No. 93-1803. Argued October 29, 1993. Decided April 27, 1994. As Amended on Denial of Rehearing June 23, 1994. John T. Allen, Jr. (argued), Bullwinkel Partners, Chicago, IL, for petitioner. James W. Tegtmeier (argued), F.A.A., Washington, DC, for F.A.A. Daniel D. Campbell, Nat. Transp. Safety Bd., Office of Gen. Counsel, Washington, DC, for Nat. Transp. Safety Bd. Appeal from the National Transportation Safety Board. Before CUMMINGS and CUDAHY, Circuit Judges, and LEINENWEBER, District Judge. The