Governments should consult with the relevant employers` and trade union organizations when setting minimum benefits and the minimum number of workers needed for their performance, in order to ensure that the minimum level of service does not lead to the ineffectiveness of the strike due to its limited effects.  Differences of opinion regarding the setting of these minimums should be settled by an independent body and not by the Ministry of Labour or the ministry or (public) enterprise concerned.  Question: What are the topics that can be covered by collective bargaining? Consultation should not be seen as a substitute for collective bargaining. If collective bargaining has resulted in an agreement, for example an increase in wages, these agreements are called collective agreements. Collective agreements within the company can cover both unionized and non-unionized employees, as unions often negotiate on behalf of employees employed in a particular group. This group is called a bargaining unit. Workers are not forced to join a union in a particular workplace. Nevertheless, most sectors of the economy are subject to a collective agreement with an average trade union organization of 70%. An agreement does not prohibit higher wages and better benefits, but sets a legal minimum, similar to a minimum wage. In addition, often, but not always, a national agreement on income policy is reached that includes all trade unions, employers` associations and the Finnish government.  However, the case law on freedom of association and collective bargaining states that «the closure of an undertaking must not in itself entail the termination of the obligations arising from the collective agreement, in particular as regards compensation in the event of dismissal».  However, the existence of freedom of association does not necessarily mean that trade unions are automatically recognized for bargaining purposes. .