No. 80-1579. Argued March 5, 1981. Decided May 22, 1981. Joseph W. Ambash, Boston, Mass., with whom Kevin J. Fitzgerald and Foley, Hoag Eliot, Boston, Mass., were on brief, for petitioner. Richard S. Zuckerman, 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, and Elliott Moore, Deputy Associate Gen. Counsel, Washington, D.C., were on brief, for respondent. Petition for review of an order