Document: 367 U.S. 396 81 S.Ct. 1529 6 L.Ed.2d 924 POWER REACTOR DEVELOPMENT CO., Petitioner,v.INTERNATIONAL UNION OF ELECTRICAL, RADIO AND MACHINE WORKERS, AFL-CIO, et al. UNITED STATES al., Petitioner, v. INTERNATIONAL Nos. 315, 454. Argued April 26, 27, 1961. Decided June 12, [Syllabus from pages 396-397 intentionally omitted] Mr. W. Graham Claytor, Jr., Washington, D.C., for petitioner in No. 315. Sol. Gen. Archibald Cox, petitioners Benjamin C. Sigal, respondents both cases. Justice BRENNAN delivered the opinion of Court. 1 This case is first contested licensing proceeding to be decided by Atomic Energy Commission under Act 1954, 68 Stat. 919, 42 U.S.C. § 2011 seq., U.S.C.A. seq. It presents question whether erred continuing effect a provisional construction permit which authorizes Power Reactor Development Company construct, but not operate, fast-neutron breeder reactor generation electric power. The Court Appeals District Columbia Circuit set that order aside. 1960, 108 U.S.App.D.C. 97, 280 F.2d 645. We granted certiorari, 364 889, 221, 5 186, on petitions United States and (hereafter PRDC), decide an important scope Commission's power 1954. 2 Stated more precisely, before us Commission, issuing facility will utilize nuclear materials, such as presently involved, must make same definitive finding safety operation it admittedly have licenses actual facility. said: 'It undisputed when operation. construction. In our must.' at page 100, 648. Petitioners agree some directed made construction-permit stage proceeding, argue holding degree certitude this preliminary point understand how controversy arises what involved its resolution, necessary state proceedings length, then describe detail government statute administrative regulations. For decision ultimately turns comparison found with regulations require. 3 began January 7, 1956, PRDC filed sometimes referred AEC) application construct operate developmental relatively new type. device has two characteristics distinguish other reactors. First, neutrons fly about inside (to use crude graphic layman's terminology) split atoms fissionable Uranium—235—thus releasing energy form heat—are 'fast' neutrons. That is, they travel velocity 10, 000 miles per second, much faster than ordinary Second, 'breeder': property being able produce 1.2 times fis ionable material consumes. result comes through sort modern alchemy; outside inner core reactor, composed U—235, enter blanket nonfissionable U—238. Atoms are changed, struck neutron, into Plutonium, itself fuel can removed put possible installations. Thus, 'breeds' Plutonium uses up U—235. only generates power, also creates fuel. 'breeder' attainable because fast Two boron control rods inserted means designed reduce level any time. And addition these rods, eight suspended electromagnet over reactor; reactivity rises dangerously high level, intended drop automatically shut down immediately. whole machine housed series thick concrete, graphite, steel layers, all underground. Over entire complex placed football-shaped building, enclosed two-inch shield capable containing explosion equal force 1,000 pounds TNT, greater experts who testified believes likely accident reactor. application, after describing rudimentary summary, went provide would located Lagoona Beach, Mich., shores Lake Erie, 35 center Detroit, 30 Toledo, Ohio. 4 took advisement and, August 4, despite report Advisory Committee Safeguards was best noncommittal probable proposed operation, issued without having held public hearings law time permitted do. subject following condition: 'The conversion license submittal (by amendment application) complete, final Hazards Summary Report (portions may submitted evaluated time). show design provides reasonable assurance * health endangered *.' On 31, accordance existing rules practice, Court, International Union Electrical, Radio, Machine Workers, Automobile, Aircraft, Agricultural Implement Workers America, Papermakers Paperworkers, petitioned permission intervene oppose continuation PRDC's permit. AEC October 8, hearing one examiners. Extensive were between 1957, November 22, AEC's setting him, examiner, instead initial his own, transferred certified record full consideration. Oral argument had May 29, 1958. December 1958, rendered 'Opinion Initial Decision' effect, condition recited above. To appended extensive findings fact, including Finding central importance case. reads follows: 7 '22. finds utilization general type amendments thereto constructed operated location undue risk public.' 8 Commissioners Vance Floberg joined opinion. Commissioner short concurring agreeing basic findings, just quoted, doing so shorter compass majority. Libby McCone (the chairman) no part decision. original permit, contained. 9 intervening unions, their right, detailed exceptions fully reconsidered contentions reviewed evidence presented lengthy hearings, particular attention testimony scientific experts, several them members Safeguards, testified. 