRC-007B, FSER § 21.1.1. 

126 2016 ACRS Letter at 2; see Ex. NRC-001, Staff Information Paper, at 26; see Ex. 

NRC-007B, FSER § 21.1.1; Tr. at 83 (Mr. Kitchen). 

127 2016 ACRS Letter at 2; see Ex. NRC-007B, FSER § 21.1.1; see Tr. at 94 (Mr. Travis). 

128 Tr. at 83 (Mr. Kitchen); see 2016 ACRS Letter at 3. 

129 Tr. at 83 (Mr. Kitchen) see also Letter from Christopher M. Fallon, Progress Energy, to NRC 

Document Control Desk (Apr. 18, 2013) (ML13109A533) (regarding submittal of exemption 

request and design change description for departure from AP1000 DCD Revision 19 to address 

containment condensate return cooling design) (Condensate Return Exemption Request), 

attach. 2, Westinghouse APP-GW-GLR-607 (non-proprietary) (Westinghouse APP-GW-GLR607). 

130 See Westinghouse APP-GW-GLR-607 at 2; Ex. NRC-001, Staff Information Paper, at 26. 
- 28 - 

improve the amount of condensate returned by adding gutters, downspouts, and dams.131 The 

proposed design changes would also block drain holes where condensate loss occurred during 

testing.132

The AP1000 design specifies that the PRHR heat exchanger will operate “indefinitely” 

after a non-loss-of-coolant accident.133 Duke found that with the proposed design change, the 

system would operate with a “[seventy-two hour] safety-related period of operation and a 

[fourteen day] non-safety-related design requirement.”134 The Staff explained that the seventytwo-hour period is consistent with the NRC’s approach to compliance with GDC 34.135 With 

 

131 See Condensate Return Exemption Request; Letter from Christopher M. Fallon, Duke 

Energy, to NRC Document Control Desk (June 3, 2014) (ML13156A007) (supplementing the 

request); Letter from Christopher M. Fallon, Duke Energy, to NRC Document Control Desk 

(Feb. 7, 2014) (ML14042A034); see also Ex. NRC-007B, FSER § 21.1.4, at 21-3; Tr. at 83-84 

(Mr. Kitchen). 

The two other current applicants for combined licenses referencing the AP1000 design have 

requested the same exemption and departure. Tr. at 57 (Mr. Akstulewicz); see Ex. NRC-001, 

Staff Information Paper, at 19. And the Staff stated that licensees for AP1000 units under 

construction have committed to seek license amendments to implement these design changes. 

Tr. at 57-58 (Mr. Akstulewicz). 

132 Ex. NRC-007B, FSER § 21.1.4, at 21-3. 

133 Ex. NRC-001, Staff Information Paper, at 26; see Tr. at 96 (Mr. Travis); AP1000 DCD, Tier 2 

Chapter 19—Probabilistic Risk Assessment—Sections 19.59 PRA Results and Insights, at 

19.59-80 tbl.19.59-18. 

134 See Ex. NRC-004, Staff Pre-Hearing Responses, at 21, see also Ex. NRC-007B, FSER 

§§ 21.1.4.B.1.2.1, 21.1.4.B.1.3; Ex. NRC-001, Staff Information Paper, at 26. 

135 The Staff also confirmed that the seventy-two hour period is consistent with GDC 44. See 

10 C.F.R. pt. 50, app. A, Criterion 44 (requiring that each plant design include a system to 

transfer heat from safety-related structures, systems, and components under normal operating 

and accident conditions with sufficient redundancies to ensure operation); “Regulatory 

Treatment of Nonsafety Systems for Passive Advanced Light Water Reactors,” NUREG-0800, 

Standard Review Plan 19.3, rev. 0 (June 2014) (ML14035A149); see also Ex. NRC-001, Staff 

Information Paper, at 26. 
- 29 - 

regard to the fourteen-day duration, the Staff stated that it had verified the calculations that 

Duke provided, although it noted that “[o]peration of the [passive core cooling system] for 

[fourteen] days in closed loop mode is not required to satisfy Commission regulations.”136 

Further, at the hearing, the Staff explained that its analyses confirmed that the PRHR heat 

exchanger will perform safely with a condensate return rate even lower than the rate proposed 

in the departure.137 The Staff stated that the system as a whole can still provide indefinite 

performance by switching to open-loop cooling by actuating the automatic depressurization 

system.138

The Staff testified that the ACRS has reviewed the Staff’s evaluation of this design 

change, found that the Staff’s analysis confirmed Westinghouse’s calculations, and concluded 

that the departure was necessary for the certified design to perform as planned.139 Additionally, 

the Staff stated that Duke responded to a number of requests for additional information on this 

topic and that Duke updated its FSAR to track changes associated with these requests.140 As a 

 

We have previously approved the Staff’s use of the seventy-two-hour safety-related period of 

operation of passive safety systems. See, e.g., Staff Requirements—SECY-95-132—Policy 

and Technical Issues Associated with the Regulatory Treatment of Non-Safety Systems 

(RTNSS) in Passive Plant Designs (SECY-94-084) (June 28, 1995) (ML003708019). 

