OPINION
PREGERSON, Circuit Judge:
Title VII of the Civil Service Reform Act of 1978, 5 U.S.C. §§ 7101-7135, governs labor-management relations within the federal civil service. The act guarantees employees of virtually all federal agencies, id. § 7103(a)(3), the right to bargain collectively over conditions of employment, id. § 7102(2),
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