[nfbmi-talk] shameless wisc worse in michigan though
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A Review of 2010 Sub-Minimum Wage Licenses in Wisconsin
The Fair Labor Standards Act and the State of Wisconsin permit employers to pay workers
with disabilities less than minimum wage in certain specific circumstances.
An application must be submitted to the U.S. Department of Labor and the Wisconsin
Department of Workforce Development (DWD) and a Special Minimum Wage certificate
must be issued for a facility to pay a worker less than minimum wage under one of these
licenses. The license applications and renewals are open records. Disability Rights
Wisconsin has reviewed licenses that were approved in 2005, 2009 and 2010. The
following summary highlights results of the 2010 license review.
What does “sub-minimum wage” mean?
In order to pay less than minimum wage in Wisconsin, an employee’s productive capacity
for the specific work being performed must be “impaired by his disability.”1 There is no
minimum, or floor, and there is no time-limit.2 Although there are a small number of
licenses that grant payment of sub-minimum wage to individuals, the vast majority of
people with disabilities working and earning less than minimum wage work under the
licenses held by sheltered workshops3, or “sheltered workshops” as defined by law.
1 Wis. Admin. Code DWD § 272.09(2)(a).
2 Disabilities under this section include blindness, mental illness, mental retardation, cerebral palsy,
alcoholism, drug addiction, but do not include vocational, social, cultural, educational disabilities, chronic
unemployment, receipt of welfare benefits, nonattendance at school, juvenile delinquency, or correctional
parole or probation. Wis. Admin. Code DWD § 272.09(1)(i); Wis. Admin. Code DWD § 272.09(1)(n).
3 Although sheltered workshops are sometimes referred to as “rehabilitation facilities,” the term sheltered
workshop will be used in this report to match the regulatory language under Wis. Admin. Code DWD §
272.09.
How many Wisconsin sheltered workshops are paying sub-minimum wages?
In 2010, 79 sheltered workshops applied for sub-minimum wage licenses, covering 9,949
employees. About 89% of these employees earned less than minimum wage. In the last
year, even with the state’s expansion of long-term supports through Family Care and IRIS,
there have been no appreciable reductions in the number of people working under subminimum
wage licenses.
Wage Levels of People on Sub-Minimum Wage
Table with 4 columns and 5 rowsPercent of employees
earning…
FY 2009
FY
2010
Less than minimum
wage
90.12%
89.36%
Less than $5 per hour
84.34%
82.96%
Less than $2 per hour
52.78%
50.11%
Less than $1 per hour
28.24%
24.41%
Table end What is the range of wages paid by sheltered workshops?
About half of the employees made less than $2.00 per hour and about a quarter made less
than $1.00 per hour. Thirty-three employees at sheltered workshops in Wisconsin earned
less than a cent an hour and five sheltered workshops reported employees who made no
wages at all. Several sheltered workshops paid more than two-thirds of their employees
less than $1.00 an hour. All workers at a handful of Wisconsin sheltered workshops earned
less than $1.00 an hour. In contrast, Industries for the Blind paid all of its employees
minimum wage or higher.
Have the wages of employees receiving sub-minimum wage improved since 2009?
Wages have improved slightly since 2009. The 2010 sub-minimum wage license
applications show that 89.36% of employees made less than minimum wage in 2010,
compared to 90.12% the previous year. Similarly, the percent of employees earning less
than $5.00 per hour has dropped by about 2% since 2009, to 82.96%. The greatest
decrease (although still modest) occurred amongst employees receiving less than $1.00 per
hour, dropping from 28.24% in 2009 to 24.41% in 2010.
What is the difference between “compensable hours” and “non-compensable hours?”
