No. 80-1619. Heard March 2, 1981. Decided April 21, 1981. Rehearing and Rehearing En Banc Denied May 18, 1981. Malcolm E. Morrell, Jr., Bangor, Maine, with whom Clare Hudson Payne, and Eaton, Peabody, Bradford Veague, Bangor, Maine, were on brief, for petitioner. Susan T. Papadopoulos, Atty., with whom William A. Lubbers, General Counsel, John E. Higgins, Jr., Deputy General Counsel, Robert E. Allen, Acting Associate General Counsel, Elliott Moore, Deputy Associate General Counsel, William Wachter