Project Labor Agreements, the 2026 Harris Poll, and What Comes Next for Ohio Valley Contractors

Introduction

Project labor agreements (PLAs) are reshaping the federal construction landscape in the Ohio Valley. This article is designed for contractors, estimators, and business leaders seeking to understand the impact of new PLA mandates, recent polling data, and evolving legal challenges. Learn how these changes affect your bidding strategy, workforce planning, and advocacy efforts. This article explains what project labor agreements (PLAs) are, how they affect Ohio Valley contractors, and what recent polling and policy changes mean for your business.

Key Takeaways

• May 6, 2026, Harris Poll reveals construction worker opposition: A survey commissioned by ABC shows nonunion construction workers in six 2024 battleground states strongly oppose mandated project labor agreements and overwhelmingly want best-value federal procurement over union-only requirements.
• Trump administration continues Biden’s PLA mandate: Despite the 2024 election, Executive Order 14063 remains in force, requiring project labor agreements on most federal construction projects of $35 million or more—including Intel-adjacent work and regional infrastructure across the Ohio Valley.
• Nine out of ten regional workers face exclusion: PLA mandates can sideline roughly 90% of merit shop construction workers in Southwest and West Central Ohio, Northern Kentucky, and Southeastern Indiana, raising construction costs and restricting open competition.
• New political data creates advocacy leverage: ABC Ohio Valley members can use Harris Poll findings and ongoing litigation to push for fair and open competition through the Free Enterprise Alliance, Ohio Merit Shop Scorecard, ABC Action App, and participation in the ABC Legislative Conference 2026.

News Hook: What the May 6, 2026, Harris Poll Just Changed

On May 6, 2026, ABC president and CEO Michael Bellaman released “Construction Workers Speak: Opposition to Mandated Project Labor Agreements,” a Harris Poll survey that fundamentally reframes the political calculus around federal procurement policy. For Ohio Valley contractors, the timing could not be more relevant.

The survey covered 1,200 construction workers in six 2024 battleground states—Arizona, Georgia, Michigan, North Carolina, Pennsylvania, and Wisconsin—and focused squarely on views about project labor agreements and federal construction procurement. The findings expose a stark contradiction: nonunion construction workers were central to the GOP coalition in 2024, yet the Trump administration is still enforcing the Biden administration’s Executive Order 14063, which mandates PLAs on most federal construction projects of $35 million or more.

The numbers are striking: Nonunion workers comprised 76% to 98% of the construction workforce electorate across those six states. They supported President Trump at a rate 19 points higher than union workers in Arizona, Georgia, and North Carolina—and 7 points higher in Michigan, Pennsylvania, and Wisconsin.

For contractors pursuing Intel Ohio–related work, Corps and GSA projects in the Cincinnati, Columbus, and Dayton markets, or federally backed infrastructure across Ohio, Kentucky, and Indiana, these findings have direct procurement and competitive consequences.

What Is a Project Labor Agreement in Practice?

Negotiating a PLA involves establishing a project-specific collective bargaining agreement to standardize working conditions and prevent disruptions.

A project labor agreement is a pre-hire collective bargaining agreement negotiated between a project owner or government agency and one or more labor organizations before construction begins. Unlike standard labor contracts, a PLA sets terms for a specific construction project rather than an ongoing employer-employee relationship.

PLAs are typically negotiated between government officials or developers and building trades unions—not directly with merit shop contractors or their employees. This distinction matters because the agreement binds all contractors and subcontractors on the project to union terms, regardless of their existing workforce arrangements.

Core PLA components relevant to federal construction projects include:

Component	What It Means for Merit Shop Contractors
Union hiring hall requirements	Contractors agree to hire workers through union dispatch systems
Mandatory union representation	All workers fall under union jurisdiction for that particular project
Standardized wage and benefit packages	PLAs standardize wages, benefits, working hours, and dispute resolution procedures
Work rules and jurisdictional boundaries	Union-specific practices govern jobsite operations
No-strike/no-lockout clauses	PLAs typically include no-strike and no-lockout clauses to prevent work stoppages
Dispute resolution mechanisms	PLAs can ensure uninterrupted work through formal, expedited mechanisms for resolving labor grievances
Many PLAs include goals for hiring local residents, veterans, or disadvantaged workers to benefit the local economy through targeted hiring provisions.

