Posted 12/14/11 by Benjamin Miller
Last week, I had the opportunity to speak with Dr. Robert M. Costrell, an expert on teacher pensions and author of two Wall Street Journal op-eds from the last year ("Oh, To Be a Teacher in Wisconsin," February 25, 2011, and "Collective Bargaining Weakens Cities," November 23, 2011). In addition to writing extensively about the challenges posed by union-negotiated public employee benefits, Dr. Costrell has direct experience trying to address these challenges as an economic and education adviser to three governors of Massachusetts. Dr. Costrell kindly agreed to answer some of my questions about public unions, collective bargaining, and the manageability of government. A transcript of our conversation, edited for length and clarity, follows below:
Benjamin Miller: Your recent op-ed draws a distinction between state versus local unions. You argue that local governments are in a much weaker bargaining position relative to state and national public unions.
Robert Costrell: The evidence of it is in the results: more expensive health care benefits in particular. In at least some states, particularly the three I wrote about [Ohio, Wisconsin, and Massachusetts], they were more expensive at the local level than they were for state employees, for a number of reasons.
I’ll give you a clear example that I learned from my seven years at the state house in Massachusetts. In each state you typically have two houses, the Senate and the House of Representatives, and the House obviously has smaller districts. In each of those districts one of the most active groups is the [union for] teachers and other school employees. They’re all under the umbrella of one of the two state teachers’ unions, affiliated with the NEA [National Education Association] or the AFT [American Federation of Teachers]. So they’re very powerful and influence both Democratic and Republican legislators.
State employee unions are very influential as well, and many states will have to sit down and collectively bargain with them. But the state employees are concentrated in or around the state capital. So they do not have the type of influence district by district as the teachers’ unions.
BM: This discrepancy between the state and local influence of these organizations has significant fiscal effects. You say that in Massachusetts, the health insurance benefits on the local level were 37% higher than on the state level?
RC: The estimate by the Massachusetts Municipal Association—which is aligned more closely with the Democrats than the Republicans—was that the new law would save as much as $100 million a year, by allowing the localities to change the design of their health plans. Mostly by setting copayments and deductibles to match those offered in the state plans.
BM: It’s clear that a lot of these contracts with public employee unions on both the local and state level have stood in the way of the governments trying to make necessary fiscal choices, because they precommit large portions of their budgets that then can’t be adjusted when public needs change.
RC: You’re getting close to what I think is a critical distinction to be made between bargaining over wages and bargaining over benefits. When you’re bargaining over wages, you’re bargaining over a known dollar quantity. When you’re bargaining over benefits, you’re bargaining over plan design—co-payments, deductibles, and so on—and you have only limited control over what the actual cost trajectory of those benefits is going to be.
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