Gov. Butch Otter still is concerned about state workers' salaries lagging below market levels, Otter's budget chief, Wayne Hammon, told legislative budget writers; it's an issue Otter emphasized at the outset of his first term as governor, calling for a series of big pay boosts. Nevertheless, he's proposing no pay increases next year. "The state employees still lag in most areas," Hammon said. "However we just can't afford it at this time."