Wisconsin Law requires that employees be compensated for all hours worked;
compensable time includes hours when no work is performed, but the employee is
required by the employer to remain available for the next assignment.4 If an employer does
not pay an employee for certain hours the employee spent at his workplace, the employer
has the responsibility to prove that that time does not qualify as “hours worked” (for
example, time would not qualify as “hours worked” if the employee was receiving some
sort of services unrelated to his employment). There have been multiple complaints from
employees in sheltered workshops that they wait at their work stations for work and do
not have the opportunity to leave the workplace, yet receive no wages.
4 Wis. Admin. Code DWD § 272.09(3).
5 Industries for the Blind were taken out of the calculations because it employed only workers earning
minimum wage or higher. In 2009, the National Federation of the Blind determined that no sheltered
workshops employing people who are blind, with or without other disabilities, are to be paid less than
minimum wage.
What documentation does the state require of sub-minimum wage license holders?
License holders must submit applications annually. These applications require employers
to submit the following documentation: information about employees’ disabilities as they
relate to productivity; the prevailing wages of nondisabled employees; the productivity of
workers with disabilities compared with nondisabled employees; and the hourly and piecerate
wages paid to workers with disabilities. The applications must also include written
assurances that the employer will reevaluate employee’s hourly wages at least once every
six months and adjust all wages at least annually to reflect changes in the prevailing wages
to nondisabled employees. DWD must review this documentation before it may grant a
subminimum wage license. The Department may only grant a license if it determines that
“the approval of special minimum wage rates is necessary in order to prevent the
curtailment of opportunities for employment.”
What other specific concerns did the license review uncover?
? About 73.08% of the 78 sub-minimum wage license applications for 2010
contained at least one error or inconsistency, a substantial increase from 45.35%
of the 86 applications reviewed the previous year.5 The 2010 applications appear to
have been approved without even the most minimal review.
? The review provides direct evidence that matching an employee to a job that best
fits skill, ability and interest results in a much higher wage. Some employees earned
significantly different wages for performing different jobs. For example, some
employers paid the same employees two different wages depending on the job
performed. According to data on one application, an employee made $2.67 per hour
as a mail packager and $5.82/hour as a packet assistant, while another made $5.25
per hour as a mail packer and $3.00 as a packet assistant. It is clear that the first
employee was much better suited to working as a packet assistant, and the second
much better suited to working as a mail packer. In another facility, one employee
made $13.00 per hour at his piece rate wage, while only earning $0.36 per hour
when paid an hourly wage. It was not clear what tasks this employee performed at
each rate.
What action is necessary to address these concerns?
? The following recommendations were originally made by the DWD Special
Minimum Wage Advisory Council of Wisconsin in July, 2008 and should be adopted
immediately:
o Standardize how information is reported on license applications to enable
the DWD to more effectively compare and review applications for accuracy
and completeness, and to more effectively monitor how the sub-minimum
wage license program is being used over time.
o Increase the amount of data that must be reported on individual workers
covered under sub-minimum wage license applications and renewal
applications, including a requirement that the total number of hours worked
and total wages paid during the previous fiscal year be reported for each
individual worker covered under a license.
o Establish clear criteria for Bureau of Labor Standards staff to use for
approval of a new license.
o Establish clear criteria for Bureau of Labor Standards staff to use for
approval of a renewal application, including criteria related to evidence of
some minimum level of increased productivity and/or earnings, as should be
expected from a program designed for the purposes of rehabilitation.
o Make license application and renewal materials available online and permit
on-line submission.
o Use DWD’s internet website to provide on-line time study calculation forms
that auto-calculate totals when raw data is entered.
o Prepare and submit to the DWD Secretary, the Wisconsin Rehabilitation
Council and the Governor’s Committee on People with Disabilities a biennial
report on sub-minimum wage licensure. This report should compare and
contrast data in order to analyze trends.
o Enforce the current labor laws governing compensable and noncompensable
time. This may be accomplished by making the requirements
more clear to sheltered workshops and their workers with disabilities, and
by doing random compliance checks.
? In addition to the above recommendations, DWD should conduct compliance audits,
beginning with sheltered workshops paying more than 10 employees less than
$2/hour.