136 Ex. NRC-007B, FSER § 21.1.4.B.1.3; see “Audit Summary, Review of Levy Nuclear Plant, 

Units 1 and 2, Design Change Related to the Containment Condensate Return Pathway” (July 

2015) (ML15187A248). 

137 Tr. at 98-99 (Mr. Travis). 

138 Id. at 99 (Mr. Travis). 

139 Id. at 97 (Mr. Travis); see 2016 ACRS Letter at 2-3. 

140 Tr. at 97 (Mr. Travis). 
- 30 - 

result of its review, the Staff concluded that the proposed condensate return system design 

change conforms to our regulatory requirements.141

2. Environmental Issues 

The Staff’s environmental review considered information from Duke’s Environmental 

Report; consultation with federal, state, tribal, and local agencies; the Staff’s independent 

review; and the Staff’s consideration of comments received during the public scoping process 

and the comment period on the Draft EIS. At the hearing, the Staff addressed two particular 

alternative sites and the U.S. Fish and Wildlife Service (Fish and Wildlife) Biological Opinion. 

We briefly address below those issues as well as two other matters that were addressed at the 

hearing—the proposed project’s impacts to wetlands and non-concurrences that were filed 

during the Staff’s environmental review. 

a. U.S. Fish and Wildlife Service Biological Opinion 

Section 7 of the Endangered Species Act requires federal agencies to ensure that any 

action authorized, funded, or carried out by the agency is not likely to jeopardize the continued 

existence of any listed endangered or threatened species or designated critical habitat.142 This 

process requires consultation with Fish and Wildlife or the National Marine Fisheries Service 

(NMFS)—or both—for actions that “may affect” listed species.143 The Staff initiated consultation 

 

141 Ex. NRC-007B, FSER § 21.1.4.A.3; see Tr. at 97 (Mr. Travis). Duke and the Staff responded 

to several additional pre-hearing questions regarding this design change, including questions 

related to the review process for the departure, the likelihood of certain protective screens 

becoming blocked, the use of extrapolated predictions of condensate return losses, and whether 

final position of the polar crane will affect condensate return. See Ex. DEF-003, Duke PreHearing Responses, at 31-43; Ex. NRC-004, Staff Pre-Hearing Responses, at 22-26. 

142 16 U.S.C. § 1536. 

143 50 C.F.R. § 402.14(a). 
- 31 - 

with Fish and Wildlife and NMFS in 2008.144 During the consultation, the Staff submitted 

biological assessments to both agencies.145 NMFS concurred with NRC’s conclusion that the 

Levy project “may affect but is not likely to adversely affect” species under its jurisdiction.146 

This concluded the consultation and fulfilled the Staff’s obligations under section 7 of the 

Endangered Species Act for listed species and critical habitats under NMFS’s purview.147

For its part, Fish and Wildlife concluded that issuance of the licenses would adversely 

affect a bird species, the Florida scrub-jay.148 Accordingly, it recommended additional surveys 

for the species and ultimately issued a Biological Opinion for the project, which identifies terms 

and conditions for the protection of the Florida scrub-jay.149 The Staff and Fish and Wildlife 

cooperated to develop environmental protection plan conditions, which will be part of each COL 

and will implement those terms and conditions.150 The environmental protection plan provides 

 

144 Ex. NRC-001, Staff Information Paper, at 27. See Tr. at 118 (Ms. Sutton). 

145 Letter from Robert G. Schaaf, NRC, to Linda Walker, Fish and Wildlife (Aug. 5, 2010) 

(ML102020483); Ex. NRC-009C, Final EIS, app. F, at F-119 to F-194 (biological assessment 

submitted to Fish and Wildlife); Letter from Robert G. Schaaf, NRC, to David Bernhart, NMFS 

(Aug. 5, 2010) (ML102020516); Ex. NRC-009C, Final EIS, app. F, at F-65 to F-117 (biological 

assessment submitted to NMFS). 

146 Letter from Roy E. Crabtree, Regional Administrator, NMFS, to Robert G. Schaaf, NRC and 

Gordon A. Hambrick, III, Corps (Nov. 26, 2010) (ML103370190) (concluding NMFS 

consultation); see also Tr. at 119 (Ms. Sutton). 