Practical example: Consider a hypothetical $100 million federal courthouse in Cincinnati. Under EO 14063, this project would require a PLA. An ABC Ohio Valley member bidding this work would need to hire through union halls rather than their existing nonunion workforce, pay into union benefit funds alongside their company plans, and follow union work rules—even if their in-house crews are equally skilled labor with superior safety records.

Federal Executive Orders and the Current PLA Mandate

The history of project labor executive orders on federal projects reads like a policy pendulum. On October 23, 1992, President George H. W. Bush signed Executive Order 12818, which prohibited federal agencies from exclusively contracting union labor for construction projects, effectively banning the use of project labor agreements in federal construction projects.

President Bill Clinton rescinded Bush’s Executive Order 12818 by issuing Executive Order 12836 in February 1993, which allowed federal agencies to fund construction projects that required a project labor agreement. On February 6, 2009, President Barack Obama signed Executive Order 13502, which encouraged federal agencies to consider requiring PLAs for federal construction projects costing $25 million or more, effectively revoking previous prohibitions on PLAs.

On February 4, 2022, President Biden signed Executive Order 14063, which requires project labor agreements on federal contracts valued at $35 million or more and establishes a training strategy for Contracting Officers. The Federal Acquisition Regulation final rule implementing EO 14063 took effect January 22, 2024, embedding PLA requirements in contract clauses for major new construction projects.

The critical point for Ohio Valley contractors: Despite the 2024 election and campaign pledges for deregulation, the Trump administration has thus far chosen to continue enforcing EO 14063 rather than rescind or replace it. As of May 2026, agency guidance confirms ongoing enforcement, leaving ABC Ohio Valley contractors under the same PLA mandate.

Key Contract Clauses Merit Shop Bidders Need to Watch

The PLA mandate appears in solicitations through specific FAR clauses—particularly FAR 52.222-34 and its alternates—that require use of project labor agreements or document waiver decisions.

Procurement, estimating, and legal teams should screen for:

• References to EO 14063 in solicitation documents
• Contract language requiring “use of project labor” agreements
• Clauses specifying pre-award or post-award PLA submission requirements

Build an internal checklist for screening federal solicitations. Note whether a project is direct federal construction or federally assisted—this affects PLA applicability. ABC Ohio Valley can help members interpret solicitation language and understand how PLA requirements intersect with Davis-Bacon, small-business goals, and Buy America conditions.

What the 2026 Harris Poll Reveals About Construction Workers and PLAs

ABC commissioned The Harris Poll to quantify what construction workers in six 2024 swing states actually think about union preferences and project labor agreements. The results challenge assumptions that PLA mandates enjoy broad workforce support.

In Arizona, Georgia, Michigan, North Carolina, Pennsylvania, and Wisconsin, nonunion workers made up roughly 76% to 98% of the construction workforce electorate in 2024. The merit shop voice dominated the field vote.

Key findings:

• Nonunion construction workers supported President Trump at a rate 19 points higher than union workers in Arizona, Georgia, and North Carolina
• The gap was 7 points in Michigan, Pennsylvania, and Wisconsin
• Non-union workers oppose union preferences in federal contracting by approximately a two-to-one margin
• 83% of nonunion construction workers and 73% of union construction workers agree the federal government should choose contractors based on best value for taxpayers, not union affiliation

This bipartisan consensus on best-value procurement undercuts arguments that PLA mandates reflect worker preferences.

Why These Numbers Matter in the Ohio Valley

The six surveyed states mirror the demographics of the Ohio Valley. In ABC Ohio Valley’s footprint—Southwest and West Central Ohio, Northern Kentucky, and Southeastern Indiana—an estimated nine out of ten construction workers are nonunion.

When federal agencies in Ohio, Kentucky, and Indiana impose PLAs, they effectively sideline the preferences of the overwhelming majority of their own construction workforce electorate. PLAs are generally suited for large, complex projects where delays would be costly, such as dams or stadiums—but the blanket mandate ignores regional labor market realities.