Finally, we suggest that DWD adopt an Employment First policy declaring communitybased,
competitive employment is the first and preferred outcome for all people with
disabilities of working age.
? See attached data detailing all 2010 Sub-Minimum Wage licenses reviewed by
Disability Rights Wisconsin.
? See attached copy of Sub Min Wage Regulation: Wis. Admin Code DWD 272.09.
Survival Coalition Co-Chairs
Maureen Ryan, Wisconsin Coalition of Independent Living Centers, Inc.
608-444-3842; moryan at charter.net Beth Swedeen, Wisconsin Board for People with Developmental Disabilities
608-266-1166; Beth.Swedeen at wisconsin.gov Tom Masseau, Disability Rights Wisconsin
608-267-0214; Tom.Masseau at drwi.org The Survival Coalition of Wisconsin Disability Organizations is a cross-disability coalition of
more than 40 state and local organizations and groups. For more than 20 years, Survival has
been focused on changing and improving policies and practices that support people with
disabilities of all ages to be full participants in community life.
Table with 14 columns and 96 rowsProvider
Location
(County)
# of Employees
on Hourly Rate
# of Employees
on Piece Rate
# Earning
Below
Minimum
Wage
# of Employees
Problems with Application: Inconsitencies,
Missing Information, Errors, Etc.
% Earning
Below
Minimum
Wage
% Earning
Below $1/hr
# Earning
Below $5/hr
% Earning
Below $5/hr
# Earning
Below $2/hr
% Earning
Below $2/hr
# Earning
Below $1/hr
Aspiro, Inc
Brown
397
16
381
388
97.73%
358
90.18%
199
50.13%
94
23.68%
At least one question left blank
Barron Co. Developmental
Disabilities Services, Inc.
Barron
69
0
69
68
98.55%
67
97.10%
39
56.52%
23
33.33%
At least one question left blank
Bethesda Lutheran Homes &
Services, Inc.
Dodge &
Jefferson
148
29
119
139
93.92%
137
92.57%
121
81.76%
100
67.57%
Black River Industries, Inc.
Taylor
77
5
72
77
100.00%
76
98.70%
49
63.64%
25
32.47%
At least one question left blank; Number of
employees inconsistent
Brooke Industries, Inc.
Fond du Lac
157
0
157
157
100.00%
155
98.73%
74
47.13%
26
16.56%
Number of employees inconsistent
Careers Industries, Inc.
Racine
217
0
217
216
99.54%
206
94.93%
123
56.68%
54
24.88%
Did not answer a at least one question; Typo in
employee wage
Central Wisconsin Center
Dane
42
0
42
42
100.00%
42
100.00%
42
100%
42
100.00%
At least one question left blank; Number of
employees inconsistent
Cerebral Palsy, Inc.
Brown
50
0
50
50
100.00%
49
98.00%
37
74.00%
10
20.00%
At least one question left blank
Challenge Center, Inc.
Douglas
112
43
112
106
94.64%
106
94.64%
76
67.86%
37
33.04%
Number of employees inconsistent
Chileda Vocational Services
La Crosse
28
28
0
28
100.00%
28
100.00%
14
50.00%
2
7.14%
Chippewa Falls School District
Chippewa
17
24
0
17
100.00%
13
76.47%
1
5.88%
0
0.00%
At least one question left blank; Number of
employees inconsistent
Chippewa River Industries, Inc.
Chippewa
149
0
164
149
100.00%
149
100.00%
125
83.89%
80
53.69%
Number of employees inconsistent
Clark County Adult Development
Services
Clark
87
26
58
87
100.00%
60
68.97%
33
37.93%
15
17.24%
Number of employees inconsistent
Clark County Health Care Center
Clark
71
66
66
71
100.00%
64
90.14%
40
56.34%
25
35.21%
Counseling & Development
Center
Price
32
0
32
21
65.63%
20
62.50%
6
18.75%
7
21.88%
7 employees listed as "no work"
Crawford County Opportunity
Center
Crawford
79
0
79
78
98.73%
70
88.61%
40
50.63%
16
20.25%
At least one question left blank
Curative Care Network
Milwaukee &
Waukesha
118
0
118
118
100.00%
114
96.61%
67
56.78%
23
19.49%
Diverse Options, Inc.
