ML17178A462

New England Coalition'S Request for a Hearing and Petition for Leave to Intervene

ML17178A462
Person / Time
Site:	Vermont Yankee File:NorthStar Vermont Yankee icon.png
Issue date:	06/27/2017
From:	Shadis R New England Coalition
To:	Atomic Safety and Licensing Board Panel
SECY RAS
References
50-271-LT-2, License Transfer, RAS 53907
Download: ML17178A462 (18)

Text

1UNITEDSTATESOFAMERICANUCLEARREGULATORYCOMMISSIONBEFORETHEATOMICSAFETYANDLICENSINGBOARDIntheMatterofENTERGYNUCLEARVERMONTYANKEE,LLCANDENTERGYDocketNo.50-271-LT-2NUCLEAROPERATIONS,INC.;CONSIDERATIONOFAPPROVALJune27,2017OFTRANSFEROFLICENSEANDCONFORMINGAMENDMENT(VermontYankeeNuclearPowerStation)NEWENGLANDCOALITION'SREQUESTFORAHEARINGANDPETITIONFORLEAVETOINTERVENEI.INTRODUCTIONNowcomesNewEnglandCoalitiontoRequestaHearingandLeavetoInterveneintheabovecaptionedmatter.A.THEAPPLICATIONOnFebruary9,2017().EntergyNuclearOperations,Inc.("ENO"),onbehalfofitselfandEntergyNuclearVermontYankee,LLC("ENVY")(tobeknownas"NorthStarVermontYankee,LLC"or"NorthStarVY"),andNorthStarNuclearDecommissioningCompany,LLC("NorthStarNDC")filedanApplicationforanOrderConsentingtoDirectandIndirectTransfersofControlofLicensesandApprovingConformingLicenseAmendmentandNotificationofAmendmenttoDecommissioningTrustAgreement"(ADAMSAccessionNo.ML17045A140)requestingthattheU.S.

2NuclearRegulatoryCommission("NRC")consenttodirectandindirecttransfersofcontrolofENO'sandENVY'sRenewedFacilityOperatingLicenseNumberDPR-28(VermontYankeeNuclearPowerStation),aswellasthegenerallicensefortheVYIndependentSpentFuelStorageInstallation(the"Licenses").Thisapplicationrequests"approvalofthetransferofcontrolofENVYtoNorthStarandofthetransferoftheauthoritytopossess,maintainanddecommissionVYNPSfromENOtoNorthStarNuclearDecommissioningCompany,LLC(NorthStarNDC).1[Emphasisadded]Uponcompletionoftheproposedtransfer,ENVY'snamewillbechangedtoNorthStarVermontYankee,LLC(NorthStarVY)".Further,Underthetermsoftheproposedtransaction,ENVYwouldmakereasonableeffortstoacceleratethetransferofspentfueltodrycaskstoragebytwoyearsandcompletefueltransferbeforetheclosingofthetransactionattheendof2018.Ifthetransfertodrystorageproceedsasplanned,NorthStarNDCwouldbecomeresponsibleforanISFSIthatcontainsalloftheVYspentfuel.[Emphasisadded]NorthStarNDChascommittedtobegindecommissioningactivitiesnolaterthanearly2021,butpotentiallymayinitiatedecommissioningasearlyas2019.Itwouldplantocompleteradiologicaldecommissioningandrestorationofthenon-ISFSIportionsoftheVYsitepotentiallyassoonas2026,butnolaterthantheendof2030.NorthStarVYandNorthStarNDCwouldrestorethesiteinaccordancewithstandardsapprovedbytheVermontPublicServiceBoard("PSB").UnderVermontstatelaw,thePSBmustalsoapprovethetransactionandissueanamendedCertificateofPublicGood.B.THENOTICEAccordingtotheMay24,2017FederalRegisterNoticereflectingtheabovecaptionedmatter:TheapplicationnowbeingconsideredisdatedFebruary9,2017(ADAMSAccessionNo.ML17045A140),andwasjointlyfiledbyENO,ENVYandNorthStarNDC(together,applicants).TheapplicantsrequestedthattheNRCconsenttothetransfersofthelicensed1Introduction,"NotificationofRevisedPost-ShutdownDecommissioningActivitiesReport(RevisedPSDAR)"VermontYankeeNuclearPowerStation,NorthStarGroupServices,Inc.,April6,2017 3possession,maintenance,anddecommissioningauthoritiesbyDecember31,2017,toimplementexpediteddecommissioningoftheVYNPS.[Emphasisadded]Followingapprovaloftheproposeddirecttransferofcontrolofthelicense,NorthStarNDCwouldassumelicensedresponsibilityforVYNPSthroughthedirecttransferofENO'sresponsibilityforlicensedactivitiesatVYNPStoNorthStarNDC.NorthStarVYwouldalsoenterintoanoperatingagreementwithNorthStarNDC,whichprovidesforNorthStarNDCtoactasNorthStarVY'sagentandforNorthStarVYtopayNorthStarNDC'scostsofoperation,includingalldecommissioningcosts.[Emphasisadded]Iftheproposedindirecttransferofcontrolisapproved,ENVYwouldchangeitsnametoNorthStarVY,butthesamelegalentitywouldcontinuetoexistbeforeandaftertheproposedtransfer.NorthStarVYwouldowntheVYNPSfacilityaswellasitsassociatedassetsandrealestate,includingitsnucleardecommissioningtrustfund,titletospentnuclearfuel,andrightspursuanttothetermsofitsStandardContractforDisposalofSpentNuclearFueland/orHigh-LevelRadioactiveWastewiththeU.S.DepartmentofEnergy.Certainoff-siteassetsandrealestateofENVYareexcluded,suchasadministrativeoffices,off-sitetrainingfacilities,etc.Upontheproposedlicensetransfer,NorthStarNDCwouldassumeresponsibilityforcompliancewiththecurrentlicensingbasis,includingregulatorycommitmentsthatexistatclosing,andwouldimplementanychangesunderapplicableregulatoryrequirementsandpractices.AsdiscussedinENVY's2014PostShutdownDecommissioningActivitiesReport(2014PSDAR,ADAMSAccessionNo.ML14357A110),undertheDecember23,2013,settlementagreementwithStateofVermontagencies(Attachment2tothe2014PSDAR),ENVYcommittedtoinitiateradiologicaldecommissioningwhenithadmadeareasonabledeterminationthatithadsufficientfundstocompletedecommissioningandremainingspentfuelmanagementobligations.Undertheassumptionsandcircumstancesdescribedinthe2014PSDAR,ENVYcouldcommenceradiologicaldecommissioningundertheagreementwiththeStateofVermontagenciesinapproximately2053andcompletesuchactivitiesinapproximately2060.However,ENVY'scurrentdecommissioningplans,asdescribedinthe2014PSDAR,assumethatthecompletionofradiologicaldecommissioningwillbebythemaximumallowed(under10CFR50.82)dateof2073,[Emphasisadded]withsiterestorationby2075.Incontrast,ifthetransfertodrystorageofthespentfuelproceedsasdescribedintheENOnotificationofschedulechangefordryfuelloadingdatedApril12,2017(ADAMSaccessionnumberML17104A050),transferoftheremainingspentfuelinthespentfuelpoolwouldcommencein2017andbecompleteinlate2018.Upontheproposedlicensetransferdateattheendof2018,NorthStarNDCwouldbecomeresponsibleforanISFSIthatcontainsalloftheVYspentfuel.NorthStarNDCthenwouldbeginVYNPSdecommissioningactivitiespromptlyandwouldplantocompleteradiologicaldecommissioningandrestorationofthenon-ISFSIportionsoftheVYNPSsitebytheendof2030(andpotentiallyasearlyas2026).[Emphasisadded]NorthStarVYandNorthStarNDCwouldthenrestorethesiteinaccordancewithstandardsapprovedbytheVermontPublicServiceBoard(PSB).UnderVermontstatelaw,thePSBmustalsoapprovethetransactionandissueanamendedCertificateofPublicGood.InparallelwithNRC'sreviewoftheapplication,NorthStarNDCsubmittedanupdatedproposedPSDAR,datedApril6,2017(ADAMSAccessionNo.ML17096A394),tobecomeeffectiveafterlicensetransfer,whichwouldreflectNorthStarNDC'splansforaccelerateddecommissioningfollowingtheproposedtransfersofthelicense.Beforemakingadecisiononthetransfer,andbeforeissuanceoftheproposedconforminglicenseamendment,theCommissionwillevaluatetherequestagainsttherequirementsoftheAtomicEnergyActof1954,asamended(theAct),andtheCommission'sregulations.TheNRC'sregulationsat§50.80and§72.50statethatnolicense,oranyrightthereunder,shallbetransferred,directlyorindirectly,throughtransferofcontrolofthelicense,unlesstheCommissionshallgiveitsconsentinwriting.TheCommissionwillapproveanapplicationforthedirecttransferofalicenseiftheCommissiondeterminesthattheproposedtransfereeisqualifiedtoholdthelicense,andthatthetransferisotherwiseconsistentwithapplicableprovisionsoflaw,regulations,andordersissuedbytheCommission.Asprovidedin10CFR2.1315,unlessotherwisedeterminedbytheCommissionwithregardtoaspecificapplication,theCommissionhasdeterminedthatanyamendmentto 4thelicenseofautilizationfacilityortothelicenseofanIndependentSpentFuelStorageInstallationwhichdoesnomorethanconformthelicensetoreflectthetransferactioninvolvesnosignificanthazardsconsiderationandnogenuineissueastowhetherthehealthandsafetyofthepublicwillbesignificantlyaffected.Nocontrarydeterminationhasbeenmadewithrespecttothisspecificlicenseamendmentapplication.Inlightofthegenericdeterminationreflectedin10CFR2.1315,nopubliccommentswithrespecttosignificanthazardsconsiderationsarebeingsolicited,notwithstandingthegeneralcommentprocedurescontainedin10CFR50.91.AnEnvironmentalAssessmentwillnotbeperformedbecause,pursuantto10CFR51.22(c)(21),licensetransferapprovalsandtheassociatedlicenseamendmentsarecategoricallyexcludedfromtherequirementstoperformanenvironmentalassessment.C.NEWENGLANDCOALITIONNewEnglandCoalition,hereinandherebypresentingaRequestforaHearingandPetitionforLeavetoInterveneintheabovecaptionedmatter,isanon-profitenvironmentaladvocacyorganizationincorporatedintheStateofVermontsince1971.1.NewEnglandCoalitionrequeststobeadmittedinitsownrightasanaffectedorganizationandasanadvocateforaffectedrepresentativemembers.a.NewEnglandCoalitionhasappendeddeclarationsofinterestandauthorization(asAttachmentsOnethroughFour)from(1)ClayTurnbull,NewEnglandCoalitionClerkoftheCorporation,ofTownshend,Vermont(2)LorieCartwright,NewEnglandCoalitionMemberandTrustee,ofBrattleboro,Vermont(3)GregUrban,NewEnglandCoalitionMember,ofGuilfordVermont(4)DavidL.Deen,NewEnglandCoalitionMember,VermontLegislator,NotableFlyFisherman,ofPutney(andWestminster),Vermont.b.ThestandingrequirementsforNuclearRegulatoryCommission(NRC)adjudicatoryproceedingsderivefromtheAtomicEnergyAct(AEA),whichrequirestheNRCtoprovideahearing"upontherequestofanypersonwhoseinterestmaybeaffectedbytheproceeding."42U.S.C.2239(a)(1)(A).c.FromitsinceptionNewEnglandCoalition's(formerlytheNewEnglandCoalitiononNuclearPollution)purposehasbeen,andremains,toopposenuclearhazardsandadvocateforsustainableenergyalternativestonuclearpower.