1959, Final Decision,' dealing questions even reaffirming emphasized 'public first, last, permanent consideration issuance or facility.' Even licensed—if ever is—the said, retain jurisdiction activities ensure highest standards maintained. examine suitability site, noted near great population center, nevertheless concluded present there safe enough location. pointed out, however, action allowing proceed nature tentative preliminary, committed operating license. 'PRDC been notice since shovel dirt moved,' 'that upon further demonstration many technological financial facts, complete reactor.' A severe test passed completed, '(t)he 'reasonable assurance' satisfies purposes we require considering license.' counterpart 22: 10 record, Application 11 All three decision, entered again investigation, finding, permitted. 12 review aside Commission. Only drawn question. No complaint ex parte grant 1956. intervened support AEC. divided vot, three-judge panel remanded petition rehearing en banc denied, judges dissenting, brought here. 13 turn now examination statutes pursuant purported continue provision 104, subd. b 2134(b), 'issue persons applying therefor production facilities conduct research development *. subsection, shall impose minimum amount terms fulfill obligations chapter promote common defense security protect things section should emphasized. doubt term 'licenses' used therein includes received. last sentence 185, 2235, expressly provides, soon see. permits, like licenses, consistently public. But responsibility safeguarding belongs b, especially read connection rule-making conferred 161, i(3), 2201(i)(3), 2201(i)(3) clearly contemplates regulation forth requires prerequisite Act. 14 permits 2235. 15 'All applicants modify shall, if otherwise acceptable initially earliest latest dates completion modification. Unless modification completed date, expire, rights thereunder forfeited, unless good cause shown, extends date. Upon facility, filing additional information needed bring authorized conformity amended provisions absence shown why granting chapter, thereupon issue applicant. deemed 'license." 16 clear face statute—and parties agree—that Congress contemplated step-by-step procedure. First applicant get he ask him procedure described outlines Marks Trowbridge, Framework Industry, 76—77 (1955). See Green, Law Safety, Vand.L.Rev. 112, 121—127 (1958). second step procedure, license, governed 182, a, 2232(a), 2232(a). reas , pertinent part: 17 'In applications facilities, technical specifications may, rule regulation, deem enable find special accord adequate protection 18 positive 'provide What clear, case, There nothing either 182 185 tells taken. know, made. enlightenment urge regulations, accordingly do so. 19 crucial 50.35, CFR 50.35: 20 's 50.35 Extended providing information. Where, project, position supply required indicate reason, items kinds omitted, approximate data produced. If satisfied sufficient omitted supplied, process basis later evaluation endangered.' 21 obviously, elaborates describes fuller §§ 185. states, authority each proceeding. agreement to, endangered,' comports requirements concerning operate. regulation's public,' valid exercise statute, granted. backed conviction specific be. 22 think weight supports taken Reg. defer until actually licensed. words themselves certainly lean strongly direction. made, definition,o n incomplete information, concerns 'general type' proposed. phrased unequivocally assurance,' while speaks tentatively 'information assurance.' furthermore, reason distinction. reactors fast-developing fast-changing. date not, probably tomorrow. Problems seem insuperable solved tomorrow, perhaps very itself. see interpretation own governing respect customarily given practical disputed provision. Particularly due practice stake 'involves contemporaneous men charged machinery motion; making parts work efficiently smoothly yet untried new.' Norwegian Nitrogen Products Co. States, 1933, 288 294, 53 350, 358, 77 L.Ed. 796. finally, demanding weight, Joint Energy, 202 Act, 2252, duty during session 'to open executive purpose receiving development, growth, atomic industry,' oversee operations See, e.g., Hearings Development, Growth, State 84th Cong., 2d Sess., p. 106 (1956); etc., 85th pp. 119—121 (1958); 86th 103—109, 677—678 (1960); 87th 1st 29—32 (1961); Governmental Indemnity Private Licensees Contractors Against Hazards, 62—65 Study Procedures Organization Licensing Facilities, 11—14, 100—108 (Joint Comm. Print 1957). change suggested Committee, although occasion critical aspects us. often shaky business attribute significance inaction Congress, circumstances, peculiar place statutory scheme, fair history de facto acquiescence ratification Congress. Cf., Ivanhoe Irr. Dist. McCracken, 357 275, 292—294, 78 1174, 1184—1185, 1313; Brooks Dewar, 1914, 313 354, 360—361, 61 979, 981 982, 85 1399. nine instances Yankee Elec. Co., CPPR—5 (AEC 1957), hold properly 23 plain construed applied, complied fully. did respondents' seems suggest, merely problem. deeply concerned prospective Admitting facts unable safety, found—and deny supported substantia evidence—that could Its except insertion phrase, 'for permit.' phrase declaratory way denigrated 24 Respondents contend compelled legislative history. Since relied heavily history, studied carefully. incidents cited particular. stated bill became reported contained substantially shape, '(s)ection carried out S.Rep.No. 1699, 83d 28 (1954); H.R.Rep.No. 2181, (1954) U.S.Code Congressional Administrative News 3456. say statement, deference, inadvertent. Witnesses appeared company might invest large sums denied right it. situation, claimed, unfair, discourage private investment field bill's major stimulate. Bill Amend 1946, Pt. I., 113, 119 (statement Paul McQuillen. representing Dow Chemical-Detroit Edison Associates predecessors PRDC); 226—227 E. H. Dixon, chairman Electric Institute president Middle-South Utilities, Inc.); 417 Special Association Bar City New York). spite pleas, unchanged. Industry spokesmen renewed next year sought unsuccess-fully amended. 