No. 75-1070. Argued October 7, 1975. Decided December 10, 1975. Robert A. Giannasi, Asst. Gen. Counsel, Washington, D.C., with whom John C. Miller, Acting Gen. Counsel, John S. Irving, Deputy Gen. Counsel, Elliott Moore, Deputy Assoc. Gen. Counsel, and Elinor Hadley Stillman, Atty., Washington, D.C., were on brief for petitioner. Alan J. Levenson, Portland, Me., with whom Clarke C. Hambley, Jr., and Levenson Levenson, Portland, Me., were on brief for respondents. Before COFFIN, Chief Judge, McENTEE