147 Ex. NRC-001, Staff Information Paper, at 27; see also Tr. at 119 (Ms. Sutton). 

148 Ex. NRC-009C, Final EIS, app. F, at F-195 to F-221; see Tr. at 119 (Ms. Sutton). 

149 Ex. NRC-009C, Final EIS, app. F, at F-216; see Ex. NRC-001, Staff Information Paper, at 27; 

Tr. at 119-20 (Ms. Sutton). The Staff has not previously received a Biological Opinion for a new 

reactor license application. Ex. NRC-001, Staff Information Paper, at 27. 

150 Ex. NRC-001, Staff Information Paper, at 27; Tr. at 120-21 (Ms. Sutton); Ex. NRC-004, Staff 

Pre-Hearing Response, at 33; see Ex. NRC-002-R2, Draft Combined License, app. B. 
- 32 - 

for protection of the Florida scrub-jay, the sand skink, and the indigo snake, as well as two plant 

species, Britton’s beargrass and longspurred mint.151

b. Alternative Sites 

As part of its review, the Staff assessed the applicant’s process for selecting the Levy 

site.152 The applicant first established the region of interest, the “geographic area considered in 

searching for potential and candidate sites.”153 Next, the applicant selected nine candidate 

areas, defined as one or more areas within the region of interest remaining after the exclusion 

from consideration of unsuitable areas.154 The applicant identified potential sites from among 

the candidate areas, after which it narrowed the selection to eight candidate sites.155 From 

among the candidate sites, the applicant selected five alternative sites and identified the Levy 

site as the proposed site.156 The Staff performed an independent analysis of the applicant’s site 

selection process and concluded that the process was reasonable.157

 

151 Ex. NRC-002-R2, Draft Combined License, app. B, at B-2 to B-3; see Ex. NRC-001, Staff 

Information Paper, at 27-28; Ex. NRC-004, Staff Pre-Hearing Responses, at 40. 

152 Ex. NRC-009B, Final EIS § 9.3; see Ex. NRC-001, Staff Information Paper, at 28; Tr. at 121 

(Mr. Kugler). 

153 “Environmental Standard Review Plan,” NUREG-1555 (July 2007) § 9.3, at 9.3-1 

(ML071800223) (ESRP); see Ex. NRC-009B, Final EIS § 9.3.1.1. 

154 Ex. NRC-009B, Final EIS § 9.3.1.2; see ESRP § 9.3, at 9.3-1 to 9.3-2. 

155 Ex. NRC-009B, Final EIS §§ 9.3.1.3, 9.3.1.4; see ESRP § 9.3, at 9.3-2. 

156 Ex. NRC-009B, Final EIS §§ 9.3.1.5, 9.3.1.6., 9.3.1.7. 

157 Id.; see Tr. at 121 (Mr. Kugler); see also ESRP § 9.3. 
- 33 - 

After the Staff issued the Draft EIS, the Staff identified and further examined issues 

regarding the Highlands and Crystal River alternative sites.158 As to Highlands, the South 

Florida Water Management District stated in comments on the Draft EIS that water availability 

was limited at the Highlands site.159 The Staff considered these comments and determined that 

the Water Management District’s determination was consistent with the Staff’s own preliminary 

conclusion that water use at the Highlands site would result in moderate environmental 

impacts.160

After the Staff published the Final EIS for the Levy application, the Water Management 

District provided additional information regarding the Highlands site.161 In the course of its 

review for another combined license application for a Florida site, the Staff reviewed an 

alternative site a few miles away from the Highlands site. During that review, the Water 

Management District discussed the possibility (previously not considered) of developing a water 

 

158 Ex. NRC-001, Staff Information Paper, at 28; Tr. at 122 (Mr. Kugler). 

159 Letter from James J. Golden, South Florida Water Management District, to Chief, Rules, 

Rulemaking and Directives Branch, NRC (Oct. 6, 2010), at 2 (ML102980009) (stating that the 

Highlands site “could negatively impact hydrological conditions of the [Kissimmee River 

Restoration] area that is immediately upstream”); see Ex. NRC-009B, Final EIS § 9.3.4.2, at 

9-156; Ex. NRC-009C, Final EIS, app. E § E.1.24, at E-193 to E-194; see Ex. NRC-001, Staff 

Information Paper, at 29; Ex. NRC-012, Staff Environmental Presentation, at 8; Tr. at 122 (Mr. 

Kugler). 

160 Ex. NRC-001, Staff Information Paper, at 29; Ex. NRC-012, Staff Environmental 

Presentation, at 8-9; Tr. at 122 (Mr. Kugler). 