258, 261 glance suffices does automatic sets conditions, construction, met granted: (1) necessarily include petitioner's (2) act regulations—i.e., adequately protected—and itself, conditioned investigation permitted; (3) Act—e.g., showing respondent appear contest reasonably safe. 25 rely another event debates floor Senate. Senator Humphrey, opponent bill, expressed desire 'the eu ivalent license,' revised appl(ies) directly permits.' 100 Cong.Rec. 12014 (July 1954). Hickenlooper, manager ranking Senate member indicated agreed Humphrey wanted matters feared easily obtained substantial feel obliged, pressure, go waste. language exchange Senators Hickenlooper susceptible, broadly context, it, namely, safety-of-operation context makes implication participants. Humphrey's statements himself July 16. added clause end 185: 26 'and procedures established act.' 27 assured earlier offered 189 care problem, Humpohrey withdrew proposal. s 189, adopted, solely judicial review. Plainly concern substantive rather procedural safeguards should, opinion, surrounded. reference mind—that subsection standard license—but view particularly asked published appropriate regulatory agencies, requirement meaning remarks borne statement Representative Holifield, who, together Price, dissented favorable precisely because, inter alia, preceded 123 (1954). Price proposed, characterized applied 10959 19, think, therefore, prerequisites considerations involves. matter, consistent known never disturbed dictate conclusion. forward alternative authorize reaco r 'compelling reasons' so, 103—104, 651—652, reasons abandoned contention likewise uncertain ordinarily Appeals. event, merit. reasons.' Of course (and too, matter) problem uppermost mind, most acute potentially dangerous, city. assurance, purposes, safely location, satisfy law. recognized site properties among ingredients vel non. considered along relevant data. warrant 29 hold, effect. add few fears disaster urgently tantamount insistence cannot counted on, wholly exclude enormous investment. concede absolutely consider acting long proceeds risk, funds naught. With eyes open, willingly accepted however great. hazards filed, respondents, desire, heard, met. issued. matter. Moreover, supervision continues. For, 50.57, (100,000 kilowatts) steps gradually increasing successfully mastered, step, advance step-up meet imposed multi-step scheme devised safety. actions within authorization. assume exceed powers, interest effective. Accordingly, judgment reversed causes 31 Reversed remanded. 32 DOUGLAS, whom BLACK concurs, dissenting. 33 here 'will public' h ich headed 'License Applications.'1 By apart 'deemed 'license."2 Section governs permits. separate independent 'safety.' finished 'in with' issues of' As stated, 'Section permit.'3 words, 'safety,' (as assuredly be), all. 34 While 'finds permit,' 'without positively established' character 'can credible possibility significant quantities fission products environment.' definitely establish 'whether Applicant operated.' 'safety' They presuppose—contrary premise finished. reached, millions invested, momentum side applicant, generated salvage agency wants architect 'white elephant.' give structure momentum. me 36 When measure Senate, read, 'no act.'4 plainly inadequate leave conjecture unresolved. 37 explained follows:5 38 prepared sure prior authorization done amounted getting capital, surely prejudicial resolved, considerable justifiably once 39 committee modified certain sections I aware. indicates amended, equivalent understand, interpreted Is correct?'. 40 His answered charge bill:6 41 'A equivalent. thing, true hearings. Therefore, believe, assure Senator, essential attempting reach.' 43 'directly permits.'7 replied 'Yes.'8 amendment.9 44 resolved today approved) light-hearted approach awesome, deadly, dangerous man conceived.10 Appendix Opinion DOUGLAS 45 46 applications.— 47 'a. Each hereunder writing specifically determine qualifications citizenship ultilization specifications, amount, kind, source required, use, Such issued.' provides: 48 'Construction Permits.—All cause, applia nt. 'license'.' 419, 1541. Ibid. Leg.Hist. 1024. (Emphasis added.) 3759. Biological Environmental Effects Nuclear War, Summary-Analysis Hearings, 22—26, Sess.; Fallout From Weapons Tests, 5—8, Sess. analysis techniques Jalet, Law, Georgetown L.J.

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