GROWING UNION ORGANIZATION OF GOVERNMENT EMPLOYEES IS ATTRIBUTED TO THREE MAIN FACTORS--(1) UNION NEED OF LARGER MEMBERSHIP FOR INCREASED INCOME AND PRESSURE GROUP STRENGTH, (2) SUCCESSFUL ORGANIZATION OF GOVERNMENT WHITE COLLAR WORKERS TO PROVIDE UNION LEADERS WITH AN IMPORTANT WEDGE IN ORGANIZING WHITE COLLAR WORKERS IN THE PRIVATE SECTOR, AND (3) UNION ACTIVISTS VIEW THAT UNIONISM WILL RAISE WORKING CONDITIONS, WAGES, AND FRINGE BENEFITS OF GOVERNMENT EMPLOYEES TO LEVELS FOUND IN THE ORGANIZED PRIVATE SECTOR. TEACHER ORGANIZATION NEGOTIATIONS HAVE RESULTED FROM THE DESIRE OF TEACHERS FOR GREATER SECURITY OR CONTROL OVER THEIR WORKING CONDITIONS AND FOR ELIMINATION OF EMPLOYER DISCRIMINATION IN DECISIONS AFFECTING TEACHERS. FOR BOTH SUPERINTENDENTS AND TEACHERS, A SUGGESTED ALTERNATE TO THE PRESENT ALL-INCLUSIVE NEA ORGANIZATION IS A COMMUNITY-LEVEL STRUCTURE WHICH WOULD PROVIDE FOR NEGOTIATIONS BETWEEN THE LOCAL TEACHER ORGANIZATION AND THE SUPERINTENDENT AS DISTINCT UNITS BUT WOULD INCLUDE THEM IN THE SAME STRUCTURE ON THE STATE AND NATIONAL LEVEL. NEGOTIATION IS VIEWED AS A COMPLEX PROCESS REQUIRING THOROUGH PREPARATION, AN UNDERSTANDING OF THE TOTAL NEGOTIATION PROCESS, AND CAREFUL PLANNING FOR THE ADMINISTRATION OF A NEW LABOR AGREEMENT. THE ADEQUATE RESOLUTION OF NEGOTIATION IMPASSES DEPENDS UPON A PROBLEM-SOLVING ORIENTATION ON THE PART OF MANAGEMENT AND A WILLINGNESS TO NEGOTIATE WITHIN THE LIMITS OF MANAGERIAL RESPONSIBILITY. THE COMPLETE DOCUMENT "COLLECTIVE NEGOTIATIONS AND EDUCATIONAL ADMINISTRATION," OF WHICH THIS IS CHAPTER 4, IS AVAILABLE FROM THE UNIVERSITY COUNCIL FOR EDUCATIONAL ADMINISTRATION, 65 SOUTH OVAL DRIVE, COLUMBUS, OHIO 43210, AND FROM DR. ROY B. ALLEN, COLLEGE OF EDUCATION, UNIVERSITY OF ARKANSAS, FAYETTEVILLE, ARKANSAS 72701, FOR $2.50. (JK)