Four years ago, California Rep. Ro Khanna’s staff voted to unionize — one of a handful of Democratic offices that sought to ride a wave of organizing momentum during then-President Joe Biden’s administration.

Much has changed since, to put it mildly, but Khanna aides persevered and recently won approval of their first collectively bargained contract — the first labor agreement of its kind inside Congress.

“This was four years in the making,” Nicole Waring, a deputy director of constituent services for Khanna and the union steward, said in an interview. “We finally, finally reached the point where we were able to finalize our contract and ratify it.”

The agonizing process of turning pro-union enthusiasm into an actual binding agreement is both a breakthrough for the fitful labor movement on Capitol Hill while also underscoring how that movement has sputtered in the years since Biden left office, Donald Trump took back the White House and unionization moved off the front burner for Democratic staffers.

Since an initial wave of offices voted to unionize in 2022, that momentum has largely petered out. Less than a dozen offices are now unionized as staffers’ efforts are complicated by heavy workloads, adversarial bosses and Congress’ recent record high turnover rates that have led some aides to the conclusion that unionizing is more trouble than it’s worth.

Against that backdrop, that the eight-person union in Khanna’s office was able to win a contract constitutes a bright spot for organizers.

The agreement establishes a higher salary floor and a mechanism to renegotiate salaries if the office’s budget allowance increases, according to Waring and portions of the text reviewed by POLITICO.

The document also codifies a procedure to resolve internal grievances. When Khanna almost certainly wins reelection, the agreement — which was officially ratified in August — will continue through next term.

“I’m proud of our office for signing the first long-term contract in the history of the U.S. Congress. I hope this can serve as a model for other offices in Congress,” Khanna said in a statement thanking his staff. “We need to be a model for the collective bargaining in our offices that we want to see across our nation.”

Waring said Khanna and his senior aides were supportive and trusting during contract negotiation but noted that, even under those positive circumstances, the effort was time- and labor-intensive.

“There’s a lot of back and forth. It takes time to review each passback of the contract, redline everything,” Waring said. “The biggest thing was we wanted to make sure that this contract would be governable, and rather than just make things convenient and take shortcuts, make sure that it was going to be something that we knew would stand the test of time.”

Khanna’s chief of staff, Marie Baldassarre, said in an interview the process for her office took years because “we realized like this is going to actually impact people’s lives, and it’s a binding contract, and so we have to get it right.”

“It’s just never been done before, and none of us were experts,” she added.

Staffers on Capitol Hill often face a grueling office cultures that can hamstring efforts to advance worker protections. Staffers for pro-labor Rep. Dina Titus (D-Nev.), for example, voted to unionize in 2023 but then faced internal retaliation, according to the Nevada Independent.

Staffers for lawmakers across the ideological spectrum can be subjected to long hours, eyebrow-raising member requests and unrelenting demands that can spur staffer interest in pursuing labor protections — but also fears about potentially hindering their careers.

A person involved in the Congressional Workers Union — an umbrella group that provides support to individual office bargaining units — called the Khanna office contract “historic” and acknowledged it was “probably the biggest win recently” for the broader organizing effort.

“There’s small wins all the time,” added the person, who was not authorized to speak publicly on behalf of the group.

Staffers for former Rep. Andy Levin (D-Mich.) ratified a contract in the final days of his term in December 2022. While that contract was technically the first for a member office, it was largely symbolic given Levin’s imminent departure. Staff for Reps. Mark Pocan (D-Wis.) and Val Hoyle (D-Ore.) secured “memorandums of understanding” with their members in 2024, but not formal contracts.

“Hats off to them for getting it done,” Levin said in an interview. “In terms of what comes next, much will depend on the outcome of the midterms.”

Levin, a labor attorney, said that Republican majorities and White House have had a chilling effect on Capitol Hill unions and predicted that if Democrats take back the House majority next year, a flurry of labor activity will ensue. He added that several Democrats with close ties to organized labor are poised to enter the House, naming fellow Michigan Democrat and former SEIU organizer Donavan McKinney.

“In this political climate, the idea of getting contracts negotiated on the Hill, where it’s hardly ever been done, I think that seems very challenging to me,” Levin said. “I do think it’s great that another office has gotten the first contract, and I think the momentum will continue to grow from here.”

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