161 Letter from Rod A. Braun, South Florida Water Management District, to Alicia Williamson, 

NRC (June 29, 2012) (ML12191A171) (Water Management Letter) (providing comments on the 

pending Turkey Point combined license application); see Tr. at 123 (Mr. Kugler); Ex. NRC-001, 

Staff Information Paper, at 29; Ex. NRC-012, Staff Environmental Presentation, at 9. 
- 34 - 

source for that alternative site.162 The Staff stated that a similar strategy—use of “a combination 

of surface water and groundwater resources to meet the cooling-water needs” to avoid impacts 

to water restoration projects—could be used at the Highlands alternative site.163 The Staff found 

this new information to be consistent with its earlier decision to retain the analysis of the 

Highlands site in the Final EIS and that no alteration of the analysis for the Highlands alternative 

site was warranted.164

As to the Crystal River site, adjacent to the Crystal River Energy Complex,165 concurrent 

with the Staff’s environmental analysis, the Corps performed review activities for a Clean Water 

Act section 404(b)(1) permit application.166 Then-applicant Progress Energy determined (and 

communicated to the Corps) that the Crystal River site was impracticable; Progress Energy 

expressed concern that the concentration of a large fraction of its total generating capacity at 

one site could be subject to disruption by a single event.167 Based on this concern, the Corps 

 

162 Water Management Letter at 1; see Ex. NRC-001, Staff Information Paper, at 29. 

163 “Environmental Impact Statement for Combined Licenses (COLs) for Turkey Point Nuclear 

Plant Units 6 and 7” (Draft Report for Comment), NUREG-2176, vol. 2 (Feb. 2015) § 9.3.1.7, at 

9-42 (ML15055A109); see id. § 9.3.4.2, at 9-161; Ex. NRC-004, Staff Pre-Hearing Responses, 

at 46-47. 

164 Tr. at 123 (Mr. Kugler); Ex. NRC-001, Staff Information Paper, at 29; Ex. NRC-012, Staff 

Environmental Presentation, at 9. 

165 Tr. at 123 (Mr. Kugler); Ex. NRC-001, Staff Information Paper, at 29; Ex. NRC-012, Staff 

Environmental Presentation, at 10. 

166 Ex. NRC-001, Staff Information Paper, at 29. 

167 Tr. at 123-24 (Mr. Kugler); Ex. NRC-001, Staff Information Paper, at 30; Ex. NRC-012, Staff 

Environmental Presentation, at 10. During the Staff’s preparation of the Final EIS, the Crystal 

River Energy Complex had five operating units, including Crystal River Unit 3. Ex. NRC-001, 

Staff Information Paper, at 29. 
- 35 - 

did not include Crystal River among the least environmentally damaging practicable alternatives 

for the purpose of its Clean Water Act review.168

The Staff considered the same information in the course of its environmental review but 

ultimately chose to include Crystal River in the Final EIS’s alternative site analysis.169 The Staff 

based this decision on the environmental impacts associated with the site and the viability of the 

site as an alternative for new nuclear construction.170 In so doing, the Staff noted that Clean 

Water Act standards differ from the NEPA standards; thus, the Corps’ conclusion under the 

Clean Water Act did not compel the same NEPA determination.171

Since the Staff published the Final EIS, operations have permanently ceased at Crystal 

River Unit 3; Duke also announced plans to retire two coal-fired units and to construct a new 

natural gas combined cycle plant adjacent to the Crystal River site, resulting in the retirement of 

1730 MWe and the addition of 1640 MWe of generating capacity.172 The environmental review 

team considered this new information and determined that its conclusions regarding the Crystal 

 

168 Letter from Robert Kitchen, Progress Energy, to Gordon Hambrick, III, Corps (June 30, 

2010), encl. 2 at 1 (ML101820645); see Tr. at 124 (Mr. Kugler); Ex. NRC-012, Staff 

Environmental Presentation, at 10. 

169 Tr. at 124 (Mr. Kugler); Ex. NRC-001, Staff Information Paper, at 30; Ex. NRC-012, Staff 

Environmental Presentation, at 11. 

170 Ex. NRC-009B, Final EIS § 9.3.2; see id. § 9.3.1.6 (stating that Levy and Crystal River sites 

were the two highest ranked of the sites the applicant considered); Tr. at 124 (Mr. Kugler); Ex. 

NRC-001, Staff Information Paper, at 30; Ex. NRC-012, Staff Environmental Presentation, at 11. 

171 Tr. at 124 (Mr. Kugler); Ex. NRC-001, Staff Information Paper, at 30; Ex. NRC-012, Staff 

Environmental Presentation, at 11. 