5d.NewEnglandCoalitionhasnumerousmembersthatresideintheimmediatevicinityofVermontYankeeandthroughoutNewEngland;asdemonstratedintheattacheddeclarations,saidmembers'concreteandparticularizedinterestswillbedirectlyaffectedbythisproceeding.ThusNewEnglandCoalitionassertsstandingandseeksahearingthroughrepresentativememberswhosedeclarationsareattachedheretoasAttachments2-4.2.NewEnglandCoalitionqualifiesfordiscretionaryinterventionper10C.F.R.§2.309(e).a.NewEnglandCoalitionparticipationmayreasonablybeexpectedtoassistindevelopingasoundrecordasithasdemonstratedbyitsparticipationinnumerousNRCproceedingsdatingbacktothe1970'sInrecentyears,uponNewEnglandCoalition'srequestandpetition,NRCgrantedahearingandadmittedNewEnglandCoalitionasanintervenorinDockets50-271-LA(VermontYankeepoweruprate)and50-271-LR(VermontYankeeLicenseRenewalandasco-intervenerwithFriendsoftheCoastinDocket50-443LR(Seabrooklicenserenewal).b.NewEnglandCoalitionisverywellversedinthefieldofnuclearenergyandsafetyandthenatureofitsinterestsisnotonlyitsmembers'(anditsown)realinterests,butthepublicinterest.c.NewEnglandCoalitionanditsmemberscanalsoprovidelocalinsightthatcannotbeprovidedbytheApplicantorotherpotentialparties.ItsmembersareVermontYankee'sneighbors.And,asestablishedbythispleading,thisproceedingmayhavesignificanteffectsonNewEnglandCoalitionanditsmembers.d.NewEnglandCoalitionthereforequalifiesfordiscretionaryinterventioninaccordwiththeprovisionsof10C.F.R.§2.309(e).3.NewEnglandCoalitionhasRepresentationalStanding.

6a.Asstatedabove,thepurposeofNewEnglandCoalitionistoopposenuclearhazardsandadvocateforsustainableenergyalternativestonuclearpowerandhence,itsinterestsandexperiencedadvocacyaregermanetothisproceeding.TheattacheddeclarationsdemonstratethatNewEnglandCoalitionhasnumerousmembersthatresidewithinVermontYankee'saffectedvicinityandwhoseparticularinterestsaredirectlyaffectedbythismatter.b.MembersprovidingdeclarationsforthepurposeofrepresentationalstandingarelistedaboveunderC(1)(a).ManymembersliveincommunitiessurroundingVermontYankeemakingthepotentialforNorthStar'sfirstsignificanterrorasafirst-timeNRClicenseeallthatmuchmorepalpable.c.MembersalsouseandenjoytheNewHampshire,Vermont,andMassachusettssegmentsoftheConnecticutRiveradjacenttoVermontYankeeforsocialactivities,work,recreation,andthegatheringofnaturalprovender.Indeed,thereexistsatraditionofnaturalresourcesstewardshipintheregionthatpredatesournation'sfounding.TheConnecticutRiverlittoralwatersarethereceivingwatersforanycontinuedorpotentialnewlyaggravatedradiologicallycontaminateddischargestemmingfromNorthStar'splanneddecommissioningactivitiesas"implemented"bytheproposedlicensetransfer.d.Membershaveanabidinginterestinpreservingtheregion'srichhistoricalandculturalinheritance.Partoftheco-called"VermontBrand"theauraofthisinheritanceispartofwhatfeedstheregion'sorganicfoods,retreat,tourismandoutdoorrecreationindustries.RecentlyElnuandMississiquoiAbenakitribeshaveassertedahistoric,culturalandreligiouspresenceontheVermontYankeesitewithburials,ceremonialsites,andsitesindicativeofhabitation.MembersaretheneighborsoftheAbenakiandsostrugglewiththe 7notionoffurtherdamagetotheVermontYankeesiteandsurroundinglandsandwatersresultingfromapotentiallackofstewardshipbynewownersofprojectedrelativelyshorttenancyandfewcommunityties.e.Anorganizationhasstandingtosueonbehalfofitsmemberswhenamemberwouldhavestandingtosueinhisorherownright,theinterestsatissuearegermanetotheorganization'spurpose,andparticipationoftheindividualisnotnecessarytotheclaimorrequestedrelief.Huntv.WashingtonStateAppleAdvertisingCommn,432U.S.333,343(1977).f.AstheCommissionhasappliedthisstandard,anindividualdemonstratesaninterestinareactorlicensingproceedingsufficienttoestablishstandingbyshowingthathisorherresidenceiswithinthegeographicalareathatmightbeaffectedbyanaccidentalreleaseoffissionproducts.This"proximityapproach"presumesthattheelementsofstandingaresatisfiedifanindividualliveswithinthezoneofpossibleharmfromthesourceofradioactivity.SeeVirginiaElec.AndPowerCo.,9NRC54,56(1979)("closeproximity[toafacility]hasalwaysbeendeemedtobeenough,standingalone,toestablishtherequisiteinterest"toconferstanding).TheCommission's"ruleofthumb"inreactorlicensingproceedingsisthat"personswhoresideorfrequenttheareawithina50-mileradiusofthefacility"arepresumedtohavestanding.SequoyahFuelsCorp.,40NRC64,75n.22(1994);Seealso,DukeEnergyCorp.,48NRC381,385n.1(1998).g.Asisdemonstratedbytheabovediscussionandattacheddeclarations,themembersrepresentedbyNewEnglandCoalitionwouldallhavestandingintheirownright.TheissuesaregermanetopurposesofNewEnglandCoalition.And,theindividualparticipationofthemembersisnotnecessarytotheclaimsorrequestedrelief.4.NewEnglandCoalitionMeetsPrudentialStandingRequirements.

8a.Inaddition,Courtshavecreatedaprudentialstandingrequirementthataplaintiffsinterestsfallwithinthe"zoneofinterests"protectedbythestatuteonwhichtheclaimisbased.Bennettv.Spear,520U.S.154,162(1997).TheAtomicEnergyActandNEPA,thestatutesatissuehere,protectthesameinterestsheldbyNewEnglandCoalitionmembersandfurtheredbyNewEnglandCoalition'spurpose.5.NewEnglandCoalitionlsorequestsahearingunder10C.F.R.§2.309(a).6.Pursuantto10C.F.R.§2.309(f),NewEnglandCoalitionshouldbegrantedleavetointervenebecauseithasstanding,andithereinsubmitsfouradmissiblecontentionsinsupportofNRCRegulationandgermanetotheprotectionofpublichealthandsafetyandprotectionofthenaturalandhumanenvironment.II.PROPOSEDCONTENTIONSA.CONTENTIONONETheinstantapplicationisincompletebecause,whileitinvolvesactionsandconditionsnotcontemplatedinNRC'sgenericdeterminationofnosignificanthazardsconsiderationandexceedsthelimitsforNRC'scategoricalexclusions,itstilldoesnotincorporateaviableenvironmentalreport,and/oranenvironmentalimpactassessmentand/oranenvironmentalimpactstatementand/orindeedanysubstantiveandreliableinformationaboutthevarieties,quantities,depthandextentofradiologicalcontaminationatVermontYankee.Beingincompletetheapplicationmustberejected,orremandedtotheapplicantforcompletionandresubmittal.1.BASISANDEVIDENCEa.Theapplicationisnotthegenerically-identified,stand-alonerequestforlicensetransferreflectedin10CFR2.1315.Itisatonce,accordingtothesummaryofNRCStaffintheFederalRegisterNotice82FRN23845,arequestfor 9(1)directtransferofRenewedFacilityOperatingLicenseNo.DPR-28fortheVermontYankeeNuclearPowerStation(VYNPS)[forthepurposeofanaccelerateddecommissioningemployingnew,proprietary,"secretrecipe"anduniquemethodsinvolvingadministrationofover800individualfixed-pricecontracts]2-(2)[directtransferof]thegenerallicensefortheVYNPSIndependentSpentFuelStorageInstallation[inthethroesoffueltransferandnotasofthetimeoftheapplication,fullyloaded]3,fromENO,thecurrentlicensedoperatorofVYNPS,toNorthStarNuclearDecommissioningCompany,LLC(NorthStarNDC),awholly-ownedsubsidiaryofNorthStarGroupServices,Inc.(NorthStar).[Moreover,NorthStarhasnointentionofoperatingtheISFSI,butpromisestocontractitsindefiniteoperationtoAREVAwithnoproposalforindefiniteoperatingcontrol,oroversight.4]Therequestisalsofor(3)theindirecttransferofcontrolofEntergyNuclearVermontYankee,LLC(ENVY),thelicensedowneroftheVYNPS,fromENVY'sEntergyparentcompaniestoNorthStarDecommissioningHoldings,LLCanditsparentsNorthStar,LVIParentCorp.,andNorthStarGroupHoldings,LLC.TheconsiderationsofproposeddecommissioningactivitiesandtheirpotentialenvironmentalimpactsandthereportthatAREVA,willactuallymanageandoperatetheISFSI[albeitundercontract]andnotNorthStar,donotreadilylendthemselvestosegregationfromhazardsandenvironmentalimpactsconsideration.YetthatiswhatNRCStaffdoesbyploppingactionsthatarenolongerboundedby10CFR2.1305intothe'generically-excluded'category.Excluded:ApprovalsofdirectorindirecttransfersofanylicenseissuedbyNRCandanyassociatedamendmentsoflicenserequiredtoreflecttheapprovalofadirectorindirecttransferofanNRClicense.10CFR51.22(c)(21)NewEnglandCoalitioncontendsthattheproposedpromptdecommissioningundernewownershipistantamounttoalicenseamendmentthatinvolvesenvironmentalconsiderationsand2Pleasesee,ApplicationforApprovalandLicense,February9,2017.ADAMSAccessionNo.ML17045A140,andNorthStarPSDAR,April6,2017,ADAMSAccessionNo.ML17096A394,generally3Ibid.4Ibid.

