HomeMy WebLinkAbout98.01-24-2018 Board Meeting ONLINE Agenda Item 6 Attachment - Labor Compliance Policies_Procedures Manual.pdf
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Labor Compliance Policies and Procedures Manual
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Table of Contents
1 INTRODUCTION ....................................................................................................... 5
2 LABOR COMPLIANCE PROGRAM ......................................................................... 6
2.1 Statutes and Applicability ................................................................................................. 6
2.2 Overview of LCP Regulations .......................................................................................... 6
3 OVERVIEW: ENSURING LABOR COMPLIANCE .................................................... 8
4 ROLES AND RESPONSIBILITIES OVERVIEW ....................................................... 9
4.1 Labor Compliance Officer: General Responsibilities ...................................................... 9
4.2 Contractor’s Responsibilities ........................................................................................ 10
5 PRE-CONSTRUCTION ACTIVITIES ...................................................................... 12
5.1 Providing Bid Language to Awarding Bodies Prior to Bid ............................................ 12
5.2 Pre-Bid Meeting - 1st Opportunity to Notify Contractor of LCP Requirements .............. 12
5.3 Bid Review Activities ..................................................................................................... 13
5.4 Project Management Tracking ...................................................................................... 15
5.5 Project Start-Up Activities ............................................................................................. 15
5.6 Pre-Construction Meeting .............................................................................................. 16
6 REVIEWING DAS REQUIREMENTS ...................................................................... 23
6.1 LCP Duties Regarding Apprentices .............................................................................. 23
6.2 Prevailing Wage for Apprentices .................................................................................. 23
6.3 Apprentice Usage Requirements .................................................................................. 24
7 DELINQUENT PAYROLL RECORDS AND WITHHOLDING PROCESS ............... 26
8 DOCUMENT REVIEW PROCESS ......................................................................... 29
8.1 Reviewing CPRs ............................................................................................................ 29
8.2 Essential Information on CPRs ...................................................................................... 30
8.3 Reviewing and Inspecting CPRs ................................................................................... 32
8.4 How to: Determine a Prevailing Wage Rate .................................................................. 33
8.5 Other Documents to Review .......................................................................................... 38
9 FIELD MONITORING .............................................................................................. 41
9.1 Content of Employee Interviews .................................................................................... 42
9.2 HOW TO: Conduct an On-Site Interview ....................................................................... 46
9.3 Postings ......................................................................................................................... 46
9.4 Field Investigation Notes ............................................................................................... 49
10 WORKER and THIRD PARTY COMPLAINTS ....................................................... 50
11 AUDITING PROCESS ............................................................................................ 52
11.1 HOW TO: Audit Certified Payroll Records ..................................................................... 55
11.2 HOW TO: Audit Trust Fund Reports .............................................................................. 56
11.3 HOW TO: Audit Training Fund Payments .................................................................... 56
11.4 HOW TO: Prepare an Audit Letter ................................................................................ 58
11.5 HOW TO: Prepare an Audit Worksheet ........................................................................ 59
11.6 Public Works Audit Worksheet ...................................................................................... 60
11.7 Prevailing Wage Determination Summary ..................................................................... 62
11.8 Public Works Investigation Worksheet .......................................................................... 63
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11.9 Public Works Audit Worksheet ...................................................................................... 66
12 AUDIT FINDINGS AND RESULTS ......................................................................... 69
12.1 Wage Violations .............................................................................................................. 69
12.2 Preparing a Determination.............................................................................................. 69
12.3 Case Preparation ............................................................................................................ 69
13 NOTIFICATION ....................................................................................................... 73
13.1 Notification to 3rd Party Agencies and Workers Regarding Requests for
Documentation......................................................................................................................... 74
13.2 Public Payroll Records Requests .................................................................................. 74
14 ISSUES MANAGEMENT ........................................................................................ 77
15 ISSUE RESOLUTION & RESTITUTION PAYMENTS ............................................ 78
15.1 Contractor Submits Restitution Check – Staff forwards Check to Affected Parties ...... 78
15.2 Contractor Submits Mitigating Evidence ........................................................................ 79
15.3 Contractor is Non-Responsive ....................................................................................... 79
15.4 Issue Follow-Up ............................................................................................................. 80
15.5 Issue Closeout ............................................................................................................... 80
16 ASSESSMENT PROCESS ..................................................................................... 81
16.1 Labor Commissioner Assessment and Review of Assessment Process ....................... 81
16.2 Civil Proceedings and Request for Review Processes.................................................. 83
16.2.1 Requesting a Review of Forfeitures from the Labor Commissioner ........................... 83
16.2.2 Preparing a Determination/Assessment Narrative ..................................................... 83
16.2.3 Preparing a Request for Review of Forfeitures .......................................................... 84
16.2.4 Approval of Forfeitures ............................................................................................... 87
16.2.5 Notice of Withholding of Contract Payments .............................................................. 87
16.2.6 Hearings/Civil Proceedings ......................................................................................... 92
16.3 Penalties Imposed by the Labor Commissioner ............................................................ 99
16.4 Payments to be Withheld or Forfeitures to be Imposed by The District ...................... 101
16.5 Forfeitures Requiring Approval by the Labor Commissioner ....................................... 102
16.6 Determining Amount of Forfeiture by the Labor Commissioner .................................. 102
16.7 Conditions in which OCSD Shall Withhold Payments ................................................. 104
16.8 Referring Violating Contractors to the Underground Economy Task Force ................ 105
16.9 Deposits of Penalties and Forfeitures Withheld ........................................................... 106
17 SETTLEMENT AUTHORITY ................................................................................. 107
18 PROJECT CLOSEOUT ........................................................................................ 108
18.1 Final Documents .......................................................................................................... 108
18.2 Request for Authorization to Release Final Payment .................................................. 108
19 REPORTING AND MONITORING ACTIVITIES .................................................... 109
19.1 Labor Compliance Review & Enforcement Reports .................................................... 109
19.2 Annual Reports ............................................................................................................ 109
20 PROJECT FILES – LCP Document Control System .......................................... 110
20.1 Electronic Project Tracking Log ................................................................................... 110
20.2 Audit File System ......................................................................................................... 111
21 DOCUMENT SECURITY AND LOCKDOWN ........................................................ 114
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22 TERMS, DEFINITIONS AND ACRONYMS ........................................................... 115
Appendix A: Sample Pre-Bid Meeting Handout ...................................................... 128
Appendix B: Sample Project Management Tracking Sheet ................................... 129
Appendix C: Audit Rationale Sheet ......................................................................... 130
Appendix D: Worker Complaint Form (English) ..................................................... 131
Appendix D: Worker Complaint Form (Spanish Sample) ....................................... 134
Appendix E: Training Program Agenda ................................................................... 137
Appendix F: Labor Compliance Review & Enforcement Report Form .................. 140
Appendix G: Manual Receipt & Review Signature Sheet ....................................... 144
Appendix H: Sample Template for a Written Audit Narrative ................................. 145
Appendix I: Request for Approval of Forfeiture ...................................................... 155
Appendix J: DIR-PWC 100 Sample Form ................................................................. 157
Appendix K: Annual Report Reporting Form LCP-AR1 .......................................... 159
Appendix L: LCP Checklist ...................................................................................... 162
Appendix M: DAS 140 Project Award Notification .................................................. 165
Appendix N: DAS 142 Request for Apprentices ..................................................... 166
Appendix O: Fringe Benefit Statement .................................................................... 167
Appendix P: Certified Payroll Report....................................................................... 168
Appendix Q: Statement of Compliance ................................................................... 169
Appendix R: Non-Performance Statement .............................................................. 170
Appendix S: CAC 2 Form.......................................................................................... 171
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1 INTRODUCTION
The purpose of this manual is to provide the Orange County Sanitation District (OCSD)
with guidelines for the review of a contractor’s compliance with the California Labor Code. For more than 60 years, the California Labor Code has required that workers employed by contractors or subcontractors, in the execution of public works contracts, must be paid the state-determined prevailing wage. Proposition 84-funded projects (Prop 84)
additionally require a Labor Compliance Program (LCP) to monitor and enforce the
requirements of the California Labor Code efficiently, as well as to handle the processing, investigation and resolution of violations. California Labor Code §1720 defines public works as any pre-construction or construction
activity, including alteration, demolition, repair or maintenance work, paid for in whole or
in part by public funds. California Labor Code §1771 establishes the minimum requirements for payment of prevailing wages and the requirements of an LCP. The Division of Labor Standards Enforcement (DLSE), a body of the California Department of Industrial Relations (DIR), is the government agency primarily responsible for the
enforcement of prevailing wage requirements on California public works projects1. This manual was prepared to facilitate conformity with the requirements of the applicable California Labor Code sections. The information included herein should be intended as
a framework for implementing an effective LCP for Prop 84 projects, designed to enforce
and monitor prevailing wage requirements consistent with the practice of the DLSE.
1 See http://www.dir.ca.gov/lcp.asp
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2 LABOR COMPLIANCE PROGRAM
2.1 Statutes and Applicability
A comprehensive list of statutes that require Awarding Bodies to have an LCP is
maintained on the DIR website.
A comprehensive list of the laws and regulations governing LCPs can be found in:
• California Labor Code (§§1720 - 1743, §1750, §§1770 - 1784, §§1810 - 1815,
§§1860 - 1861)
• Title 8, California Code of Regulations, Chapter 8
o Subchapter 3. Payment of Prevailing Wages upon Public Works (§§16000 - 16404)
o Subchapter 4. Awarding Body Labor Compliance Programs (§§16421 - 16802)
o Subchapter 6. Prevailing Wage Hearings (§§17201 – 17270)
These sections can be found on the DIR’s Web site at:
http://www.dir.ca.gov/lcp/LCPLawsRegs.htm. A listing of approved Awarding Body LCPs is available at: http://www.dir.ca.gov/lcp/LCPTypes.htm.
2.2 Overview of LCP Regulations
An LCP is designed to fulfill the requirements of the California Labor Code, to keep all parties informed of their obligations, and to monitor and enforce prevailing wage requirements. California Labor Code §1771.5 and California Code of Regulations, Title 8, §16421 outline the necessary components of an LCP. These components are listed below:
1) Bid Invitations and Other Documents: Appropriate language should be included in all bid invitations and public works contracts (e.g. The Call for Bids, Design-Build Request, and the contract or purchase order). Refer to Section 5.1. 2) Pre-Construction Meeting: A pre-construction meeting must be held, during
which applicable federal and state labor law requirements are discussed, copies
of suggested reporting forms are furnished, and a checklist showing which laws were discussed are kept. Refer to Section 5.6.
3) Certified Payroll Reports: Certified Payroll Reports (CPRs) containing a statement of compliance signed under penalty of perjury, must be kept by the
contractor in accordance with California Labor Code §1776 and furnished to the
Labor Compliance Program at times designated in the contract (at least monthly) or within 10 days of any request. Use of the current version of the DIR’s “Public
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Works Payroll Reporting Form” (A-1-131) and “Statement of Employer Payments” (PW26) constitute presumptive compliance for CPRs kept in accordance with California Labor Code §1776. Refer to Section 7 for information on collecting and reviewing CPRs and Fringe Benefit Statements. 4) Records Review: The LCP must have a program for orderly review of payroll records and, if necessary, for audits to verify compliance with the California Labor Code. Refer to Section 8 for information on reviewing CPRs. 5) Enforcing Compliance: Reasonable, vigorous, and prompt action must be taken to (a) determine whether violations exist, and (b) enforce compliance, including
through imposition of appropriate penalties and formal enforcement action, when violations are found. An LCP shall neither avoid the use of its enforcement authority based on cost considerations nor shall it use that authority in an unreasonable manner to gain leverage over a contractor or subcontractor. Unreasonable use of enforcement authority includes, but is not necessarily limited
to, prolonged or excessive withholdings of contract payments without making a determination that a violation has occurred. Refer to Section 11. 6) Withholding Payments: The LCP must have a prescribed routine for withholding penalties, forfeitures, and underpayment of wages for California Labor Code violations (e.g. delinquent or inadequate payroll records). Refer to Section 16.7. 7) Provision for Withholding Payments: Contracts must contain a provision that contract payments shall not be made when payroll records are delinquent or inadequate. Refer to Section 7.
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3 OVERVIEW: ENSURING LABOR COMPLIANCE
Early detection and identification of labor compliance violations is preferable to conducting belated investigations and implementing formal enforcement actions. Toward that end, labor compliance requirements and procedures should be explained to contractors at the pre-bid meeting, ensuring that prime contractors are aware of their obligations prior to bidding on the project and can bid accordingly. This information should
be communicated again at the pre-construction meeting ensuring that all contractors have been made aware of the requirements prior to start of work. Further, issues must be brought to the attention of the contractor immediately upon detection. Misunderstandings and confusion can be avoided throughout the project by
building relationships with contractors that encourage open communication and providing them with information in jargon-free, layman terminology. If issues do arise, technical support can be offered throughout the duration of the project. The main benefit of a commitment to clear, proactive communication between all parties,
is the ability to focus on efficiently identifying and resolving issues at the lowest possible level, thereby eliminating costly construction disruptions.
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4 ROLES AND RESPONSIBILITIES OVERVIEW
The Labor Compliance Officer (LCO) for OCSD and the contractor have specific responsibilities which are described below.
4.1 Labor Compliance Officer: General Responsibilities
Where used in this document, the Labor Compliance Officer shall mean OCSD’s LCO or
his or her designee. The LCO or his/her designee assigned to the project is responsible for obtaining and maintaining the prevailing wage determinations in the project files; maintaining and preserving the confidentiality of personnel information, payroll records, and other records; as well as furnishing this information to appropriate parties upon
request. The LCO is to enforce California Labor Code §§1720-1861 in a manner
consistent with the practices of the Labor Commissioner, including the responsibility to be cognizant of and actively enforce the clarifications, modifications, and exceptions to the California Labor Code and the California Code of Regulations by periodically reviewing Important Notices, Interim Determinations, and Opinion Letters issued by the
DIR. The DIR issues notices regarding the above by an email newsletter which can be
subscribed to at: http://www.dir.ca.gov/email/listsub.asp?choice=1. It is also the practice of the Labor Commissioner to be represented by an attorney in prevailing wage hearings conducted pursuant to Labor Code §1742(b) and California
Code of Regulations §§17201-17270.
The LCO is empowered to perform, among other enforcement duties, the following activities:
1. Ensure that labor compliance requirements are discussed at the pre-construction meeting. 2. Conduct payroll audits to confirm that wage rates and hours listed on contractor CPRs match prevailing wage rates and hours, and that correct benefit amounts
are paid for all project hours. 3. Interview employees of contractors and subcontractors of all tiers.
4. Verify that required posters are displayed at jobsites. See Section 9.3 below. 5. Issue appropriate notices for withholding of contract payments when the LCO determines that a contractor is in breach of labor compliance requirements.
6. Collect and disburse wages to employees and penalties to OCSD when it is found that an underpayment has occurred. 7. Obtain approval of recommended forfeitures from the Labor Commissioner.
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8. Conduct investigations, often in coordination with outside enforcement agencies, in response to delinquent CPRs or worker complaints. 9. Request a contractor's debarment or dismissal by the DLSE for willful, flagrant, or
repeated violations. 10. Ensure that all contractors are in compliance with worker’s compensation requirements and hold valid contractor’s licenses.
11. Collect and verify subcontractor lists from the prime contractor; and collect and verify 3rd tier contractor lists from subcontractors.
12. Defend Notice of Withholding of Contract Payments in administrative review
proceedings and in court.
13. Ensure Notice of Contract Award forms (DAS 140) are properly submitted to the Division of Apprenticeship Standards (DAS).
14. Verify all apprentices used on the project are registered apprentices with the DAS and are being used in the correct journeyman to apprentice ratio.
4.2 Contractor’s Responsibilities
According to the California Labor Code and the California Code of Regulations,
contractors working on public works projects are responsible for fulfilling the following: 1. Duty to Cooperate with Monitoring by the LCO: The contractor must cooperate with representatives of the project in support of their responsibilities.
2. Duty to Register with the DIR: The contractor must register online with the DIR to be eligible to perform public work and must be able to provide proof of registration for the duration of the project. Lack of registration will make the contractor ineligible to perform work and may result in forfeiture of the contract.
3. Duty to Notify of Unusual Work Hours: The contractor will notify and obtain approval from the Awarding Body prior to performing work on any Sunday, on any holiday, before 7:00 a.m., or after 5:30 p.m. 4. Duty to Secure Eligibility/Citizenship from Workers: Contractors must not hire
undocumented workers. They must complete an Employment Eligibility Form (I-9) for everyone they hire. 5. Duty to Cooperate with On-Site Interviews: The contractor must allow the LCO or their representatives to interview employees without interference. Interviewed
employees must not be threatened, intimidated, or coerced.
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6. Duty Not to Retaliate: The Contractor agrees that no worker will be discharged, disciplined, or in any other manner discriminated against because he or she has made a complaint against his employer, has filed a governmental complaint, has instituted or caused to be instituted any proceeding, or has testified or is about to
testify in any proceeding. 7. Duty to Submit Labor Compliance Reports: The contractor must submit labor compliance reports throughout the course of this project.
8. Duty to Cooperate with Regard to Subcontractors: Each contractor is responsible for compliance by his subcontractors. The project’s Construction Manager/Project Manager and the LCO may direct the contractor to take certain actions to remedy subcontractor compliance issues.
9. Duty to Comply with All Applicable Laws: It is against the law for an employer or other person to accept any compensation from workers on a prevailing wage project. Anyone found guilty of accepting fees, bribes or any other form of compensation or kickbacks from a worker on a prevailing wage project is guilty of a felony2. Any person or company that attempts to charge a fee for registration or
information about public works employment is guilty of a misdemeanor.
2 See California Labor Code §1778.
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5 PRE-CONSTRUCTION ACTIVITIES
To ensure compliance, the LCO has a number of responsibilities prior to the start of construction including verifying that contractors are qualified to perform work on a public works project, communicating with contractors regarding their responsibilities under the LCP, notifying the DIR of the project, and starting project files.
5.1 Providing Bid Language to Awarding Bodies Prior to Bid
Prior to the release and advertisement of the bid documents, staff should be aware of
the appropriate language concerning the requirements of prevailing wage projects as
defined by the California Labor Code §1773.2.
The Call for Bids, Design-Build Requests, and the contract or purchase order should contain at a minimum the following language:
• Notification that the project is subject to the payment of prevailing wages;
• Identification of the project as either a project for construction, installation, alteration, demolition, repair, or maintenance work;
• Designation of date payroll records are due (typically monthly);
• Provision that contract payments shall not be made when payroll records are delinquent or inadequate per California Code of Regulations §16421(a)(6);
• Notification that all contractors must register with the DIR as an eligible body in
order to perform public work; and
• Notification that all contractors must comply with the LCP.
OCSD must affirmatively represent to the contractor in writing that the work to be covered
by the contract or bid is a public works project, as defined by the California Labor Code,
subject to the payment of prevailing wages to all workers. If this is not done, and prevailing wage underpayments are found, staff risks a contractor’s court action to recoup monetary liabilities for the difference between the actual wages paid and the prevailing wages that were required to be paid.
Awarding Bodies must notify contractors of the applicable prevailing wage determinations. For prevailing wage determinations, see Section 8.4.
5.2 Pre-Bid Meeting - 1st Opportunity to Notify Contractor of LCP Requirements
Prior to the commencement of any construction project, a pre-bid meeting will be held. At
the meeting, contractors will be informed of the prevailing wage requirements and
applicable prevailing wage determination to be used in preparation of the bid. Staff will take this opportunity to both build a rapport with the contractors and subcontractors as well as create a solid foundation of information for the contractors and subcontractors. This is the first project-level step towards early problem resolution.
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Note: Prior to the pre-bid meeting, a copy of the bid advertisement for the project must be obtained, since the advertisement date3 determines which prevailing wage determinations are applicable. See Section 8.4 for additional information.
The pre-bid meeting will be held by OCSD following the advertisement date and before the bid due date. At the pre-bid meeting, the bid requirements are disclosed to prospective contractors. Information typically presented at the pre-bid meeting includes a description of the project scope of work, key project issues, project schedule, the engineer’s estimate of construction cost, project schedule, key project milestones. At this
meeting, it must be disclosed that the project is subject to a labor compliance program. Upon scheduling a pre-bid meeting, staff shall prepare a pre-bid meeting labor compliance handout. The pre-bid meeting labor compliance handout shall include the following information:
• Notification that the project is a public works project subject to California prevailing wage laws;
• Notification that OCSD has implemented an LCP;
• Notification that all contractors shall pay prevailing wages according to the DIR determination applicable to the project;
• Notification that all contractors and subcontractors must register with the DIR in order to be qualified to bid;
• Notification that all apprentices shall be registered in an approved apprenticeship program;
• Identification of the applicable DIR determination and a link to the website where prevailing wage rates for the project can be obtained; and
• Notification that all questions pertaining to the LCP shall be sent to the
attention of the Contract Administrator assigned to the project as specified in the Notice Inviting Bids. A sample pre-bid meeting labor compliance handout is included as Appendix A to this manual.
5.3 Bid Review Activities
Prior to the acceptance of a contractor’s bid, the LCO must verify certain information to
ensure the contractor is operating in compliance with applicable law.
3 The California Code of Regulations states that in the case where there is not a bid advertisement date,
the lack of a “notice inviting bids” being published in a newspaper means you must first look for some other form of pre-award notice which may have been “promulgated in a legally sufficient manner” and, if so, utilize that “Date of Notice” for the operative date to locate the applicable prevailing wage determination published by the Director (e.g. Request for Bids due date, date of Pre-Bid Meeting, etc.). If
unable to locate any type of pre-award notice which satisfies the “legally sufficient” promulgation standard, the date of the award of the contract (see, Transdyn/Cresci JV v. District and County of San
Francisco (1999) 72 Cal. App.4th 746) or, lacking an award date, the date of the contract itself may be selected as the operative date to select the applicable prevailing wage determination.
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a. Subcontractor Lists OCSD’s Contract Administrator shall verify that each subcontractor listed on the Bid Submittal Forms, BF-2 LIST OF SUBCONTRACTORS is registered with the DIR during the Bid Evaluation period. The CA will notify the CONTRACTOR if any
are not registered and in good standing with the DIR. If a CONTRACTOR is notified that a subcontractor is not registered and in good standing with the DIR and does not rectify the situation as described under 5.3 b. below, the CONTRACTOR shall replace the unregistered subcontractor with a registered subcontractor pursuant to Section 4107 of the Public Contract Code.
Following award of the Contract, an accurate and complete subcontractor list shall be requested from the prime contractor(s). The LCO shall verify each subcontractor’s eligibility to work on a public works project by verifying their DIR registration and license with the California State Licensing Board (CSLB) by
following the step below. b. DIR Registration Verification Per California Labor Code §1725.5 and §1771.1, all contractors must be registered with the DIR in order to bid or perform work on public works projects. The prime
contractor and each of their subcontractors must be registered and in good standing with the DIR in order to work on any of OCSD’s projects. The following link provides information on contractors’ status with the DIR: https://efiling.dir.ca.gov/PWCR/Search.action
In the case that a subcontractor listed on the subcontractor list is not registered with the DIR, the subcontractor must register within 24 hours after the bid opening and pay the $2,000 penalty registration fee required by California Labor Code §1725.5(a)(2)(E) OR the prime contractor must replace the unregistered subcontractor with a registered subcontractor. If a CONTRACTOR is notified that
a subcontractor is not registered with the DIR and does not rectify the situation as described above, the CONTRACTOR must replace the unregistered subcontractor with a registered subcontractor pursuant to Section 4107 of the Public Contract Code.
c. CSLB Verification OCSD’s Contracts Administrator will verify the license status of the CONTRACTOR and its subcontractors listed on BF-2 List of Subcontractors with the Contractor’s State License Board (CSLB) website during the Bid Evaluation
period. The LCO assigned to the project must also ensure that all other subcontractors are licensed with the CSLB. The LCO will visit the CSLB website4 to check the status of the subcontractor’s license and workers’ compensation insurance and will
immediately notify the ENGINEER of any subcontractors whose license status or workers’ compensation insurance is inactive.
4 https://www2.cslb.ca.gov/OnlineServices/CheckLicenseII/CheckLicense.aspx
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5.4 Project Management Tracking
The Master Project Management (Master PM) Tracking Sheet is a list of the projects (active & complete) for which staff has been assigned to monitor labor compliance. It lists project names, bid advertisement dates, contract value, dates for pre-bid and pre-construction meetings, etc. It is a working document and should be updated as
information is received. Upon project closeout, the date the Labor Compliance Closeout
Letter was sent to the prime contractor should be noted on the Master PM Tracking Sheet and the entire row should be highlighted grey to denote its inactive status.
A sample Master PM Tracking Sheet is included as Appendix B to this manual.
5.5 Project Start-Up Activities
Once OCSD awards a project, and prior to the Pre-Construction Meeting, staff shall
conduct the following project start-up activities:
a. Update Master PM Tracking Sheet Record the actual project value (i.e. bid amount) and project duration for the project. Document this information on the Master PM Tracking Sheet.
b. Submit a PWC-100 form to the DIR (see Appendix J - provided for reference only.) Per, California Labor Code §1773.3, a PWC-100 form must be submitted to the DIR within five days of contract award and should be completed by the awarding body. Use the Web Application to submit the PWC 100 form online, via the DIR’s
application page. The online form fulfills the required public works project award
notification as required by Labor Code sec. 1773.3 (replacing former DAS-13 notification) and 8 Cal. Code Reg. sec. 16451(a). https://www.dir.ca.gov/pwc100
c. Create a Document Tracking Log A Document Tracking Log shall be maintained for all projects. The Document Tracking Log is a written record of all LCP-required documents that are required for each project. It also identifies whether a contractor has any compliance issues
or unresolved audits. A sample Document Tracking Log can be found in Section
7. Using the submitted Subcontractor List, staff shall enter the following into the Document Tracking Log:
► All contractor names; ► The contractor’s license status (e.g. active, expired, etc.) and workers’ compensation insurance data obtained from the CSLB website; ► Contact information for all project contractors. Information that should
be recorded includes: contractor address, telephone number, fax
number, and the name and email address of the contractor’s employee who handles CPR and payroll documents;
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► The registration number provided by the DIR to document current registration of each contractor which can be found at https://efiling.dir.ca.gov/PWCR/Search.action; and ► Work classifications associated with the contractor’s scope of work and
the DIR prevailing wage determination that corresponds to each work classification. Section 8.4 presents detailed instruction regarding how to establish the correct prevailing wage determinations. The scope of work for listed subcontractors is typically included in the contractor’s bid.
It should also be noted that subcontractors may sub out some of their work to lower-tier subcontractors not listed on the subcontractor list submitted by the prime contractor and/or subcontractors may occasionally be replaced. As soon as the LCO becomes aware of a new subcontractor on the job, the subcontractor’s license, workers’ compensation, and DIR status must be verified. OCSD’s Project
Manager and Contract Administrator must be notified immediately if the subcontractor is unregistered, debarred, or otherwise not in good standing with any of the above.
