diff --git a/core/api/src/main/java/org/onosproject/net/flow/DefaultTrafficTreatment.java b/core/api/src/main/java/org/onosproject/net/flow/DefaultTrafficTreatment.java
index e8a131b..9562a73 100644
--- a/core/api/src/main/java/org/onosproject/net/flow/DefaultTrafficTreatment.java
+++ b/core/api/src/main/java/org/onosproject/net/flow/DefaultTrafficTreatment.java
@@ -18,7 +18,6 @@
 import com.google.common.base.MoreObjects;
 import com.google.common.collect.ImmutableList;
 import com.google.common.collect.Lists;
-import org.apache.commons.collections.ListUtils;
 import org.onlab.packet.EthType;
 import org.onlab.packet.IpAddress;
 import org.onlab.packet.MacAddress;
@@ -81,7 +80,10 @@
                                    Instructions.MetadataInstruction meta) {
         this.immediate = ImmutableList.copyOf(checkNotNull(immediate));
         this.deferred = ImmutableList.copyOf(checkNotNull(deferred));
-        this.all = ListUtils.union(this.immediate, this.deferred);
+        this.all = new ImmutableList.Builder<Instruction>()
+                .addAll(immediate)
+                .addAll(deferred)
+                .build();
         this.table = table;
         this.meta = meta;
         this.hasClear = clear;