10isnot"anyassociatedamendment[s]oflicenserequiredtoreflecttheapprovalofadirectorindirecttransferofanNRClicense"andthattheASLBshouldproceedonthebasis.NRCStaffispatentlywronginits'tunnel-vision'approachtotheapplication.NewEnglandCoalitionisnothereattemptingtocontrovertNRCregulation;wearehowevertakingstrongexceptiontotheNRCStaff'sinterpretationofitsapplicabilityinthisextraordinaryinstance.IndeedthestaffappearstotacitlyadmitthatinthiscaselicensetransferanddecommissioningareinextricablyintertwinedwhenthestaffdevotesmorethanhalfoftheinformationalsectionoftheFederalRegisterNoticetoadescriptionofdecommissioningplansandschedule5.(Also,PleaseseeaboveunderBNOTICE).TheCommissionhasstatednopreferenceforanydecommissioningmethodorschedule,yetadiscussionoftheswitchfromSafStortoDeconisfrontandcenteroftheNRCNotice,aswellastheapplicant'srequestfortheNRC'sconsentbyDecember31,2016inorderto"implementexpediteddecommissioningofVYNPS6."ThisisconfirmedbytheapplicantintheintroductiontoNorthStar'sPSDAR,(quotedinSectionB(above),"TheapplicantsrequestedthattheNRCconsenttothetransfersofthelicensedpossession,maintenance,anddecommissioningauthoritiesbyDecember31,2017,toimplementexpediteddecommissioningoftheVYNPS.[Emphasisadded]".Clearlytheapplicationisaboutmorethanexecutivemusicalchairs,yetthestaffdemonstratesnoneofthe"inquiringattitude"thatNRCexpectsofitslicenseesletalonetakesthe"hardlookatenvironmentalissues"requiredasbyNEPA.NEPArequiresthatafederalagencymakea"goodfaith"efforttopredictreasonablyforeseeableenvironmentalimpactsandthattheagencyapplya"ruleofreason"aftertakinga"hardlook"atpotentialenvironmentalimpacts.Butanagencyneednothavecompleteinformationonallissuesbeforeproceeding.PublicServiceCo.ofOklahoma(BlackFoxStation,Units1&2),LBP-78-26,8NRC102,141(1978).5FederalRegisterNotice82FRN23845atSupplementaryInformation,SectionII6Ibid.

11InordertoadvanceaclaimunderNEPA,theintervenormustallegewithadequatesupportthattheNRCStaffhasfailedtotakea"hardlook"atoneormoresignificantenvironmentalquestions,thatis,thattheStaffhasundulyignoredorminimizedpertinentenvironmentaleffectsoftheproposedaction.PacificGasandElectricCompany(DiabloCanyonPowerPlantIndependentSpentFuelStorageInstallation),CLI-08-26,68NRC509,514(2008);DukeEnergyCorp.(McGuireNuclearStation,Units1&2;CatawbaNuclearStation,Units1&2),CLI-03-17,58NRC419,431(2003)Finally"NewEnglandCoalitionrespectfullyremindsthestaffandtheASLBthatrightafter"UnitedStatesNuclearRegulatoryCommission"thefirstwordsontheNRCwebsiteare"ProtectingPeopleandtheEnvironment"[Emphasisadded].NewEnglandCoalitionrespectfullysuggeststhatNRCStaffalteritsNoticetoreflectthatmotto.b.Unconditionalapprovaloftheproposedlicensetransferisdefactounconditionalapprovalofanuntestedmethodofmanagingdecommissioningundernewandunanalyzedcircumstances.NorthStarhasexplainedtoNewEnglandCoalitionandotherintervenersatthestate-levelthatitwilldividetheworkandcostofdecommissioningintoover800discretefixed-pricecontracts;whenqueriedfordetailsindiscoverybeforetheVermontPublicServiceBoard,ScottState,CEOofNorthStarGroupServices,Inc.replied:NorthStarobjectsonthegroundthatNorthStar'smethodologyisatradesecretandthushighlyconfidentialbusinessinformationthatwould,ifdisclosed,irreparablydamageNorthStar'scompetitiveedgeinthedecommissioningofcommercialnuclearpowerplants.NorthStar'sassociatedcostestimatesareintegraltothismethodologyandalsoconstitutehighlyconfidentialbusinessinformation.7ItisclearthatNorthStar's"tradesecret"methodology,inparticulartheuseofhundredsofBalkanizedfixedpricecontractsunderNorthStar'sfixed-pricearrangementisnewandhasnotbeenfieldtestedatthemagnitudeofcontractsenvisionedforVermontYankeeoritwouldbea7Answer.NEC:JP.1-38VermontPublicServiceBoardDocket8880,JointPetitioners'ResponsestoNEC'sFirstSetofInformationRequests,April26,2017 