5.6 Labor Compliance Program Pre-Construction Meeting
The LCP Pre-Construction Meeting is held by OCSD before commencement of the work
with all contractors listed in the bid (or who are required to be identified or prequalified in
a Design-Build Contract). Other attendees would include representatives from OCSD, the project manager, the construction contractor, inspectors, and other project stakeholders as required. All aspects of the construction project are discussed at the LCP Pre-Construction Meeting including the responsibilities of the contractor and
subcontractors regarding the labor compliance program. All subcontractors should attend the Pre-Construction Meeting. At the pre-construction meeting, an OCSD representative must discuss all applicable
labor law requirements. The LCP Checklist lists all applicable labor law requirements and
must be distributed to and signed by every contractor assigned to the project and returned to staff, who will include it in project files. The checklist is required when a case is reported to the Labor Commissioner for the withholding of contract payments or if a Request for Forfeitures is issued. A sample LCP Checklist is included as Appendix L.
Prior to the Meeting, an agenda and informational packets regarding OCSD’s LCP shall be prepared. Each required LCP form should include OCSD’s logo. The LCP informational packets shall include the following:
a. Cover Sheet (summarizing the contents of the packet) with a business card
of the LCO. The cover sheet will serve as the Pre-Construction Meeting
Agenda/discussion format;
b. DIR Determination Sheet, containing:
i. The DIR determination applicable to the project;
ii. The DIR determination website link;
c. “LCP Contractor Responsibilities & Requirements” summary sheet;
d. LCP Sample Forms
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i. Sample LCP forms may be substituted by the contractor’s own forms so long as the same required information is included;
ii. Included in the sample forms is the “LCP Checklist of Labor Law Requirements” (Attached as Appendix L);
e. Document Submittal Protocol Sheet: Informing the contractor of the appropriate staff person to which required documentation should be submitted; also summarizes OCSD’s progress payment policies, such as the penalties for non-compliance, including the withholding of contract payments when payroll records are delinquent or inadequate. May also outline the
process by which the LCP staff will provide the management team with a monthly progress payment recommendation based on the contractor’s LCP compliance status (including both timely documentation and timely resolution of issues);
f. A copy of the DIR prevailing wages for all potential trades to be used on the
project;
g. Information on how to receive a copy of OCSD’s LCP.
h. Information on how to receive a copy of the California Labor Code relating to Public Works and Public Agencies (Part 7, Chapter 1, §§1720-1861).
Sample forms to be included in the LCP informational packet are included in Appendices
L-S.
HOW TO: Conduct a Pre-Construction Meeting The following should occur at the Pre-Construction Meeting:
• Staff should introduce the following points:
This is a public works project. Mention the funding source (e.g., “This
project is funded by the Proposition 84 and therefore requires LCP oversight.”);
All workers must be paid prevailing wages as required by the LCP
and established prevailing wage laws; and
OCSD has implemented and will enforce an LCP. LCP staff will be monitoring and enforcing prevailing wage compliance on this project.
• An attendance sheet should be distributed at the meeting; retain a copy of the attendance sheet for cross-referencing against the contractor’s subcontractor list (“sub-list”). Note: When referencing the sub-list for the project, note any contractors that are not present for the LCP pre-construction meeting as the pre-
construction meeting packets will be mailed to any contractors that were not in
attendance. If the sub-list is not available at the time of the pre-construction meeting, send LCP packets to all remaining contractors once it is obtained.
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• Attendees will introduce themselves and state their trade or the role they will perform on the project. For each contractor that is present at the meeting, obtain the contact name for the individual(s) that handle the Certified Payroll Report
(CPR) preparation and submittal and labor compliance issues for the contractor.
Obtain copies of business cards and indicate the CPR contact person’s name upon each card for entering into the tracking log.
• Staff will then distribute the pre-construction meeting packets containing the DIR determination website link, a copy of applicable labor compliance responsibilities and requirements, a document submittal schedule, and the required LCP submittal forms.
• Staff will then begin to provide an overview of the LCP requirements, including the responsibilities of the contractor and monitoring and enforcement compliance activities. Staff will then review the contents of the pre-construction meeting packets, using the cover sheet as a guide to conduct the remainder of the meeting.
• When reviewing the packet, the following contractor responsibilities should be discussed:
1. The contractor must submit a DAS 140 to notify the DAS (prior to the start of
work) when using apprenticeable trades on a public works project and to submit certification of apprentices.
The DAS 140 must be submitted within 10 days after the
awarding of the contract and no later than the start of work; and
The DAS 140 must be sent to the local apprenticeship committee;
Contractors who are approved to train apprentices must send the DAS 140 to their apprenticeship committee;
Contractors who are not approved to train apprentices must send
the DAS 140 to all applicable apprenticeship committees in their
geographic region; contact information which can be obtained from the DAS website
For more information on submittal and review of the DAS 140 form, please see Section 6.
2. The contractor must submit all required reports: CPRs, Trust Fund Reports, and any other reports that verify the payment of prevailing wages. CPRs shall be furnished by the contractor at times designated in the contract, which shall be at least monthly, or within 10 days of any request.
3. The contractor must submit evidence that training fund contributions were paid to the California Apprenticeship Council (CAC) or to an approved fund (such as a union trust fund).
Contractors that pay training funds to the CAC must submit a Training Fund
Contributions form (CAC 2) each month covering every craft and every hour worked in that craft, for all apprenticeable crafts. Contractors who pay to other
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approved funds must submit monthly reports sent to those funds. A sample CAC 2 form is included as Appendix S. 4. The contractor must be registered with the DIR and submit CPRs monthly to the
DIR, as required by Senate Bill (SB) 854 and as detailed in the California Labor Code §§1771.1 and 1771.4 5. The contractor must submit a complete list of subcontractors.
6. The contractor must make restitution payments when wage violations are found. 7. The contractor must submit a Fringe Benefit Statement with the first CPR.
The Fringe Benefit Statement must include the same information stated on the DIR’s form PW26, “Statement of Employer
Payments”
Note: Training Fund Contributions are never paid to the employee.
If fringe benefits are paid to a Union or Employer’s Trust Fund, the contact information should be included in the designated place.
If benefits are paid in cash to the worker, the benefit dollar amount
should be included in the designated place and state “paid to worker” in the contact information area.
Information must be included for every craft and classification of worker that will be employed on the project, including for apprentice levels that may perform work on the project.
An updated Fringe Benefit Statement must be submitted whenever there are increases to the employee fringe benefits.
A sample Fringe Benefit Statement is included as Appendix O. 8. The contractor must submit Trust Fund Reports, which are only applicable to
contractors paying benefits to a plan, program, or trust (such as union-signatory contractors).
Should be submitted monthly but must be submitted at least once a quarter.
Copies of contribution checks must be submitted at least once a
quarter. 9. CPRs – the following points regarding CPR review are crucial:
A signed Statement of Compliance must be attached to all payroll reports in order to make them “certified.”
CPRs and Statements of Compliance shall be submitted for every week that work is performed; a non-performance payroll report should be submitted for weeks where no work was performed.
Each entry on the form must be completed accurately.
The appropriate withholding (including fringe benefits and union
dues, if applicable) must be deducted from gross wages and forwarded to the appropriate taxing agency and/or trust fund.
Last payroll should be marked as “FINAL.” The final CPR will signal LCP staff to begin closeout procedures.
Computer-printed payroll forms are acceptable, if they contain all
the necessary data from California Labor Code §1776(a).
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CPRs may be maintained and submitted electronically subject to all of the following conditions:
The reports must contain all of the information required by California Labor Code §1776;
The reports shall be in a format and use software that is readily accessible and available to contractors, awarding bodies, LCPs, and the DIR; and
Reports must be in the form of a non-modifiable
image or record that bears an electronic signature or includes a copy of any original certification made on paper.
• Explain to attendees that labor compliance staff responsibilities will include the following: 1. To receive, review and audit CPRs.
2. To notify all project contractors of delinquent documents by email on a monthly basis. 3. To advise contractors of discrepancies found by means of audit reports.
4. To perform weekly on-site monitoring. 5. To notify the Engineering Manager when the prime contractor is compliant with all the requirements of the LCP.
6. To collect the LCP Checklist. Projects under an LCP require that the LCO distribute an LCP Checklist. The LCP Checklist must be signed by every contractor assigned to the project and returned to staff, who will include it in project files. The checklist is required when a case is reported to the Labor
Commissioner for the withholding of contract payments or if a Notice of Forfeitures is issued. A sample LCP Checklist is included as Appendix L. 7. To provide monthly invoice payment recommendations to the Engineering Manager based on the contractor’s level of compliance.
8. Address other pre-construction meeting topics, including: record keeping requirements, any recent changes in federal and/or state regulations, and available resources along with types of assistance provided.
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Legally required forms contractors are required to submit include:
Checklist of Labor Law Requirements
Public Works Contract Award Information (DAS 140)
Statement of Compliance
Fringe Benefit Statement
CPRs
Training Fund Contribution (CAC 2 or Trust Fund Report)
Trust Fund Report (if fringe benefits are paid into a union or private plan)
Owner-Operator Listing (if Owner-Operators are used)
Contractor's certification concerning Labor Standard and Prevailing Wage Requirement (for Federally-funded contracts)
Statements of Non-Performance
F O C U S
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Before a contractor begins to work on a project, that contractor must submit an LCP Checklist, and a DAS 140. Note that the original DAS 140 must be sent to the union or apprenticeship
committee for the appropriate craft. Staff must receive a copy of the form and proof of transmittal.
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6 REVIEWING DAS REQUIREMENTS
All Public Works Projects are subject to the 5:1 Journeyman/Apprentice Ratio, where
apprenticeable crafts must utilize one apprentice hour of work for every five journeyman hours of work. To fulfill this requirement, contractors and subcontractors must provide documentation and notification to the appropriate apprenticeship programs.
6.1 LCP Duties Regarding Apprentices
The duties of an LCP with respect to apprenticeship standards, according to California Code of Regulations §16434(c), are the following:
(A) Inform contractors and subcontractors bidding public works projects about apprenticeship requirements, including submitting a DAS 140 Public Works
Award Contract Information to all approved apprenticeship programs in the county where the work is being performed for each work classification used and to also submit a DAS 142 Request for Dispatch of Apprentice to the same programs (see forms below); (B) Send copies of awards and notices of discrepancies to the DAS as required
under California Labor Code §1773.3; and (C) Refer complaints and promptly report suspected violations of apprenticeship requirements to the DLSE. Listings of DAS-approved apprenticeship programs by trade and by county can be found
at: http://www.dir.ca.gov/databases/das/aigstart.asp
Sample DAS 140 and DAS 142 forms are included as Appendices M and N below. 6.2 Prevailing Wage for Apprentices
Prevailing wage pay requirements for apprentices will be enforced consistent with the practice of the Labor Commissioner, including:
(A) That any contributions required pursuant to California Labor Code §1777.5(m) are paid to the appropriate entity; (B) That apprentices are paid no less than the prevailing apprentice rate; (C) That workers listed and paid as apprentices on the certified payroll records
are duly registered as apprentices with the DAS; and (D) That the regular prevailing wage rate has been paid (i) to any worker who is not a duly registered apprentice and (ii) for all hours in excess of the maximum ratio permitted under California Labor Code §1777.5(g), as determined at the conclusion of the employing contractor or subcontractor’s work on the public
works contract. As stated in Section 5.5 above, OCSD shall, within five days of the award, send a copy of the award to the DIR. The form may be submitted online at https://www.dir.ca.gov/pwc100ext/. A copy of a blank PWC-100 is included as Appendix
J.
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Registered apprentices may be paid an apprentice prevailing wage rate that is published by the DIR, and is typically a percentage of the journeyman wage for the appropriate craft. A contractor may only pay this lower prevailing wage rate to bona fide, active apprentices
who are registered with the DAS. If an apprentice is employed in any other craft than the one for which s/he is a registered apprentice (such as an apprentice Sheet Metal Worker performing Laborer work), the full journeyman wage rate for that craft must be paid. Verification of whether a worker is registered with the DAS can be done by accessing the DAS Apprentice Search website:
http://www.dir.ca.gov/DAS/appcertpw/AppCertSearch.asp
A screenshot of the DAS Apprentice Search Website is shown below.
Each DAS registered apprentice is given a certification number. As shown in the screenshot above, the certification number is the first four letters of their last name, the first letter of their first name, and then the last four digits of their social security number. The union “Apprentice Agreement” (DAS1 Rev. 7/87) is not acceptable proof of
registration since it does not indicate whether the worker is currently in the program. If the certification cannot be found online, contractors must submit a letter from the DAS as evidence of registration5. A contractor’s failure to pay the apprentice rate, or the payment of the apprentice rate to
a worker not registered as an apprentice, is a prevailing wage underpayment, and should be investigated and audited in the same way as other prevailing wage underpayments. 6.3 Apprentice Usage Requirements
There are regulations for both the maximum and minimum allowable ratios of apprentices to journeymen. As a general rule, contractors must use a minimum of one hour of apprentice work to five hours of journeyman work, or 16.7% of total hours performed by
apprentices per California Labor Code §1777.5(g). Please note, however, that California Labor Code §1777.5 does allow for exceptions to the 1:5 ratio. California Labor Code §1777.5(h) states that “(w)here an hourly apprenticeship ratio is not feasible for a
5 See California Labor Code §1777.5(c).
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particular craft or trade, the Administrator of Apprenticeship, upon application of an apprenticeship program, may order a minimum ratio of not less than one apprentice for each five journeymen in a craft or trade classification.” California Labor Code§1777.5(k) also allows an apprenticeship program the discretion to grant a participating contractor
an exception, subject to approval by the DAS. If the contractor can provide documentation from the DAS or a DAS-approved certificate from their apprenticeship program stating that they are exempt from the 1:5 ratio they will not be required to meet it.
Not all crafts are apprenticeable, though most are. An example of a non-apprenticeable craft is Asbestos/Lead Abatement workers. An apprenticeable craft is denoted with a pound sign (#) next to the craft name upon the DIR prevailing wage determination. The DAS collects the maximum ratios of apprentices to journeymen set by each
approved apprenticeship program. The correct ratios can be obtained by contacting the DAS District Office; office locations can be found on the DAS website: http://www.dir.ca.gov/DAS/das_offices.htm
The Labor Commissioner may grant a certificate exempting the contractor from the journeyman to apprentice ratio under certain conditions6. Within five days of finding any discrepancy regarding the ratio of apprentices to journeymen, staff must notify the DLSE7. Minimum ratios are calculated at the end of
the contract or subcontract; a contractor who falls behind on apprentice usage may seek to make up the difference before project completion. It is best practice to perform an analysis of apprentice ratios during the project – halfway through a smaller project, or every six months on a longer project – in order to be able to warn out-of-compliance contractors while they still have time to achieve compliance.
If the contractor is determined by the Labor Commissioner to have knowingly violated the California Labor Code, the contractor may be penalized up to $100 per calendar day for noncompliance, and, may be refused the right to bid on, be awarded or perform work on any public works contract for an up to three years8. If a subcontractor is determined to
have knowingly violated the California Labor Code, the prime contractor is not liable for any penalties unless the contractor had knowledge of the subcontractor’s failure to comply; the contractor failed to provide copies of California Labor Code §§1771, 1775, 1776, 1777.5, 1813, and 1815 to the subcontractor; failed to periodically review the subcontractor’s CPRs; failed to collect a declaration of apprenticeship compliance from
the subcontractor; or failed to take appropriate action when made cognizant of subcontractor noncompliance.9
6 See California Labor Code §1777.5(i) through (p).
7 See California Labor Code §1773.3.
8 See California Labor Code §§1777.7(a) through 1777.7(g).
9 See California Labor Code §1777.7(d).
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7 DELINQUENT PAYROLL RECORDS AND WITHHOLDING PROCESS
It is important to maintain accurate records regarding received CPRs and other documents from contractors. A monthly Delinquent Document Report is provided to clients and prime contractors, generally including invoice payment recommendations; that
report can be used as a monthly “trigger” to see who is missing items and needs to be sent a letter. The documents that can be requested under an LCP’s authority are those which meet the definition of “Payroll Record” in California Code of Regulations §16000: “Payroll Records. All time cards, cancelled checks, cash receipts, trust fund forms, books, documents, schedules, forms, reports, receipts or other evidences which reflect job
assignments, work schedules by days and hours, and the disbursement by way of cash, check, or in whatever form or manner, of funds to a person(s) by job classification and/or skill pursuant to a public works project.”
An example of the Document Tracking Log is seen below. Document Tracking Logs are maintained for each project and should be updated on at least a monthly basis in order
to monitor the receipt of documents from contractors.
Pursuant to California Code of Regulations §16435(e) and California Labor Code
§1771.5(b)(5), the withholding of contract payments when payroll records are delinquent or inadequate is required and does not require prior approval of the Labor Commissioner. To “withhold” is defined in California Code of Regulations §16435(a) as to “cease payments by the Awarding Body, or others who pay on its behalf, or agents, to the general
contractor.” If it is a subcontractor that is delinquent, the general contractor will also be
notified of the violation and notified of its rights under California Labor Code §1729. Note that per California Code of Regulations §16435(b), unless otherwise provided by agreement, only contracts under a single master contract (including Design-Build contracts) or contracts entered into as stages of a single project may be subject to
withholding.
CPRs are considered “delinquent” if they are not submitted on the date set in the contract. CPRs are considered “inadequate” if they:
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1. Lack any of the information required by California Labor Code §1776; or 2. Contain all required information but are not certified by someone who is an agent of the contractor or subcontractor; or 3. Remain uncorrected for one payroll period or more after having been given
notice of inaccuracies by the LCO. Note; however, that prompt correction will stop any duty to withhold if such inaccuracies do not amount to one percent of the entire CPR in dollar value and do not affect more than half the persons listed as workers employed on the CPR.
OCSD shall only withhold those payments due or estimated to be due to the contractor
or subcontractor whose payroll records are delinquent or inadequate. When contractor payments are withheld due to delinquent or inadequate payroll records, OCSD shall notify the general contractor and subcontractor (if it is a subcontractor that is in violation) immediately with written notice informing them that payments are being withheld, identifying which records are delinquent or inadequate, why (in the case that they are
inadequate) the records are inadequate, the amount being withheld, and also notifying them that they have the right to request an expedited hearing under California Labor Code §1742.
Once the delinquent payroll records are received and/or the issue with inadequate payroll records has been resolved, contract payments will be released. Contract payments
cannot continue to be withheld after the delinquencies and/or inadequacies have been sufficiently addressed if there is no other reason to withhold them. Note that penalty assessment for delinquent or inadequate payroll records not submitted in the time frame specified under California Labor Code §1776(h) requires approval from the Labor Commissioner. Also note that withholding for underpayments or other violations also
requires approval from the Labor Commissioner under California Code of Regulations §16436 and §16437 (see Section 16.5 – 16.7).
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[Name and Contact Information for person issuing Notice]
Date: Case or Contract No.:
NOTICE OF TEMPORARY WITHHOLDING OF CONTRACT PAYMENTS DUE TO DELINQUENT OR INADEQUATE PAYROLL RECORDS (8 CCR §16435)
Awarding Body: Work performed in County of:
Project Name and Number (if any):
Prime Contractor: Subcontractor:
Pursuant to Labor Code §1771.5(b)(5) and 8 CCR §16435, contract payments are being withheld due to
delinquent or inadequate payroll records.
Contractor or subcontractor whose payroll records are delinquent or inadequate:
The following payroll records are delinquent (specify weeks and due dates):
The following payroll records are inadequate (specify weeks and ways in which records are deemed inadequate under 8 CCR §16435(d)):
Estimated amount of contract payments due to contractor or subcontractor that are being withheld pursuant to this Notice:
Labor Compliance Officer
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8 DOCUMENT REVIEW PROCESS
8.1 Reviewing CPRs
If possible, before the project begins, the LCO will call all contractors and subcontractors
assigned to work on the project to find out who the designated payroll agent is (unless this was already done at the pre-construction meeting); this is likely the person who will certify payrolls. Record this person’s name and phone and fax numbers onto the “Contractor Documentation Filing” cover sheet and the project’s electronic Document Tracking Log.
Once a contractor begins to work on a project, the LCO will begin receiving certified payroll records. California Labor Code §1776 requires contractors to submit the CPRs to OCSD and to the Labor Commissioner directly. CPRs must be submitted immediately after the first week of work on the jobsite, and then weekly thereafter (unless otherwise
noted), but in no case less than monthly. Orderly review of payroll records, including audits to verify compliance with requirements, is key to the effective implementation of the LCP. An example of a CPR is attached as Appendix P.
California Code of Regulations §16404 states that payroll records may be submitted electronically, subject to all of the following conditions: (a) The reports must contain all of the information required by California Labor
Code §1776, with the information organized in a manner that is similar or identical to how the information is reported on the DIR’s suggested “Public Works Payroll Reporting Form” (Form A-1-131); (b) The reports shall be in a format and use software that is readily accessible and
available to contractors, awarding bodies, LCPs, and the DIR; (c) Reports submitted to OCSD, an LCP, the DLSE, or other entity within the DIR must be either (1) in the form of a non-modifiable image or record that bears an electronic signature or includes a copy of any original certification made on
paper, or alternatively (2) printed out and submitted on paper with an original signature; (d) The requirements for redacting certain information shall be followed when certified payroll records are disclosed to the public pursuant to California Labor
Code §1776(e), whether the records are provided electronically or as hard copies; and (e) No contractor or subcontractor shall be mandated to submit or receive electronic reports when it otherwise lacks the resources or capability to do so,
nor shall any contractor or subcontractor be required to purchase or use proprietary software that is not generally available to the public.
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The LCO reviews CPRs to verify that the contractor and all subcontractors are paying the specified prevailing wage rate to all workers. Depending on the project, CPRs for subcontractors may be sent by the prime contractor or directly to staff by the
subcontractor. All CPRs must also be sent to the DIR. The LCO shall check that weekly payroll records comply with the California Code of Regulations §16421(a)(3) as well as California Labor Code §1776(a) and §1776(b), to the extent described in California Code of Regulations §16432(c)10, as outlined in Section 8.2.
CPRs must be reviewed as promptly as practicable after receipt thereof, but in no event more than 30 days after receipt11. “Review” for this purpose shall be defined as inspection of the records furnished to determine if (1) all appropriate data elements identified in California Labor Code §1776(a) have been reported; (2) certification forms have been completed and signed in compliance with California Labor Code §1776(b); and (3) the
correct prevailing wage rates have been reported as paid for each classification of labor listed thereon, with confirmation that payments were made.
Confirmation of CPRs: For projects requiring an LCP (such as Proposition 84 funded project, see Section 2.1) there is an additional requirement known as payroll confirmation.
Per California Code of Regulations §16432(c), “each month in which a contractor or subcontractor reports having workers employed on the public work, confirmation of furnished payroll records shall be undertaken randomly for at least one worker for at least one weekly period within that month.” “Confirmation” of payroll records furnished by contractors is defined as an independent corroboration of reported prevailing wage
payments. Confirmation may be accomplished through worker interviews, examination of paychecks or paycheck stubs, direct confirmation of payments from third party recipients of “Employer Payments”, or any other reasonable method of corroboration. Confirmation shall also be undertaken whenever complaints from workers or other interested persons or other circumstances or information reasonably suggest to the
Program Staff that payroll records furnished by a contractor are inaccurate.
8.2 Essential Information on CPRs
All information on CPRs requested pursuant to California Labor Code §1776(a) and listed on the DIR’s suggested format “Public Works Payroll Reporting Form” (Form A-1-131), must be furnished. This information is detailed below.
When CPRs are received, they should be checked for the following required information per California Labor Code §1776(a):
► Employee's full name;
► Address (on first payroll submitted);
10 See California Code of Regulations 2009 Amendments to §16432.
11 See California Code of Regulations 2009 Amendments to §16432.
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► Social Security Number: California Labor Code §226(a), which is not part of the Public Works Chapter, directs an employer to use only the last four digits of an employee’s social security number on itemized payroll deduction statements
furnished to the employee. The section does not affect a contractor’s obligation under California Labor Code §1776(a) to provide the full Social Security number on certified payroll records and under §1776(b)(2), to furnish DLSE, DAS, DIR and awarding bodies with unredacted records displaying the full number on request;
► Work classification: This is important because it dictates which prevailing wage determination to apply and on-site observations may reveal that the worker is performing work outside the scope of this classification;
► Straight-time hours per day and per week: The contractor must not employ a
worker more than eight hours in a calendar day or more than 40 hours in a calendar week, unless the contractor pays the appropriate overtime wage rate. In some cases, employees may be working on a modified work schedule. In such instances, the contractor must submit all documentation that modifies the work schedule. If the contractor cannot provide documentation that supports the validity of such
modifications to the work schedule, then the prevailing wage stands. California Code of Regulations §16200(a)(3)(F) allows for the following exceptions:
Exception 1: If a workweek other than Monday through Friday is a fixed business practice or is required by the awarding body, no overtime
payment is required for the first eight hours on Saturday or Sunday.
Exception 2: If the collective bargaining agreement provides for Saturday and Sunday work at straight-time, no overtime payment is required for the first eight hours on Saturday or Sunday.
Exception 3: If the awarding body determines that work cannot be
performed during normal business hours or work is necessary at off hours to avoid danger to life or property, no overtime is required for the first eight hours in any one calendar day, and 40 hours during any one calendar week.
Exception 4: No overtime payment is required for less than 40 hours in a
standard work week or for less than eight hours in a calendar workday unless specified in the collective bargaining agreement used as the basis for the prevailing wage determination;
► Overtime hours per day and per week;
► Itemized deductions, including Federal Taxes, FICA (Social Security), State Taxes, SDI, and any other deductions (which must be explained in the Statement of Compliance);
► Payroll check numbers for each employee;
► Actual per diem wages paid: Per Diem wages include employer payments for health and welfare, pension, vacation, travel time, and subsistence pay as provided for in California Labor Code §1773.1, as well as for apprenticeship or
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other training programs authorized by California Labor Code §3093. (Note that while union contractors are required to pay fringe benefits into union trust funds per their union contract, non-union contractors can choose to pay all of the total hourly wage, with the exception of the training fund payments, as part of the
employee’s basic hourly rate. The training fund payments must be made to an approved apprentice program or the CAC);
► Gross wages paid for this project, as well as gross and net wages paid for all projects;
► Contractor's full name and address;
► Project name and locations;
► Dates of payroll (for added convenience of auditing and filing, contractors should be encouraged to number their payroll consecutively for each week).
8.3 Reviewing and Inspecting CPRs
Below are the elements to review when performing a CPR audit:
► Timeliness: According to California Code of Regulations §16435, CPRs are delinquent when the contractor fails to submit the records on the date set in the contract, and, according to §204 of the California Labor Code, employers are in compliance if wages are paid within seven calendar days following the close of the
payroll period within which the wages were earned.
► Completeness: Payrolls will be examined to determine whether they include all of the required information listed in California Labor Code §1776(a). Incomplete/inadequate payrolls are noted in the Document Tracking Log and filed,
and a revised or supplemental payroll is requested to obtain missing information.
► Work Classifications: Examine payrolls to ensure that the classifications listed on the CPRs are recognized by the DIR and match the type of work that the Employee was assigned to perform. Scopes of work for each classification are
found on the DIR website: http://www.dir.ca.gov/OPRL/DPreWageDetermination.htm
► Addresses and Social Security Numbers (last 4 #’s): Each worker's complete address and social security number must be reported on the first payroll.