172 See Letter from Jon A. Franke, Duke Energy, to NRC Document Control Desk (Feb. 20, 

2013) (ML13056A005) (providing certification of permanent cessation of power operations and 

that fuel has been permanently removed from the reactor vessel); see Ex. NRC-001, Staff 

Information Paper, at 30. 
- 36 - 

River alternative site are unaffected by this information; the site would continue to “have a high 

concentration of the applicant’s generating capacity.”173

c. Environmental Impacts to Wetlands 

The U.S. Environmental Protection Agency (EPA) provided comments on the Draft EIS; 

these comments centered on wetlands impacts and particularly noted that “changes to the 

current site layout or application of mitigation measures . . . could reduce the environmental 

impacts [to wetlands].”174 The Final EIS reflects that the Staff and the Corps coordinated with 

EPA to identify mitigation measures for wetlands impacts; these mitigation measures are 

identified in the Final EIS.175

Even taking into account these mitigation measures, the Final EIS finds that a larger 

area of wetlands on the site itself (approximately 450 acres) will be affected than was identified 

in the Draft EIS (403 acres).176 The Staff stated that this change in the Final EIS reflected not 

greater impacts but rather the use of more accurate wetland delineation data.177 In the FEIS, 

the Staff estimated that 668 acres of wetlands may reasonably be impacted, including impacts 

to offsite wetlands resulting from associated offsite support facilities, as well as impacts to 

 

173 Ex. NRC-001, Staff Information Paper, at 30; see DEF-003, Duke Pre-Hearing Responses, at 

51-52. 

174 Ex. NRC-009C, Final EIS, app. E, at E-84; see id., app. E, at E-84 to E-86. 

175 Ex. NRC-009C, Final EIS, app. E, at E-84; see Ex. NRC-009A, Final EIS § 4.3.1.7; Ex. 

NRC-004, Staff Pre-Hearing Responses, at 42. 

176 Ex. NRC-004, Staff Pre-Hearing Responses, at 42. Compare Ex. NRC-009A, Final EIS § 

4.3.1, at 4-32, with “Draft Environmental Impact Statement for Combined Licenses (COLs) for 

Levy Nuclear Plant Units 1 and 2 (Draft Report for Comment), NUREG-1941, vol. 1 (Aug. 2010) 

§ 7.3.1.1, at 7-22 (ML102140231). 

177 Ex. NRC-004, Staff Pre-Hearing Responses, at 42. 
- 37 - 

wetlands on the Levy site itself.178 At the hearing, we asked the Staff whether a reduction in 

impacts was realized as a result of work done between publication of the Draft EIS and the Final 

EIS.179 The Staff stated that, to offset the impacts to wetlands, the applicant purchased credits 

from wetland mitigation banks, as well as developed a supplemental mitigation plan to create 

ninety-one acres of wetlands on the Levy site. As a result, the Staff’s assessment that the 

project would have moderate impact on wetlands did not change.180

Following the hearing, we asked the Staff “to clarify for the record the extent of wetlands 

that are expected to be impacted by the proposed [Levy Nuclear Plant] project.”181 The Staff 

explained that after publication of the Final EIS, the Corps and Duke continued to collaborate to 

identify wetlands impacts with greater precision for the purpose of completing the review for a 

Section 404 Clean Water Act permit.182 These efforts identified twenty-two additional acres of 

wetlands impacts, bringing the total of wetlands impacts—both onsite and offsite—to 690 

acres.183 The Staff found the increase in impacts did not affect the Staff’s conclusion in the Final 

EIS that environmental impacts to wetlands would be moderate.184

 

178 Ex. NRC-009A, Final EIS, § 4.3.1.8, at 4-70; see Ex. NRC-014, NRC Staff Response to 

Commission Post-Hearing Question (Aug. 11, 2016), attach. (ML16258A236) (Staff PostHearing Response). 

179 Tr. at 125-26 (Chairman Burns). 

180 Id. at 127 (Ms. Sutton); see Ex. NRC-007B, Final EIS § 7.3.1. 

181 Post-Hearing Order at 2. 

182 Ex. NRC-014, Staff Post-Hearing Response, attach. at 2. 

183 Id.

184 Id. 
- 38 - 

d. Staff Non-Concurrences Associated with the General License to Construct an 

Independent Spent Fuel Storage Installation 

During the Staff’s environmental review, two related non-concurrences were filed by 

members of the Staff working on the review.185 Both non-concurrences related to whether 

additional steps were warranted under NEPA, the National Historic Preservation Act, and the 

Endangered Species Act, in view of the possibility that an independent spent fuel storage 

installation (ISFSI) could be constructed on the site at some future time.186 In response to a prehearing question, the Staff advised that agency management reviewed the concerns raised by 

the non-concurrences and concluded that no additional actions were required to meet the 

NRC’s statutory responsibilities. Nonetheless, in preparation for the mandatory hearing, the 

Staff held an additional conversation with the Florida State Historic Preservation Officer 

(SHPO).187 In particular, the NRC Staff notified the SHPO that the Levy project could include an 

ISFSI.188 The Staff stated at the hearing that the SHPO was not concerned with the potential 

 

185 The non-concurrences, NCP-2016-006 and NCP-2016-008, which are not publicly available, 

were attached to the Staff’s Information Paper. 

