Concurring opinion filed by Circuit Judges STARR and D.H. GINSBURG.
HARRY T. EDWARDS, Circuit Judge:
In July 1985, the National Labor Relations Board Union (the "Union") petitioned the Federal Labor Relations Authority (the "FLRA") to amend 5 C.F.R. §§ 2423.5 and 2424.5 (1987).
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