Thereafter, only the name and last four numbers of the Social Security number are required. The contractor must report the worker's new address when an address change occurs and full addresses and Social Security Numbers must be listed for any new employees.
► Numbering: CPRs should be numbered consecutively beginning with the first week that work was performed on the site and continuing until the final week. Non-
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performance weeks are to be included in the sequential numbering. The final CPR must be clearly marked “FINAL.”
► Payment of Prevailing Wages: Classification and wage rates reported on the
payroll will be compared against corresponding items on the applicable prevailing wage determination to determine whether the contractor is paying the workers the appropriate wage. If a contractor paid a lower wage rate, staff will calculate the restitution amount owed to workers. (For information on how to determine the correct prevailing wage rate, see Section 8.4 below)12.
► Deductions: Deductions will be reviewed to determine whether any impermissible deductions have been taken. Permissible deductions include13:
Federal and state withholding
FICA and SDI
Other deductions, such as wage garnishments, tax levies or court orders to pay child support. These deductions must be explained in Section (1) of the Statement of Compliance and must be accompanied by supporting documentation
Any withholding or deduction authorized by the employee in writing to cover:
Insurance premiums
Hospital/medical dues
Any statute of a collective bargaining agreement
8.4 How to: Determine a Prevailing Wage Rate
The DIR publishes prevailing wage determinations twice a year, on February 22 and August 22. The rates go into effect ten (10) days after publication – March 4 (March 5 during leap years) and September 1.
Correct prevailing wage rates can be verified on the DIR’s website: http://www.dir.ca.gov/OPRL/DPreWageDetermination.htm The steps to determine the prevailing wage rate for a given craft and project are as
follows:
1. Find the applicable determination. The applicable determination is the one in effect at the time the project is first advertised for bids. The two yearly determinations are named with the year followed by a “1” or “2” – so the
determination published on February 22, 2010 is “2010-1,” and the one published on August 22, 2010 is “2010-2.” Older determinations are collected on the site under “superseded prevailing wage determinations.”
12 See California Labor Code §1774.
13 See California Labor Code §224.
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2. Find the appropriate craft. Some crafts have prevailing wages that are valid throughout the state; some are valid throughout Southern California; and some are valid only in Orange County. To find the craft, multiple places may need to be checked.
3. Look up the rate. The determination contains a “Basic Hourly Rate” and a “Total Hourly Rate.” The Total Hourly Rate is the required total value of all wages and fringe benefit payments; the Basic Hourly Rate is the minimum rate that can be paid to workers on their paychecks, for contractors who pay the fringe benefit
amounts to a trust fund or benefit plan.
4. Check for predetermined increases. Each determination is published with either a single asterisk (*) or double asterisk (**) after the expiration date. Determinations with a single asterisk will remain valid for the duration of the
project; those with a double asterisk (**) have predetermined rate increases that must be taken into account. 5. Look up increases, if necessary. All predetermined increases for trades with county by county determinations can be found in a separate tab/worksheet
within the determination worksheet. All predetermined increases for other trades can be found by selecting “increases” on the pull down menu.
6. Take fringe benefits and training funds into account. A contractor’s Fringe Benefit Statement will state the hourly rate of fringe benefit contributions that are
made; the wage rate plus the total of all those contributions must equal or exceed the Total Hourly Rate. Many non-union contractors do not have benefit funds and pay the entire prevailing wage directly to the workers on their checks. It is important to note that the amount listed for “Training” may not be paid this way; it can only be paid to an approved apprenticeship program or to the CAC.
Verification of payment to the appropriate entity can be done by providing OCSD a copy of the canceled check, as well as a breakdown of hours performed by each worker. An example of the CAC 2 Training Fund Contributions Form submitted to the CAC can be found in Appendix S.
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Example Prevailing Wage Calculation
To find the prevailing wages due to a Carpenter working on a project on March 13, 2011. The project
was first advertised for bids on January 17, 2009. Let’s follow the steps above. Find the applicable
determination. The project was bid after the second prevailing wage determination of 2008 went
into effect (September 1, 2008), but before the first determination of 2009 went into effect (March 4,
2009). The applicable determination is 2008-2.
Find the appropriate craft. The screenshots below show the links to follow when looking for the
Carpenter classification. It can be found at the “Southern California” link.
1. Look up the rate. As can be seen on the screenshot, the total hourly rate listed is $47.22.
2. Check for predetermined increases. The determination expired on June 30, 2009, and has
two asterisks (**). There will be one or more predetermined increases applicable.
3. Look up increases, if necessary. There was an increase of $1.00 as of July 1, 2009, and an
increase of $0.50 as of July 1, 2010. A further increase is applicable as of July 1, 2011, but it
was not yet in effect on March 13.
4. Take fringe benefits and training funds into account. The contractor’s Statement of
Compliance and Fringe Benefit Statement do not list any pension, health, or other programs.
Therefore, we expect the entire prevailing wage to be paid on the worker’s check, except for
$0.42 which is due for training and may not be paid to the worker.
The prevailing wage is: $47.22 + $1.00 + $0.50 = $48.72. Of this amount, $0.42 must be paid
to an apprenticeship (training) fund. The CPR should show a payment of at least $48.30 per hour.
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Determine the prevailing wages due to a Carpenter working on a project on March 13, 2011. The project was first advertised for bids on January 17, 2009. The prevailing wage determination will be established using the steps outlined in Section 8.4.
1. Find the applicable determination. The project was bid after the second prevailing wage determination of 2008 went into effect (September 1, 2008), but before the first determination of 2009 went into effect (March 4, 2009). The applicable determination is 2008-2.
2. Find the appropriate craft. The screenshots below show the links to follow when looking for the Carpenter classification. It can be found at the “Southern California” link. Please
see Figure 8.4.1.
Figure 8.4.1 General Prevailing Wage Determination
After clicking on “Southern California”, the following screen will appear. Follow the link for
“Carpenter.” Please see Figure 8.4.2.
Figure 8.4.2 Carpenter Determination
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3. Look up the rate. As can be seen on the screenshot, the total hourly rate listed is $47.22.
Figure 8.4.3 Carpenter Hourly Breakdown
4. Check for predetermined increases. The determination expired on June 30, 2009, and has two asterisks (**) (as shown in the above figure after the Expiration Date. There will be one or more predetermined increases applicable.
5. Look up increases, if necessary. Return to the previous page and click on the “Increase” link. Please see Figure 8.4.4.
Figure 8.4.4 Carpenter Predetermined Increases
There was an increase of $1.00 as of July 1, 2009, and an increase of $0.50 as of July 1, 2010. A further increase is applicable as of July 1, 2011, but it was not yet in effect on March 13, 2011.
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Figure 8.4.5 Carpenter Predetermined Increase Breakdown
6. Take fringe benefits and training funds into account. The contractor’s Statement of
Compliance and Fringe Benefit Statement do not list any pension, health, or other programs. Therefore, we expect the entire prevailing wage to be paid on the worker’s check, except for $0.42 which is due for training and may not be paid to the worker. The prevailing wage is: $47.22 + $1.00 + $0.50 = $48.72. Of this amount, $0.42 must be
paid to an apprenticeship (training) fund. The CPR should show a payment of at least
$48.30 per hour.
Alternatively, a Master Prevailing Wage Worksheet should be updated on a regular basis. This Worksheet can provide all of the information above related to each specific prevailing wage. This is a live document that requires input from the LCO to maintain its
usefulness.
8.5 Other Documents to Review
► Statement of Compliance: CPRs submitted must be accompanied by a Statement of Compliance, signed in ink by the contractor or the designated agent, attesting that the payrolls are correct and complete and that the wage rates are not
less than those set by the applicable wage determination. A CPR submitted without a Statement of Compliance is considered incomplete or inadequate and shall be subject to withholding and/or a recommendation for a penalty.
Contractors may obtain a Statement of Compliance form at any of the following: 1. The format for reporting records requested pursuant to California Labor Code §1776 shall be on a form provided by the public entity.
2. Copies of the forms may be procured at any office of the DLSE through the state and/or: Division of Statistics and Research, P.O. Box 420603 San Francisco, CA 94101 Attention: Prevailing Wage Unit. 3. Acceptance of any other format shall be conditioned upon the requirement that the alternate format contain all of the information required pursuant to
California Labor Code §1776. If the contractor does not comply with California Labor Code §1776, the Labor Commissioner may require the use of the DIR’s Form A-1-131.
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Typically, contractors who are signatory to collective bargaining agreements (union contractors) check "Box A" on the Statement of Compliance, indicating that they are paying fringe benefits into an approved plan, fund, or program. Most non-union contractors check "Box B" in order to indicate that fringe benefits are paid in
cash; however, non-union contractors also have the option to pay their workers’ fringe benefits into a company sponsored plan, fund, or program (e.g. Health Net, John Hancock Pension Program, Kaiser, etc.). A contractor must submit the appropriate supporting documents in order to receive credit for these payments.
An example of a Statement of Compliance is attached as Appendix Q.
► Fringe Benefit Statement: The contractor must prepare a Fringe Benefit Statement, listing how and where fringe benefits are paid and must submit it along with the first payroll. The Fringe Benefit Statement must include the same
information as required by the DIR’s form PW26, “Statement of Employer Payments,” and must be resubmitted any time the contribution amounts change. The contractor can pay fringe benefits in two ways: 1) pay the benefits to a trustee or third party; or 2) pay the fringe benefits in cash to employees, minus training
fund contributions. If a contractor has specified on the Fringe Benefit Statement a union to which contributions are made, he/she should have indicated on the Statement of Compliance that benefits are being paid to an approved plan, fund or program. If the contractor does not make payments to a trustee or other third party, he/she may consider, as part of the wages of any laborer or worker, any costs to
provide fringe benefits under another plan. These costs must be verifiable. The Fringe Benefit Statement should be compared to 1) the prevailing wage determination, and 2) the Statement of Compliance. Check to make sure the employers’ payments match the amounts specified on the determination.
An example of a Fringe Benefit Statement is attached as Appendix O.
► Training Fund Contributions Form: Contractors who employ workers in apprenticeable trades must make training fund contributions either to the CAC or
to an approved training program (such as a union trust fund). If using the CAC, the CAC 2 form and copies of contribution checks must be submitted as evidence of payment of the training fund contribution. An example of a CAC 2 form is attached as Appendix S.
Contractors who are signatory to collective bargaining agreements must submit the trust fund report and copy of contribution check that they send to the trust fund on a monthly basis. Typically, the reports are due around the 15th of each month for work performed during the month prior. The report should be checked to verify that all workers listed on
the CPR for that month were on the trust fund report and that all contributions match the amounts listed on the determination. Any deviations will require the preparation of an audit worksheet.
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Alternatively, a Master Prevailing Wage Worksheet should be updated on a regular basis. This file can provide all of the information above related to each specific prevailing wage. This is a live document that requires input from staff to maintain its usefulness.
A portion of the worksheet is shown below.
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9 FIELD MONITORING
Jobsite inspections are to be performed randomly and as often as deemed necessary, but not less than once a week per California Code of Regulations §16432(d). The purpose of jobsite inspections is to verify the authenticity of the information provided by
the contractors and to verify that contractors comply with labor standards provisions. Jobsite interviews shall be undertaken during each week that a contractor has workers present at the jobsite. Jobsite visits and interviews need not be performed on days of inclement weather when the weather is expected to shut down the site.
When conducting jobsite interviews, staff should take a printout of the project’s Jobsite Interview Log to provide a reference for workers that were already interviewed. Re-interviewing should be avoided, unless it is necessary for obtaining information that was not captured during the last interview (e.g. worker had not yet been paid, therefore did
not know their hourly wage during last interview, requiring a follow-up interview). Many crafts typically begin at working at 7:00 a.m. and conclude at 3:30 p.m. with a 30-minute lunch period. Consequently, inspections should be scheduled for early in the day when the greatest number of contractors and construction workers are likely to be on the
jobsite. Upon entering a construction jobsite, staff should be properly outfitted. It is mandatory to wear a hard hat, safety vest, and steel-toe boots. Safety goggles, gloves, and hearing protection may be required to be worn on certain project jobsites.
Upon arrival at the project site, staff is to check in with the Project Inspector. Staff should also identify which contractors are on site, in order to target contractors that have not been previously interviewed.
Occasionally, the workers may suggest that staff drop by after work hours or on the weekend to observe workers performing unreported work. Staff should immediately make plans to conduct such observations.
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9.1 Content of Employee Interviews
Employee interviews must be sufficiently extensive to establish the degree of compliance and to uncover any violations. Employees will be informed that the information they provide is confidential, and that his or her identity will be disclosed only with the employee's written permission. Note: Disclosure of employee statements is governed by the California Public Records Act, Freedom of Information Act and the Privacy Act of 1974 and California Labor Code §1736, if the investigation is sent to the DLSE. The DLSE must keep the name and any other identifying information of an employee reporting a Labor Code violation confidential.
On-site visits must include visual inspection of the copy of the DIR determination(s) of the prevailing wage rate of per diem wages and of the required jobsite posting listing a telephone number to call for inquiries, questions, or assistance with regard to the LCP14. See Section 9.3 below.
Current employees may be interviewed during work hours, provided that the interview can be properly and privately conducted on the jobsite. Workers must actually be working when the interviews are conducted, so interviews generally should not occur during the workers’ breaks or lunch periods.
In cases of possible falsification of records or fear of reprisals or intimidation, it may better to conduct the interview elsewhere, such as in the employee's home or at the office. The worker must be observed working onsite prior to any such meeting to verify that they are performing work under the classification they are claiming. For example, a worker claiming to be a Laborer Group 1 must be observed performing work under the Laborer
Group 1 scope. Employee interviews are to be conducted during each week that workers are present at the jobsites, pursuant to California Code of Regulations §16432(d). Employee interviews shall be recorded on the Employee Interview Form. A sample Employee Interview Form
is included on the following page.
14 See California Code of Regulations 2007 Amendments §16432(d).
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The following information is to be requested and reported on the Interview Form:
► Project name and/or number.
► Contractor or employer. Employee's name. The employee's full name must be documented as well as any name variation from that listed on the payroll.
► Home address and telephone number.
o Inform the worker that the purpose for asking for their address & phone number is in case of any potential underpayments or investigations. Accurate contact information is necessary should the LCO need to communicate with this worker in the future.
o Addresses are also used to identify the specific worker in the event that there is another worker with a similar name. o If a worker refuses to provide an address, indicate on the interview sheet that the worker was asked for the address and declined to answer and ask the worker to initial beside the address area on the interview sheet as
confirmation that the question was asked.
o At minimum, the ZIP code should be provided by the worker (This information will also be instrumental in determining the travel radius).
► Duration on the project. It must be emphasized to the worker that questions
relate only to project work. As a check on the number of hours worked on the project, the worker will be asked the time of day he/she started work on the project on the day in question, the time he/she stopped working, and the time taken for lunch.
► Hourly rate of pay. It must be determined what the worker is being paid per hour. The worker should have received at least one check for work performed on the project to determine the rate of pay. If the worker has not received a paycheck, arrangements should be made to re-interview the worker at a later date.
o No issue exists if the worker is being paid a rate higher than the prevailing wage rate15; however, if the hourly rate of pay is lower than the required rate, the investigator is to question the worker further to determine whether the worker is really being underpaid. o If the worker is being paid a rate less than stated on the CPRs, the employer
may be secretly paying a lower wage while purporting to pay the wage designated by the statute or the contract. This action is unlawful.16 o NOTE: If the worker complains of being asked or required to work during any meal or rest period, or, if the employer fails to provide an employee a
15 See California Labor Code §219.
16 See California Labor Code §223.
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meal or rest period, a request shall be made to the DLSE to obtain restitution to the worker.17
► Information on Wages Received. Indicate the method and frequency of
payment. It is critical that the site interviewer ask the employee if it has a check stub and what the total amount of its last payment received was.
► Classification. The worker being interviewed may not be familiar with the classification used on the wage determination and thus may use a term not found
on the determination. Further questioning will probably uncover the correct classification. Indicate whether the worker is a member of a union and the status as a journeyman or apprentice. For trades that have multiple levels, have the worker indicate what level they are (if known).
► Duties and tools or equipment used. A description of the work being performed must be observed and recorded as well as the tools or equipment used by the worker to determine the appropriate work classification.
► Questions about how the worker arrived at the project. These questions will
determine whether the worker is entitled to travel and subsistence pay.
► Questions about hours. These questions will determine whether the worker is entitled to overtime pay.
► Questions about keeping record of hours. Questions about how the worker keeps record of its hours is important if the LCO undergoes an investigation and needs to request further evidence to substantiate the hours reported on payroll. Inquire if the worker is required to sign-in and sign-out on the job site and with whom is worker signing in and out (Prime, Sub, someone else)?
► Worker Check Stub Review. This area allows for staff to record information from the worker’s check stub onto the interview form. Verification of employee’s receipt of wages is required under California Code of Regulations §16432(c); this is one way to meet that requirement, if stubs are available.
► Compliance investigator remarks. Any discrepancies or questionable information encountered in the interview should be documented. Particular attention should be paid to any hint of coercion or intimidation of the interviewed employee in connection with revealing the actual pay rate. Also indicate if only a
headcount was taken (indicate the number of workers observed) and record the number of workers the Foreman reported on site that day.
► Employee's signature and Date of the Interview. Each interviewed worker must sign the employee interview form. The date that the worker is interviewed will be
noted. The date can be extremely useful in that it is a comparison of information
17 See California Labor Code §226.7(a) and §226.7(b).
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gathered at the jobsite against payroll information for that date and, thereby, can help to uncover inconsistencies. 9.2 HOW TO: Conduct an On-Site Interview
• Observe the scope of work
o Is worker performing within the scope of the classification?
o Note on the interview sheet if the worker is operating equipment not associated with the classification or performing work not associated with the classification.
• Identify the LCO representative's role:
o Introduce yourself.
o Use the appropriate conversational language (e.g. Spanish if appropriate) o Present business card. o Inform the worker that OCSD must ensure that prevailing wages are being
paid to the workers on this public works job.
o Inform the worker that each week their company is submitting payroll records which includes identity information (name, address, social security number, hourly wages, work classification, and payment). o Inform the worker that the purpose of this interview is to ensure that the
information submitted is accurate.
o Assure the worker that the information gathered is to ensure that the worker is being paid the correct rate.
• Complete all information that is required in the interview form.
• Should the worker have questions about the prevailing wage rate, offer to provide this information to the worker by mail, ask for mailing address. 9.3 Postings
While on the jobsite conducting worker interviews, staff should verify that the required notices have been posted in an easily accessible place.
Pursuant to California Code of Regulations §16429(b), a project subject to an LCP must post a notice stating that the project is subject to an approved LCP that includes contact information for the LCO. Staff should provide the posting on behalf of The District. If the posting is missing, site interview staff should bring a copy of the posting on their next site
visit. A sample posting is provided on the following page. This document is typically printed on brightly-colored paper for visibility and laminated to protect it from the elements. Prop 84 requires additional jobsite postings acknowledging the 2006 Parks and Water
Bond Act as a funding source. The Parks Water Bond Logo must be 1’x1’, but there is otherwise no minimum or maximum size for the sign. The sign must meet the California Department of Parks and Recreation and California Department of Transportation standards.
According to California Labor Code §207, employers must also conspicuously post at the place of work or where employees may see it coming from or going to their places of
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work or at the office or nearest agency for payment kept by the employer, a notice
specifying the regular pay days and the time and place of payment.
Additionally, California Labor Code §1773.2 states that a copy of the prevailing wage determination for each craft, classification or type of worker needed to execute the contract must be posted at each jobsite.
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9.4 Field Investigation Notes
Upon evidence of questionable compliance activities, a Field Investigation Notes form shall be completed. The form includes field notes, which is a description of the observed event, contractor(s) involved, and workers affected. In addition to the individual Employee Interview Form, site interview staff should also fill
out a Field Investigation Notes form for each site visited. This lists the date the site was visited, the time arrived and time left, if the required jobsite postings were still up, how many interviews were conducted, and which contractors were onsite. It also includes a section for any potential labor compliance issues discovered.
Upon evidence of questionable compliance by a contractor, staff shall fill out this section of the form, including a description of the observed event, contractor(s) involved, and workers affected. Site interview staff should alert the LCO to any potential issues as soon as possible so that the LCO can begin investigating the matter. The LCO, upon
discovering learning of possible questionable conduct by a contractor shall conduct a full audit of the contractor’s paperwork (see Section 11) and may also need to contact the affected worker(s) about submitting a formal complaint (see Section 10).
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10 WORKER and THIRD PARTY COMPLAINTS
In addition to monitoring all certified payroll records provided by the contractors, worker and third party complaints of underpayment of prevailing wage rates must be investigated. Workers will be informed that the filing of the complaint is confidential, and that his or her
identity will be disclosed to the contractor or subcontractor only after an investigation has
occurred and only within the context of an audit worksheet. Upon receipt of a written complaint alleging that a contractor or subcontractor has failed to pay prevailing wages as required by the California Labor Code, the LCO shall take the
following five steps according to California Code of Regulations §16434(b):
(1) Within 15 days after receipt of the complaint, send a written acknowledgment to the complaining party that the complaint has been received and identifying the name, address, and telephone number of the investigator assigned to the complaint;
(2) Within 15 days after receipt of the complaint, provide the affected contractor with the
notice required under California Labor Code §1775(c) if the complaint is against a
subcontractor;
(3) Notify the complaining party in writing of the resolution of the complaint within ten days after the complaint has been resolved by the LCO;
(4) Notify the complaining party in writing at least once every 30 days of the status of a
complaint that has not been resolved by the LCO; and
(5) Notify the complaining party in writing at least once every 90 days of the status of a complaint that has been resolved by the LCO but remains under review or in litigation before another entity.
Occasionally, workers may learn that the project they are working on is subject to prevailing wages and that they are being underpaid. Sometimes, a worker may learn that he has been underpaid after his work on the project is completed.
Investigations in such circumstances will be handled as follows:
► The LCO will inform the workers that they can submit a complaint to recoup wages owed. (The complaint form is available in English, Korean, and Spanish; a sample of the English and Spanish complaint forms are attached as Appendix D to this
manual). The LCO will also inform them of the prevailing wage rate for all
construction trade classifications in which they worked.
• Note that the DLSE shall keep confidential all information that may be used to identify any employee who files a complaint, pursuant to California Labor Code §1736.
► If the worker is still employed on the project, ask the worker to keep a log from that date forward along with all check stubs issued by the employer to accurately document all hours worked and wages paid. If an employee of the contractor reports the violation(s), staff will thoroughly investigate
the charge by interviewing the affected employee(s) and analyzing the submitted
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documents. If it is determined that a violation has occurred, staff shall prepare a Public Works Audit Worksheet, to be sent to the contractor. The major components and tasks related to investigations of worker complaints are as
follows: ► Gather the following supporting documents from all available sources to analyze for authenticity; o For apprentices, http://www.dir.ca.gov/das/das.html; o For training fund contributions, CAC 2 for the month, or confirmation of
payments received from the CAC website;
o Trust Fund Reports o Project Sign-In Sheets o Employee Interview Sheets o Field Investigation Notes Sheets
o Timesheets
o Contractor’s Payroll Registers o Copies of check stubs o Interviewing workers or other available witnesses
► Conduct a complete CPR audit and/or project audit. ► Review CPRs for errors, inconsistencies, discrepancies, falsification, misclassification, under-reporting and any other omissions that render the records inaccurate where needed by comparing the Inspector of Records daily
log with all available records. ► Compliance staff shall specifically advise workers of the following: “Willfully submitting false information on the claim form(s) will result in the entire claim being rejected as not credible.”
If a thorough audit does not reveal any evidence of underpayment or other wrongdoing by the contractor, the complaint is considered closed and the parties will be notified. The complaint is otherwise resolved with the resolution of the audit as described in Section 11 below.
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11 AUDITING PROCESS
Audit, investigative and enforcement responsibilities are the most challenging aspects of operating a labor compliance program. Investigative activities are the duties and tasks engaged in to verify the payment of
prevailing wage rates upon receipt of a complaint or in conducting an audit of records. Prior to filing a Notice of Withholding of Contract Payments, OCSD must demonstrate that a thorough and objective investigation took place. Consequently, all activities aimed at verifying a complaint or the accuracy of records must be documented and maintained. All correspondence regarding wage withholdings, assessments and forfeitures must be
completed via first-class, certified U.S. mail. Moreover, if any pertinent documents are delivered by hand, a signature and/or date stamp from whomever received the documents must be obtained. Conversation logs should be kept for all in-person or telephone conversations, memorializing topics discussed immediately after the conversation takes place
An audit18 shall be prepared by the LCP whenever it has been determined that there has been a violation of the Public Works Chapter of the California Labor Code resulting in the underpayment of wages. An audit requires comparing payroll records to the best available information as to the actual hours worked and classifications of workers
employed on the contract. Such available information may include, but is not limited to, worker interviews, complaints from workers or other interested persons, time cards, cancelled checks, cash receipts, trust fund reports, books, documents, schedules, forms, reports, receipts or other evidence of job assignments, work schedules by days and hours, and the disbursement by way of cash, check, or in whatever form or manner, of
funds to person(s) by job classification and/or skill pursuant to a public works project. Audits may be conducted when deemed necessary or upon request of the Labor Commissioner. A sufficiently detailed audit enables the Labor Commissioner to draw reasonable
conclusions as to compliance with the California Labor Code and enables accurate computation of underpayment of wages to workers and applicable penalties and forfeitures. Records shall be maintained and made available to show that the audits conducted are sufficiently detailed to verify compliance with the requirements of Chapter 1 of Part 7 of Division 2 in the California Labor Code. A sufficiently detailed audit includes
the forms found in Appendix B of the California Code of Regulations and a brief narrative identifying the Bid Advertisement Date for the project, summarizing the nature of the
18 California Labor Code §16432(e) define audit as: a written summary reflecting prevailing wage
deficiencies for each underpaid worker, and including any penalties to be assessed under California Labor Code §1775 and §1813, as determined by the LCP after consideration of the best information available as
to actual hours worked, amounts paid and classifications of workers employed in connection with the public work.
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violation, and summarizing the basis upon which the determination of underpayment was made 19. Records supporting an Audit shall be maintained by the LCP to satisfy its burden of
coming forward with evidence in administrative review proceedings under California Labor Code §1742 and the Prevailing Wage Hearing Regulations found at California Code of Regulations §§17201-17270. Spot Auditing: Spot Auditing is the random audit of a contractor’s CPRs. Typically, the
LCO will conduct a full review of the first two weeks submitted by the contractor, and then check a sampling of the workers listed on subsequent CPRs to verify that wages are still being paid correctly. Whenever predetermined increases go into effect, the LCO should again review each CPR fully to verify that the contractor is paying them correctly. The LCO must regularly track which CPRs have been audited and the completion of monthly
reports for each of his/her projects to ensure that these activities are being completed on a timely basis Full Audits of contractor and subcontractor files are performed when issues are uncovered from site interviews, worker complaints, or from spot auditing. If violations of
labor standards are occurring, this audit will usually uncover them. A full audit will be conducted on all documents that are submitted, including, but not limited to: CPRs, time cards, bank certified cancelled checks, Monthly Reports to Trustees, Owner-Operator Listings, Fringe Benefit Statements, and apprenticeship forms.
