Opinion for the Court filed by Circuit Judge WILLIAMS.
Dissenting opinion filed by Senior District Judge GORDON.
WILLIAMS, Circuit Judge:
A provision of the Federal Sector Labor-Management Relations Statute ("FSLMRS" or the "Statute"), 5 U.S.C. §§ 7101-7135 (1982), provides that a government agency commits an unfair labor practice if it "sponsor[s], control[s], or otherwise assist[s] any labor organization," unless the assistance is "customary...
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