12tradesecretnolonger.WhatconcernsNewEnglandCoalitionisthatmultiplefixedpricecontractsareinherentlydifficulttosuperviseandqualitativelyevaluate.Infact,thereappearstobenoincentivetodomoreortoexercisegreatercarethanspecifiedinthecontract.Itcouldwellbethatunderafixed-pricecontract,theapproachofdiminishedreturnforhoursinvestedwouldactuallybeadisincentivetocareandattentiontodetail.Itisdisturbing(andpossiblyillegal)thatNorthStardoesnothaveaqualityassurance/qualitycontrolprogramfortheVermontYankeedecommissioning.ScottState,CEO,NorthStarGroupServices,Inc.:NorthStarhasadoptedtheVYsitesQA/QCprogram,seeAttachmentA.NEC.JP.1-42.1,thatiscurrentlyunderrevisionforISFSIonlyoperations[QA/Qconlyforsecurityandsafeguards].Afterclosingofthetransaction,task-specificQA/QCprogramsmaybedevelopedtosupportspecificactivities.A.NEC:JP.1-42,VermontPublicServiceBoardDocket8880,JointPetitioner'sResponsestoNEC'sFirstSetofInformationRequests,April26,201710CFR50.548requiresmaintainingaqualityassuranceprogram.AnychangesrequiringareductionintheprogrammustbesubmittedtoNRC.Thesafetyimplicationsareobviousandmanifold,notwithstandingthatifthisrequirementhadnosafetyimplicationsitwouldbein10CFRPart50.c.Nofurthermeaningfulopportunityforcitizen'stoexercisetheirhearingrightswillbeforthcomingintheVermontYankeedecommissioningprocess.Nodecommissioning-relateddocumentsforwhichpublicnoticeisofferedarerequiredtobefiledbetweenthePSDARandtheLicenseTerminationPlan("LTP").NoopportunityforahearingisofferedforthePSDAR.Untilrulechangesinthelate1990'swentintoeffect,LTP'swereusuallyfiledearlyinthedecommissioning;withintwoyearsofthePSDAR.ThankstoNRC"reform"theLTPisnotnowrequiredtobefileduntilwithtwoyearsofanticipatedlicense8Detailedin10CFR50,AppendixB,"Qualityassurancecriteriafornuclearpowerplantsandfuelreprocessingplants."

13termination.Bythistimemostofthephysicalworkofdecommissioningwillhavebeenaccomplished,renderinganycontentionsrelatedtowasteandmaterialhandling,excavation,soilandconcreteremediation,etc.moot.Thus,bythetimeanopportunityforahearingisoffered,itis,forallpracticalpurposes,worthless.B.CONTENTIONTWONorthStarhasnotperformedaVermontYankeeradiologicalsitesurveyadequatetodeterminerealisticsoilandconcreteremediationcostestimates,withoutwhichitcannotknowhowmuchmoneyandresourceswillactuallyberequiredovertimeandthusitcannotreasonablyassurethatithasadequatefinancialresourcestoownandoperateVermontYankeeforthepurposeofdecommissioningandfuelstorage.1.BASISANDEVIDENCEa.ApparentlyNorthStarisrelyingentirelyonEntergyVY's2014SiteAssessmentStudyforduediligenceinthematterofreasonablyestimatingthecostofradiologicalremediationofsoilandconcrete.ScottState,NorthStarCEOwithrespecttowhatsourceswerereviewedtodeterminetheextentofsitecontamination,TheVermontYankeeHistoricalSiteAssessmentwithRadiologicalSiteandtheNon-RadiologicalSiteHistoricalAssessment('HSAs")providesufficientinformationtoevaluatethesiteconditions-TheRadiological&Non-RadiologicalHSAs,includedintheSiteAssessmentStudy[Emphasisadded],GeneralAreaRadiologicalSurveys,andGroundwaterResults.Thedatacollectedaresufficienttounderstandtherisksandidentifyareasthatrequireadditionalcharacterizationandpotentialremediation.Thisincludesthe2014SiteAssessmentStudy(andallappendices),..NorthStar'sduediligenceconsistedofreviewingtheSiteAssessmentStudy[Emphasesadded]performedbyENVYorEntergyentitieswithsitepersonnelandphysicallywalkingdownthesitetoreviewthesiteworkingconditions.ScottState,AnswerANR:NS.1-3,VermontPublicServiceBoardDocket8880,JointPetitioner'sResponsestoANR'sFirstSetofInformationRequests,April26,2017.ThereferencedsiteassessmentstudyhadnoplaceintheNRCregulatoryscheme;itisratheraninformaldocumentgeneratedasaconditioninaVT/ENVYMOUin2012.Therewerenoacceptancecriteriaforthestudyanditwasunsupportedbyanyfieldsamplingandsampleanalysis.

