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subpart 222.4--labor standards for contracts involving construction



 222.402 Applicability.
 222.402-70 Installation support contracts.
 222.403 Statutory and regulatory requirements.
 222.403-4 Department of Labor regulations.
 222.404 Davis-Bacon Act wage determinations.
 222.404-2 General requirements.
 222.404-3 Procedures for requesting wage determinations.
 222.404-11 Wage determination appeals.
 222.406 Administration and enforcement.
 222.406-1 Policy.
 222.406-6 Payrolls and statements.
 222.406-8 Investigations.
 222.406-9 Withholding from or suspension of contract payments.
 222.406-10 Disposition of disputes concerning construction contract labor standards enforcement.
 222.406-13 Semiannual enforcement reports.
 222.407 Contract clauses.

222.402  Applicability.


222.402-70  Installation support contracts.


      (a)  Apply both the Service Contract Act (SCA) and the Davis-Bacon Act (DBA) to installation support contracts if—


              (1)  The contract is principally for services but also requires a substantial and segregable amount of construction, alteration, renovation, painting, or repair work; and


              (2)  The aggregate dollar value of such construction work exceeds or is expected to exceed $2,000.


      (b)  SCA coverage under the contract.  Contract installation support requirements, such as plant operation and installation services (i.e., custodial, snow removal, etc.) are subject to the SCA.  Apply SCA clauses and minimum wage and fringe benefit requirements to all contract service calls or orders for such maintenance and support work.


      (c)  DBA coverage under the contract.  Contract construction, alteration, renovation, painting, and repair requirements (i.e., roof shingling, building structural repair, paving repairs, etc.) are subject to the DBA.  Apply DBA clauses and minimum wage requirements to all contract service calls or orders for construction, alteration, renovation, painting, or repairs to buildings or other works.


      (d)  Repairs versus maintenance.  Some contract work may be characterized as either DBA painting/repairs or SCA maintenance.  For example, replacing broken windows, spot painting, or minor patching of a wall could be covered by either the DBA or the SCA.  In those instances where a contract service call or order requires construction trade skills (i.e., carpenter, plumber, painter, etc.), but it is unclear whether the work required is SCA maintenance or DBA painting/repairs, apply the following rules—


              (1)  Individual service calls or orders which will require a total of 32 or more work-hours to perform shall be considered to be repair work subject to the DBA.


              (2)  Individual service calls or orders which will require less than 32 work-hours to perform shall be considered to be maintenance subject to the SCA.


              (3)  Painting work of 200 square feet or more to be performed under an individual service call or order shall be considered to be subject to the DBA regardless of the total work-hours required.


      (e)  The determination of labor standards application shall be made at the time the solicitation is prepared in those cases where requirements can be identified.  Otherwise, the determination shall be made at the time the service call or order is placed against the contract.  The service call or order shall identify the labor standards law and contract wage determination which will apply to the work required.


      (f)  Contracting officers may not avoid application of the DBA by splitting individual tasks between orders or contracts.


222.403  Statutory and regulatory requirements.


222.403-4  Department of Labor regulations.

Direct all questions regarding Department of Labor regulations to the labor advisor.


222.404  Davis-Bacon Act wage determinations.

Not later than April 1 of each year, each department and agency shall furnish the Administrator, Wage and Hour Division, with a general outline of its proposed construction program for the coming fiscal year.  The Department of Labor uses this information to determine where general wage determination surveys will be conducted.


      (1)  Indicate by individual project of $500,000 or more—


              (i)  The anticipated type of construction;


              (ii)  The estimated dollar value; and


              (iii)  The location in which the work is to be performed (city, town, village, county, or other civil subdivision of the state).


      (2)  The report format is contained in Department of Labor All Agency Memo 144, December 27, 1985.


      (3)  The report control number is 1671-DOL-AN.


222.404-2  General requirements.


      (c)(5)  Information concerning the proper application of wage rate schedules to the type or types of construction involved shall be obtained from the appropriate district commander, Corps of Engineers, for the Army; from the cognizant Naval Facilities Engineering Command division for the Navy; from the appropriate Regional Industrial Relations Office for the Air Force; and from the appropriate Defense Contract Management District, ATTN:  Industrial Labor Relations Office, for the Defense Logistics Agency.


222.404-3  Procedures for requesting wage determinations.


      (b)  Requests for project wage determinations.  Submit requests for project wage determinations directly to the Department of Labor.


222.404-11  Wage determination appeals.

Send a copy of a petition for review filed by the contracting agency to the labor advisor.


222.406  Administration and enforcement.


222.406-1  Policy.