Payroll reports will be compared against employee interview reports (see Field Monitoring Section). If discrepancies are found between the employee interviews, the on-site inspection reports and/or information listed on the payroll reports, staff will initiate a full audit (described below). If clarification is needed as to the actual day, dates, and hours worked, as well as wages paid for labor on the project, additional documents, such as
timecards (or timesheets), Daily Inspector’s Records, cancelled payroll checks, and the payroll register can be requested. The minimum requirement for a review of certified payrolls (outlined in California Code of Regulations §16432(b)) consists of the following: determine if (1) all appropriate data
elements identified in California Labor Code §1776(a) have been reported; (2) certification forms have been completed and signed in compliance with California Labor Code Section 1776(b); and (3) the correct prevailing wage rates have been reported as paid for each classification of labor listed thereon, with confirmation of payment performed as required in California Code of Regulations §16432(c). (See Section 8.3)
When necessary, or as a spot-check, comparison of CPRs may be made to records or documents maintained independent of CPRs or those records used to gather the information contained in the CPRs. These are usually referred to as source documents and include but are not limited to front and back copies of cancelled checks, time cards,
copies of pay check stubs, payroll registers, personnel sign-in sheets, daily logs and any other document which authenticates or corroborates that which has been reported.
19 See California Code of Regulations §16432 and Appendices A and B for 2006 and 2007 Amendments.
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If deemed necessary, staff may conduct a random on-site audit of a contractor’s office in order to obtain confirmation of the payroll records furnished by a contractor and/or subcontractor as independent collaboration of reported prevailing wages (pursuant to
California Code of Regulations §16432(c)). On-site audits should be announced to the contractor in question within a few days’ notice and serve to inform the contractor that staff will be at their office on a specified date. A typical on-site audit will review the following records, which shall be made available by the contractor at the time of review:
CPRs
Fringe benefit statements that accompany the CPRs
DAS forms (DAS 140)
CAC forms (CAC 2)
Union Trust Fund Reports substantiating fringe benefit payments
Copies of requests for approved deductions, if any
Copies of cancelled payroll checks issued during the review period – Front and Back
Copies of the payroll register for the selected review period
Timesheets/time cards for employees listed in the CPRs for this project. Investigative activities are the duties and tasks engaged in to verify the payment of prevailing wage rates upon receipt of a complaint or in conducting an audit of records.
Prior to filing a Notice of Withholding of Contract Payments, OCSD must demonstrate that a thorough and objective investigation took place. Consequently, all activities aimed at verifying a complaint or the accuracy of records must be documented and maintained. All correspondence regarding wage withholdings, assessments and forfeitures must be completed via first-class, certified U.S. mail. Moreover, if any pertinent documents are
delivered by hand, a signature and/or date stamp from whoever received the documents must be obtained. Conversation logs should be kept for all in-person or telephone conversations, memorializing topics discussed during or immediately after the conversation takes place.
The activities and information aimed at verifying a complaint or the accuracy of records must correlate with the type of audit performed. The following is a list of different audits that may be performed to determine compliance with the California Labor Code and California Code of Regulations and the activities and information necessary to successfully perform them. These may be conducted at random or in response to specific
issues uncovered from spot auditing, employee interviews, or worker complaints.
Audits of the obligation to secure workers’ compensation o Written evidence, typically in the form of an insurance binder issued by the carrier, CSLB website printout, or telephone or written inquiry to the
Workers’ Compensation Insurance Rating Bureau
Audits of the obligations to employ and train apprentices o Inquiry to the Apprentice Program sponsor to establish whether contract award information was received, including an estimate for the journeyperson
hours to be performed and the number of apprentices to be employed; whether apprentices have been requested, and whether the request has been met; whether the program sponsor knows of any amounts sent by the contractor or subcontractor to it for the training trust, or the CAC; and whether persons listed on the certified payroll in that craft or trade as being
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paid less than the journeyperson rate are apprentices registered with that program and working under apprentice agreements approved by the DAS
Audits of the obligation to make apprenticeship training contributions to either a training trust or the CAC
o Ask for copies of checks sent or, when the audit occurs more than 30 days after the month in which payroll has been paid, copies of canceled checks
Audits of “illegal taking of wages”
o Inspection of written authorizations for deductions (listed in California Labor Code §224) in the contractor or subcontractor’s files and compare to wage deduction statements furnished to employees (California Labor Code §226), together with an interview of several employees as to any payments not shown on the wage deduction statements
Audits of the obligation to keep records of working hours, and pay not less than required by California Code of Regulations §16200(a)(3)(F) for hours worked in excess of 8 hours o The steps for review and audit of weekly CPRs under Title 8 California Code
of Regulations §16432
Audits of the obligations to pay the prevailing per diem wage o Such steps for review and audit of weekly CPRs which will produce a report covering compliance in the areas of:
• All elements defined as the “General Prevailing Rate of Per Diem Wages” in California Labor Code §§1773 and 1773.1, which were determined to be prevailing in the Director’s determination which
was in effect on the date of the call for bids, available in its principal
office, and posted.
• All elements defined as “Employer Payments” set forth in California Labor Code §1773.1, which were determined to be prevailing in the
Director’s determination which was in effect on the date of the call
for bids, and pursuant to California Labor Code §1773.2 were to be specified in the call for bids, made available in its principal office and posted.
• Staff should request copies of cancelled checks from the project
contractors in order to verify that the workers cashed their payroll checks and the CAC and/or trust fund payments (if applicable) were in fact made/credited against the contractors account. 11.1 HOW TO: Audit Certified Payroll Records
Because audits involve comparing CPRs to records and documents maintained independent of them, it is important to thoroughly audit the CPRs themselves. See
Sections 8.1 through 8.3 to see a detailed process on how to review CPRs.
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11.2 HOW TO: Audit Trust Fund Reports
► Review the Trust Fund reports for the same month as the CPRs
Example: Trust Fund Report for May 2011 should be reviewed against the May 2011 CPRs for work performed
► Compare the names listed on the May CPRs to those names listed in the contractor’s May trust fund report; check to see which week-end dates are included in that report
► Create a simple chart for each worker listed on the CPRs
Name, Week 1 hours, Week 2 hours, Week 3 hours, Week 4 hours, and Total Hours
► The Total Hours for that particular employee should be equal to, or less than, the hours listed on the trust fund report
► Check the benefit amounts against the prevailing wage determination to make sure they are paying the correct contribution
► What if...An employee listed on the CPRs is not listed on the trust fund report
Draft a potential underpayment letter and Public Works Audit Worksheet for that worker. Include all hours worked during that month and multiply all hours
by the correct benefit rates
► What if...The benefit amounts on the trust fund reports are lower than those
published in the prevailing wage determination
Draft a potential underpayment letter and Public Works Audit Worksheet for all affected workers. Include all hours worked during that month and multiply
all hours by the correct benefit rates
► What if...Prevailing Wage Determination refers to the DAS for Apprentice
Fringe Benefit Contribution amounts
Call the local apprenticeship committee to verify the contribution amount (Different periods of apprenticeship may have different contribution amount)
11.3 HOW TO: Audit Training Fund Payments
Contractors may pay some or all of the fringe benefits required by the applicable Prevailing Wage Determination (process for determining the applicable Prevailing Wage
Determination is described in Section 8.4) direct to the employee as part of their basic hourly rate with the exception of the training fund contributions. If the contractor is using
an apprenticeable trade, the required training fund contributions must be made either to
the CAC or a to a DAS-approved apprentice program. Payments to the CAC: To pay training fund contributions to the CAC, the contractor can use the CAC 2 Form (Appendix S) or pay online.
The CAC 2 form must be filled out listing:
• The name and address of the contractor,
• The name and address of the Awarding Agency,
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• The contractor’s CSLB license number,
• The project name and location,
• The period that the contractor is paying for (contributions are to be made monthly on the 15th of the month after the month of work was performed)
• The county the work is performed in
• The hours, hourly contribution rate, and total amount paid for the contractor’s workforce broken down by trade.
The form must be signed and mailed along with a check to the CAC at:
Department of Industrial Relations
California Apprenticeship Council
P.O. Box 511283 Los Angeles, CA 90051-7838
NOTE: this is a new address as of March 17, 2015.
Training Fund contributions can also be paid online at:
https://www.dir.ca.gov/DAS/tf/cac2.asp
To audit a CAC 2 form, the LCO should:
• Review the form to verify the above information is filled in correctly,
• Review the rates listed for each work classification and verify that they are correct
• Verify that the rates multiplied by the hours reported add up to the contribution
amount
• Check the hours reported against the hours reported on CPRs for the reporting period and verify that they match up
• Verify that a cancelled check is attached in the amount reported, payable to the CAC.
The contractor’s payments to the CAC can also be verified online here:
http://www.dir.ca.gov/CAC/trainingfund/Tfsearch.html
Payments to other DAS-Approved Apprenticeship Programs: Contractors may also pay their training fund contributions to a DAS-approved apprenticeship program. To make these payments, they may use a form required by the program or one of their own making. The form should include the same information as the CAC 2 form:
• The name and address of the contractor;
• The name and address of the program they are submitting payments to;
• The project name and location;
• The period that the contractor is paying for (contributions are to be made no later than quarterly though most programs also require them to be paid monthly on the 15th of the month after the month of work was performed);
• The county the work is performed in; and
• The hours, hourly contribution rate, and total amount paid for the contractor’s workforce broken down by trade.
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To audit such payments, the LCO should follow the same steps as described above for the CAC 2 form, with the addition of verify that the program the payments are being made to is indeed an approved program for the work being performed.
A list of DAS-approved apprenticeship programs by trade can be found at the following
link:
http://www.dir.ca.gov/databases/das/pwaddrstart.asp
Union contractors are typically required to pay = their union’s apprenticeship program and their payments will usually be included as part of their trust fund reports (See
auditing trust fund reports in Section 11.2 above)
If an underpayment is discovered, then the CAC or Apprenticeship Program would be owed restitution and an audit should be prepared as described below.
11.4 HOW TO: Prepare an Audit Letter
When it has been determined that a potential violation exists, staff shall take prompt action to enforce compliance, including the thorough imposition of appropriate penalties and formal enforcement action. Every audit where a potential underpayment or violation has been uncovered should be accompanied by an audit cover letter that describes the violation and how to rectify it in addition to an Audit Rationale Sheet, which is a summary
of the investigation with a statement of the preliminary findings and recommended corrective action necessary to meet compliance requirements and audit worksheets provided by the DIR, which include: a Public Works Audit Worksheet that shows the workers involved and amounts paid/due; a Public Works Investigation Worksheet; and a Prevailing Wage Determination Summary sheet. Any details about the audit that are not
described on the audit letter must be included in the Audit Rationale sheet. The audit cover letter should include the following information:
► Subject Line: Summarize the issue and assign an audit number to the audit; the
audit number should contain the contractor’s name and a number to differentiate it from any other audits. State the project name. Include OCSD as the awarding body.
► Introductory paragraph: State that the project is a public works project that is
subject to the payment of prevailing wages. Introduce which staff is responsible
for monitoring and enforcing the labor compliance program on the project. State that staff has discovered an apparent violation of the California Labor Code (state the section) and describe what the issue is (e.g. underpayment of prevailing wages, non-payment of training fund contributions, underreporting of
workers/hours on Trust Fund Reports, etc.). State how many workers are affected
and describe the method in which the underpayment was discovered (e.g. completed a review of CPRs, reviewed reports that contain differences in the number of workers reported on the CPRs, on-site interviews, etc.).
► Describe the issue: State the facts. Describe the information behind the discovery
of the underpayment issue. Describe how the contractor’s reports are potentially incorrect (e.g. do not reflect the correct wages, number of workers, etc.) and what
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the correct information should be. Cite the DIR determination and make reference to any predetermined increases that are applicable to the project. Summarize how much money is due and state that the amount is reflected in the attached audit worksheet. Restitution checks to resolve worker underpayment issues should be
made payable to the worker, minus standard tax deductions. All underpayment checks should be sent to the LCO for distribution to the appropriate employee. This is the typical practice of restitution, however, the contractor has the ability to pay restitution directly to the workers and then provide evidence proving payment to the affected workers. Evidence would include information such as a copy of the
canceled check sent to the worker with all of the itemized deductions listed.
► Note the period covered. State “any other audits outside of this period will be assessed in a separate audit.”
► Un-verified apprenticeship certifications (if applicable to the audit)
o These documents are necessary if staff has identified apprentices working on the job but cannot verify that they are registered apprentices.
► Request for missing documents
► Instructions for making restitution and penalty payments
► Due dates for a response o Indicate a time period for response, usually 10 days, and request that any
refutation of the preliminary findings be accompanied by documented evidence supporting the claim. Identify the consequences for failure to respond, failure to provide additional evidence of compliance, or failure to provide proof of payment.
All underpayment letters pertaining to an audit must be sent via certified mail to both the prime and affected subcontractor, if applicable. Who Receives Restitution of Fringe Benefits?
If fringe benefits are paid into a Trust Fund or approved plan, then any
restitution of unpaid fringe benefits may be paid to that fund or plan.
If fringe benefits are paid in cash to the worker, then these are treated as a regular underpayment to the worker.
11.5 HOW TO: Prepare an Audit Worksheet
The purpose of the audit worksheet is to outline the nature of the violation. The contractor
will be provided with a copy of the audit worksheet. If the contractor fails to respond, staff
forwards the audit worksheet to the Labor Commissioner, at which point it will be the responsibility of the contractor to follow up. Audit worksheets sent to the Labor Commissioner must include:
• A Public Works Audit Worksheet
• A Prevailing Wage Determination Summary
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• A Public Works Investigation Worksheet
• A Public Works Audit Worksheet
• An audit narrative (determination) that contains a thorough description of the violation and its discovery, an account of the actions LCO staff took to resolve the issue, and the LCO’s recommendation
Calculating Amounts Due to Workers
► To calculate the amounts due to workers, a Public Works Audit Worksheet will be completed. California Code of Regulations §16432(e) requires that audits be detailed in a Public Works Audit Worksheet—Appendix B (see Section 11.9).
► For contractors who are paying fringe benefits to an approved plan, fund or program, the "Hourly Rate of Pay" on the payroll report form is to be compared with the "Basic Hourly
Rate" shown on the wage determination. If the worker's hourly rate equals or exceeds the basic hourly rate, no underpayment of prevailing wages exists.
► Note: Vacation pay is always taxable, is included in the hourly rate of pay, and then is deducted.
► For contractors who are paying fringe benefits in cash, the "Hourly Rate of Pay" is to be compared with the "Total Hourly Rate" shown on the wage determination (minus the training fund contribution). If the worker has been paid an amount equal to or greater than
the prevailing wage rate, no underpayment exists.
► If a worker has been underpaid, the difference between the minimum applicable hourly prevailing rate and the hourly rate paid is calculated and multiplied by the total hours worked in order to determine the amount of underpayment. Straight-time hours and overtime hours are calculated separately. When calculating overtime underpayments, first
multiply the basic hourly rate by 1.5 (or 2.0 if it is for Sunday/holiday work). Add the fringe benefit amount (employer payments) to that calculation
See Section 11.6 below for how to fill out a Public Works Audit Worksheet and Section
13 on how to notify a contractor of violations.
11.6 Public Works Audit Worksheet
The Public Works Audit Worksheet provides the investigator with a summary of the total
wages paid by the contractor versus the required hours/wages that should have been paid. It also identifies penalties and training fund contributions due and owing. A sample
Public Works Audit Worksheet is included below in Section 11.9.
Below are the headings of a Public Works Audit Worksheet. The headings are followed
by a description of the items required.
a. Employer Firm, Address, Project, Awarding Body (The District), Prime, Deputy, Office
Include the information in the top portion of the worksheet.
b. Transcriber Indicate the name of the LCO Auditor here.
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c. Total Amount Due/Owing, Wages Due/Owing, Penalties Due/Owing, Training
Funds Due/Owing Enter the total amounts, for all workers, in their respective fields.
d. Employee List the names of all workers affected by the audit. e. Classification
Next to each worker’s name, list the work classifications. If one worker has
performed more than one classification, enter that worker’s name next to each classification. f. Period Worked
Identify each week-ending period worked by each worker listed.
g. Hours Worked For each day within the reporting week end date, enter the hours the employee worked. Straight-time hours, overtime hours, and double-time hours must be reported on their respective rows.
h. Other Wages Paid For each week-ending period, enter the total gross wages paid for this project, as reported on the CPRs and on the Public Works Investigation Worksheet.
i. Total Wages Paid For each week-ending period, enter the total gross wages paid for this project, as reported on the CPRs and on the Public Works Investigation Worksheet. j. Prevailing Wage Requirements
Other: For each week-ending period, enter any other compensation amounts required, as reported on Public Works Investigation Worksheet. Total Wages: For each week-ending period, enter the “total wages required” amount, as reported on Public Works Investigation Worksheet.
k. Amount Owing and Unpaid For each week-ending period, enter the “Amount Due and Owing” amount, as reported on Public Works Investigation Worksheet; this is the column next to the “Total Wages Required.”
l. Penalties No. 1 & Penalties No. 2 For each week-ending period, enter the penalty amount due for the first penalty assessment (e.g. for penalties associated with California Labor Code §1775 violations); if there are penalties for a second violation (e.g. for penalties
associated with California Labor Code §1813 violations) enter those amounts in the Penalties No. 2 area. m. Training Fund
For each week-ending period, enter the total amounts from the ”Total Training
Fund” area, as reported on Public Works Investigation Worksheet.
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n. Total Amount Due For each week-ending period, enter the ”Amount Due and Owing,” which is the last column on the Public Works Investigation Worksheet.
Enter the total amounts for all columns at the bottom the page. In the box at the lower left-hand side of the page, enter the hourly penalty assessment amount for each violation. 11.7 Prevailing Wage Determination Summary
The Prevailing Wage Determination Summary (see sample below) provides the investigator an overall summary of the prevailing wage rates and contribution amounts
associated with the audit. Each work classification is linked to a “code number.” This classification code number must be placed on the Public Works Investigation Worksheet (further explained below). Below are the headings of a Prevailing Wage Determination Summary. The headings
are followed by what items are required. All information can be referenced upon the DIR Prevailing Wage Determination. a. Classification
List all individual work classifications for each scope of work that the contractor
employed on the project, which were affected by the audit.
b. Wage Determination Number List the wage determination number for all work classifications that the contractor employed on the project, which were affected by the audit.
c. Effective Date Indicate the effective date of the work classification for each scope of work. d. Hourly Rate
Indicate the straight-time hourly rate for each work classification.
e. Contributions Indicate the sum of the hourly Employer Payments, excluding training; these include: health & welfare, pension, vacation, and other.
f. Training Indicate the hourly training contribution amount. g. Time ½
Indicate the overtime hourly rate for daily time-and-a-half.
h. Holiday/Sunday Indicate the overtime hourly rate for “Sunday & Holiday” time.
i. Travel & Subsistence
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Indicate the travel and subsistence rate. This can be referenced on the internet: www.dir.ca.gov/OPRL/PWD j. Other Hourly Requirements
Indicate any other hourly requirements that are not covered above. This may include shift differential pay.
11.8 Public Works Investigation Worksheet
The Public Works Investigation Worksheet (see sample below) shall be completed for each worker that is affected by the audit. It provides the investigator with a week-by-week summary of the hours reported as worked/paid versus the required hours/wages that should have been paid, in addition to amounts of penalties. Use as many worksheets as
necessary to complete the audit for each worker; denote the total number of pages for
that worker in the lower right hand of each page. Below are the headings of a Public Works Investigation Worksheet. The headings are followed by what items are required.
a. Employees Name & Social Security Number Identify the name and social security number for the worker. b. Deputy
Identify the name of the LCO Auditor.
c. Office
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Identify the office as “The Orange County Sanitation District Labor Compliance Office” d. Date
Identify the date the audit was completed or latest date it was revised.
e. Employer Identify the name of the contractor that employed the worker.
f. Case Number Identify the audit case number. g. Classification Code
The classification code number can be found on the Prevailing Wage
Determination Summary.
h. Period Ending Year week end Enter the week end date of the CPR in this area.
i. Hours of Work For each day within the reporting week end date, enter the hours the employee worked. Straight-time hours, overtime hours, and double-time hours must be reported on their respective rows.
j. Total Days Worked Enter the total days worked within the reporting week. k. Total Hours Worked
Enter the total hours worked within the reporting week, as reported by the CPR,
making sure identify straight-time hours, overtime hours, and double-time hours within their respective rows. Note: In this area, only enter the hours reported by the contractor. Any mistakes in overtime reported hours should not be corrected here; they should be reflected
in the area called “Prevailing Hours Worked.”
l. Actual Rate (ST, OT, DT) Enter the basic hourly rate as reported upon the contractor’s CPRs for straight-time hours, overtime hours, and double-time hours.
m. Other Compensation Enter any other compensation as reported upon the CPRs here. n. Total Wages Paid
Enter the total gross wages paid for this project, as reported on the CPRs.
o. Required Wage Rates (St, OT, DT) Enter the basic hourly rate as reported upon the DIR Prevailing Wage Schedule for straight-time hours, overtime hours, and double-time hours.
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Note: When determining overtime and double-time hours, Analyst must reference the work classification’s Collective Bargaining Agreement (CBA), as published in the prevailing wage determination. The CBA states the hourly threshold for calculating over- and double-time hours.
p. Other Compensation Enter any other compensation as required by the DIR Prevailing Wage Schedule here. This may include the employer payments/fringe benefit contributions per each hour worked, if the contribution amounts are not calculated as part of the
worker’s hourly rate (i.e. contributions due to the union trust fund).
q. Total Wages Required The total wages required is a sum of the “required wage rates” and the “other compensation” column, both multiplied by the hours.
r. Amount Due and Owing The amount due and owing is the product of the “Total Wages Paid” and “Total Wages Required” fields.
s. No. of Violations Count and enter the total number of wage violations in the box provided for each reporting week. This amount will be multiplied by the penalty rate. t. Penalties under California Labor Code §1775 and §1813
In the space (__) provided next to the California Labor Code section number (“1775” or “1813”), enter the assessed penalty amount per occurrence (e.g. $30, $50, $200). u. Total Training Fund
Enter the hourly training fund contribution amount next to the area called “rate.” Multiply that rate by the number of hours worked in that reporting week and enter that amount in the field below the “rate.” v. Amount Due and Owing (column furthest to the right)
The amount due and owing is the product of the “Total Wages Required,” “penalties 1775,” “penalties 1813,” and “Total training fund” fields.
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11.9 Public Works Audit Worksheet
The Public Works Audit Worksheet (see sample below) provides the investigator with a summary of the total wages paid by the contractor versus the required hours/wages that should have been paid. It also identifies penalties and training fund contributions due and owing.
Below are the headings of a Public Works Audit Worksheet. The headings are followed by what items are required. o. Employer Firm, Address, Project, Awarding Body (The District), Prime, Deputy,
Office Include the information in the top portion of the worksheet. p. Transcriber
Indicate the name of the LCO Auditor here.
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q. Total Amount Due/Owing, Wages Due/Owing, Penalties Due/Owing, Training
Funds Due/Owing Enter the total amounts, for all workers, in their respective fields.
r. Employee List the names of all workers affected by the audit. s. Classification
Next to each worker’s name, list the work classifications. If one worker has
performed more than one classification, enter that worker’s name next to each classification. t. Period Worked
Identify each week-ending period worked by each worker listed.
u. Hours Worked For each day within the reporting week end date, enter the hours the employee worked. Straight-time hours, overtime hours, and double-time hours must be reported on their respective rows.
v. Other Wages Paid For each week-ending period, enter the total gross wages paid for this project, as reported on the CPRs and on the Public Works Investigation Worksheet.
w. Total Wages Paid For each week-ending period, enter the total gross wages paid for this project, as reported on the CPRs and on the Public Works Investigation Worksheet. x. Prevailing Wage Requirements
Other: For each week-ending period, enter any other compensation amounts required, as reported on Public Works Investigation Worksheet. Total Wages: For each week-ending period, enter the “total wages required” amount, as reported on Public Works Investigation Worksheet.
y. Amount Owing and Unpaid For each week-ending period, enter the “Amount Due and Owing” amount, as reported on Public Works Investigation Worksheet; this is the column next to the “Total Wages Required.”
z. Penalties No. 1 & Penalties No. 2 For each week-ending period, enter the penalty amount due for the first penalty assessment (e.g. for penalties associated with California Labor Code §1775 violations); if there are penalties for a second violation (e.g. for penalties
associated with California Labor Code §1813 violations) enter those amounts in the Penalties No. 2 area. aa. Training Fund
For each week-ending period, enter the total amounts from the “Total Training
Fund” area, as reported on Public Works Investigation Worksheet.
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bb. Total Amount Due For each week-ending period, enter the “Amount Due and Owing,” which is the last column on the Public Works Investigation Worksheet.
Enter the total amounts for all columns at the bottom the page. In the box in the lower left-hand side of the page, enter the hourly penalty assessment amount for each violation.
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12 AUDIT FINDINGS AND RESULTS
12.1 Wage Violations
If a wage violation is identified, an audit letter and DIR Appendix B—Audit Worksheets
comprised of the Public Works Investigation Worksheet, Public Works Audit Worksheet and Prevailing Wage Determination Summary (as detailed in Sections 11.7-11.9
above)—will detail the violation(s) and the actions to be taken by the contractor to cure the violation(s), including restitution amounts and deadlines. The detailed process below will explain how to investigate and prepare findings for wage violations.
12.2 Preparing a Determination
After the initial audit, all subsequent audits should begin by determining whether additional information, documentation, clarification and wage restitutions from the previous audit have been received.
If two or more audit letters have been sent to a contractor who is in violation, and the
contractor has not responded to the audits, nor presented mitigating evidence showing that a violation did not occur, then it is incumbent on staff to prepare a determination for the Labor Commissioner, detailing the nature of the violation and the evidence that was collected by staff.
A determination may be necessary when all attempts at a settlement with the violating contractor have failed, and there are no other recourses for the resolution of the issue. At such a time, the elements identified in the next section, Case Preparation, should be included in the determination, which comprises the work and evidence that staff has done
in auditing the violating contractor.
12.3 Case Preparation
In preparing a case for additional review, either by OCSD or by the DLSE, the following critical steps should be routinely applied in every prevailing wage violation case and particularly for those cases that lead to the filing of a Notice of Withholding of Contract Payments. Each individual audit needs a separate Audit file, with copies of all pertinent
documents.
► Prepare a written audit narrative that reflects the prevailing wage deficiencies and any penalties to be assessed and the key information outlined in the “Audit File System” section 20.2 of this Manual. A sample template for a written audit
narrative is included as Attachment H.
► If an underpayment of wages has been identified:
• Actions to be taken by OCSD
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o Verify that OCSD will withhold enough money to cover the wages and potential penalties if the amount required to cover the wages and potential penalties has not already been withheld.
• Determine the extent of the underpayment
How many workers were affected?
How much is owed?
