No. 1075, Docket 90-4130. Argued February 28, 1991. Decided March 21, 1991. Marilyn O'Rourke, Washington, D.C. (Jerry M. Hunter, Gen. Counsel, Robert E. Allen, Associate Gen. Counsel, Aileen A. Armstrong, Deputy Associate Gen. Counsel, Howard E. Perlstein, Supervisory Atty., Peter D. Winkler, Robert N. Herman, Office of Gen. Counsel, John Truesdale, Office of Executive Secretary, Washington, D.C., Peter B. Hoffman, Office of the Director, Hartford, Conn., of counsel), for petitioner. Robert B. Mitchell