      (a)  General.  The program shall also include—


              (i)  Training appropriate contract administration, labor relations, inspection, and other labor standards enforcement personnel in their responsibilities; and


              (ii)  Periodic review of field enforcement activities to ensure compliance with applicable regulations and instructions.


      (b)  Preconstruction letters and conferences.


              (1)  Promptly after award of the contract, the contracting officer shall provide a preconstruction letter to the prime contractor.  This letter should accomplish the following, as appropriate—


                    (A)  Indicate that the labor standards requirements contained in the contract are based on the following statutes and regulations—


                          (1)  Davis-Bacon Act;


                          (2)  Contract Work Hours and Safety Standards Act;


                          (3)  Copeland (Anti-Kickback) Act;


                          (4)  Parts 3 and 5 of the Secretary of Labor's Regulations (Parts 3 and 5, Subtitle A, Title 29, CFR); and


                          (5)  Executive Order 11246 (Equal Employment Opportunity);


                    (B)  Call attention to the labor standards requirements in the contract which relate to—


                          (1)  Employment of foremen, laborers, mechanics, and others;


                          (2)  Wages and fringe benefits payments, payrolls, and statements;


                          (3)  Differentiation between subcontractors and suppliers;


                          (4)  Additional classifications;


                          (5)  Benefits to be realized by contractors and subcontractors in keeping complete work records;


                          (6)  Penalties and sanctions for violations of the labor standards provisions; and


                          (7)  The applicable provisions of FAR 22.403; and


                    (C)  Ensure that the contractor sends a copy of the preconstruction letter to each subcontractor.


              (2)  Before construction begins, the contracting officer shall confer with the prime contractor and any subcontractor designated by the prime to emphasize their labor standards obligations under the contract when—


                    (A)  The prime contractor has not performed previous Government contracts;


                    (B)  The prime contractor experienced difficulty in complying with labor standards requirements on previous contracts; or


                    (C)  It is necessary to determine whether the contractor and its subcontractors intend to pay any required fringe benefits in the manner specified in the wage determination or to elect a different method of payment.  If the latter, inform the contractor of the requirements of FAR 22.406-2.


222.406-6  Payrolls and statements.


      (a)  Submission.  Contractors who do not use Department of Labor Form WH 347 or its equivalent must submit a DD Form 879, Statement of Compliance, with each payroll report.


222.406-8  Investigations.


      (a)  The following guidance and procedures apply to investigations conducted by the contracting activity.


              (i)  Beginning of the investigation.  The investigator shall—


                    (A)  Inform the contractor of the investigation in advance;


                    (B)  Verify the exact legal name of the contractor, its address, and the names and titles of its principal officers;


                    (C)  Outline the general scope of the investigation and that it includes examining pertinent records and interviewing employees; and


                    (D)  Inform the contractor that the names of the employees to be interviewed will not be divulged to the contractor;


                    (E)  When requested, provide a letter from the contracting officer verifying the investigator's authority.


              (ii)  Conduct of the investigation.


                    (A)  Review of the contract.


                          (1)  Verify that all required labor standards and clauses and the wage determination are included in the contract.


                          (2)  Review the following items in the contract file, if applicable—


                              (i)  List of subcontractors;


                              (ii)  Payroll statements for the contractor and subcontractors;


                              (iii)  Approvals of additional classifications;


                              (iv)  Data regarding apprentices and trainees as required by FAR 22.406-4;


                              (v)  Daily inspector's report or other inspection reports;


                              (vi)  Employee interview statements; and


                              (vii)  SF 1413, Statement and Acknowledgement.


                    (B)  Interview of the complainant.  Interview the complainant except when this is impractical.  The interview shall cover all aspects of the complaint to ensure that all pertinent information is obtained.  Whenever an investigation does not include an interview of the complainant, explain such omission in the investigator's report.


                    (C)  Interview of employees and former employees.


                          (1)  Interview a sufficient number of employees or former employees, who represent all classifications, to develop information regarding the method and amount of payments, deductions, hours worked, and the type of work performed.


                          (2)  Interview employees at the job site if the interviews can be conducted privately and in such a manner so as to cause the least inconvenience to the employer and employees.


                          (3)  Former employees may be interviewed elsewhere.


                          (4)  Do not disclose to any employee any information, finding, recommendation, or conclusion relating to the investigation except to the extent necessary to obtain required information.


                          (5)  Do not disclose any employee's statement to anyone, except a Government representative working on the case, without the employee's written permission.


                          (6)  Obtain information by mail when personal interviews are impractical.


                          (7)  Use SF 1445, Labor Standards Interview, for employee interviews.


                          (8)  Request employees to sign their statements and to initial any changes.


