No. 80-1723. Argued April 8, 1981. Decided June 23, 1981. Carlton James Trosclair, Washington, D.C., with whom Holly A. Silver, Washington, D.C. was on brief, for petitioner. Gabriel O. Dumont, Jr., Boston, Mass., with whom James T. Grady and Grady McDonald, Boston, Mass., were on brief, for intervenor. Barbara Gehring, Atty., Washington, D.C. with whom William A. Lubbers, Gen. Counsel, John E. Higgins, Jr., Deputy Gen. Counsel, Robert E. Allen, Acting Associate Gen. Counsel, Elliott Moore, Deputy