Prior to drafting State legislation pertaining to collective negotiation in education, it is necessary to understand the essential differences between public and private employment and to determine whether teachers should be included under a statute covering many categories of public employees or whether they should receive separate statutory treatment. Following this determination of the general legislative approach, several decisions must be made concerning the following content areas of the statute: (1) Rights and obligations of employers and employees; (2) structure of the negotiating unit; (3) type of recognition; (4) ascertaining employee choice; (5) scope of negotiation; (6) negotiation impasse; and (7) strikes and penalties. (JH)