                          (9)  Provide an evaluation of each employee's credibility.
                    (D)  Interview of foremen.  Interview foremen to obtain information concerning the contractor's compliance with the labor standards provisions with respect to employees under the foreman's supervision and the correctness of the foreman's classification as a supervisory employee.  All procedures established for the conduct of employee interviews, and the recording and use of information obtained, apply to foremen interviews.


                    (E)  Interview of the contractor.


                          (1)  Interview the contractor whenever the investigation indicates the possibility of a violation.


                          (2)  Inform the contractor that—


                              (i)  The interview does not mean that a violation has been found or that a requirement for corrective action exists; and


                              (ii)  The purpose of the interview is to obtain only such data as the contractor may desire to present in connection with the investigation.


                          (3)  Do not disclose the identity of any individual who filed a complaint or was interviewed.


                    (F)  Review of contractor and subcontractor records.


                          (1)  Review contractor and subcontractor records such as basic time cards, books, cancelled payroll checks, fringe benefits, and payment records.  Compare them with submitted payrolls.  When discrepancies are found, include pertinent excerpts or copies of the records in the investigation report with a statement of the discrepancy and any explanation the investigator obtains.  When wages include contributions or anticipated costs for fringe payments requiring approval of the Secretary of Labor, examine the contractor records to ensure such approval has been obtained and that any requirements specified in the approval have been met.  (See FAR 22.406-2(a)(3)).


                          (2)  Review contractor's and subcontractor's weekly payrolls and payroll statements for completeness and accuracy regarding the following—


                              (i)  Identification of employees, payroll amount, the contract, contractor, subcontractor, and payroll period;


                              (ii)  Inclusion of only job classifications and wage rates specified in the contract specifications, or otherwise established for the contract or subcontract;


                              (iii)  Computation of daily and weekly hours;


                              (iv)  Computation of time-and-one half for work in excess of

40 hours per week in accordance with FAR 22.406-2(c);


                              (v)  Gross weekly wages;


                              (vi)  Deductions;
                              (vii)  Computation of net weekly wages paid to each employee;


                              (viii)  Ratio of helpers, apprentices, and trainees to laborers and mechanics;


                              (ix)  Apprenticeship and trainee registration and ratios; and


                              (x)  Computation of fringe benefits payments.


                          (3)  Transcribe the contractor's records whenever they contain information at variance with payrolls or other submitted documents.


                              (i)  Make the transcriptions in sufficient detail to permit them to be used to check computations of restitution and to determine amounts to be withheld from the contractor.


                              (ii)  Follow the form used by the contractor.


                              (iii)  Place comments or explanations concerning the transcriptions on separate memoranda or in the narrative report.


                              (iv)  Determine whether the wage determination, any modifications of the determination, and any additional classifications are posted as required.


              (iii)  Submission of the report of investigation.  The investigator shall submit a report of the investigation in accordance with agency procedures.  Each report shall include at least the—


                    (A)  Basis for the investigation, including the name of the complainant;


                    (B)  Names and addresses of prime contractors and subcontractors involved, and names and titles of their principal officers;


                    (C)  Contract number, date, dollar value of prime contract, and date and number of wage determination included in the contract;


                    (D)  Description of the contract and subcontract work involved;


                    (E)  Summary of the findings with respect to each of the items listed in 222.406-8(a)(ii);


                    (F)  Concluding statement concerning—


                          (1)  The types of violations, including the amount of kickbacks under the Copeland Act, underpayments of basic hourly rates and fringe benefits under the Davis-Bacon Act, or underpayments and liquidated damages under the Contract Work Hours and Safety Standards Act;


                          (2)  Whether violations are considered to be willful or due to the negligence of the contractor or its agent;


                          (3)  The amount of funds withheld from the contractor; and


                          (4)  Other violations found.


                    (G)  Exhibits indexed and appropriately tabbed, including copies of the following, when applicable—


                          (1)  Complaint letter;


                          (2)  Contract wage determination;


                          (3)  Preconstruction letter and memorandum of preconstruction conference;


                          (4)  Payrolls and statements indicating violations;


                          (5)  Transcripts of pertinent records of the contractor, and approvals of fringe benefit payments;


                          (6)  Employee interview statements;


                          (7)  Foreman interview statements;


                          (8)  Statements of others interviewed, including Government personnel;


                          (9)  Detailed computations showing kickbacks, underpayments, and liquidated damages;


                          (10)  Summary of all payments due to each employee or to a fund plan or program, and liquidated damages; and


                          (11)  Receipts and cancelled checks.


      (c)  Notification to the contractor.


              (4)(A)  Notify the contractor by certified mail of any finding that it is liable for liquidated damages under the Contract Work Hours and Safety Standards Act (CWHSSA).  The notification shall inform the contractor that—


                          (1)  It has 60 days after receipt of the notice to appeal the assessment of liquidated damages; and


                          (2)  The appeal must demonstrate either that the alleged violations did not occur at all, occurred inadvertently notwithstanding the exercise of due care, or the assessment was computed improperly.


