No. 84-1778. Argued March 4, 1985. Decided May 23, 1985. Paul J. Spielberg, Deputy Asst. General Counsel, Washington, D.C., with whom Marjorie S. Gofreed, Rosemary M. Collyer. General Counsel, John E. Higgins, Jr., Deputy General Counsel, Robert E. Allen, Associate General Counsel, and Elliott Moore, Deputy Associate General Counsel, Washington, D.C., were on brief for petitioner. Carl A. Schwarz, Jr., New York City, with whom Raymond L. Vandenberg, Brian D. Sullivan, Kenneth A. Margolis, and Finley