California's Winton Act has enhanced the California Teacher Association (CTA) position over the American Federation of Teachers (AFT) position in relating to school boards. Because of its proportional representation, the legally established negotiating council has not integrated the rival organizations into one voice. The AFT tendency to work outside the formal structure allows the CTA voice to speak for teachers. Power relations between school boards and the CTA have influenced the "meet and confer" requirement, resulting in local variations in its interpretation. Further trouble is created by a lack of impasse procedures in the law, which leads to direct confrontation and strikes. Because of power differences between teachers, administrators, and school boards, the Winton Act assumption of professional orientation and unity of interest has not proven realistic and modification toward private sector bargaining may be forthcoming. (Author/DW)