The Agencies suggest that Regulations' failure to ensure collective bargaining can be remedied by an injunction limited to those provisions of 5 C.F.R. ?? 9701.506(a)4 and 5 C.F.R. ?? 9701.515(d)(5)5 that would authorize DHS to invalidate terms of a collective bargaining agreement based upon implementing directives" or other policies and regulations" issued after the collective bargaining agreem