No. 81-1329. Argued November 4, 1981. Decided February 16, 1982. Rehearing and Rehearing En Banc Denied April 26, 1982. Richard C. Hotvedt, Washington, D.C. (Susan S. Sauntry, Donald L. Havermann, Morgan Lewis Bockius, Washington, D.C., R. Harvey Chappell, Jr., Christian, Barton, Epps, Brent Chappell, Richmond, Va., Hugh M. Finneran, Pittsburgh, Pa., on brief), for petitioner. Daniel R. Pollitts, Washington, D.C. (William A. Lubbers, Gen. Counsel, John E. Higgins, Jr., Deputy Gen. Counsel, Robert