Prepare the Public Works Audit Worksheet (see Section 11.6)
Notify the Contractor of the findings with a Wage Underpayment Letter
► Requesting a Review of Forfeitures
• A Request for Approval of Forfeitures can be requested when it has been determined that a contractor has failed to pay prevailing wage. (A Request for Approval of Forfeitures is attached as Appendix I) When a Review for
Approval Forfeitures from the Labor Commissioner is requested, a determination must be prepared outlining the steps required by the California Code of Regulations §16437. The Request for Approval of Forfeitures must be served on the Labor Commissioner and the contractor or subcontractor by certified mail20 as soon as practicable after the
contractor has been notified of the violation and failed to respond, and not less than 30 days before the final payment, but in no event not more 18 months after the file of the Notice of Completion for the project, as outlined in California Labor Code §1741. The following items shall be included in the Request for Approval of Forfeiture submitted to the Labor
Commissioner:
o Was the public work accepted by OCSD?
• Date of acceptance o Was a valid notice of completion filed? If so, date of filing
o Amount of funds/retention OCSD is holding
o Any deadlines missed that would impede collection? o Provide evidence of violation in narrative form o Provide evidence that an audit or investigation occurred.
• Include a copy of any audit summary stating the amounts of unpaid wages and applicable penalties o Provide evidence that the contractor and subcontractor were given the opportunity to explain that there was no violation or that any
violation was caused by a good faith mistake and promptly corrected
when brought to the attention of the contractor or subcontractor
• Include evidence that the contractor or subcontractor either did not correct the violation or failed to provide evidence to change the position taken in the determination
o Where penalties are also included as part of the forfeiture and the contractor or subcontractor has unsuccessfully contended that the violation was a result of a good faith mistake and was promptly
20 According to the California Code of Regulations §16437, the LCP may exclude from the documents served on the contractor and subcontractor copies of documents secured from the contractor or subcontractor during an audit, investigation, or meeting if those are clearly referenced in the file or report.
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corrected, a short statement recommending assessment of the penalty amount pursuant to California Labor Code §1775(a) should be included o Where only wages are sought or a penalty of less than $200 per day
is sought because the contractor or subcontractor has successfully contended the violation was a good faith mistake that was promptly corrected, the file should include evidence as to the contractor or subcontractor’s knowledge of the obligation, including the communication to the contractor of the obligation in the bid
invitations, at the pre-construction conference agenda and records, and other notice given as part of the process. Include a statement recommending penalties pursuant to California Labor Code §1775(a) o Detail any previous record of the contractor or subcontractor in meeting their prevailing wage obligations
o State whether the LCP has been granted approval on an interim or temporary basis (California Code of Regulations §16425 or C§16426) or whether extended approval (California Code of Regulations §16427) has been granted
• A copy of the wage Prevailing Wage Determination, found on the DIR Website and detailed in Section 8.4, is required to be served to the contractor or subcontractor
• The Request for Approval of Forfeitures shall also be served by certified mail on any bonding company issuing a bond that secures the payment of
the wages covered by the Request for Approval of Forfeitures and to any surety on a bond, if the identities of such companies are known or reasonably ascertainable. The identity of any surety issuing a bond for the benefit of OCSD shall be deemed "known or reasonably ascertainable," and the surety shall be deemed to have received the notice required under this
subpart if sent to the address appearing on the face of the bond.
• Summary: A request for approval of forfeitures is an assessment where the LCO, acting under the authority granted to it by the state of California, seeks enforcement against a contractor believed to be in violation of payment of prevailing wage rates. Prior to collecting money from the contractor for
wages and or penalties, the LCO must request an approval of forfeitures from the DLSE. A detailed narrative must be submitted to the DLSE requesting approval of forfeitures. A sample Request for Approval of Forfeitures is included as Appendix I.
► Response from Labor Commissioner
• Once a response is received regarding the disposition of this case, the contractor must be notified of the findings the Labor Commissioner determines, whether that be approval or rejection of the request.
► Additional Actions by Staff21
21 See California Labor Code §§1771.6(c) through 1771.6(e).
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• See the hearing process in the “Labor Commissioner Assessment and Review of Assessment Process” section below
• Distribution of checks to the affected workers once monies have been received by OCSD from the contractor
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13 NOTIFICATION
According to the California Code of Regulations22, after staff determines violations of
prevailing wages have occurred, staff shall notify the contractor and affected subcontractor of the violation so as to resolve the wage deficiency prior to a determination of the amount of forfeiture by the Labor Commissioner. Keeping contractors aware of violations is integral to proceeding with forfeitures and/or withholding procedures.
The audit cover letter is sent to the contractor requesting documents as evidence of payment of prevailing wages. If the contractor in question is not the prime contractor, a separate letter is sent to the prime informing the contractor of the letter sent to the subcontractor. All correspondence regarding audits, withholdings, assessments and forfeitures must be delivered via first-class, certified U.S. mail, to the Prime Contractor
and affected subcontractor (if applicable) until the matter is resolved. The contractor and affected subcontractor then have at least 10 days to submit exculpatory evidence that support the issue as a “good faith mistake” consistent with California Labor Code §1775(a)(2)(A)(i) and (ii). Failure to respond will result in a
notification issued to the prime contractor or to the Awarding Body, as appropriate, informing them of sanctions to be imposed subject to California Labor Code §1776(g)23. If a Notice of Withholding (see Section 16) is being sent, the Surety and/or Bonding company must also be informed via first-class, certified U.S. mail.
If, based upon the contractor's submission, it is concluded that the failure to pay the correct wages was a good faith mistake, and there is no knowledge that the contractor and affected subcontractor have a prior record of failing to meet their prevailing wage obligations, it shall not be required to request of the Labor Commissioner for a
determination of the amount of penalties to be assessed under California Labor Code §1775 if the underpayment of wages to workers is promptly corrected and proof of such payment is submitted. Pursuant to the California Code of Regulations §16432(f), for each instance in which a
wage deficiency is resolved in accordance with this regulation, staff shall maintain a written record of the failure of the contractor or subcontractor to meet its prevailing wage obligation. The record shall identify the public works project, the contractor or affected subcontractor involved, and the gross amount of wages paid to workers to resolve the prevailing wage deficiency; and the record shall also include a copy of the Audit
prepared pursuant to along with any exculpatory information submitted by the affected contractor. When a subcontractor commits a violation, the prime contractor must be notified and informed of his rights under California Labor Code §1729.
22 See California Code of Regulations 2007 Amendments §16432(f).
23 See California Labor Code §1776(d).
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13.1 Notification to 3rd Party Agencies and Workers Regarding Requests for Documentation
Whenever a complaint is forwarded directly by an employee or other interested party (i.e. Union, 3rd Party Compliance Agency, etc.), that alleges violations of the Labor Code or LCP with respect to the project, the LCO must respond as detailed in California Code of Regulations §16434(b). These steps are contained in section 13 of this manual.
13.2 Public Payroll Records Requests
Members of the public have the right to request copies of contractors’ certified payroll records from OCSD. (See California Labor Code §1776(b)(3)). Such requests are
commonly received from unions, joint labor-management groups, and independent compliance organizations.
Procedures for Processing Public Requests for Certified Payroll Records
If a written CPR request is made which contains at least the following details: (1) The body awarding the contract; (2) The contract number and/or description; (3) The particular job location if more than one; (4) The name of the contractor; and
1. If the records have been received:
a. Then, within 10 days of the receipt of the request: the requesting party will be provided an acknowledgment of their request; estimate reproduction cost; and estimate a date and time that the records will be made available and send by Certified Mail.
i. Upon receipt of reproduction costs from a requesting party who identifies
themselves an agent of a joint labor-management committee. 1. Redact worker’s names and social security numbers from CPRs. 2. Notify the requesting party that the records are available. ii. Upon receipt of reproduction costs from a requesting party (who does
not identify themselves as a joint labor-management committee)
1. Redact worker’s names, addresses, and social security numbers from CPRs. 2. Notify the requesting party that the records are available. 2. If the records have not been received:
a. Then, within 10 days of the receipt of the request: the requesting party will be
provided an acknowledgment of their request; send a request for CPRs to the contractor responsible for those records pursuant to California Code of Regulations §16400(d) and provide a copy of the request to the original requesting party
i. Non-response from a contractor after 10 days is a violation of California
Code of Regulations §16400(d)(2)(b) and should follow the delinquent document withholding process found in §7 of this manual. ii. Upon receipt of records from the contractor: provide the requesting
party a notification that the requested documents are available, estimate
reproduction cost, and estimate a date and time that the records will be made available. (Pursuant to California Code of Regulations §16402, costs shall be $1 for the first page of the payroll records and 25 cents
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for each page thereafter, plus $10 to the contractor or subcontractor for handling costs.) 1. Upon receipt of reproduction costs from a requesting party who identifies themselves an agent of a joint labor-management
committee. a. Redact worker’s names and social security numbers from CPRs. b. Notify the requesting party that the records are available. 2. Upon receipt of reproduction costs from a requesting party (who
does not identify themselves as a joint labor-management committee). a. Redact worker’s names, addresses, and social security numbers from CPRs.
Notify the requesting party that the records are available. California Labor Code §1776(e) Any copy of records made available for inspection as copies and furnished upon request to the public or any public agency by the awarding body, the DAS, or the DLSE shall be
marked or obliterated to prevent disclosure of an individual's name, address, and social security number. The name and address of the contractor awarded the contract or the subcontractor performing the contract shall not be marked or obliterated. Any copy of records made available for inspection by, or furnished to, a joint labor-management committee established pursuant to the federal Labor Management Cooperation Act of
1978 (29 U.S.C. §175(a)) shall be marked or obliterated only to prevent disclosure of an individual's name and social security number. A joint labor management committee may maintain an action in a court of competent jurisdiction against an employer who fails to comply with California Labor Code §1774. The court may award restitution to an employee for unpaid wages and may award the joint labor management committee
reasonable attorney's fees and costs incurred in maintaining the action. An action under this subdivision may not be based on the employer's misclassification of the craft of a worker on its certified payroll records. Nothing in this subdivision limits any other available remedies for a violation of this chapter.
California Labor Code §1776(j) The director shall adopt rules consistent with the California Public Records Act (Chapter 3.5 (commencing with §6250) of Division 7 of Title 1 of the California Government Code) and the Information Practices Act of 1977 (Title 1.8 (commencing with §1798) of Part 4 of Division 3 of the Civil Code) governing the release of these records, including the
establishment of reasonable fees to be charged for reproducing copies of records required by this section.
California Government Code §6253(b) [see California Labor Code §1776(i)]
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Except with respect to public records exempt from disclosure by express provisions of law, each state or local agency, upon a request for a copy of records that reasonably describes an identifiable record or records, shall make the records promptly available to any person upon payment of fees covering direct costs of duplication, or a statutory fee if
applicable. Upon request, an exact copy shall be provided unless impracticable to do so.
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14 ISSUES MANAGEMENT
After a potential underpayment or other labor compliance issue is brought to the attention of the contractor, the proper follow-up can be complicated, depending on what sort of issue is found. At times, it may not be known with certainty the identity of workers on the job, or the dates on which they worked. Information might be received from the contractor, workers, or other sources that clarifies or contradicts the initial assessment. This can be
an iterative process, in which the audit is revised and refined as further information is received. As long as the contractor is cooperative and responsive, or new information continues to become available, this process can be valuable and lead to more accurate assessments
that will be able to stand when challenged. It is important, however, not to unduly delay the resolution process in the hopes of obtaining the perfect information. Contractors may employ delaying tactics to keep an issue open indefinitely.
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15 ISSUE RESOLUTION & RESTITUTION PAYMENTS
15.1 Contractor Submits Restitution Check – Staff forwards Check to
Affected Parties
It is preferred that the restitution checks be distributed to the affected workers through the
awarding body/approved LCP instead of through the contractor directly. This ensures that the payment was made and no kickbacks or other arrangements were made. In some situations; however, restitution payments are paid directly to the affected workers. If the contractor made restitution payment directly to the worker, the contractor must submit copies of cancelled checks as proof before the issue is closed. The following
procedures detail the steps the awarding body/approved LCP should follow in issuing restitution checks to workers: 1. Make a copy of all submitted restitution checks.
2. Verify that the amounts on the check match the underpayment amounts (minus standard tax deductions). 3. SENDING CHECKS TO WORKERS: Send a letter to the worker’s last known address that summarizes the issue and requests that the worker contact staff to
collect their check. Note: the letter should contain a sentence in Spanish asking them to contact staff to collect money due to them. When the worker calls, have them verify their social security number. Once verified, the check can either be mailed to them or they can pick it up. If the
restitution check is mailed, make a copy of the mailed letter. If the check is picked up, the worker must provide a copy of their identification card for proof of pick-up; a copy is made of the identification card for the file.
What if a worker cannot be located, or a mailed letter is returned as undeliverable,
or a worker doesn’t contact the office to collect their check? Create a listing of all workers whose checks remain unclaimed. Within 60 days of receipt of the restitution checks from the contractor, send a letter to all workers whose addresses were verified. In the letter, inform the workers that their co-workers’
restitution checks have not been claimed and request that they contact staff if they know the contact information (i.e. phone number or new address) for any of the listed co-workers whose checks remain unclaimed. If the checks remain unclaimed after 1 year, the checks shall be sent to the DIR (see address below).
4. SENDING CHECKS TO CAC:
• Identify the project, the OCSD, and affected contractor.
• State who monitored and enforced the LCP on the project.
• State the period of violation.
• Attach a CAC 2; obtain one from the contractor if it was not attached to the restitution payment.
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• Mail the letter to: State of California, Department of Industrial Relations, California Apprenticeship Council, P. O. Box 420603, San Francisco, CA 94142.
• Copy the affected contractor, the prime, and OCSD.
• Make copies of all correspondence for the project file. 5. SENDING CHECKS TO TRUST FUNDS:
• Identify the project, OCSD, and affected contractor.
• State who monitored and enforced the LCP on the project.
• State the period of violation.
• Attach a copy of the audit worksheet.
• Copy the affected contractor, the prime, and OCSD.
• Make copies of all correspondence for the project file. 6. SENDING UNCLAIMED RESTITUTION CHECKS TO THE DIR
• Identify the project, OCSD, and affected contractor
• State who monitored and enforced the LCP on the project.
• State the violation and why the checks are being sent to the DIR.
• Mail the letter to: Department of Industrial Relations, Attn: Public Works Unpaid Wage Fund, 2031 Howe Avenue, Suite 100, Sacramento, CA 95825.
• Make copies of all correspondence for the project file.
15.2 Contractor Submits Mitigating Evidence
Upon receiving notice of an apparent violation, the contractor has 10 working days from
the date of the letter to submit mitigating evidence. Mitigating evidence is anything that can substantiate that prevailing wages were paid for all workers and all hours worked on the project. Any mitigating evidence shall be thoroughly reviewed to determine if the compliance issue still persists.
If all issues identified in the audit are rectified upon review of the mitigating evidence, a
letter describing the audit, it’s resolution, and stating that it has been closed out shall be issued.
If only partial issues are mitigated, the remaining issues will be addressed in a separate audit denoted by placing a letter of the alphabet after the audit number. For example, if
the initial audit is called “ABC Contractor Audit #1”, once mitigating evidence resolves
some but not all issues, the remaining issues will be identified in “ABC Contractor Audit #1a.” If more evidence is submitted that solves more but not all issues, the remaining issues will be addressed in “Bad contractor Audit #1b” and so forth.
15.3 Contractor is Non-Responsive
Upon receiving the first notice of an apparent violation, the contractor has 10 working days from the date of the letter to attempt to resolve the issue.
If no response is received within the 10-day period, the contractor shall be notified that an approval of forfeitures will be sought from the Labor Commissioner and will be provided with an audit worksheet delineating the underpayment and penalty amounts (pursuant to
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California Labor Code §1775(a)). To determine how to assess a penalty, see §16.3 titled “Penalties Imposed by the Labor Commissioner.” If no response is received within the 10-day period, OCSD shall submit a request for
Approval of Forfeitures to the Labor Commissioner. 15.4 Issue Follow-Up
After an apparent issue has been identified, and after an audit letter has been sent, staff should note the letter’s due date for a response in a Letter Log and in the Analyst’s Outlook calendar.
Prior to the due date for the contractor’s response, sending a fax notice to the contractor reminding them that a response is due for the audit usually elicits a timely response.
15.5 Issue Closeout
Once an audit is completely resolved through the submittal of mitigating evidence or restitution payments, a letter notifying all parties that the issue is closed out shall be issued. The closeout letter should state the project, affected contractor, and briefly
describe the issue and how it was resolved. If restitution checks were submitted to resolve the issue, copies of the checks should be attached to the closeout letter. The issue closeout letter should be sent to the affected contractor, its prime contractor, the District, and any third party compliance agencies involved in the audit (e.g. unions, Center for Contract Compliance).
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16 ASSESSMENT PROCESS
16.1 Labor Commissioner Assessment and Review of Assessment
Process
After receiving a Request for Approval of Forfeiture, the Labor Commissioner shall affirm,
reject, or modify the forfeiture in whole or in part as to the wages and penalties due. The assessment is sent to the author of the determination, typically the LCO. The assessment will be sent in writing via first-class and certified mail to the contractor, subcontractor, and OCSD not later than 18 months after the filing of a valid notice of completion in the county recorder’s office, or within 18 months following the acceptance of the public work,
whichever occurs last. The assessment will contain a description of the nature of the violation; the amount of wages, penalties, and forfeitures due; and the basis of the assessment. If the assessment is served after the 18-month period and if OCSD has not yet made full payment to the contractor, the assessment is valid up to the amount of the funds retained24.
The affected contractor may obtain review of a civil wage and penalty assessment if the contractor sends a written request to the office of the Labor Commissioner within 60 days. If the contractor does not meet the deadline, the assessment is final25.
Upon receipt of a contractor’s request, a hearing shall be scheduled with the Labor Commissioner within 90 days. Note: Staff does not have the authority to waive the 90-day hearing request period. At the hearing, the contractor shall have the burden of proving that the basis for the civil
wage and penalty assessment is incorrect. Within 45 days of the conclusion of the hearing, the director shall issue a written decision affirming, modifying, or dismissing the assessment. The decision will contain a notice of findings, findings, and an order will be served on all parties and OCSD sent via first-class
mail. Within 15 days of the issuance of the decision, the director may reconsider or modify the decision to correct an error. Clerical errors may be corrected at any time. Both the Labor Commissioner and OCSD shall afford the contractor or subcontractor a meeting to settle a dispute regarding the notice if the contractor or subcontractor delivers
the request within 30 days of the service of the notice. Nothing during the meeting is subject to discovery in any administrative or civil proceeding; only the final agreement may be admissible26.
24 See California Labor Code §1741.
25 See California Labor Code §1742.
26 See California Labor Code §1742.1.
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During the hearing process, any communication (sent via fax, e-mail, letter, etc.) with the Hearing Officer must also be transmitted to all affected parties—the client, the contractor, subcontractor, if any, and their respective attorneys. It is of utmost importance that all parties are appropriately informed to prevent any complications during this
important process. During the hearing process the following sections of the California Code of Regulations (Title 8, Chapter 8, Subchapter 6) are important considerations to take into account:
California Code of Regulations §17221 Rule (21) – Opportunity for early settlement; Evidence, hearsay, accusations No evidence of anything said or any admission for the purpose of, or in the course of, or pursuant to, such a settlement meeting shall be admissible or subject to discovery
in any administrative or civil proceeding.
California Code of Regulations §17234 Rule (34) – Evidence by (worker) Affidavit or Declaration
The other party must be notified if we elect to use witness statements when the witness will not be testifying or will not be available to be cross examined. Rule 34 states that at any time 20 or more days prior to commencement of a hearing, a Party may serve upon all other Parties a copy of any affidavit or declaration which the proponent proposes to introduce in evidence, together with a “notice” as provided
below (in quotes). Unless another Party, within 10 days after service of such notice, delivers to the proponent a request to cross-examine the affiant/declarant, the right to cross examine such affiant/declarant is waived and the affidavit/declaration, if introduced in evidence, shall be given the same effect as if the affiant/declarant has testified in person.
The “notice” shall be substantially in the following form with the appropriate information inserted in the places enclosed by brackets: “The accompanying affidavit or declaration of [name of affiant /declarant] will be
introduced as evidence at the hearing in [Title and other information identifying the proceeding]. [Name of affiant /declarant] will not be called to testify orally, and you will not be entitled to question the affiant or declarant unless you notify [name of the proponent, Representative, agent, or attorney] at [address] that you wish to cross examine the affiant/declarant. Your request must be mailed or delivered to
[name of the proponent, Representative, agent, or attorney] on or before [specify date at least 10 days after anticipated date of service of this notice on other parties].” If a timely request is made to cross-examine an affiant/declarant under this Rule, the
burden of producing that witness at the hearing shall be upon the proponent of the witness. If the proponent fails to produce the witness, the affidavit or declaration may be introduced in evidence, but shall be given only the same effect as other hearsay evidence under Rule 44 [§17244], which states that hearsay evidence is admissible but shall not be sufficient in itself to support a finding unless it either would be
admissible over objection in a civil action or no Party raises an objection to such use.
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Unless previously waived, an objection or argument that evidence is insufficient in itself to support a finding because of its hearsay character shall be timely if presented at any time before submission of the case for decision.
16.2 Civil Proceedings and Request for Review Processes
This section provides additional detail on hearings and civil proceedings. This section will
assist staff through the Assessment / Civil Proceeding process, reviewing the process and necessary steps undertaken when an issue is escalated to the level where the DLSE and Office of the Director Legal Unit involvement in the case becomes necessary. Staff should be aware of the timelines, requirements, regulations and nuisances involved in civil proceedings.
16.2.1 Requesting a Review of Forfeitures from the Labor Commissioner
Determinations When, after an investigation, it is determined that a contractor failed to pay to its workers prevailing wage rates, OCSD can seek a review from the Labor Commissioner that allows
OCSD to recoup penalties from the contractor/ subcontractor for violations of California Labor Code relating to the underpayment of wages and for overtime violations. A request for review of forfeitures can be submitted for any contractor determined to be in violation. An Assessment or a notice assessing penalties under California Labor Code §1776 shall
be served on the contractor and subcontractor, if applicable, by first class and certified mail pursuant to the requirements of California Code of Civil Procedure §1013. A copy of the notice shall also be served by certified mail on any bonding company issuing a bond that secures the payment of the wages covered by the Assessment or Notice and to any Surety on a bond, if the identities of such companies are known or reasonably
ascertainable. The identity of any Surety issuing a bond for the benefit of an Awarding Body shall be deemed "known or reasonably ascertainable," and the Surety shall be deemed to have received the notice required under this subpart if sent to the address appearing on the face of the bond. Summary: A request for approval of forfeitures is an assessment where the LCP, acting under the authority granted to it by the state of California, seeks enforcement against a contractor believed to be in Violation of payment of prevailing wage rates. Prior to collecting money from the contractor for wages and or penalties, The LCP must request an approval of forfeitures from the DLSE. A detailed narrative must be submitted to the
DLSE requesting approval of forfeitures.
16.2.2 Preparing a Determination/Assessment Narrative
An Assessment shall be in writing and shall include the following information:
A description of the nature of the violation and basis for the Assessment or Notice in
narrative form.
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The amount of wages, penalties, and forfeitures due, including a specification of amounts that have been or will be withheld from available contract payments, as well as all additional amounts that the Enforcing Agency has determined are due, including the amount of any liquidated damages that potentially may be awarded under
California Labor Code §1742.1.
Whether any deadlines have expired that might impede the collection of wages.
Whether or not a Notice of Completion of Project has been accepted by OCSD and has been filed in the County Recorder’s office.
A brief description of the project, the county in which the work was performed and the
scope of work of the contractor.
A summary of the investigation, including a detailed timeline of events. Describe the evidence in detail and whether or not the contractor made an effort to correct the discrepancy.
The Findings of the investigation including the violations identified, corrective actions
taken by the contractor and any resolutions prior to submittal.
The Recommendations. A determination of whether or not the violation by the contractor was because of a clerical error or was it a blatant attempt by the contractor at defaulting their workers of wages due. This section will list the penalties that are recommended for the violations committed.
16.2.3 Preparing a Request for Review of Forfeitures
Every Request for Review of Forfeitures should be reviewed by management before continuing on to the next step.
Body Summary
In the main body of the narrative, identify the contractor violations, how you determined their violations and what you did to substantiate your claim. In this section, it is important to reference supporting information relied upon to make your determination (IOR Reports, Daily Reports, Time Sheets, etc.). Be clear on why you did what you did.
Example- In an interview, Joe Smith reported that he and three other workers worked on July 5, 2011. After review of the Ben’s Crane Service CPRs, it was discovered that the contractor failed to list any workers on that specific date. In order to substantiate the worker claims, the daily sign in sheets for the project maintained by the Prime Contractor
were reviewed. It was discovered that Joe Smith had indeed signed in on the project on
the date in question as did three other workers. In addition, this information was further supported by Inspector of Records Reports which showed 4 workers on site for Ben’s Crane Service on the date in question. It was therefore determined that the worker statement was valid.
Amount of Wages, Penalties Due This section substantiates the dollar amounts of the audit, the penalty amounts that are being requested to be approved and any other amounts due by the contractor on the project. (training funds, travel and subsistence, etc.). Describe how each amount was
arrived at and why the contractor owes the restitution and to whom they are owed.
Penalties are generally assessed on contractors who have a previous history of
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noncompliance, and this history should be considered when determining penalty amounts. Example 1 (Underpayment of Wages) - Based on the statement of the workers, staff
determined that they performed Carpentry work on the project exclusively. This information was substantiated by the Site Interview reports in which staff observed the workers doing Carpentry work on the dates in question. The current prevailing wage rate for Carpentry work on this project is $45.75. Mr. Smith reported being paid at a rate of $25 per hour on the project. As a result, the prevailing wage rate was multiplied by the
hours worked and determined what the prevailing wage rate total amount due was. From this total, the amounts which were paid to the workers which could be substantiated through paycheck stubs were subtracted. Example 2 (Penalties)- It was determined that the contractor should have been aware of
its obligations on this project to pay prevailing wages given that the contractors contract called out for the payment of prevailing wage rates. In addition, staff is in possession of an executed LCP Checklist in which the contractor signed and agreed to the payment of prevailing wages on the project. It was therefore concluded that this was not a case of oversight or a paper work error on the part of the contractor. As a result, and based on
this contractor’s history of noncompliance, we are recommending the maximum penalty amount of $200 per day per worker.
Example 3 (Training Funds) - In addition to the wages due, the contractor was required
to make training fund contributions to an approved apprenticeship program. Staff audited
the contractor and determined that the contractor failed to make training fund contributions to an approved apprenticeship program. As a result, the contractor owes wage restitution to the CAC in the amount of $545.65. Statute
This is a critical aspect of an assessment. According to California Labor Code §1741 an LCO must request an Approval of Forfeitures not later than 180 days after the filing of a notice of completion or not later than 180 days after acceptance of the public work, whichever occurs last. However, if the assessment is served after the expiration of this 180-day period, but before the expiration of an additional 180 days, and the awarding
body has not yet made full payment to the contractor, the assessment is valid up to the amount of the funds retained. If any of these scenarios exist, please list them in the narrative. Any case filed outside of California Labor Code §1741 regulations is considered barred by statute.
This is the trigger that starts the clock running on statute limitations. Once a notice of completion is filed, an LCO is limited to California Labor Code §1741 statute for submitting a request for review.