Fond du Lac &
Winnebego
122
0
122
122
100.00%
120
98.36%
106
86.89%
33
27.05%
Diversified Services, Inc.
Burnett
55
0
55
50
90.91%
40
72.73%
2
3.64%
0
0.00%
East Shore Industries, Inc.
Winnebego
56
0
62
56
100.00%
47
83.93%
8
14.29%
0
0.00%
Number of employees inconsistent
Easter Seals of Southeast
Wisconsin
Milwaukee
263
8
255
256
97.34%
244
92.78%
167
63.50%
93
35.36%
Eisenhower Center, Inc.
Milwaukee
84
0
84
84
100.00%
84
100.00%
79
94.05%
58
69.05%
Provider
Location
(County)
# of Employees
# of Employees
on Hourly Rate
# of Employees
on Piece Rate
% Earning
Below
Minimum
Wage
Problems with Application: Inconsitencies,
Missing Information, Errors, Etc.
# Earning
Below
Minimum
Wage
# Earning
Below $5/hr
% Earning
Below $5/hr
# Earning
Below $2/hr
% Earning
Below $2/hr
# Earning
Below $1/hr
% Earning
Below $1/hr
Endeavors Adult Development
Center, Inc.
Polk
230
51
79
194
84.35%
166
72.17%
82
35.65%
45
19.57%
Number of employees inconsistent
EZ View Workshop
Chippewa
10
0
10
4
40.00%
4
40.00%
4
40.00%
4
40.00%
At least one question left blank; Missing wage
info for 6 employees
Focuscorp, Inc.
Dane
27
0
27
19
70.37%
19
70.37%
6
22.22%
2
7.41%
Missing wage info for 8 employees; 2
employees worked 0 hours
Fox River Industries
Green Lake
79
0
79
76
96.20%
74
93.67%
39
49.37%
13
16.46%
Number of employees inconsistent
Goodwill Industries of North
Central WI, Inc.
Outagamie
45
0
45
43
95.56%
38
84.44%
13
28.89%
5
11.11%
Goodwill Industries of Northern
WI, Inc.
Marinette
147
0
147
125
85.03%
122
82.99%
65
44.22%
14
9.52%
Number of employees inconsistent
Goodwill Industries of
Southeastern WI, Inc.
Milwaukee
398
91
307
382
95.98%
324
81.41%
146
36.68%
57
14.32%
Green Valley Enterprises, Inc. of
Beaver Dam
Dodge
129
0
129
121
93.80%
117
90.70%
54
41.86%
11
8.53%
Greenco Industries, Inc.
Green
98
16
105
98
100.00%
87
88.78%
65
66.33%
22
22.45%
Number of employees inconsistent
Handi Shop Industries, Inc.
Monroe
69
x
x
69
100.00%
62
89.86%
31
44.93%
9
13.04%
At least one question left blank; Number of
employees inconsistent
Headwaters, Inc.
Oneida
82
3
82
81
98.78%
79
96.34%
56
68.29%
40
48.78%
Highline Corporation
Iron
46
46
0
39
84.78%
36
78.26%
7
15.22%
1
2.17%
Hodan Center, Inc.
Iowa
108
76
x
108
100.00%
108
100.00%
89
82.41%
44
40.74%
At least one question left blank
Holiday House of Manitowoc
County, Inc.
Manitowoc
199
5
x
161
80.90%
160
80.40%
141
70.85%
91
45.73%
Indianhead Enterprises, Inc.
