SWYGERT, Senior Circuit Judge.
The plaintiff, States Steamship Company ("States"), is a common carrier operating cargo vessels. It qualified for and received operating subsidies from the Maritime Administration ("MARAD") pursuant to the Merchant Marine Act of 1936, ch. 858, 49 Stat. 1985, 46 U.S.C. §§ 1101 et seq. ("the Act"). As a condition to receiving subsidies, States was required under section
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