                    (B)  If an appeal is received, the contracting officer shall process the appeal in accordance with department or agency regulations.


      (d)  Contracting officer's report.


              (1)  In accordance with agency procedures, the contracting officer shall forward a detailed enforcement report or summary report in duplicate.  These reports shall include at least the following—


                    (A)  SF 1446, Labor Standards Investigation Summary Sheet;


                    (B)  Contracting officer's findings;


                    (C)  Statement as to the disposition of any contractor rebuttal to the findings;


                    (D)  Statement as to whether the contractor has accepted the findings and has paid any restitution or liquidated damages;


                    (E)  Statement as to the disposition of funds available;


                    (F)  Recommendations as to disposition or further handling of the case (when appropriate, include recommendations as to the reduction, waiver, or assessment of liquidated damages, whether the contractor should be debarred, and whether the file should be referred for possible criminal prosecution); and


                    (G)  When applicable the following exhibits—


                          (1)  Investigator's report;


                          (2)  Copy of the contractor's written rebuttal or a summary of the contractor's oral rebuttal of the contracting officer's findings;


                          (3)  Copies of correspondence between the contractor and contracting officer, including a statement of specific violations found, corrective action requested, and the contractor's letter of acceptance or rejection;


                          (4)  Evidence of the contractor's payment of restitution or liquidated damages.  (Copies of receipts, cancelled checks, or supplemental payrolls); and


                          (5)  Letter from the contractor requesting relief from the liquidated damage provisions of the CWHSSA.


222.406-9  Withholding from or suspension of contract payments.


      (a)  Withholding from contract payments.  The contracting officer shall contact the labor advisor for assistance when payments due a contractor are not available to satisfy that contractor's liability for Davis-Bacon or CWHSSA wage underpayments or liquidated damages.


      (c)  Disposition of contract payments withheld or suspended.


              (3)  Limitation on forwarding or returning funds.  When disposition of withheld funds remains the final action necessary to close out a contract, the Department of Labor has given blanket approval to forward withheld funds to the Comptroller General pending completion of an investigation or other administrative proceedings.


      (4)  Liquidated damages.


              (A)  The agency head may adjust liquidated damages of $500 or less when the amount assessed is incorrect or waive the assessment when the violations—


                    (1)  Were nonwillful or inadvertent; and


                    (2)  Occurred notwithstanding the exercise of due care by the contractor, its subcontractor, or their agents.


              (B)  The agency head may recommend to the Administrator, Wage and Hour Division, that the liquidated damages over $500 be adjusted because the amount assessed is incorrect.  The agency head may also recommend the assessment be waived when the violations—


                    (1)  Were nonwillful or inadvertent; and


                    (2)  Occurred notwithstanding the exercise of due care by the contractor, the subcontractor, or their agents.


222.406-10  Disposition of disputes concerning construction contract labor standards enforcement.


      (d)  Forward the contracting officer's findings and the contractor's statement through the labor advisor.


222.406-13  Semiannual enforcement reports.

Forward these reports through the head of the contracting activity to the labor advisor within 15 days following the end of the reporting period.  These reports shall not include information from investigations conducted by the Department of Labor.  These reports shall contain the following information, as applicable, for construction work subject to the Davis-Bacon Act and the CWHSSA—


      (1)  Period covered;


      (2)  Number of prime contracts awarded;


      (3)  Total dollar amount of prime contracts awarded;


      (4)  Number of contractors/subcontractors against whom complaints were received;


      (5)  Number of investigations conducted;


      (6)  Number of contractors/subcontractors found in violation;


      (7)  Amount of wage restitution found due under—


              (i)  Davis-Bacon Act


              (ii)  CWHSSA;


      (8)  Number of employees due wage restitution under—


              (i)  Davis Bacon Act


              (ii)  CWHSSA;


      (9)  Amount of liquidated damages assessed under the CWHSSA—


              (i)  Total amount


              (ii)  Number of contracts involved;


      (10)  Number of employees and amount paid/withheld under—


              (i)  Davis-Bacon Act


              (ii)  CWHSSA


              (iii)  Copeland Act; and


      (11)  Preconstruction activities—


              (i)  Number of compliance checks performed


              (ii)  Preconstruction letters sent.


222.407  Contract clauses.

In contracts with a State or political subdivision, use the contract clauses prescribed in FAR 22.407, but preface these clauses with the following—


The Contractor agrees to comply with the requirements of the Contract Work Hours and Safety Standards Act and to insert the following clauses in all subcontracts under this contract with private persons or firms.




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