14Thestudydidnotconsiderthat:a.Duringdecommissioning,thereisaseriousconcernaboutfireprotectionforthestructures,systems,andcomponentscontainingradioactivematerialsinstorage.CapabilitiestomonitorforandrespondtothesekindsofradiologicalemergenciesarenotadequatelyaddressedintheSiteAssessmentStudynorinthePSDARs.Asanexampleofhowfiresinvolvingcontaminatedmaterialscanaffectdecommissioning;VermontYankeehadthepracticeofburningmildlycontaminatedcleaningragsandwasteoilinaburnerinitslow-levelwastestoragebuilding(warehouse).AaresultwhenthebuildingwasdemolishedrecentlytomakewayforasecondISFSI,EntergyVYdeclaredthebuildinginitsentiretytobe"mixedwaste"becauseofradionuclidesclingingtoitssurfaces.Thisissignificantifoneconsidersthepotentialforpassers-byandneighborstoreceiveinhalationdosesduringburningandtheextracostofdisposingofmixedwaste.Theexperienceisnotunique;atMaineYankeeduringdecommissioningadryerfullofcontaminatedcleaningragscaughtfirepromptinglocalvolunteerfirecompaniestoafterwardsetpolicythatunlesstheyweremetatthesiteboundarybyhealthphysicspersonneltheywouldnolongeranswerfirecallsattheplant.Thisanecdotewasinfactexperiencedbythepreparerofthisrequestandpetition.Reasondictatesthatanadequatestudywouldboundtheproblembylocatingsiteswherepotentialmassesofcontaminatedmaterialsusceptibletoignitionmightaccumulateduringdecommissioningandthenforestallingafirebyremovingorlimitingheat,oxygen,and/orfuel.b.Strontium-90hasbeenfoundinlocationswherethatcontaminanthadnotpreviouslybeenidentified.Strontium90isabeta-emitterthusitsemanationsarescreenedfromdetectionbyjustafewmillimetersofsolidoverlay.SeeVermontDepartmentofHealthCommunicationsOffice,Strontium-90DetectedinGroundWaterMonitoringWellsatVermontYankee(Feb.9,2015),http://www.healthvermont.gov/sites/default/files/documents/2016/11/Strontium-90/Detected/in/Ground/Water/Monitoring/Wells/at/Vermont/Yankee.pdf.c.TheVermontDepartmentofHealthalsodetectedcesium-137,strontium-90,andotherlonghalf-liferadioactivematerialsinsoilsamplestakenin2010.Seehttp://www.healthvermont.gov/health-environment/radiologicalhealth/vermont-yankee.

15TheSiteAssessmentStudydidnottouchthesecriticalindicatorsofmorewide-spreadcontamination.NeitherdidEntergyVY'sPSDARandDecommissioningCostEstimate.Withrespecttosoilremoval,Entergyhasstated:ItshouldbenotedthatnoadditionalremediationofthesoilinthevicinityoftheAOGbuildingwasincluded,basedupontheearlierremediation(soilremoval)performedbyEntergyVYandthefindingsfromtheGZAgroundwaterinvestigationthatonlytritiumhadmigratedintothegroundwater.Tritiumisalow-energybetaemitterwithahalf-lifeofapproximately12.3years,decayingtononradioactivehelium.Assuch,anyresidualsub-gradetritiumisnotexpectedtorequireanyfurtherremediationatthetimeofdecommissioninginordertomeetsitereleasecriteria.[Emphasisadded]DecommissioningCostEstimate,§3,page12(emphasisadded;footnoteomitted)Followingthisdeeplyflawedassessment,theDecommissioningCostEstimateisclaimsthat"onlytritiumhasmigratedintothegroundwater"intheareaoftheAOGthusundermining[nopunhere]Entergy'sclaiminthePSDARthatpreviousexcavationoftheAOGleakagesiteeliminatestheneedtoexcavatedeeperthanthreefeetbelowgrade.Seeid.;seealsoid.at§3,page13(notingthatfoundationsandbuildingwallswillonlyberemoved"toanominaldepthofthreefeetbelowgrade").f.Thepresenceofstrontium-90orotherlong-livedradionuclidesinthesoilandinstructures,systems,andcomponentscouldgreatlyincreasethecostsofdecommissioningandsiterestoration.g.Longhalf-lifeandhard-to-detectradioactivematerialsareexpectedtobefoundinsoilsatVermontYankee.IndeedVermontYankeehasahistoryof'hotparticles'instormdrainsthatwaswidelyreportedinthelocalpressandviscommonknowledge.UnlessVermontYankeeisuniqueamongoldnuclearplantswearelikelytoseeasradiologicalcharacterizationisundertakeninearnestthediscoveryofquantitiesofcarbon-14(5,730-yearhalf-life),nickel-63(100-yearhalf-life),strontium-90(29-yearhalf-life),cesium-137(30-yearhalf-life),andothers 