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Description of the work Performed/ Determination List the County where the project was located in and the type of construction involved. If the contractor is a subcontractor, list the type of work being performed by the subcontractor. In this section, list the wage determination used including the bid date,
classification of work and why this determination was applied. Any wage restitution made by the contractor If the contractor has made wage restitution, please list. In detail, discuss the contractor’s responsiveness to the audit prior to the escalation of the issue into the review process.
Recommendation The determination should be closed with a recommendation of the approval of forfeitures in the amounts determined to be due. The Deputy Labor Commissioner will either approve or deny the request for review. They can also modify the assessment amount if they are
in disagreement with the findings of the investigation. Statute of Limitations for Submitting a Case for Review The determination/ assessment shall be served not later than 180 days after the filing of a valid notice of completion in the office of the county recorder in each county in which
the public work or some part thereof was performed, or not later than 180 days after acceptance of the public work, whichever occurs last. However, if the assessment is served after the expiration of this 180-day period, but before the expiration of an additional 180 days, and OCSD has not yet made full payment to the contractor, the assessment is valid up to the amount of the funds retained. Service of the assessment shall be
completed pursuant to §1013 of the California Code of Civil Procedure by first-class and certified mail to the contractor, subcontractor, and OCSD. The assessment shall advise the contractor and subcontractor of the procedure for obtaining review of the assessment. The Labor Commissioner shall, to the extent practicable, ascertain the identity of any bonding company issuing a bond that secures the payment of wages covered by the
assessment and any surety on a bond, and shall serve a copy of the assessment by certified mail to the bonding company or surety at the same time service is made to the contractor, subcontractor, and the OCSD. However, no bonding company or surety shall be relieved of its responsibilities because it failed to receive notice from the Labor Commissioner.
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16.2.4 Approval of Forfeitures
The request for Review or of a Notice of Withholding of Contract Wages shall be transmitted in writing to the Enforcing Agency within 60 days after service of the Assessment or Notice. Failure to request review within 60 days shall result in the
Assessment or the Withholding of Contract Wages becoming final and not subject to further review under these Rules. A Request for Review shall be transmitted by the office of the Enforcing Agency designated on the Assessment or Notice of Withholding of Contract Payments from which
review is sought. A Request for Review shall be deemed filed on the date of receipt mailing, as determined by the U.S. Postal Service postmark date on the envelope or the overnight carrier's receipt
in accordance with Rule 03(b) [California Code of Regulations §17203(b)] above, or the
date of receipt by the designated office of the Enforcing Agency, whichever is earlier. An additional courtesy copy of the Request for Review may be served on the Department by mailing to the address specified in Rule 23 [California Code of Regulations §17223]
below at any time on or after the filing of the Request for Review with the Enforcing
Agency. The service of a courtesy copy on the Department shall not be effective for invoking the Director's review authority under California Labor Code §1742; however, it may determine the time within which the hearing shall be commenced under Rule 41(a) [California Code of Regulations §17241(a)] below.
A Request for Review either shall clearly identify the Assessment or Notice from which review is sought, including the date of the Assessment or Notice, or it shall include a copy of the Assessment or Notice as an attachment. A Request for Review shall also set forth the basis upon which the Assessment or Notice is being contested. A Request for Review
shall be liberally construed in favor of its sufficiency; however, the Hearing Officer may
require the Party seeking review to provide a further specification of the issues or claims being contested and a specification of the basis for contesting those matters. Once approval has been received, OCSD shall serve on the contractor and bonding
company a copy of the approval of forfeitures and a Notice of Withholding of Progress
Payments. Summary: Explain what you did, why you did it and how you arrived at your findings. Stay away from opinions but make it clear why you arrived at your conclusion and what
information you relied upon to get there.
16.2.5 Notice of Withholding of Contract Payments
After an approval of forfeitures has been received the awarding body must issue a notice of withholding of contract payments. The notice advises the contractor that a Request for Review of Forfeitures has been received and approved and that the Labor Commissioner
has agreed with the investigation findings.
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The Withholding of Contract Payments per California Code of Regulations §16435.5, or a notice assessing penalties under California Labor Code §1776 shall be served on the contractor and subcontractor, if applicable, by first class and certified mail pursuant to the requirements of California Code of Civil Procedure §1013. A copy of the notice shall also
be served by certified mail on any bonding company issuing a bond that secures the payment of the wages covered by the Assessment or Notice and to any Surety on a bond, if the identities of such companies are known or reasonably ascertainable. The identity of any Surety issuing a bond for the benefit of an Awarding Body (OCSD) as designated obligee, shall be deemed "known or reasonably ascertainable," and the Surety shall be
deemed to have received the notice required under this subpart if sent to the address appearing on the face of the bond. The Notice of Withholding of Contract Payments shall be in writing and shall include the following information:
A description of the nature of the violation and basis for the Assessment or Notice in narrative form.
The amount of wages, penalties, and forfeitures due, including a specification of amounts that have been or will be withheld from available contract payments, as well
as all additional amounts that the Enforcing Agency has determined are due, including the amount of any liquidated damages that potentially may be awarded under California Labor Code §1742.1.
The name and address of the office to whom a Request for Review may be sent.
Information on the procedures for obtaining review of the Assessment or Withholding
of Contract Payments;
Notice of the Opportunity to Request a Settlement Meeting under Rule 21 [California Code of Regulations §17221] below; and the following statement which shall appear in bold or another type face that makes it stand out from the other text.
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Labor Compliance Program
_________________________________
_________________________________
_________________________________
_________________________________
Phone: Fax:
(SEAL )
Date: In Reply Refer to Case No.:
Notice of Withholding of Contract Payments Awarding Body ³ Work Performed in County of Project Name ³ Project No. Prime Contractor Subcontractor
After an investigation concerning the payment of wages to workers employed in the execution of the contract
for the above-named public works project, the Labor Compliance Program for _______________
_______________________ (Awarding Body) has determined that violations of the California Labor Code have been committed by the contractor and/or subcontractor identified above. In accordance with Labor Code sections 1771.5 and 1771.6, the Labor Compliance Program hereby issues this Notice of Withholding
of Contract Payments.
The nature of the violations of the Labor Code and the basis for the assessment are as follows:
____________________________________________________________________________________ ____________________________________________________________________________________ ____________________________________________________________________________________
____________________________________________________________________________________
The Labor Compliance Program has determined that the total amount of wages due is:
$___________________ The Labor Compliance Program has determined that the total amount of penalties assessed under Labor
Code sections 1775 and 1813 is: $__________________
The Labor Compliance Program has determined that the amount of penalties assessed under Labor Code
section 1776 is: $__________________
By:__________________________________
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An affected contractor or subcontractor may obtain review of a civil wage and penalty assessment under this chapter by transmitting a written request to the office of the Labor Commissioner that appears on the assessment within 60 days after service of the assessment. If no hearing is requested within 60 days after service of the assessment,
the assessment shall become final. In summary, it is important to serve the notice of withholding of contract payments on all parties via Certified Mail. In addition, complete the attached Proof of Service form and certify sending it to all of the parties. Proof of service is critical to the case.
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LABOR COMPLIANCE PROGRAM
________________________________
Review Office - Notice of Withholding
of Contract Payments
_________________________________ _________________________________ _________________________________
Phone:
Fax:
(SEAL )
Date: In Reply Refer to Case No.:
Notice of Transmittal
To: Department of Industrial Relations Office of the Director-Legal Unit Attention: Lead Hearing Officer
P. O. Box 420603
San Francisco, CA 94142-0603
Enclosed herewith please find a Request for Review, dated __________________, postmarked ___________________, and received by this office on ____________________.
Also enclosed please find the following:
____ Copy of Notice of Withholding of Contract Payments
____ Copy of Audit Summary
LABOR COMPLIANCE PROGRAM ________________________________
By:_____________________________
cc: Prime Contractor Subcontractor Bonding Company
Please be advised that the Request for Review identified above has been received and
transmitted to the address indicated. Please be further advised that the governing
procedures applicable to these hearings are set forth at Title 8, California Code of Regulations sections 17201-17270. These hearings are not governed by Chapter 5 of
the Government Code, commencing with section 11500.
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16.2.6 Hearings/Civil Proceedings
Review the chart below for an overview and general timeline of the steps included in the hearings process.
Step
Number
Step in the Hearing
Process
Timeline Additional Comments
1. Pre-Hearing Activities Within the 4 weeks before
the hearing
Pre-hearing activities include
activities 2 through 5.
2. Review of Evidence to be
used at a Hearing
As soon as possible, review
should begin at the onset of
the hearing process
This is a review of all
evidence to ensure that staff
and counsel have covered all
information.
3. Re-interviewing of
witnesses
Between 1-2 weeks before
the hearing
Witnesses can change stories
or retract statements, so a re-
interview is an important
step.
4. Pre-Hearing Conferences/
Motions
A first pre-hearing conference
is conducted by phone,
usually after a request for a
hearing.
Must be completed within 90
days of that request.
The Hearing Officer will
inquire if parties have
reached agreement, and
otherwise sets a hearing date
and will go through
stipulations.
5. Pre-Hearing Orders Parties must exchange
exhibits 3 weeks prior to
hearing, and 2 weeks prior
exchange witness lists, and 1
week prior, complete a joint
statement.
Hearing Officer will send out
the pre-hearing order for
parties to exchange exhibits,
witness list, and a joint
statement.
6. Waivers If Parties waive 90-day right
to a hearing, then all parties
have to be in agreement.
Generally, do not agree to
waive time limits.
7. Communication with
OCSD’s Management and
determination whether
legal Counsel
involvement needed.
Once a case is referred to the
OD Legal Unit, inform OCSD’s
management in order to
determine whether it needs
legal assistance from Counsel.
8. Taking the Stand Staff or third party
administrator hired by
County will be expected to
take the stand at a hearing.
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Step
Number
Step in the Hearing
Process
Timeline Additional Comments
9. Settlement Meetings
There is a right to a
settlement meeting at any
time in the process.
A second hearing officer (one
not hearing the case) could
come in to help parties reach
agreement.
10. Modifying an Assessment
Could happen at any point
when evidence is discovered.
Once DLSE has approved a
determination, it can be
modified based on new
evidence.
California Code of
Regulations §17226 allows
you to modify an assessment
if there is newly discovered
evidence.
11. Early Settlement
Could happen at any time
prior to the hearing.
Penalties are generally
waived when parties reach an
early settlement.
12. Hearing Outcomes/Final
Order
Once settlement is reached,
the party who requested the
hearing needs to request it to
be taken off calendar. It is up
to the Hearing Officer to
make the Final Order: amend,
modify, accept or reject.
Normally the Hearing Officer
will retain jurisdiction for 60
days.
13. Rule 26 Letter Complete the Rule 26 Letter
immediately following the
Final Order.
A letter is sent to Hearing
Officer, citing California Code
of Regulations §17226, to
notify them that all withholds
have been released.
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LABOR COMPLIANCE PROGRAM
________________________________
Review Office - Notice of Withholding
of Contract Payments
_________________________________
_________________________________
_________________________________
Phone:
Fax:
(SEAL)
Date:
In Reply Refer to Case No.:
Notice of Opportunity to Review Evidence Pursuant to Labor Code Section 1742(b)
To: Prime Contractor
__________________________
__________________________
__________________________
Subcontractor
__________________________
__________________________
__________________________
Please be advised that this office has received your Request for Review, dated _____________, and pertaining to the Notice of Withholding of Contract Payments issued by the Labor Compliance Program in Case No. _____________.
In accordance with Labor Code section 1742(b), this notice provides you with an opportunity to review evidence to be utilized by the Labor Compliance Program at the hearing on the Request for Review, and the procedures for reviewing such evidence.
Rule 17224 of the Prevailing Wage Hearing Regulations provides as follows:
(a) Within ten (10) days following its receipt of a Request for Review, the Enforcing Agency shall also notify the affected contractor or subcontractor of its opportunity and the procedures for reviewing evidence to be utilized by the Enforcing Agency at the hearing of the Request for Review.
(b) An Enforcing Agency shall be deemed to have provided the opportunity to review evidence required by this Rule if it (1) gives the affected contractor or subcontractor the
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option at said party's own expense to either (i) obtain copies of all such evidence through a commercial copying service or (ii) inspect and copy such evidence at the office of the Enforcing Agency during normal business hours; or if (2) the Enforcing Agency at its own expense forwards copies of all such evidence to the affected contractor or subcontractor.
(c) The evidence required to be provided under this Rule shall include the identity of witnesses whose testimony the Enforcing Agency intends to present, either in person at the hearing or by declaration or affidavit. This provision shall not be construed as requiring the Enforcing Agency to prepare or provide any separate listing of witnesses whose identities are disclosed within the written materials made available under subpart (a).
(d) The Enforcing Agency shall make evidence available for review as specified in subparts (a) through (c) within 20 days of its receipt of the Request for Review; provided that, this deadline may be extended by written request or agreement of the affected contractor or subcontractor. The Enforcing Agency's failure to make evidence available for review as required by Labor Code section 1742(b) and this Rule, shall preclude the enforcing agency from introducing such evidence in proceedings before the Hearing officer or the Director.
(e) This Rule shall not preclude the Enforcing Agency from relying upon or presenting any evidence first obtained after the initial disclosure of evidence under subparts (a) through (d), provided that, such evidence is promptly disclosed to the affected contractor or subcontractor. This Rule also shall not preclude the Enforcing Agency from presenting previously undisclosed evidence to rebut new or collateral claims raised by another party in the proceeding.@
In accordance with the above Rule, please be advised that the Labor Compliance Program's procedure for you to exercise your opportunity to review evidence is as follows:
Within five calendar days of the date of this notice, please transmit the attached Request to Review Evidence to the following address:
________________________________
________________________________
________________________________
________________________________
________________________________
Attention:________________________
Request to Review Evidence
To: ______________________________
______________________________
______________________________
______________________________
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From:______________________________
______________________________
______________________________
______________________________
Regarding Notice of Withholding of Contract Payments Dated ____________
Our Case No.: _________________
The undersigned hereby requests an opportunity to review evidence to be utilized by the Labor Compliance Program at the hearing on the Request for Review.
________________________________
Phone No.:_______________________
Fax No.:_________________________
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Pre-Hearing Activities In the event that the contractor requests a hearing, staff must make available all information that was used to arrive at the assessment. Staff also needs to prepare the presentation of the case and make sure that all proper procedural steps were followed.
Upon receipt of a timely request, a hearing shall be commenced within 90 days before the director, who shall appoint an impartial hearing officer possessing the qualifications of an administrative law judge pursuant to subdivision (b) of §11502 of the California Government Code. The request can be made through OCSD or through the Office of the
Director Legal Unit. A hearing officer shall be an employee of the department, but shall not be an employee of the DLSE. Attached is a sample of a request for review of forfeitures. The following supporting documentation should also be included: Contact Information of all interested Parties and the point of contact for each entity. Review of Evidence to be used at a Hearing The contractor or subcontractor shall be provided an opportunity to review evidence to be utilized by the Labor Commissioner at the hearing within 20 days of the receipt of the written request for a hearing. Any evidence obtained by the Labor Commissioner
subsequent to the 20-day cutoff shall be promptly disclosed to the contractor or subcontractor. Even if the contractor did not ask to review evidence, it should be implied and therefore sent to the contractor within 20 days. The contractor or subcontractor shall have the burden of proving that the basis for the
civil wage and penalty assessment is incorrect. The assessment shall be sufficiently detailed to provide fair notice to the contractor or subcontractor of the issues at the hearing. Re-interviewing of witnesses
An important step prior to the hearing is to re-interview the witnesses you plan to call at a hearing, especially the workers. In particular, look for variances in their statements. You will want to ask them questions like who they worked with, what type of work they did, etc. As is to be expected, there will be variances in the stories between workers. It is better to get those discrepancies addressed earlier in the process and prior to the hearing.
Since these workers are expected to take the stand, they should be prepared as such. It is also highly recommended that you record worker interviews and should get the permission of the workers prior to doing so. Always have a witness with you in the room and have them identify themselves in the recording. Never interview workers at the same time or allow the workers the opportunity to discuss their version of the events, either
during, prior, or after the worker interview. Pre-Hearing Conferences/ Motions After a hearing officer has been assigned, the hearing officer will send notice to all the parties informing them of the pre-hearing requirements and will schedule a pre-hearing
conference to see where all parties stand in the resolution of their issues. The hearing officer will also seek that all parties agree to the pre-hearing stipulations. Stipulations 1. Do all parties agree that the subject project is a public works project?
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2. Do all parties agree that the Notice of Withholding was served in a timely manner? 3. Has the enforcement agency made available all documents that will be used at a hearing?
4. Has any wage restitution taken place? There is not an obligation to respond to any of the pre-hearing stipulations at this time and all parties can put those off until the hearing. As a general rule, we stipulate to all but Question 4 which is usually a no.
Pre-Hearing Orders The Hearing Officer will request that all parties exchange the following Pre-Hearing documents. 1. Witness List At least three weeks prior to the hearing, the parties are to exchange a list of witness they anticipate to call at the hearing. This would include workers, inspectors, workers from other contractors and representatives of The District. Serve on all contractors in accordance with §1013 of the California Code of Civil Procedure.
2. Exhibit List At least two weeks prior to the hearing, the parties are to exchange a list of exhibits they anticipate to use at a hearing. This would include timesheets, inspector reports, CPRs, sign in sheet, check stubs etc. Serve on all contractors in accordance with §1013
of the California Code of Civil Procedure. 3. Joint Statement At least one week prior to the hearing, the parties should finalize a joint statement that outlines the key issues each party has with regards to the notice. An LCP is required to
list its findings from the assessment/determination. Serve on all contractors in accordance with §1013 of the California Code of Civil Procedure. Waivers In order for a waiver of 90 days, all parties need to be in agreement. Granting a waiver
means the case can drag on for a long period of time. In the interest of all parties involved, staff cannot grant a waiver. Testimony Staff, or a third party administrator hired by OCSD, may be required to testify at a hearing.
The analyst who conducted the investigation should be prepared to explain their actions in the investigation and auditing process and will be walked through the testimony by legal counsel. Staff should provide accurate and concise answers. Consult with OCSD’s management prior to any testimony by OCSD’s staff or a third party administrator in order to determine whether legal assistance is needed and/or a consultation with Legal Counsel
is appropriate. Settlement Meetings Prior to a Hearing, a contractor or subcontractor may request a settlement meeting pursuant to California Labor Code §1742.1(c) and may request review of a LCP
enforcement action in accordance with California Labor Code §1771.6(b) and §1742 and
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the regulations found at California Code of Regulations §§17201-17270. The LCP shall have the rights and responsibilities of the Enforcing Agency (as defined in California Code of Regulations §17202(f)), in responding to such a request for review, including but not limited to the obligations to serve notices, transmit the Request for Review to the hearing
office, and provide an opportunity to review evidence in a timely manner, to participate through counsel in all hearing proceedings, and to meet the burden of establishing prima facie support for the Notice of Withholding of Contract Payments. If a contractor or subcontractor seeks review of a LCP enforcement action, the Labor
Commissioner may intervene to represent OCSD or to enforce relevant provisions of the California Labor Code consistent with the practice of the Labor Commissioner, or both. Modifying an Assessment §17226 of the California Code of Regulations allows OCSD the right to make a motion to
modify or amend its Notice of Withhold in the event that new evidence (newly discovered) leads the LCP to conclude that a change to the withholding amount is merited. An example would be a new worker coming forward or perhaps additional paycheck stubs were made available which show the affected workers were paid some of the wages that were identified as owed in the audit. The hearing officer has the right to either accept or
deny such a motion. Valid cause is mandatory. Early Settlement
In the event that a settlement is reached, if requested, an agreement will be prepared and executed where all parties agree in principal to the terms of the agreement. At this time,
wage restitution will be collected in the settlement amounts for the workers and collect releases from the workers. It is recommended that a letter be sent to the Hearing Officer requesting that the Hearing Officer retain jurisdiction for an additional 60 days while the obligations of the settlement agreement are met.
Hearing Outcomes/Final Order
Within 45 days of the conclusion of the hearing, the director shall issue a written decision affirming, modifying, or dismissing the assessment. The decision of the director shall consist of a notice of findings, findings, and an order. This decision shall be served on all parties and OCSD pursuant to §1013 of the California Code of Civil Procedure by first-class mail at the last known address of the party on file with the Labor Commissioner.
Within 15 days of the issuance of the decision, the director may reconsider or modify the decision to correct an error, except that a clerical error may be corrected at any time. Rule 26 Letter Once a case has been resolved and DIR involvement is no longer required, a Rule 26 motion should be filed with the hearing officer (California Code of Regulations §17226) declaring that the claim for wages, damages or penalties has been satisfied, requesting
that the hearing be taken off the Calendar, and requesting rescission of the Notice of
Withholding. OCSD must also be notified of the completion of the case. 16.3 Penalties Imposed by the Labor Commissioner
Any contractor found to have paid less than the prevailing wage will be assessed a penalty of not more than $200 for each calendar day, or portion thereof, for each worker paid less
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than the prevailing wage. The Labor Commissioner decides the amount of the penalty, unless it is determined that the contractor’s failure of compliance was a good faith mistake and the contractor has no known prior record of non-compliance. This penalty is in addition to restitution amounts27. If the affected worker was employed by a subcontractor,
the prime contractor is not liable for any penalties unless the prime contractor had knowledge of the subcontractor’s failure or the prime contractor failed to comply with the following requirements: 1. The contract executed between the contractor and the subcontractor shall include a
copy of the provisions of California Labor Code §§1771, 1775, 1776, 177.5, 1813, and 1815. 2. The contractor shall periodically review subcontractors’ CPRs to monitor payment of prevailing wages.
3. The contractor shall diligently take corrective action to halt or rectify subcontractors’ failure to comply with prevailing wage law (e.g. retaining sufficient funds due the subcontractor for work performed on the public works project).
4. The contractor shall obtain an affidavit signed under penalty of perjury from each subcontractor stating that the subcontractor has paid the specified general prevailing rate of per diem wages. The contractor is given 10 days from receipt of written notice to comply with a request for
payroll records. Failure to comply will result in a penalty of $100 for each calendar day for each worker until strict compliance is achieved28. In the case of prevailing wage non-compliance with California Labor Code §1810, the contractor will be penalized $25 per calendar day29 for each worker who is required or
permitted to work more than eight hours per day or more than 40 hours in any one calendar week. Overtime work is permitted without penalty provided that the contractor pays employees 1.5 times the basic rate of pay. It should be noted that published prevailing wage rates show premium rates for Saturday, Sunday, and holiday work. Failure to pay these premium rates is both a prevailing wage violation and an overtime
violation subject to penalties under both California Labor Code §1775 and §1813. Under an LCP, monies that are retained are not automatically returned to the contractor. Any money withheld is considered a forfeiture and can be retained by The District. The amount retained should be equal to all amounts required to satisfy any civil wage and
penalty assessment and should be retained until receipt of a final order that it is no longer subject to judicial review. This amount should be withheld before making payments to the contractor for work completed. If the amount is less than the amount needed to satisfy
27 See California Labor Code §1775(a)(1).
28 See California Labor Code §1776(h).
29 See California Labor Code §1813.
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a civil wage and penalty assessment, the contractor must withhold sufficient money due to the subcontractor(s)30. Also, contractors may withhold or reclaim sufficient funds, from the subcontractor(s), to fulfill civil wage and penalty assessments against the subcontractor(s).
A willful violation occurs when the contractor or subcontractor knew or reasonably should have known of his or her obligations under the public works law and deliberately fails or refuses to comply with its provisions.
A contractor or subcontractor as well as all entities in which the contractor or subcontractor has any interest that is found to be in willful violation of labor compliance is ineligible to bid on a public works project, be awarded a contract for a public works project or perform work as a subcontractor on a public works project. The amount of time this penalty is in effect depends on the number of violations within a three-year period31.
The contractor or subcontractor may be guilty of a misdemeanor if, having the ability to pay, he/she willfully refuses to pay wages due and payable after demand has been made and/or falsely denies the amount or validity thereof, or that the same is due, with intent to secure any discount upon such indebtedness or with intent to annoy, harass, oppress,
hinder, delay, or defraud the person to whom such indebtedness is due32. The contractor or subcontractor may be guilty of a misdemeanor if he or she required the execution of any release of any claim or right on account of wages due, or to become due, or made as an advance on wages to be earned, unless payment of such wages has
been made. Any release required or executed in violation of provisions of this section shall be null and void33. After 60 days following the service of a civil wage and penalty assessment or a notice of withholding, the affected contractor, subcontractor, and surety on a bond or bonds issued
to secure the payment of wages shall be liable for liquidated damages in an amount equal to the wages, or portion thereof, that remains unpaid. Any liquidated damages collected shall be distributed to the employee along with unpaid wages. The administrative law judge may waive the payment of liquidated damages (California Labor Code §1742).
16.4 Payments to be Withheld or Forfeitures to be Imposed by The District
Upon notification by staff of a breach of the labor compliance requirements, OCSD may impose forfeitures.
30 See California Labor Code §§1727(a) & (b).
31 See California Labor Code §1777.1.
32 See California Labor Code §216.
33 See California Labor Code §206.5.
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The forfeiture includes the amount of the underpayment and any applicable penalties assessed under California Labor Code §§1775, 1776 and 181334. If the total forfeitures is less than $1,000.00, the forfeitures shall be deemed approved by the Labor Commissioner if the following is received (California Code of Regulations §16436(b)):
1. The Notice of Withholding of Contract Payments authorized by California Labor Code §1771.6(a). 2. An audit as defined in the California Code of Regulations §16432(e).
3. A brief narrative that includes: a. The Bid Advertisement Date. b. A summary of the nature of the violation.
c. An explanation of the basis of the underpayment. d. A listing of factors considered in determining the assessment of penalties, if any, under California Labor Code §1775.
16.5 Forfeitures Requiring Approval by the Labor Commissioner
For all forfeitures over $1,000.00, approval by the Labor Commissioner shall be requested and obtained in accordance with California Code of Regulations §16436 (also outlined in §16.6 below). Staff is not required to request a determination of the amount of the penalties to be
assessed under California Labor Code §1775 if: 1. Staff concludes that the failure to pay the correct wages was a good faith mistake; 2. Staff has no knowledge that the contractor and affected subcontractor have a prior
record of failing to meet their prevailing wage obligations; and 3. The underpayment of wages to workers is promptly corrected and proof is provided to staff.
