I'm talking about both and you know it.  The taxpayer doesn't get 'certainty' in what they are paying employees as all the fuss over COLA's and Merit pay have shown.   Its no easier for the employer to budget for the whims of a group of legislators that want to fund their own projects at the expense of current employees. Or are you saying that the employers should just budget no raises ever for any employees because that is exactly what has happened more often than not?