186 NRC regulations grant a general license to construct and operate an ISFSI to certain 

licensees, including combined license holders. The non-concurrence centered on the concern 

that the consultations on the project did not include a specific discussion that an ISFSI 

potentially could be constructed onsite under the general license. Tr. at 133-36; see 10 C.F.R. 

§ 72.210. 

187 Tr. at 138-39. Shortly before the hearing, the Florida SHPO also transmitted to the NRC a 

letter reiterating its view that the project review was conducted in accordance with NHPA 

Section 106 and its implementing regulations. See Ex. NRC-013, Letter from Timothy A. 

Parsons, Director, Division of Historical Resources and State Historic Preservation Officer, 

Florida Department of State, to Rochelle C. Bavol, Acting Secretary, NRC (July 27, 2016) 

(ML16258A235). 

188 Tr. at 136. 
- 39 - 

construction of an ISFSI because he considered the consultation to include the entire site.189 

According to the Staff, consultation included all ground-disturbing activities across the entire site 

and is focused on properly identifying and surveying all areas that may be disturbed rather than 

the specific activity occurring at any given location.190 The Staff further represented that the 

non-concurring staff members’ concerns were resolved by this additional outreach step, and 

that the non-concurring individuals ultimately concurred in the Staff’s review.191

C. Findings 

We have conducted an independent review of the sufficiency of the Staff’s safety 

findings, with particular attention to the topics discussed above. Our findings, however, are 

based on the entire record. Based on the evidence presented in the uncontested hearing, 

including the Staff’s review documents and the testimony provided, we find that the applicable 

standards and requirements of the AEA and NRC regulations have been met. The required 

notifications to other agencies or bodies have been duly made.192 We find that Duke is 

technically and financially qualified to engage in the activities authorized. We further find that 

there is reasonable assurance that the facility will be constructed and operated in conformity 

 

189 Id. at 138. 

190 Id. at 139-40. 

191 Ex. NRC-004, Staff Pre-Hearing Responses, at 44. 

192 The Staff notified the Florida Public Service Commission about the combined license 

application in 2011. Ex. NRC-001, Staff Information Paper, at 31 (citing Letter from Brian 

Anderson, NRC, to Ann Cole, Florida Public Service Commission (Dec. 15, 2011) 

(ML112521258)). The Staff published notices of the application in The Newscaster/Nature 

Coast News, the Ocala Star Banner, the Levy County Journal, and the Citrus County Chronicle. 

Id. In addition, pursuant to 10 C.F.R. § 50.43(a)(3), the Staff published notices of the 

application in the Federal Register on November 18, 2011, November 25, 2011, December 2, 

2011, and December 9, 2011 (at 76 Fed. Reg. 71,608; 76 Fed. Reg. 72,725; 76 Fed. Reg. 

75,566; and 76 Fed. Reg. 77,021, respectively). Ex. NRC-001, Staff Information Paper, at 31. 
- 40 - 

with the licenses, the provisions of the AEA, and the NRC’s regulations and that issuance of the 

licenses will not be inimical to the common defense and security or to the health and safety of 

the public. In addition, we find that the Staff’s proposed regulatory exemptions meet the 

standards in 10 C.F.R. § 50.12. And finally, we find that the Staff’s proposed license conditions 

are appropriately drawn and sufficient to provide reasonable assurance of adequate protection 

of public health and safety. 

We also conducted an independent review of the Staff’s environmental analysis in the 

Final EIS, taking into account the particular requirements of NEPA. NEPA section 102(2)(A) 

requires agencies to use “a systematic, interdisciplinary approach which will insure the 

integrated use of the natural and social sciences and the environmental design arts” in decisionmaking that may impact the environment.193 We find that the environmental review team used 

the systematic, interdisciplinary approach that NEPA requires.194 The environmental review 

team consisted of individuals with expertise in disciplines including ecology, geology, hydrology, 

radiological health, socioeconomics, and cultural resources.195

NEPA section 102(2)(C) requires us to assess the relationship between short-term uses 

and long-term productivity of the environment, to consider alternatives, and to describe the 

unavoidable adverse environmental impacts and the irreversible and irretrievable commitments 

 

193 42 U.S.C. § 4332(2)(A). 

194 See, e.g., Tr. at 60-67 (Mr. Lee) (providing an overview of the Staff’s environmental review 

methodology); Ex. NRC-010, Staff Overview Presentation, at 11-20. 

