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A Solution in Search of a Problem
By Mike McManus, Director of Engineering Construction & Industry Relations
We have heard for years that “wage theft” is a big problem in the construction industry. It is a narrative that has been peddled by a few elected officials in this region as a justification for making certain policy choices, such as requiring prevailing wages to be paid for traffic control on San Diego city streets on private developer projects. A report just issued by the City of San Diego Office of Labor Standards Enforcement (OLSE) does not support the rampant "wage theft" narrative.
The Prevailing Wage Ordinance was passed by the San Diego City Council in 2013 and requires all City awarded contracts to comply with State prevailing wage laws for work performed on roads, buildings, and parks. The Ordinance applies to public works projects, specifically construction work over $25,000 and any alternation, demolition, repair, or maintenance work over $15,000. The OLSE monitors and enforces prevailing wage labor compliance requirements on all City-awarded public works projects under the Ordinance.
The recently issued report by OLSE covered construction projects underway in the fiscal year ending last July. The findings are surprising given the consistent narrative of “wage theft” on the public record at multiple agencies with no factual basis ever given. Just rumors. Here are the facts.
The report notes that 90 construction projects worth about $800 million were underway in the 2023 fiscal year. All contractors and subcontractors performing work on public works projects are required to submit certified payroll records (CPRs) to the city. OLSE reviews these reports to ensure proper payments are made to workers based on the appropriate wage determination(s) and the work being performed. OLSE issues delinquency notices to contractors who are late in providing CPRs to the City. Any discrepancies found are addressed in a formal notice to the contractor or subcontractor. Prevailing wage violations not corrected or disputed by a contractor are reported to the Department of Industrial Relations (DIR).
So, how many contractors were given a fine by DIR after all this investigation and review by OLSE? An effort that cost millions of dollars in staff time at the city and by contractors and hundreds of millions of dollars in pay and benefits paid to construction workers? One Orange County contractor was penalized by the DIR with a civil wage and penalty assessment to the tune of $21,000.
OLSE said in the report that they also identified $330,928 in prevailing wage underpayments and inconsistencies in CPRs submitted to the city. Staff recovered $54,669 in worker back wages through voluntary compliance by contractors and verification of payments to workers. Contractor entry errors accounted for $121,466 of the assessed wage violations. The staff verified that the correct prevailing wage rates were given to workers through the review of source documentation, such as itemized wage statements, training fund contribution payments, and fringe benefit statements.
Based on staff compliance monitoring, 28 violation notifications were issued to the DIR, including $78,313 in prevailing wage underpayments that contractors failed to remedy after receiving notifications from OLSE. It is important to note that the 28 violation notifications that were reported to the DIR were done so because the contractor disputed the city’s interpretation of prevailing wage laws. Those “violations” are unresolved disputes between the city staff and contractors.
In summary, most of the “violations” are either unresolved disputes, entry errors by contractors determined to comply, or were paid eventually voluntarily by contractors after correcting a paperwork error. It seems like OLSE is mostly a solution in search of a problem.
However, OLSE does provide some safeguards that we support. They continue to enforce prevailing wage requirements on all City-awarded public works projects. This helps to create a fair and level playing field among contractors bidding on City projects by ensuring consistency in the application of State and federal labor laws. They also provide publicly released facts about the extremely high level of compliance with prevailing wage laws by contractors that should eventually blunt the narrative of rampant "wage theft."
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