My point is precisely that most state employees are not free to interpret law as they see fit. The rules defining hiring, retention, pay raises, etc., are writt

My point is precisely that most state employees are not free to interpret law as they see fit. The rules defining hiring, retention, pay raises, etc., are written quite precisely across the board, not just for teachers. Trying to game the system is a breach of ethics, if not an outright crime. I'm not trying to defend the public-sector model -- there are obvious inefficiencies, and many of the best potential hires would never even consider a government job for many of the same reasons you suggested. I'm just not sure how better to balance the need to be accountable to the taxpayers with the desire of administrators to pay their staff according to ability, not just seniority.