195 Ex. NRC-009C, Final EIS, app. A. The team consisted of individuals from the NRC and the 

Corps. Id.
- 41 - 

of resources associated with the proposed action.196 The discussion of alternatives is in 

Chapter 9 of the Final EIS; the other items are discussed in Chapter 10.197 The review team 

found the principal short-term benefit of the project to be the production of electrical energy.198 

The review team also found that the site would have much greater economic productivity 

hosting the reactors than it would if used for agriculture or other probable uses of the site.199 

While the review team noted that there would be an impact to long-term productivity when the 

plant is not immediately dismantled at the end of operation, the team found that “the 

enhancement of regional productivity resulting from the electrical energy produced by the plant 

is expected to generate a correspondingly large increase in regional long-term productivity that 

would not be equaled by any other long-term use of the site.”200

NEPA section 102(2)(E) calls for agencies to study, develop, and describe appropriate 

alternatives.201 The alternatives analysis is the “heart of the environmental impact statement.”202 

Based on the discussion in the Final EIS and the Staff’s testimony at the hearing, we find that 

the Staff identified an appropriate range of alternatives with respect to alternative power 

sources, alternative sites, and alternative system designs and adequately described the 

 

196 42 U.S.C. § 4332(2)(C)(ii)-(v). 

197 See Ex. NRC-009B, Final EIS, chs. 9-10. 

198 Id. § 10.3, at 10-13 to 10-14. 

199 Id. § 10.3, at 10-14. 

200 Id. The review team also noted that “most long-term impacts resulting from land-use 

preemption by plant structures can be eliminated by removing these structures or by converting 

them to other productive uses.” Id.

201 42 U.S.C. § 4332(2)(E). 

202 10 C.F.R. pt. 51, app. A § 5. 
- 42 - 

environmental impacts of each alternative.203 We find reasonable the Staff’s conclusion that 

none of the alternatives considered is environmentally preferable to the proposed action.204

Chapter 10 of the Final EIS includes tables listing the unavoidable adverse 

environmental impacts during preconstruction, construction, and operation, along with actions to 

mitigate those impacts.205 The review team found that the unavoidable impacts during 

preconstruction and construction would be small for the following resource areas: water use, 

water quality, ecological resources (aquatic), demography, environmental justice, historic and 

cultural resources, meteorology and air quality, nonradiological health, radiological health, and 

nonradioactive waste.206 The impacts for physical and aesthetic resources would be small to 

moderate, with the impacts from only NRC-regulated activities being small.207 The impacts for 

infrastructure and community services would be small to moderate.208 And the impacts for land 

use and ecological (terrestrial) would be moderate, with the impacts from only NRC-regulated 

activities being small.209 The impacts for economics would be beneficial and small to 

moderate.210

 

203 See, e.g., Tr. at 121-25 (Mr. Kugler); Ex. NRC-009B, Final EIS, ch. 9. 

204 See, e.g., Tr. at 121 (Mr. Kugler); Ex. NRC-009B, Final EIS § 9.2.5, at 9-27; id. § 9.3.6.3, at 

9-243; id. § 9.4, at 9-251. 

205 Ex. NRC-009B, Final EIS, tbls.10-1 & 10-2. 

206 Id. tbl.10-1. 

207 Id.

208 Id.

209 Id.

210 Id. Beneficial economic impacts from NRC-regulated activities are small. 
- 43 - 

For operation, the review team found that the unavoidable adverse impacts would be 

small for all resource areas except ecological (terrestrial), physical and aesthetic, and 

infrastructure and community services, where the impacts would be small to moderate.211 And 

the impacts for economics would be beneficial and small to large.212

Finally, with regard to irreversible and irretrievable commitments of resources, the review 

team concluded that disposal of radioactive and nonradioactive wastes would require a longterm or irreversible commitment of land and over 28,600 gallons per minute of cooling water 

would be lost through evaporation during operation.213 While there would be both temporary 

and long-term changes to the abundance and distribution of terrestrial biota at the site, 

populations of these species would not suffer adverse effects despite localized permanent loss 

of habitat.214

With respect to aquatic biota, the review team expects that preconstruction and 

construction would temporarily adversely affect the abundance and distribution of the aquatic 

community including essential fish habitat in the Cross Florida Barge Canal near the coolingwater intake structure, barge slip, and discharge pipeline placement.215 But the review team 

predicts that operation activities would not adversely impact the abundance and distribution of 

the aquatic community, including essential fish habitat in both the Cross Florida Barge Canal 

 

211 Id. tbl.10-2. 

212 Id.

213 Id. §§ 10.4.1.1, 10.4.1.2. 

214 Id. § 10.4.1.3 

215 Id. 
- 44 - 

and in the Crystal Bay shore area near the Gulf of Mexico.216 The review team expects that the 

aquatic habitat and populations would recover after the units cease operations and are 

decommissioned.217

The review team also concluded that during the construction of the plant, the materials 

used, “while irretrievable, would be of small consequence with respect to the availability of such 

resources.”218 With regard to operation of the proposed units, the review team determined that 

uranium would be irretrievably committed, but the amount would be negligible in comparison to 

the availability of uranium ore and existing stockpiles of highly enriched uranium in the United 

States and Russia that could be processed into fuel.219

We must weigh these unavoidable adverse environmental impacts and resource 

commitments—the environmental “costs” of the project—against the project’s benefits.220 

Considering the need for power in the region and the expected increase in productivity, jobs and 

tax revenue as described in the hearing and in the Final EIS, we find that the benefits of the 

project outweigh the costs described above. Moreover, we have considered each of the 

requirements of NEPA section 102(2)(C) and find nothing in the record that would contradict the 

Staff’s conclusions on those requirements. 