16.6 Determining Amount of Forfeiture by the Labor Commissioner
In accordance with California Code of Regulations §16437, where a determination of the amount of forfeiture is requested, the request shall include a file or report to the Labor Commissioner which contains at least the information specified in subparts (1) through
34 See California Code of Regulations 2006 and 2007 Amendments §16436(a) and §16436(b).
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(9) below. A “Request for Approval of Forfeiture” form is included as an attachment to this Manual. 1. Whether the public works’ project has been accepted by OCSD and whether a valid
notice of completion has been filed, the dates if any when those events occurred, and the amount of funds being held in retention by the Awarding Body; 2. Any other deadline which if missed would impede collection;
3. Evidence of violation, in narrative form; 4. Evidence of violation obtained under California Code of Regulations §16432 and a copy of the Audit prepared in accordance with California Code of Regulations §16432(e) setting forth the amounts of unpaid wages and applicable penalties;
5. Evidence that before the forfeiture was sent to the Labor Commissioner: (a) the contractor and subcontractor were given the opportunity to explain why there was no violation, or that any violation was caused by good faith mistake and promptly corrected when brought to the contractor or subcontractor’s attention, and (b) the
contractor and subcontractor either did not or failed to convince staff of its position; 6. Where not only wages but also a penalty is sought as part of the forfeiture, and the contractor or subcontractor has unsuccessfully contended that the cause of violation was a good faith mistake that was promptly corrected when brought to the contractor
or subcontractor’s attention, a short statement should accompany the proposal for a forfeiture, with a recommended penalty amount pursuant to California Labor Code §1775(a); 7. Where only wages or a penalty less than $50 per day as part of the forfeiture is
sought because the contractor or subcontractor has successfully contended that the cause of the violation was a good faith mistake that was promptly corrected when brought to the contractor’s attention, the file should include the evidence as to the contractor’s knowledge of his or her obligation, including the program's communication to the contractor of the obligation in the bid invitations, at the pre-
construction meeting agenda and records, and any other notice given as part of the contracting process. With the file should be a statement, similar to that described in (6), and recommended penalty amounts, pursuant to California Labor Code §1775(a);
8. The previous record of the contractor in meeting their prevailing wage obligations; and 9. Whether extended approval has been granted under California Code of Regulations §16427.
The file or report shall be served on the Labor Commissioner as soon as practicable after the violation has been discovered, and not less than 30 days before the final payment, but in no event not less than 30 days before the expiration of the limitations period set forth in California Labor Code §1741.
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A copy of the recommended forfeiture and the file or report shall be served on the contractor at the same time as it is sent to the Labor Commissioner. The documents served on the contractor may exclude copies of documents secured from the contractor during an audit, investigation, or meeting if those are clearly referenced in the file or
report. The Labor Commissioner shall affirm, reject, or modify the forfeiture in whole or in part as to the wages and penalties due. Per California Code of Regulations §16437(e), the Labor Commissioner's determination of the forfeiture is effective on one of the two following
dates: (1) For all programs other than those having extended authority under California Code of Regulations §16427, on the date the Labor Commissioner serves by first class mail, on OCSD’s PM, on the contractor and on the subcontractor, if any, an endorsed copy of the proposed forfeiture, or a newly drafted forfeiture statement which sets out the amount of forfeiture approved. Service on the contractor or subcontractor is effective if
made on the last address supplied by the contractor or subcontractor in the record. The Labor Commissioner's approval, modification or disapproval of the proposed forfeiture shall be served within 30 days of receipt of the proposed forfeiture. For programs with extended authority under California Code of Regulations §16427
above, approval is effective 20 days after the requested forfeitures are served upon the Labor Commissioner, unless the Labor Commissioner serves a notice upon the parties, within that time period, that this forfeiture request is subject to further review. For such programs, a notice that approval will follow such a procedure will be included in the transmittal of the forfeiture request to the contractor. If the Labor Commissioner notifies
the parties of a decision to undertake further review, the Labor Commissioner's final approval, modification or disapproval of the proposed forfeiture shall be served within 30 days of the date of notice of further review. 16.7 Conditions in which OCSD Shall Withhold Payments
OCSD shall withhold contract payments in the following instances:
1. When payroll records are delinquent or inadequate, the withholding of contract payments is required by California Labor Code §1771.5(b)(5) 35. a. It does not require the prior approval of the Labor Commissioner; b. OCSD shall only withhold those payments due or estimated to be due to the contractor or subcontractor whose payroll records are delinquent or
inadequate, plus any additional amount that staff has reasonable cause to believe may be needed to cover a back wage and penalty assessment against the contractor or subcontractor whose payroll records are delinquent or inadequate; c. Provided that, in most cases, a contractor shall be required in turn to cease
all payments to a subcontractor whose payroll records are delinquent or inadequate until staff provides notice that the subcontractor has cured the delinquency or deficiency.
35 See California Code of Regulations §16435(e).
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d. Penalties shall be assessed under California Labor Code §1776(h) for failure to timely comply with a written request for certified payroll records. The assessment of penalties under California Labor Code §1776(h) does require the prior approval of the Labor Commissioner under California Code
of Regulations §16436. If a subcontractor fails to comply with prevailing wage law, the prime contractor is not subject to a penalty assessment. 2. When, after investigation, it is established that underpayment or other violations have occurred, withholdings require the prior approval of the Labor Commissioner
under California Code of Regulations §16436 and §16437. 3. To cure labor compliance violations (see California Code of Regulations §16435). 4. For non-payment of the prevailing wage rate or other employer payments36.
5. For failure to maintain payroll records in accordance with California Labor Code §1776. 6. For paying apprentice wages to a worker who is not a registered apprentice.
Except as otherwise provided by agreement, only contracts under a single master contract, including a Design-Build contract, or contracts entered into as stages of a single project, may be the subject of withholding37.
A decision to withhold is typically followed by a contractor’s rebuttal. If the contractor is unable to provide the necessary information or if the contractor does not provide the necessary information by the predetermined due date, then the payment is withheld38. NOTE: The Labor Commissioner may intervene to represent OCSD39.
OCSD should hold disbursements until the final order or the expiration of the time period for seeking review of the notice of withholding. Wage claims shall be satisfied prior to the amount being applied to penalties. If insufficient money is recovered to pay each worker in full, the available funds shall be prorated among all workers. Wages for workers who
cannot be located shall be placed in the Industrial Relations Unpaid Wage Fund. Penalties shall be paid into the General Fund of OCSD. 16.8 Referring Violating Contractors to the Underground Economy Task
Force
36 See California Labor Code §§1771 and 1773.1.
37 See California Code of Regulations §16435(b).
38 See California Labor Code §1742(a) & (b) for timeframes.
39 See California Labor Code §1771.6(b).
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Any non-compliance or repeat violator cases for which staff might want to get the Underground Economy Task Force involved should be directed to:
Labor Enforcement Task Force
11623 Glenoaks Blvd. Pacoima, CA 91331 Phone: (855) 297-5322 left@dir.ca.gov
Furthermore, to view the DLSE’s listing of debarred contractors, refer to the following website: http://www.dir.ca.gov/DLSE/debar.html Violations may also be directed to the CLSB:
Contractors State License Board San Bernardino District Office 1845 Business Center Drive, Suite 206 San Bernardino, CA 92408
As of October 2016, the agent handling such cases is Rebecca Lyke, rlyke@cslb.ca.gov, (916) 255-3928. Please make sure that the envelope/package is addressed to her attention marked Personal/Confidential. 16.9 Deposits of Penalties and Forfeitures Withheld
Where the involvement of the Labor Commissioner had been limited to a determination of the actual amount of penalty, forfeiture or underpayment of wages, and the matter has
been resolved without litigation by or against the Labor Commissioner, penalties and forfeitures shall be deposited with OCSD. Where collection of fines, penalties or forfeitures results from administrative proceedings or court action to which the Labor Commissioner and OCSD are both parties, the fines,
penalties or forfeitures shall be divided between the general funds of the state and OCSD, as the Hearing Officer or court may decide. All penalties recovered in administrative proceedings or court action brought by or against the Labor Commissioner and to which OCSD is not a party, shall be deposited in the
general fund of the state. All wages and benefits which belong to an employee and are withheld or collected from a contractor or subcontractor, either by withholding or as a result of administrative proceedings or any court action, and which have not been paid to the employee or
irrevocably committed on the employee's behalf to a benefit fund, shall be deposited with the Labor Commissioner, who shall handle such wages and benefits in accordance with California Labor Code §96.7.
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17 SETTLEMENT AUTHORITY
Pursuant to California Code of Regulations 16432(f), after OCSD has determined that violations of prevailing wage laws have resulted in wage underpayments and an audit has
been prepared, notification shall be provided to the contractor and affected subcontractor
of an opportunity to resolve the wage deficiency prior to a determination of the amount of forfeiture by the Labor Commissioner. The contractor and subcontractor shall have at least 10 days following notification to submit exculpatory information consistent with the “good faith mistake” factors set forth in California Labor Code §1775(a)(2)(A)(i) and (ii). If
OCSD determines that failure to pay prevailing wages was a good faith mistake, OCSD
shall not be required to submit a request to the Labor Commissioner for a determination of the amount of penalties to be assessed under California Labor Code §1775 if the underpayment of wages to workers is promptly corrected and proof of such payment is provided to OCSD.
If a Notice of Withholding of Contractor Payments has already been submitted to and approved by the Labor Commissioner, a contractor or subcontractor may request a settlement meeting with OCSD pursuant to California Labor Code §1742.1(b) and California Code of Regulations §16439(a). If a contractor or subcontractor does seek
review of an action taken by OCSD, the Labor Commissioner may intervene to represent
OCSD and/or to enforce relevant portions of the California Labor Code. California Code of Regulations §16439(c) grants OCSD the ability to prosecute, settle, or seek the dismissal of any Notice of Withholding of Contract Payments issued pursuant to California Labor Code §1771.6 and any review proceeding under California Labor Code §1742,
without any further need for approval by the Labor Commissioner, except in cases where
the Labor Commissioner has intervened pursuant to California Code of Regulations §16439(b). If OCSD settles in whole or in part or seeks and obtains the dismissal of a Notice of
Withholding of Contract Payments or a review proceeding under California Labor Code
§1742, OCSD shall document the reasons for the settlement or request for dismissal and shall make the documentation available to the Labor Commissioner upon request. The final settlement agreement should include the following:
• An Admission of Violation by the contractor or subcontractor
• A statement that the "Notice of Withholding" is "satisfied," and not "released"
• Language preventing the agreement from being confidential, allowing the agreement to be introduced as evidence of prior violation at a subsequent Request for Review Hearing.
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18 PROJECT CLOSEOUT
It is the responsibility of OCSD to enforce prevailing wage requirements throughout the
project, including taking reasonable, vigorous and prompt action to determine whether violations exist and to enforce compliance pursuant to California Code of Regulations §16421. This will help to ensure that project closeout will be efficient and issue-free due to continual compliance monitoring. The project tracking log shall be reviewed to ensure that all documents have been received; including “Final” certified payroll records, proof of
trust fund and/or training payments and affidavits. 18.1 Final Documents
Any activities that can be completed prior to closeout should be performed to the extent possible. For example, each subcontractor must submit a payroll clearly marked “FINAL” when all subcontractor work has been completed and no further work hours are to be fulfilled. Although the project may not be closed out until all work has been completed,
the subcontractor may be effectively closed out once all necessary documentation is received. 18.2 Request for Authorization to Release Final Payment
The prime contractor is responsible for the compliance status of all subcontractors on the project. Any non-compliance will be subject to a request for approval of forfeitures from the Labor Commissioner.
After receiving all required final documents, a final closeout and review of the subcontractor's file will be conducted. If there are no outstanding compliance issues, the request for releasing final retention payment is sent to the OCSD’s PM, the Construction Manager, and copied to the prime contractor. In addition to the final labor compliance
documents, release of retention is contingent upon the completion of all contract work.
Retention will be release in accordance with the provisions set forth in the Public Contract Code.
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19 REPORTING AND MONITORING ACTIVITIES
19.1 Labor Compliance Review & Enforcement Reports
In accordance with California Code of Regulations §16434(d), for each public work project subject to enforcement of prevailing wage requirements, a separate, written summary of
labor compliance activities and relevant facts pertaining to that particular project shall be
maintained. That summary shall demonstrate that reasonable and sufficient efforts have been made to enforce prevailing wage requirements consistent with the practice of the Labor Commissioner.
The DIR suggested format for tracking and monitoring enforcement activities for each
project is entitled “Single Project Labor Compliance Review and Enforcement Report Form” and is included as an attachment to this Manual. Compliance records for a project shall be retained until the later of (1) at least one year
after the acceptance of the public work or five years after the cessation of all labor on a
public work that has not been accepted, or (2) one year after a final decision or judgment in any litigation under California Labor Code §1742. For purposes of this section, a written summary or report includes information maintained electronically, provided that the summary or report can be printed out in hard copy form or is in an electronic format that
(1) can be transmitted by e-mail or compact disk and (2) would be acceptable for the filing
of documents in a federal or state court of record within this state. 19.2 Annual Reports
For all projects subject to an LCP, an Annual Report is required to be sent to the Director of the DIR no later than August 31, covering activities between July 1 of the preceding calendar year and June 30 of the year in which the report is due.
An annual report shall be made on form LCP-AR1 The Annual Report should shall also include (1) a certification of compliance with conflict of interest disclosure requirements by employees and consultants who participate in making governmental decisions, as defined under Title 2, California Code of Regulations, §18701, and (2) a current statement
disclosing the information required under §16426(a)(2), (3) and (5). Information in the Annual Report shall be reported in sufficient detail to afford a basis for evaluating the scope and level of enforcement activity of the LCP.
OCSD’s failure to submit their own (non-performance) annual report may result in the revocation of their LCP by the DIR.
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20 PROJECT FILES – LCP Document Control System
The following is a summary of the procedures used for all labor compliance projects. 20.1 Electronic Project Tracking Log
Each project will have a Document Tracking Log created especially for that project. The Document Tracking Log is an electronic record of all documents received for all project contractors. It is used for reporting the contractor’s level of compliance and for determining which required documents remain outstanding.
In some cases, the tracking log is used to substantiate contractor’s monthly progress payment invoices, which makes the accuracy of the tracking log especially critical. The tracking log also serves as a Delinquent Document Report, which is sent out monthly to contractors to notify them of documents that are due. The Report should be sent via PDF,
as should all formal letters and documents transmitted by email. When documents are received, the tracking log should reflect the following notations:
Document Received Update Field w/ Notation Other Fields to Update / with
CSLB printout “License Status” & “Workers Comp” / Indicate Active or Inactive & WC Expiration Date
If “in-active,” update the field called “Issues/Audits”
LCP Checklist “LCP Checklist” w/ Received
DAS 140 “DAS 140” w/ Received: (state the trades the form was received for)
CAC 2 • “CAC 2” w/ Received & indicate the month(s) received
• If training fund contributions are paid to the Union Trust Fund,
notate “See Trust Fund Reports”
“CAC 2 Due” (enter the next month that the contractor must submit a CAC 2 form for)
Fringe Benefit Statement “Fringe Benefit Statement” / Received “Fringe Benefit Statement Paid How” (enter cash or Trust
Fund & which trusts they are paying into)
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Document Received Update Field w/ Notation Other Fields to Update / with
CPRs “Latest CPR” / enter the week-ending date • “Missing CPRs” (enter all
week-ending dates for any missing CPRs)
• “Trust Fund Reports Due”
(enter the month(s) for each month work was reported on the CPRs)
• If a CPR is noted as already received, make the 2nd one as “copy.” Ensure that the 1st CPR was audited; if so, destroy the 2nd copy.
• Enter all work classifications that appear on the CPR into the appropriate column in the log. Also enter wage
determination numbers that correspond to the work classifications.
“Final” CPR “Final CPR” / enter the week-ending date
Trust Fund Reports “Latest Trust Fund Report” / enter the month & year “Missing Trust Fund Reports” (enter the next month that the contractor must submit a Trust
Fund Report for)
20.2 Audit File System
In preparing a case for additional review, either by OCSD or by the DLSE, the following critical steps should be routinely applied in every prevailing wage violation case and
particularly for those cases that lead to the filing of a Notice of Withholding of Contract
Payments. Each individual audit needs a separate Audit file, with copies of all pertinent documents, which may include any or all of the following documents: (Note: original
documents need to stay in the main file and must not leave the office)
• Written Narrative describing the violations and includes:
o Applicable Prevailing Wage Determination
For each classification appearing in the audit, the corresponding
determination should be provided
Include any applicable increases
o Scope of Work for Trade Classifications Used
If the complainant has performed work outside the scope for the trade, this information should be noted with reference to the scope outlined by the DIR
o Bid Information
Advertisement Date(s)
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List of Subcontractors
Contract award amounts
Description of project
• Copy of Worker Complaint
o On-Site Interview Sheets with notes
o Calendar of dates and hours worked
o Copies of check stubs or other form of proof of underpayment
o Document all attempts to authenticate the complaint
o Other supporting documentation
• Copy of all Correspondence to Contractor
o Pre-Bid Handout
o Pre-Construction Handout
o LCP Checklist
o Initial notification of complaint
o Invitation to review the preliminary findings
o Requests for additional documentation such as cancelled checks, check
stubs, time cards, cash receipts, ledgers, etc.
o Log of all calls to contractor with notes about the content of discussion
• CPRs
o Specifically, for the time period covered in the complaint
o Accompanied by the notes made by the auditor
• Inspector’s Daily Log
o Detailed record of work performed by date and the number of workers on the project
o Records should correspond to the time period covered in the complaint
• Notice to Proceed
o Official project start and completion dates
o Duration of project
• Notice of Completion
o With date stamp showing when it was recorded
o Any withholding or action must take place within 180 days from the date of recording
o Another 180 days is granted beyond this date if funds are still available in contract
• Notice of Withholding of Contract Payments
o Attach copy of the audit spreadsheet
• Memo to File
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o Should explain the circumstances and reasons for case closure without action
o Provides explanation and reasons for any settlement or agreement reached
with contractor or other parties
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21 DOCUMENT SECURITY AND LOCKDOWN
All Labor Compliance documents are to be treated as confidential information, which must be kept and maintained secured. OCSD should maintain documents in locking file cabinets and electronic documents should only be accessible by LCP staff.
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22 TERMS, DEFINITIONS AND ACRONYMS
Like most fields, labor compliance has its own unique vocabulary. The terms defined below represents the key terms used in labor compliance. Affected Contractor or Subcontractor: A contractor or subcontractor (as defined under California Labor Code §1722.1) to whom the Labor Commissioner has issued a
civil wage and penalty assessment pursuant to California Labor Code §1741, or to whom an Awarding Body has issued a notice of the withholding of contract payments pursuant to California Labor Code §1771.6, or to whom the Labor Commissioner or the DAS has issued a notice assessing penalties for noncompliance with payroll record obligations under California Labor Code §1776.
Normally, the assessment and withholding is made against the prime contractor. In the event that full payment is made to the subcontractor or the amount of underpayment exceeds the amount still owed to the subcontractor, the Prime Contractor is responsible for the total amount of the assessment.
Amount Equal to the Underpayment: The total of the following determined by payroll review, audit, or admission of contractor or subcontractor40:
1. The difference between amounts paid workers and the correct General Prevailing Rate of Per Diem Wages, as defined in California Labor Code §1773, and determined to be the prevailing rate due workers in such craft, classification or trade in which they were employed and the amounts paid.
2. The difference between amounts paid on behalf of workers and the correct amounts of Employer Payments, as defined in California Labor Code §1773.1 and determined to be part of the prevailing rate costs of contractors due for employment of workers in such craft, classification or trade in which they were
employed and the amounts paid.
3. Estimated amounts of “illegal taking of wages.” 4. Amounts of apprenticeship training contributions paid to neither the program
sponsor’s training trust nor the CAC. 5. Estimated penalties under California Labor Code §§1775, 1776, and 1813; Labor Commissioner approval is required for §1776 and §1813 penalties. Area of Determination: The area of determining the prevailing wage is the “locality” or the “nearest labor market area,” as determined by the DIR. Consider the mobility of each craft, classification and type of work when determining the area.
40 See California Code of Regulations §16435.
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Assessment: A civil wage and penalty assessment issued by the Labor Commissioner or his or her designee pursuant to California Labor Code §1741, and it also includes a notice issued by either the Labor Commissioner or the DAS pursuant to California Labor Code §1776.
Awarding Body: Any state or local government agency, department, board, commission, bureau, district, office, authority, political subdivision, regional district officer, employee or agent awarding a contract for public works. See California Labor Code §1722. Bid: Any proposal submitted to an Awarding Body in competitive bidding for the construction, alteration, demolition, repair, maintenance, or improvement of any structure, building, road, property, or other improvement. Bid Advertisement Date: See “Date of Notice or Call for Bids” below. Certified: The affirmation of a person with the authority to affirm, under the penalty of perjury, that the records are originals or are full, true and correct copies of the original and depict truly, fully and correctly the craft or type of work performed, hours and days
worked, and the amounts by category listed, disbursed by way of cash, check, or in whatever form or manner to each person by job classification and/or skill. CLSB: California State Licensing Board Coverage: This means being subject to the requirements of Part 7, Chapter 1 of the Labor Code as a “Public Work.” This includes all formal coverage determinations issued by the DIR. Certified Payroll Report (CPR): Weekly report submitted by contractors listing the
names, addresses, social security numbers, hours and days worked, rates of pay, deductions, gross and net pay, and method of payment for each worker employed on a public works project. Each CPR is submitted along with a Statement of Compliance signed by a representative from the contractor stating that the information stated in the CPR is true and correct under penalty of perjury.
Division of Apprenticeship Standards (DAS): The DAS is the branch of the DIR that manages apprentice programs and apprentice wages. Date of Notice or Call for Bids: The date the first notice inviting bids was published in
a newspaper of general circulation or promulgated in a legally sufficient manner that results in a contract being awarded with or without competitive bidding. This may also be referred to as the Bid Advertisement Date. Days: Unless otherwise specified, this means calendar days.
Delinquent Payroll Records: Those not submitted on the date set in the contract. Department of Industrial Relations (DIR): The governmental entity that determines and governs California prevailing wage. The DAS and DLSE are branches of the DIR.
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Director: The Director of the DIR or his/her duly authorized representative. Division of Labor Standards Enforcement (DLSE): The DLSE is the enforcing entity for the state that approves the assessments. For projects operating under an approved
LCP, the LCP steps in to the shoes of the DLSE up unto the point of assessment of penalties and approval of forfeitures. An LCP is required to seek approval from the DLSE for any forfeiture and penalties the LCP has determined are owed for nonpayment of wages. Duly Authorized Representative: An employee of the DIR. Effective Date: The date upon which the determinations of the Director go into effect. This date is 10 days after the issue date of the determination. Employer Payments: Includes all of the following: 1. Contributions made by a contractor or subcontractor to a trustee or to a third person pursuant to a fund, plan, or program for the benefit of employees, their families and dependents, and retirees.
2. Costs to the contractor or subcontractor that may be reasonably anticipated in providing benefits to employees, their families and dependents or to retirees pursuant to an enforceable commitment or agreement to carry out a financially
responsible plan or program that was communicated in writing to the workers affected. 3. Contributions made by a contractor for apprenticeship or other training programs
authorized by §§3071 and/or 3093 of the California Labor Code.
Enforcing Agency: Means the entity which has issued an Assessment or Notice of Withholding of Contract Payments and with which a Request for Review has been filed; i.e., it refers to the Labor Commissioner when review is sought from an Assessment, the
Awarding Body when review is sought from a Notice of Withholding of Contract Payments,
and the DAS when review is sought from a notice issued by that agency that assesses penalties under California Labor Code §1776. Expiration Date: The date when the determinations of the Director are subject to change.
Forfeitures: The amounts of unpaid penalty and wage money assessed by the LCP for violations of the prevailing wage laws41. General Prevailing Rate of Per Diem Wages: Includes all of the following:
1. The prevailing basic straight-time hourly rate of pay.
41 See California Code of Regulations §16436(a).
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2. The prevailing rate for holiday and overtime work. a. Holiday – Work performed on certain holidays may require the payment of overtime or double time. A list of designated holidays for each craft or
classification of labor can be found on the DIR website42. Each wage determination will specify the appropriate wage rate for holiday work. b. Overtime – Work performed by employees on public works in excess of
eight hours per day and 40 hours per week must be paid for at not less than
one-and-one half times the basic rate of pay (California Labor Code §1815). Each wage determination will specify the wage rate required for overtime pay. Failure to pay the required rate will subject the contractor to a penalty of $25 per worker per violation (California Labor Code §1813).
c. Saturday/Sunday Work – Most classifications of workers require the payment of overtime or double time for work performed on Saturdays and Sundays. Each wage determination will specify the required wage rate for this work. Pay attention to any footnotes that may contain exceptions or
special requirements.
d. Exceptions: Exceptions to paying overtime wages are explained in detail at California Code of Regulations §16200(a)(3)(F) and must be narrowly construed. In summary, they include the following 4 exemptions:
i. If a workweek other than Monday through Friday is a fixed business practice or is required by the Awarding Body, no overtime payment is required for the first eight hours on Saturday or Sunday
ii. If the collective bargaining agreement provides for Saturday and
Sunday work at straight-time, no overtime payment is required for the first eight hours on Saturday or Sunday iii. If the Awarding Body determines that work cannot be performed
during normal business hours or work is necessary at off hours to avoid danger to life or property, no overtime is required for the first eight hours in any one calendar day, and 40 hours during any one calendar week
iv. No overtime payment is required for less than 40 hours in a standard work week or for less than eight hours in a calendar workday unless specified in the collective bargaining agreement used as the basis for the prevailing wage determination
3. The prevailing rate of employer payments for any or all programs or benefits for employees, their families and dependents, and retirees which are of the following types:
42 www.dir.ca.gov/OPRL/statistics_research.html
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a. Medical and hospital care, prescription drugs, dental care, vision care, diagnostic services, and other health and welfare benefits.
b. Retirement plan (pension) benefits. c. Vacations and holidays with pay, or cash payments in lieu thereof. d. Compensation for injuries or illnesses resulting from occupational activity.
e. Life, accidental death and dismemberment, disability or sickness, and accident insurance. f. Supplemental unemployment benefits.
g. Thrift, security savings, supplemental trust, and beneficial trust funds otherwise designated, provided all of the money, except that used for reasonable administrative expenses, is returned to the employees. h. Occupational health and safety research, safety training, monitoring job
hazards, and the like, as specified in the collective bargaining agreement. i. Other benefits for employees, their families and dependents, or retirees as the Director may determine.
The term “general prevailing rate of per diem wages” does not include any employer payments for:
Job related expenses other than travel time and subsistence pay.
Contract administration, operation of hiring halls, grievance processing, or similar purposes,
except for amounts earmarked for administration of employee or retiree benefit plans.
Union, organizational, professional, or other dues, except as they may be included in and
withheld from the basic taxable hourly wage rate.
Industry or trade promotion.
Political contributions or activities.
Any benefit for employees, their families and dependents, or retirees, including any benefit
where the contractor or subcontractor is required by Federal, State, or local law to provide such
benefit.
Such other payments as the Director may determine to exclude.
F O C U S
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Hearing Officer: Means any person appointed by the Director pursuant to California Labor Code §1742(b) and California Code of Regulations §17204 to conduct hearings and other proceedings under California Labor Code §1742 and these rules. Inadequate Payroll Records43: Any one of the following: 1. A record lacking the information required by California Labor Code §1776. 2. A record which contains the required information but not certified, or certified by
someone not an agent of the contractor or subcontractor. 3. A record remaining uncorrected for one payroll period after the LCP has given the contractor or subcontractor notice of inaccuracies detected by audit or record review; however, prompt correction will stop any duty to withhold if such
inaccuracies do not amount to one percent of the entire weekly CPR in dollar value and do not affect more than half the persons listed as workers employed on that Certified Weekly Payroll, as defined in California Labor Code §1776 and California Code of Regulations §16401. Interested Party: When used in reference to a particular prevailing wage determination made by the Director, “interested parties” include: 1. Any contractor or subcontractor, or any organization, association, or other
representative of any contractor or subcontractor likely to bid on or to perform a
contract for public work that is subject to the particular prevailing wage determinations. 2. Any worker who may be employed on a public work project subject to a prevailing
wage determination, or any labor organization or other representative of such a person, including the collective bargaining representative. 3. Any Awarding Body or association concerned with the administration of a public
works contract or proposed contract that is subject to a prevailing wage
determination. Helper: Any sub-journeyman classification; assistant to a journeyman. Helpers may not be used in lieu of legally required apprentices.
