The development of nuclear weapons during World War II raised a number of difficult nonmilitary questions for the United States. Most scientists and many politicians realized that the technology used in weapons research had the potential for use in a variety of peacetime applications. In fact, research on techniques for controlling nuclear fission for the production of electricity was well under way before the end of the war.

An intense Congressional debate over the regulation commercial nuclear power resulted in the creation in 1946 of the Atomic Energy Commission (AEC). The AEC had two major functions: to support and promote the development of nuclear power in the United States and to monitor and regulate the applications of nuclear power.

Some critics pointed out early on that these two functions were inherently in conflict. How could the AEC act as a vigorous protector of the public...