In sum, for each of the environmental topics discussed at the hearing and in this 

decision, we find that the Staff’s review was reasonably supported in logic and fact and 

 

216 Id. 

217 Id. 

218 Id. § 10.4.2. 

219 Id. 

220 10 C.F.R. § 51.107(a). 
- 45 - 

sufficient to support the Staff’s conclusions. Based on our review, we also find that the 

remainder of the Final EIS was reasonably supported and sufficient to support the Staff’s 

conclusions. 

Therefore, as a result of our review of the Final EIS, and in accordance with the Notice 

of Hearing for this uncontested proceeding, we find that the requirements of NEPA section 

102(2)(A), (C), and (E), and the applicable regulations in 10 C.F.R. Part 51, have been satisfied 

with respect to the combined license application. We independently considered the final 

balance among conflicting factors contained in the record of this proceeding. We find, after 

weighing the environmental, economic, technical, and other benefits against environmental and 

other costs, and considering reasonable alternatives, that the combined licenses should be 

issued. 

 CONCLUSION 

We find that the Staff’s review of Duke’s combined license application was sufficient to 

support the findings in 10 C.F.R. §§ 52.97(a) and 51.107(a). We authorize the Director of the 

Office of New Reactors to issue the combined licenses for the construction and operation of 

Levy Nuclear Plant, Units 1 and 2. We authorize the Staff to issue the record of decision. 

IT IS SO ORDERED. 

 For the Commission 

 NRC Seal 

 /RA/ 

 ___________________________ 

 Annette L. Vietti-Cook 

 Secretary of the Commission 

Dated at Rockville, Maryland, 

this 20th day of October 2016. 
UNITED STATES OF AMERICA 

NUCLEAR REGULATORY COMMISSION 

In the Matter of ) 

 ) 

DUKE ENERGY FLORIDA, LLC ) Docket Nos. 52-029-COL 

) and 52-030-COL 

(Levy Nuclear Plant, Units 1 and 2) 

 ) 

 Mandatory Hearing ) 

 

CERTIFICATE OF SERVICE 

I hereby certify that copies of the foregoing COMMISSION NOTICE OF ERRATUM FOR 

CLI-16-16 have been served upon the following persons by Electronic Information Exchange.

U.S. Nuclear Regulatory Commission 

Office of Commission Appellate 

 Adjudication 

Mail Stop: O-7H4 

Washington, DC 20555-0001 

ocaamail@nrc.gov

Office of the Secretary of the Commission 

U.S. Nuclear Regulatory Commission 

Mail Stop: O-16C1 

Washington, DC 20555-0001 

Hearing Docket 

hearingdocket@nrc.gov

Office of the General Counsel 

U.S. Nuclear Regulatory Commission 

Mail Stop: O-15D21 

Washington, DC 20555-0001 

Sara Kirkwood, Esq. 

sara.kirkwood@nrc.gov 

Patrick A. Moulding, Esq. 

patrick.moulding@nrc.gov

Kevin C. Roach, Esq. 

kevin.roach@nrc.gov 

Michael Spencer, Esq. 

michael.spencer@nrc.gov

OGC Mail Center: OGCMailCenter@nrc.gov

Pillsbury Winthrop Shaw Pittman, LLP 

1200 Seventeen St., NW 

Washington, DC 20036-3006 

Counsel for Progress Energy Florida, Inc. 

David R. Lewis 

david.lewis@pillsburylaw.com

 

 [Original signed by Clara Sola ] 

Office of the Secretary of the Commission 

Dated at Rockville, Maryland 

this 1st day of December 2016 
UNITED STATES OF AMERICA 

NUCLEAR REGULATORY COMMISSION 

 

In the Matter of 

 

DUKE ENERGY FLORIDA, LLC Docket Nos. 52-029-COL 

 52-030-COL 

(Levy Nuclear Plant, Units 1 and 2) 

 

NOTICE OF ERRATUM 

On page 20 of CLI-16-16, issued on October 20, 2016, the phrase “design basis event” 

should read “beyond-design-basis event.” The corrected decision, attached here, will replace 

the versions containing the error in ADAMS and on the NRC’s public website. 

IT IS SO ORDERED. 

NRC Seal 

 /RA/ 

 __________________________ 

 Annette L. Vietti-Cook 

 Secretary of the Commission 

Dated at Rockville, Maryland, 

this 1st day of December 2016.