The trade union UNISON has been negotiating with the Convention of Scottish Local Authorities, which represents Scottish councils, for more than two years but the parties have yet to reach a settlement.
Joe Di Paola, UNISON's Scottish organiser for local government, said the dispute had been dragging on for too long and that it was time to escalate action. A ballot on "all-out indefinite strike action" will take place in the next three weeks.
Nursery nurses started industrial action, such as boycotting selected duties, last May. Pay agreements have been reached with four of the Scottish local authorities, but UNISON wants to establish a national pay scale.
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