Dunn
59
0
59
59
100.00%
59
100.00%
57
96.61%
27
45.76%
Industries for the Blind
Milwaukee
51
0
51
0
0.00%
0
0.00%
0
0.00%
0
0.00%
At least one question left blank; Number of
employees inconsistent
KANDU Industries, Inc.
Rock
190
116
x
179
94.21%
175
92.11%
141
74.21%
79
41.58%
At least one question left blank
Kenosha Achievement Center,
Inc.
Kenosha
118
0
141
117
99.15%
116
98.31%
73
61.86%
15
12.71%
Number of employees inconsistent
L.E. Phillips Career Development
Center
Eau Claire
126
12
114
124
98.41%
113
89.68%
57
45.24%
21
16.67%
Lakeland Industries
Shawano
60
0
62
59
98.33%
59
98.33%
35
58.33%
7
11.67%
Number of employees inconsistent
Lakeside Curative Services, Inc.
Racine
140
0
139
140
100.00%
136
97.14%
71
50.71%
16
11.43%
Number of employees inconsistent
Lakeside Packaging Plus, Inc.
Winnebego
258
0
290
258
100.00%
254
98.45%
202
78.29%
116
44.96%
Number of employees inconsistent
Provider
Location
(County)
# of Employees
on Hourly Rate
# of Employees
on Piece Rate
# Earning
Below
Minimum
Wage
# of Employees
Problems with Application: Inconsitencies,
Missing Information, Errors, Etc.
% Earning
Below
Minimum
Wage
# Earning
Below $5/hr
% Earning
Below $5/hr
# Earning
Below $2/hr
% Earning
Below $2/hr
# Earning
Below $1/hr
% Earning
Below $1/hr
Lauri Jean Zach Center, Inc.
Ashland
12
12
0
11
91.67%
11
91.67%
1
8.33%
0
0.00%
When DWD made the copies, the bottom of
question 11 got cut off
Lincoln 51.437 Services/Lincoln
Industries
Lincoln
89
x
x
83
93.26%
74
83.15%
50
56.18%
36
40.45%
At least one question left blank
Madison Area Rehabilitation
Centers, Inc.
Dane
127
40
129
123
96.85%
116
91.34%
71
55.91%
26
20.47%
Number of employees inconsistent
Milwaukee Center for
Independence
Milwaukee
341
37
142
184
53.96%
167
48.97%
86
25.22%
45
13.20%
Number of employees inconsistent
My Innovative Services, Inc
Brown
151
51
94
145
96.03%
135
89.40%
97
64.24%
65
43.05%
Number of employees inconsistent; 5
employees made less than $0.01/hour
N.E.W. Curative Rehab, Inc
Brown
105
0
159
103
98.10%
79
75.24%
25
23.81%
3
2.86%
Number of employees inconsistent
New Hope Center, Inc
Calumet
65
0
67
51
78.46%
48
73.85%
15
23.08%
2
3.08%
Number of employees inconsistent; 14
employees make no wage.
New View Industries
Oconto
88
20
88
88
100.00%
81
92.05%
57
64.77%
30
34.09%
North Central Health Care
Marathon &
Langlade
182
182
0
182
100.00%
181
99.45%
121
66.48%
58
31.87%
Northern Valley Workshop, Inc
Marathon
122
122
0
122
100.00%
90
73.77%
8
6.56%
0
0.00%
At least one question left blank
Northwoods, Inc. of Wisconsin
Columbia
104
0
104
102
98.08%
84
80.77%
29
27.88%
12
11.54%
ODC Government Services, Inc.
Wood
19
0
19
18
94.74%
16
84.21%
4
21.05%
0
0.00%
Number of employees inconsistent
Opportunities, Inc. of Jefferson
County
Jefferson
367
x
x
365
99.46%
309
84.20%
176
47.96%
78
21.25%
At least one question left blank
Opportunity Development
Centers, Inc.
Wood
280
2
277
254
90.71%
236
84.29%
118
42.14%
49
17.50%
Number of employees inconsistent
ORC Industries, Inc.
