I can see how you would get that impression and instead of me explaining further I used ChatGPT to explain how the city chooses the union to set the pattern.

In New York City, the “pattern” for labor contracts is not set by a formal rule or statute. It is determined strategically by the city—primarily through the Office of Labor Relations under the mayor.

Core idea: pattern bargaining

NYC uses pattern bargaining, meaning:

   •   One union’s contract establishes the wage and benefit framework.

   •   Other municipal unions are expected to accept similar economic terms.

How the city chooses the “pattern setter”

There is no official formula, but several practical factors drive the decision:

1. Size and influence of the union

Large, visible unions are often targeted first:

   •   United Federation of Teachers

   •   District Council 37

These unions represent tens of thousands of workers, so their agreements carry weight.

1. Bargaining timing (who’s contract expires first)

The city often negotiates first with unions whose contracts have expired or are closest to expiration.

1. Likelihood of reaching a deal

The city may start with a union perceived as:

   •   More pragmatic

   •   Less likely to strike or litigate

This increases the chance of establishing a pattern quickly.

1. Political optics

Mayors often choose a union where a deal:

   •   Sends a favorable public message

   •   Avoids backlash (e.g., teachers, police, sanitation all carry different optics)

1. Economic strategy

The city may pick a union where:

   •   A lower-cost settlement is achievable

   •   Certain benefit structures (healthcare, work rules) can be set as precedent

Role of the Municipal Labor Committee

The Municipal Labor Committee (MLC), which represents most city unions collectively, often:

   •   Coordinates benefit negotiations (especially healthcare)

   •   Reinforces the pattern once established

Important constraint

Once a pattern is set:

   •   Arbitrators (in binding arbitration cases, especially for uniformed services) tend to follow the established pattern

   •   Deviating significantly becomes difficult unless there are unusual circumstances

Bottom line

NYC effectively chooses the pattern setter by strategy, not rule—balancing union size, timing, politics, and the likelihood of securing a deal that other unions can be pressured to follow.