Identify or Give Notice of Identity: This means to state the name, job title, address and phone number of a person or entity. Interim Determination: Those determinations of the Director issued between the
quarterly updates.
Issue Date/Issuance: Determined by the date on which the copies of the Director’s determination were mailed.
43 See California Code of Regulations, 2004 Amendments, §16435(d).
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Labor Compliance Program (LCP): California Labor Code §1771.5 allows an Awarding Body to adopt an LCP, which is an organized series of activities designed to fulfill the monitoring and enforcement of the requirements of the California Labor Code and the
California Code of Regulations. An LCP is required of all awarding bodies seeking to use the following public funds (a comprehensive list of statutes that require Awarding Bodies to have a LCP shall be maintained on the Department of Industrial Relations’ website): 1. The Safe Drinking Water, Water Quality and Supply, Flood Control, River and
Coastal Protection Bond Act of 2006 (Proposition 84). Labor Commissioner: Means the Chief of the Division of Labor Standards Enforcement and includes his or her designee who has been authorized to carry out the Labor Commissioner's functions under Chapter 1, Part 7 of Division 2 (commencing with §1720)
of the California Labor Code. Labor Compliance Officer (LCO): The Labor Compliance Officer is responsible for enforcing labor compliance requirements. Maintenance: Includes any and all of the following: 1. Routine, recurring and usual work for the preservation, protection and keeping of any publicly owned or publicly operated facility for its intended purposes in a safe and continually usable condition.
2. Carpentry, electrical, plumbing, glazing, and other craft work designed to preserve the publicly owned or publicly operated facility in a safe, efficient, and continuously usable condition for which it was intended, including repairs, cleaning and other
operations. 3. Landscape maintenance. See California Code of Regulations §16000. Exception: Landscape maintenance work by “sheltered workshops” is excluded. See definition of “Sheltered Workshop” below.
Maintenance does not include the following: 1. Janitorial or custodial services of a routine, recurring, or usual nature.
2. Protection of the sort provided by guards, watchmen or other security forces. Mistake, Inadvertence or Neglect: Mistake, inadvertence, or neglect in failing to pay the correct general rate of per diem wages means the lack of knowledge that any reasonable
person would also be expected to have under similar circumstances.
Nearest Labor Market Area: The nearest geographical area from which workers to be used in the performance and execution of the public work can be drawn.
Non-Performance Report: The contractor must complete a non-performance report form
when no work is performed on the project for a period of time. On the form that contractor
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states there was no payroll for a specific time period. All days for a project must be accounted for, including Saturdays, Sundays and holidays. Party: Means an Affected Contractor or Subcontractor who has requested review of
either an Assessment or a Notice of Withholding of Contract Payments, the Enforcing Agency that issued the Assessment or the Notice of Withholding of Contract Payments from which review is sought, and any other Person who has intervened under subparts (a), (b), or (c) of Rule 08 [California Code of Regulations §17208]. Payroll Records: All time cards, cancelled checks, cash receipts, trust fund forms, books, documents, schedules, forms, reports, receipts or other evidences that reflect job assignments, work schedules by days and hours, and the disbursement by way of cash, check, or in whatever form or manner, of funds to a person(s) by job classification and/or skill assigned to a public works project.
Person: Any individual or legal entity, including a partnership, corporation, association, or any local, state, regional, national or international organization, public or private, or any Awarding Body, or any agent or officer thereof, authorized to act for or on behalf of any of the foregoing.
Political Subdivision: Includes any county, District, district, public housing authority, or public agency, and assessment or improvement districts. Per Diem Wages: See Wages.
Predetermined Changes: Definite changes to the basic hourly wage rate, overtime, holiday pay rates, and employer payments that are known and enumerated in the collective bargaining agreement at the time of the bid advertisement date and that are referenced in the general prevailing rate of per diem wages. Contractors must pay the
amount that was predetermined if these changes are modified prior to their effective date. Predetermined changes that are rescinded prior to their effective date will not be enforced. Additionally, rate increases that occur during the life of the project but were not predetermined at the time of the bid advertisement date are not to be enforced. Prevailing Rate: Includes the following: 1. The basic hourly rate being paid to a majority of workers engaged in the particular craft, classification, or type of work within the locality and in the nearest labor
market area. If there is no single rate being paid to a majority, then the single rate being paid to the greater number of workers is prevailing. The rate being paid to the greatest number of workers – whether or not the number of workers is a majority – is considered the modal rate. If there is no modal rate, then an alternate rate will be established by considering collective bargaining agreements, Federal
rates, or other data, such as wage survey data. 2. Other employer payments included as part of the total hourly wage rate, from which the prevailing basic hourly wage rate was derived. In the event that the total hourly wage rate does not include any employer payments, then the Director may
establish a prevailing employer payment rate.
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3. The rate for holiday or overtime work will be those rates specified in the collective bargaining agreement when the basic hourly rate is based on a collective bargaining agreement rate. In the event the basic hourly rate is not based on a
collective bargaining agreement, holidays and overtime (if any) included with the prevailing basic hourly rate of pay will be prevailing. Per California Labor Code §1771, the prevailing rate is to be paid for all work performed under contract on projects with public funding of over $1,000, including maintenance
work. Public Entity: For the purpose of processing requests for inspection of payroll records or furnishing certified copies thereof, “public entity” includes: the body awarding the contracts, the DAS, or the DLSE. Public Funds: Includes state, local, and/or federal monies. Public funds do not include money loaned to a private entity where work is to be performed under private contract, and where no portion of the work is supervised, owned, utilized, or managed by an Awarding Body.
Public Works: “Construction, alteration, demolition, installation, or repair work done under contract and paid for in whole or in part out of public funds, except work done directly be any public utility company pursuant to order of the Public Utilities Commission or other public authority.” See §§1720, 1720.2, 1720.3, and 1771 of the California Labor
Code for more information. Representative: Means a person authorized by a Party to represent that Party in a proceeding before a Hearing Officer or the Director, and includes the Labor Commissioner when the Labor Commissioner has intervened to represent the Awarding
Body in a review proceeding pursuant to California Labor Code §1771.6(b). Request for Review of Forfeitures: An assessment made by an Awarding Body/Labor Compliance issues an assessment of penalties against a contractor for violations on the public works including but not limited to the underpayment of wages, misclassification of
workers, underreporting of hours.
An awarding body/LCP can also assess penalties against a contractor for violations of California Labor Code §1776 for incomplete, inaccurate or delinquent CPRs. As of October 2009, these penalties are subject to the review of DLSE and can no longer be
assessed by the LCP/ Awarding Body without approval.
An awarding body wishing to assess penalties against a contractor for violations of California Labor Code §1813 and §1774 needs to request a review of forfeitures by the Deputy Labor Commissioner.
§1013 of the California Code of Civil Procedure (a): In case of service by mail, the
notice or other paper shall be deposited in a post office, mailbox, subpost office, substation, or mail chute, or other like facility regularly maintained by the United States Postal Service, in a sealed envelope, with postage paid, addressed to the person on whom it is to be served, at the office address as last given by that person on any document
filed in the cause and served on the party making service by mail; otherwise at that party's
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place of residence. The service is complete at the time of the deposit, but any period of notice and any right or duty to do any act or make any response within any period or on a date certain after the service of the document, which time period or date is prescribed by statute or rule of court, shall be extended five calendar days, upon service by mail, if
the place of address and the place of mailing is within the State of California, 10 calendar days if either the place of mailing or the place of address is outside the State of California but within the United States, and 20 calendar days if either the place of mailing or the place of address is outside the United States, but the extension shall not apply to extend the time for filing notice of intention to move for new trial, notice of intention to move to
vacate judgment pursuant to Section 663a, or notice of appeal. This extension applies in the absence of a specific exception provided for by this section or other statute or rule of court. The copy of the notice or other paper served by mail pursuant to this chapter shall bear a notation of the date and place of mailing or be accompanied by an unsigned copy of the affidavit or certificate of mailing.
In the case of service by Express Mail, the notice or other paper must be deposited in a post office, mailbox, subpost office, substation, or mail chute, or other like facility regularly maintained by the United States Postal Service for receipt of Express Mail, in a sealed envelope, with Express Mail postage paid, addressed to the person on whom it is to be
served, at the office address as last given by that person on any document filed in the cause and served on the party making service by Express Mail otherwise at that party's place of residence. In case of service by another method of delivery providing for overnight delivery, the notice or other paper must be deposited in a box or other facility regularly maintained by the express service carrier, or delivered to an authorized courier
or driver authorized by the express service carrier to receive documents, in an envelope or package designated by the express service carrier with delivery fees paid or provided for, addressed to the person on whom it is to be served, at the office address as last given by that person on any document filed in the cause and served on the party making service; otherwise at that party's place of residence. The service is complete at the time of the
deposit, but any period of notice and any right or duty to do any act or make any response within any period or on a date certain after the service of the document served by Express Mail or other method of delivery providing for overnight delivery shall be extended by two court days, but the extension shall not apply to extend the time for filing notice of intention to move for new trial, notice of intention to move to vacate judgment pursuant to Section
663a, or notice of appeal. This extension applies in the absence of a specific exception provided for by this section or other statute or rule of court. The copy of the notice or other paper served by Express Mail or another means of delivery providing for overnight delivery pursuant to this chapter shall bear a notation of the date and place of deposit or be accompanied by an unsigned copy of the affidavit or certificate of deposit.
Service by facsimile transmission shall be permitted only where the parties agree and a written confirmation of that agreement is made. The Judicial Council may adopt rules implementing the service of documents by facsimile transmission and may provide a form for the confirmation of the agreement required by this subdivision. In case of service by
facsimile transmission, the notice or other paper must be transmitted to a facsimile machine maintained by the person on whom it is served at the facsimile machine telephone number as last given by that person on any document which he or she has filed in the cause and served on the party making the service. The service is complete at the time of transmission, but any period of notice and any right or duty to do any act or
make any response within any period or on a date certain after the service of the
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document, which time period or date is prescribed by statute or rule of court, shall be extended, after service by facsimile transmission, by two court days, but the extension shall not apply to extend the time for filing notice of intention to move for new trial, notice of intention to move to vacate judgment pursuant to Section 663a, or notice of appeal.
This extension applies in the absence of a specific exception provided for by this section or other statute or rule of court. The copy of the notice or other paper served by facsimile transmission pursuant to this chapter shall bear a notation of the date and place of transmission and the facsimile telephone number to which transmitted or be accompanied by an unsigned copy of the affidavit or certificate of transmission which shall contain the
facsimile telephone number to which the notice or other paper was transmitted.
1013a. Proof of service by mail may be made by one of the following methods: (1) An affidavit setting forth the exact title of the document served and filed in the cause, showing the name and residence or business address of the person making the service,
showing that he or she is a resident of or employed in the county where the mailing occurs, that he or she is over the age of 18 years and not a party to the cause, and showing the date and place of deposit in the mail, the name and address of the person served as shown on the envelope, and also showing that the envelope was sealed and deposited in the mail with the postage thereon fully prepaid.
(2) A certificate setting forth the exact title of the document served and filed in the cause, showing the name and business address of the person making the service, showing that he or she is an active member of the State Bar of California and is not a party to the cause, and showing the date and place of deposit in the mail, the name and address of
the person served as shown on the envelope, and also showing that the envelope was sealed and deposited in the mail with the postage thereon fully prepaid. (3) An affidavit setting forth the exact title of the document served and filed in the cause, showing (A) the name and residence or business address of the person making the
service, (B) that he or she is a resident of, or employed in, the county where the mailing occurs, (C) that he or she is over the age of 18 years and not a party to the cause, (D) that he or she is readily familiar with the business' practice for collection and processing of correspondence for mailing with the United States Postal Service, (E) that the correspondence would be deposited with the United States Postal Service that same day
in the ordinary course of business, (F) the name and address of the person served as shown on the envelope, and the date and place of business where the correspondence was placed for deposit in the United States Postal Service, and (G) that the envelope was sealed and placed for collection and mailing on that date following ordinary business practices. Service made pursuant to this paragraph, upon motion of a party served, shall
be presumed invalid if the postal cancellation date or postage meter date on the envelope is more than one day after the date of deposit for mailing contained in the affidavit. (4) In case of service by the clerk of a court of record, a certificate by that clerk setting forth the exact title of the document served and filed in the cause, showing the name of
the clerk and the name of the court of which he or she is the clerk, and that he or she is not a party to the cause, and showing the date and place of deposit in the mail, the name and address of the person served as shown on the envelope, and also showing that the envelope was sealed and deposited in the mail with the postage thereon fully prepaid. This form of proof is sufficient for service of process in which the clerk or deputy clerk
signing the certificate places the document for collection and mailing on the date shown
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thereon, so as to cause it to be mailed in an envelope so sealed and so addressed on that date following standard court practices. Service made pursuant to this paragraph, upon motion of a party served and a finding of good cause by the court, shall be deemed to have occurred on the date of postage cancellation or postage meter imprint as shown
on the envelope if that date is more than one day after the date of deposit for mailing contained in the certificate. Serve Upon the Labor Commissioner: Delivery of all documents, including legal process, to the local District Office of the Labor Commissioner. See website for DLSE District office locations: http://www.dir.ca.gov/dlse/DistrictOffices.htm Sheltered Workshop: A nonprofit organization licensed by the DLSE employing
mentally and/or physically handicapped workers.
Surety: Has the meaning set forth in California Civil Code §2787 and refers to the entity
that issues the public works bond provided for in California Civil Code §§3247 and 3248 or any other surety bond that guarantees the payment of wages for labor.
Travel & Subsistence Payments: Because the law requires that workers receive the general prevailing rate of per diem as part of the contractor’s prevailing wage obligation, there may be a requirement to pay travel/subsistence. Many classifications require the
payment of mileage or subsistence for traveling certain distances. These requirements
are contained in the collective bargaining agreement on file with DIR for each craft or classification of worker. Requirements may be downloaded from the DIR website at www.dir.ca.gov/OPRL/statistics_research.html Wages: According to California Labor Code §§1773.1 (a) through 1773.1 (e), wages include employer payments of the following: 1. Health and welfare 2. Pension
3. Vacation 4. Travel 5. Subsistence 6. Apprenticeship or other authorized training programs as long as the cost of training is reasonably related to the amount of the contributions
7. Worker protection and assistance programs or committees established under the federal Labor Management Cooperation Act of 1978, to the extent that the activities of the programs or committees are directed to the monitoring and enforcement of laws related to public works 8. Industry advancement and collective bargaining agreements administrative fees
9. Other purposes similar to those above
Wage Survey: An investigation conducted pursuant to California Labor Code §1773 and/or §1773.4 to determine the general prevailing rate of per diem wages for the crafts/classifications in the county for which the survey questionnaire was designed.
Willful Violation: California Labor Code §1777.1(d) defines the standard applied for a
willful violation. Specifically, §1777.1(d) states: “A willful violation occurs when the contractor or subcontractor knew or reasonably should have known of his or her obligations under the public works law and deliberately fails or refuses to comply with its provisions.”
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Withhold: To cease payments made by the Awarding Body, or others who pay on its behalf, or agents, to the general contractor. Per California Code of Regluations §16435, The Awarding Body may withhold contract payments when payroll records are delinquent
or inadequate or when, after investigation, it is established that underpayment has occurred; “Delinquent payroll records” means those not submitted on the date set in the contract; “Inadequate payroll records” are any one of the following:(1) A record lacking the information required by California Labor Code §1776; (2) A record which contains the required information but not certified, or certified by someone not an agent of the
contractor or subcontractor; (3) A record remaining uncorrected for one payroll period, after the LCP has given the contractor or subcontractor notice of inaccuracies detected by audit or record review. Provided, however, that prompt correction will stop any duty to withhold if such inaccuracies do not amount to one percent of the entire CPR in dollar value and do not affect more than half the persons listed as workers employed on that
CPR, as defined in California Labor Code §1776 and California Code of Regulations §16401. Withholding of Contract Payments: A notice of withholding is served on a contractor/ subcontractor once the Deputy Labor Commissioner has approved a request for review
of forfeitures. An Assessment, a Notice of Withholding of Contract Payments, or a notice assessing penalties under California Labor Code §1776 shall be served on the contractor and subcontractor, if applicable, by first class and certified mail pursuant to the requirements
of Code of Civil Procedure §1013. A copy of the notice shall also be served by certified mail on any bonding company issuing a bond that secures the payment of the wages covered by the Assessment or Notice and to any Surety on a bond, if the identities of such companies are known or reasonably ascertainable. The identity of any Surety issuing a bond for the benefit of an Awarding Body as designated obligee, shall be
deemed "known or reasonably ascertainable," and the Surety shall be deemed to have received the notice required under this subpart if sent to the address appearing on the face of the bond. Worker: For compliance purposes, those employed by contactors or subcontractors in
the execution of any contract for public works44. Working Day: Means any day that is not a Saturday, Sunday, or State holiday, as determined with reference to California Code of Civil Procedure §§12(a) and 12(b) and California Government Code §§6700 and 6701.
44 See California Labor Code §1772.
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Appendix A: Sample Pre-Bid Meeting Handout
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Appendix B: Sample Project Management Tracking Sheet
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Appendix C: Audit Rationale Sheet
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Appendix D: Worker Complaint Form (English)
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Appendix D: Worker Complaint Form (Spanish Sample)
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Appendix E: Training Program Agenda
The training program is based on the following steps:
1. Review and discuss the CLC requirement
The applicable sections are in the Labor Code. A packet of the Sections will be distributed to staff for review prior to training. Packet will include applicable Opinion Letters and Precedential Decisions.
2. Review and discuss the amended regulations and how they are applied
Copies will be distributed to staff. Although staff has copies of the latest amendments to regulations relating to CPRs and LCPs, there is a question as to whether they actually read and understand how they are applied.
3. Discuss application of CLC requirements versus amended regulations
Discuss the differences between the CLC and the amended regulations, specifically how they
work with and relate to each other.
4. Discuss “real world” application of Labor Compliance
Bring in Compliance Representatives from the major crafts to discuss the nuances of their particular trade. An opportunity to meet various compliance representatives and discuss issues they may have and nuances of the trades. Discuss investigatory techniques
applicable to their trade.
5. Discuss best management practices with staff regarding investigatory techniques
What we learned and what we could share.
TRAINING PROGRAM AGENDA I. California Labor Code Section 204: Payroll Periods (weekly, bi-weekly, and monthly) Section 206.5: Release of Claim for Wages
Section 207: Posting of Paydays Section 216: Refusal to Pay Wages Section 219: More frequent or Greater Payment – Allowed
Section 223: Secret Payments Section 224: Withholding or Diverting Payments (Authorization)
Section 226: Itemized Statements Sections 1720–1720.3: Definition of Public Works Projects Section 1727: Withholding of Contract Payments
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Section 1726: Awarding Body must be Cognizant of Violations Section 1729: Withholding of Payments – Penalties Section 1736: Confidentiality of Employees Sections 1741 – 1742: Assessments and Review of Assessments Section 1742.1: Liquidated Damages Section 1771: Requirement of Payment of Prevailing Wages for work under contract Section 1771.5: Labor Compliance Programs Section 1771.6: Notice of Withholding Section 1772: Workers in Public Works Projects (Defined) Section 1773.1: Wages defined Section 1773.3: Notifications to State of Award of Public Works Projects Section 1774: Payment of no less than prevailing wages Section 1775: Forfeitures for payment of less than prevailing wages Section 1776: Payroll Records Section 1777.1: Penalties for Willful violations Section 1777.5: Employment of Apprentices Section 1777.7: Penalties for Non-Compliance of Apprenticeship Provisions Section 1778: Taking back payments Section 1812: Record of Hours Worked – Public Works Projects Sections 1813 & 1815: Overtime Provisions II. Amendments to Regulations 2009 Notifications for LCP approval by DIR and adoption by Awarding Bodies Use of electronic reporting forms Providing bid language to Awarding Bodies Method for reviewing payroll records Audit Records (DIR forms “Appendix B”) Audits to ascertain compliance with Labor Code Sections 224 and 226 Withholding of Contract payments Uncorrected Payroll Records Assessments and Forfeitures (Defined) Project Postings Investigation methods and confirmation of payroll records Written summary of labor compliance activities per project (DIR form “Appendix C”) III. Policies and Procedures Manual
IV. Opinion Letters and Precedential Decisions
Overtime Payment for Saturday and Sunday Work (insert to P & P Manual)
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Authorized Deductions (Insert to P&P Manual) Overpayment of Wages V. Collective Bargaining Agreements (Enforcement of)
Subsistence and Travel Scope of Work Holidays VI. Important Notices and Interim Determinations
VII. Investigatory Techniques
Staff discussion – Best Practices (Internal) Best Practices – Other providers VIII. Additional Training Resources Invite Labor Compliance Representatives from various trades to discuss particular nuances about their trades and contractors.
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Appendix F: Labor Compliance Review & Enforcement Report Form
Suggested Single Project
Labor Compliance Review and Enforcement Report Form
Project Name:
Name of Approved Labor Compliance Program:
Bid Advertisement Date:
Acceptance Date:
Notice of Completion Recording Date:
Summary of Labor Compliance Activities
1. Contract Documents Containing Prevailing Wage Requirements (Identify)
2. Pre-job Conference(s) -- Attach list(s) of attendees and dates
3. Notification to Project Workers of Labor Compliance Program’s Contact Person.
(Explain Manner of Notification for each project work site.)
4. Certified Payroll Record Review
a. CPRs Received from:
Contractor/Subcontractor Weeks ending (“w/e”) through w/e
____________________________ _______________________________
___________________________ _________________________________
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___________________________ __________________________________
b. Classifications identified in CPRs and applicable Prevailing Wage Determinations
Classification Determination No.
5. Further investigation or audit due to CPR review, information or complaint from worker or other interested person, or other reason:
a. Independent Confirmation of CPR Data
Worker Interviews Reconciled CPRs
Contractor/Subcontractor (Yes/No) w/ paychecks or Stubs
(Yes/No)
b. Employer Payments (Health & Welfare, Pension, Vac/Holiday) Confirmation
Recipients of Written confirmation
Contractor/Subcontractor Employer Payments Obtained (Yes/No)
c. Contributions to CAC or Other Approved Apprenticeship Program
Recipients of Written confirmation
Contractor/Subcontractor Contributions Obtained (Yes/No)
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d. Additional Wage Payments or Training Fund Contributions Resulting from Review of
CPRs
Additional amounts Additional Explanation
Contractor/Subcontractor Paid to Workers Training Fund
*
*
*
* Use separate page(s) for explanation
6. Complaints Received Alleging Noncompliance with Prevailing Wage Requirements.
Name of Resolution or
Complainant Date Received Current Status
*
*
*
*Use separate page(s) to explain resolution or current status
7. Requests for Approval of Forfeiture to Labor Commissioner
Contractor/Subcontractor Date of Request Approved/Modified/Denied
8. Litigation Pending Under Labor Code Section 1742
Contractor/Subcontractor DIR Case Number
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9. (Check one): Final report this project Annual report this project
Authorized Representative for LCP
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Appendix G: Manual Receipt & Review Signature Sheet
POLICIES AND PROCEDURES MANUAL RECEIPT & REVIEW EMPLOYEE SIGNATURE SHEET
It is required that all staff to affirm their awareness and compliance with the rights and
responsibilities involved in the operation of the LCP.
Name of Employee Signature Date Signed Manual Received &
Reviewed
(Date on Cover)
By signing below, the undersigned attest to the following:
“I have read and understood the Orange County Sanitation District’s Labor Compliance Policies & Procedures Manual, and will exercise the rights and responsibilities imposed on the Labor Compliance Program as an agent of the Awarding Body whose public works project the Orange County Sanitation District is monitoring and enforcing labor compliance on.”
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Appendix H: Sample Template for a Written Audit Narrative
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Appendix I: Request for Approval of Forfeiture
REQUEST FOR APPROVAL OF FORFEITURE
(Under CCR Section 16437) 1. AWARDING BODY / THIRD PARTY LCP:
Name and Contact Information: Date of Request:
Name and Contact Information for Awarding Body if different from LCP: LCP Approval Status (specify if either interim or temporary or if LCP has extended authority):
2. PROJECT INFORMATION:
Project Name: Contract Number:
Project Location:
Bid Advertisement Dates:
Estimated Date Project is to be completed:
Acceptance Date of Project by the Awarding Body:
Notice of Completion/Date Recorded with County Recorder:
Other Relevant Deadline (specify): Amount being held in Retention:
3. CONTRACTOR INFORMATION:
Name and address of Affected Contractor: Name and address of Affected Subcontractor:
General Description of Scope of Work of the Entire Project:
General Description of Scope of Work covered in the proposed Forfeiture (describe and attach relevant portions of contract or subcontract):
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4. LABOR COMPLIANCE PROGRAM INVESTIGATION AND FINDINGS: Total Amount of Request for Notice of Withholding of Contract Payments:
Wages Due:
Training Funds Due: Total Penalties Due: Potential Liquidated Damages [Wages + Training Funds]:
LC 1775 Penalties Due: LC 1813 Penalties Due:
LC 1776 Penalties Due:
Other:
[Provide narrative summaries covering the following]:
A. Statement of Issues.
B. Investigative Report (detailed narrative including but not limited to how the investigation was
conducted including worker declarations, reviewing certified payroll records, verification of
employer payment contributions, etc.).
C. Audit Report (detailed explanation of how audit was completed addressing each of the issues
above).
D. Affected contractor and subcontractor information (how affected contractor and subcontractor were
informed of potential violations; summary of their response with respect to violations and penalty
issues; and any other information considered in determining recommended penalties). E. Recommended penalties under Labor Code Section 1775(a) and basis for recommendation,
including how factors in subsection (a)(2) of Section 1775 were applied to arrive at the
recommended amount(s). ATTACHMENTS 1. Audit Summary (Appendix C) 2. 1st Bid Advertisement Publication 3. Notice of Completion 4. Scope of Work
5. Complaint form(s) and Declarations, if any
Send the Request and all Attachments to:
Division of Labor Standards Enforcement Bureau of Field Enforcement Attn.: Regional Manager
300 Oceangate Blvd., No. 850 Long Beach, CA 90802 COPIES OF THIS REQUEST, INCLUDING ALL ATTACHMENTS, SHALL BE SERVED ON THE AFFECTED CONTRACTOR AND AFFECTED SUBCONTRACTOR AT THE SAME TIME THAT IT IS SENT TO THE DIVISION OF LABOR STANDARDS ENFORCEMENT.
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Appendix J: DIR-PWC 100 Sample Form
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Appendix K: Annual Report Reporting Form LCP-AR1
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Appendix L: LCP Checklist
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Appendix M: DAS 140 Project Award Notification
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Appendix N: DAS 142 Request for Apprentices
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Appendix O: Fringe Benefit Statement
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Appendix P: Certified Payroll Report
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Appendix Q: Statement of Compliance
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Appendix R: Non-Performance Statement
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Appendix S: CAC 2 Form