La Crosse
88
24
88
87
98.86%
83
94.32%
40
45.45%
14
15.91%
At least one question left blank
Pantheon Industries
Waukesha
264
0
264
264
100.00%
261
98.86%
235
89.02%
137
51.89%
Pathways of Wisconsin, Inc.
Dane
28
13
27
34
121.43%
24
85.71%
5
17.86%
0
0.00%
Many employees earn more than one wage.
Portal Industries, Inc.
Ozaukee
88
0
110
87
98.86%
86
97.73%
63
71.59%
21
23.86%
Number of employees inconsistent
RCS Empowers
Sheboygan
71
x
x
71
100.00%
65
91.55%
41
57.75%
24
33.80%
At least one question left blank
REACH, Inc.
Dane
43
180
176
43
100.00%
43
100.00%
39
90.70%
33
76.74%
Number of employees inconsistent
Riverfront, Inc.
La Crosse
575
40
265
0
0.00%
0
0.00%
0
0.00%
0
0.00%
Did not provide wage information for any
employees
Shepherds Baptist Ministries, Inc
Racine
141
8
133
113
80.14%
97
68.79%
76
53.90%
19
13.48%
DWD didn't include one of the sheets listing
employee wages.
# Earning
Below
Minimum
Wage
Provider
Location
(County)
# of Employees
# of Employees
on Hourly Rate
# of Employees
on Piece Rate
% Earning
Below
Minimum
Wage
Problems with Application: Inconsitencies,
Missing Information, Errors, Etc.
# Earning
Below $5/hr
% Earning
Below $5/hr
# Earning
Below $2/hr
% Earning
Below $2/hr
# Earning
Below $1/hr
% Earning
Below $1/hr
Southwest Opportunities Center,
Inc.
Grant
51
30
78
50
98.04%
48
94.12%
19
37.25%
4
7.84%
Number of employees inconsistent
Saint Coletta
Jefferson
50
0
44
50
100.00%
50
100.00%
50
100%
41
82.00%
Number of employees inconsistent
St. Croix Industries
St Croix
102
7
103
101
99.02%
88
86.27%
25
24.51%
5
4.90%
Number of employees inconsistent
Sunshine House, Inc.
Door
56
0
56
56
100.00%
52
92.86%
22
39.29%
8
14.29%
Superior Vacations Center, Inc.
Douglas
51
0
78
51
100.00%
42
82.35%
27
52.94%
22
43.14%
At least one question left blank; Number of
employees inconsistent
The Threshold, Inc.
Washington
191
9
187
191
100.00%
182
95.29%
105
54.97%
47
24.61%
Number of employees inconsistent
Valley Packaging Industries, Inc
Outagamie
248
11
235
248
100.00%
226
91.13%
112
45.16%
35
14.11%
Number of employees inconsistent
Ventures Unlimited Incorporated
Washburn
129
0
129
115
89.15%
109
84.50%
87
67.44%
69
53.49%
Vernon Area Rehabilitation
Center
Vernon
320
0
318
320
100.00%
309
96.56%
133
41.56%
46
14.38%
Number of employees inconsistent
VIP Services
Walworth
134
0
134
134
100.00%
128
95.52%
95
70.90%
65
48.51%
Number of employees inconsistent
Waupaca County Industries
Waupaca
158
28
177
157
99.37%
124
78.48%
57
36.08%
30
18.99%
Number of employees inconsistent; 1 employee
makes $0.00 per hour
Wausaukee Enterprises, Inc.
Marinette
49
49
49
49
100.00%
48
97.96%
20
40.82%
3
6.12%
Number of employees inconsistent
Waushara Industries, Inc.
Waushara
85
85
70
68
80.00%
65
76.47%
31
36.47%
17
20.00%
Number of employees inconsistent
Total
10,073
1,611
7,980
8,956
88.91%
8,314
82.54%
5,022
50%
2,446
24.28%
Table end?? DWD 272.06
[1]
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