No. 78-1472. Argued April 4, 1979. Decided July 10, 1979. William M. Bernstein, Washington, D.C., with whom John S. Irving, Gen. Counsel, John E. Higgins, Jr., Deputy Gen. Counsel, Robert E. Allen, Acting Associate Gen. Counsel, Elliott Moore, Deputy Associate Gen. Counsel, and John G. Elligers, Washington, D.C., on brief, for petitioner. Murray S. Freeman, Boston, Mass., with whom David E. Watson and Nutter, McClennen Fish, Boston, Mass., on brief, for respondent. Before COFFIN, Chief Judge, CAMPBELL