16ofthefullreactorinventory9.h.Discoveryoftheseradioactivematerialsandhard-to-detectradionuclidesindecommissioningisfarfromunusualandperhapsclosertoubiquitous.BothMaineYankeeandConnecticutYankeefoundalloftheabovelistedradioisotopesandinaddition:transuranics(radioisotopesofplutonium,curium,neptunium,andamericium)10.i.Carbon-14hasbeenfoundinquantityatotherdecommissioningsitessuchasYankeeRowe.NeitherEntergynorNorthStarhasspecificallyaddressedthisissue.Noevaluations,analyses,orotherbasesforassumingthatcarbon-14willnotbeofconcernindecommissioningVermontYankeehavebeenforthcoming..EvenNorthStar'sRevisedPSDARdoesnotaddressthispotentiallyexpensiveissue.j.Costsoflate-discoveredradio-contaminationcanexceedNorthStar'sreserves.InthecaseofConnecticutYankeedecommissioning,forexample,ConnecticutYankee's("CY")failuretoadviseitsdecommissioningcontractor,Bechtel,ofmassiveamountsofradioactivecontaminationnotcountedinearlyassessmentsledinparttoalmostdoublingdecommissioningcostsfromaround$470milliontoover$900million11.Tobefair,otherconsiderationssuchasincreasedsecurityrequirementstotheirtollforabouthalfofthisincrease,thoughthisisnottosaythatsimilarincreasesout-of-the-blue9Abelquist,EricW.,DecommissioningHealthPhysics,AHandbookforIVIARSSIMUsers(2dEd.201410Letter,ThomasL.Williamson,MaineYankeeDirectorofNuclearSafetyRegulatoryAffairs,toNRC(Jan.16,2002)(ADAMSAccessionNo.ML020440651).11UNITEDSTATESOFAMERICA113FERC¶63,026FEDERALENERGYREGULATORYCOMMISSIONConnecticutYankeeAtomicPowerCompanyDocketNo.ER04-981-000INITIALDECISIONONDECOMMISSIONINGCOSTS(IssuedNovember22,2005) 17cannotpileupatVermontYankee.Fortunately,CY,beingarate-baseplantwasablegetsufficientmoneytocompletedecommissioningfromtheratepayers.EntergyVYbeingamerchantplant,NorthStarwillhavenosuchbackup.III.ADOPTEDCONTENTIONSWithrespectandprofoundgratitudefortheStateofVermont'sdevotedandprofessionaladvocacy,NewEnglandCoalitionadoptsinfullmeasurethestate'sContentionsIandIIasStatedbelowandtogetherwithallsupportingargumentandevidencebyreference.Shouldthestate,foranyreason,havetodropeitherofthesecontentions,NewEnglandCoalitionwillhappily,howeverineptly,takeupitsadvocacy.A.STATEOFVERMONTCONTENTIONITHELICENSETRANSFERANDAMENDMENTREQUESTINVOLVESAPOTENTIALSIGNIFICANTSAFETYANDENVIRONMENTALHAZARD;DOESNOTPROVIDESUFFICIENTEVIDENCETODEMONSTRATETHATITCOMPLIESWITH10C.F.R.§§50.54(bb),50.75(h)(1)(iv),AND50.82(8)(i)(A),(B),AND(C);ANDDOESNOTPROVIDESUFFICIENTEVIDENCETODEMONSTRATETHAT,IFAPPROVED,THEREWILLBEREASONABLEASSURANCEOFADEQUATEPROTECTIONFORTHEPUBLICHEALTHANDSAFETYASREQUIREDBYSECTION182(a)OFTHEATOMICENERGYACT(42U.S.C.§2232(a)).B.STATEOFVERMONTCONTENTIONIITHELICENSETRANSFERANDAMENDMENTREQUESTDONOTINCLUDETHEENVIRONMENTALREPORTREQUIREDBY10C.F.R.§51.53(d),ANDHAVENOTUNDERGONETHEENVIRONMENTALREVIEWREQUIREDBYTHENATIONALENVIRONMENTALPOLICYACTAND10C.F.R.§§51.20,51.70AND51.101.II.CONCLUSIONAlloftheforegoingcontentionsfullymeettherequirementsof10C.F.R.§2.309(f)andthereforeshouldbeadmitted.Specificapplicableregulatoryrequirementsforareidentified.

18NewEnglandCoalitionhasbrieflyexplainedthebasis,withsupportingfactsandevidenceforeachcontentionanddemonstratedthatthesemattersarewithinthescopeoftheproceedingandthattheyarematerialtothefindingstheNRCmustmaketosupporttheproposedlicensetransferandamendment.Forthesereasons,theBoardshouldgranttheNewEnglandCoalition'shearingrequest.Andpetitionforleavetointervene.III.CERTIFICATIONOFSERVICETheundersignedherebycertifiesthatallpartiesontheservicelistwereprovidedservicethroughtheNRC(EIE)electronicfilingsystemonJune27,2017.Respectfullysubmitted,Signedelectronically,RaymondShadisProSeforNewEnglandCoalitionPostOfficeBox76Edgecomb,Maine04556207-380-5994shadis@prexar.com