Owners, primes, and subcontractors in the Dayton–Cincinnati–Columbus corridor, Northern Kentucky, and Southeast Indiana now have hard data to show lawmakers that PLA mandates run counter to the views of both nonunion and many union workers. Use the Harris Poll data in conversations with federal delegation staff, state legislators, and local workers to argue for flexible, best-value procurement.

Business Impact: How PLA Mandates Hit Ohio Valley Federal Construction

For project executives, CFOs, estimators, and HR leaders, PLA mandates fundamentally change the competitive landscape for federally funded construction projects.

Competition Restriction

Opponents of project labor agreements argue that these agreements discourage non-union contractors from competing for construction projects, particularly federal ones, leading to reduced competition and higher costs. Research indicates that the use of PLAs can reduce the number of bidders for construction projects. A study by Ernst & Young found that the use of PLAs strongly inhibits participation in public bidding by non-union contractors, potentially resulting in fewer bids and higher project costs.

Cost Implications

Cost implications include:

• Reduced bidder pools drive higher bids
• Administrative burdens of managing dual benefit systems add overhead
• Replacing trained in-house crews with unfamiliar union labor creates inefficiencies
• Opponents of PLAs claim that these agreements can increase project costs by up to 20% compared to similar projects without PLAs, as they often require contractors to pay union wages and benefits

HR Impacts

HR impacts: Retaining core nonunion employees who must pay union dues temporarily creates friction. Company culture erodes on PLA jobs. Integrating apprentices from ABC Ohio Valley programs becomes complicated when union-only apprenticeship pipelines are mandated.

Supporters of project labor agreements argue that they help ensure that large, complex projects are completed on time and on budget by providing labor-management stability and reducing the risk of strikes. Using skilled union labor in PLAs can lead to higher productivity and a potential reduction in project costs. PLAs are designed to ensure labor stability, project continuity, and standardized working conditions for all contractors on large-scale construction projects.

However, for ABC Ohio Valley members, the combined effect is fewer accessible federal projects, higher compliance costs, and reduced opportunity to leverage a trained merit shop workforce on taxpayer-funded construction projects.

Case Study Lenses: Intel and Regional Infrastructure Work

The Intel Ohio semiconductor campus near Columbus anchors a wave of semiconductor, data center, and advanced manufacturing projects that span the Southwest and West Central Ohio markets. Direct federal construction projects linked to Intel-adjacent infrastructure—including Corps of Engineers work, GSA facilities, and transportation hubs—may fall under EO 14063 PLA mandates when contract values exceed $35 million.

Similar implications exist for Ohio–Kentucky–Indiana river infrastructure, VA facilities, military installations, and federal aid highway projects that Ohio Valley contractors traditionally pursue. Consider how many target pursuits between 2026 and 2028 fall into the PLA-triggering range and what that means for backlog, preconstruction planning, and labor strategy.

Legal and Regulatory Landscape: Where PLA Policy Stands Today

The legal picture around EO 14063 remains fluid, with notable court decisions and federal guidance shaping how government agencies apply PLA mandates. For context, in 1990, the First Circuit federal appeals court ruled that the Boston Harbor project’s project labor agreement breached federal labor law because of its union-work requirement, establishing a significant legal precedent regarding PLAs and the National Labor Relations Act.

Recent Court Decisions and Federal Guidance

December 18, 2025: Judge Ryan T. Holte at the U.S. Court of Federal Claims ordered PLA mandates removed from multiple federal solicitations totaling $2.1 billion, including GSA courthouse projects. This was seen as a significant win for open competition advocates, though it was vacated on procedural grounds.

June 12, 2025: An Office of Management and Budget memo instructed federal agencies to use PLAs “when practicable and cost-effective,” emphasizing case-by-case analysis. This guidance interacts with the EO 14063 mandate and the agency’s discretion in granting waivers, leading to higher waiver rates.

April 21, 2026: The Eleventh Circuit denied ABC’s request for a preliminary injunction against enforcement of the PLA rule, meaning the mandate remains in force in that circuit while key merits questions are still being litigated.

State Laws and Federal Project Implications

As of March 2023, 25 states have enacted laws banning government-mandated PLAs on state- and local-taxpayer-funded construction projects, and all legal challenges to these laws have failed. For federal projects over $35 million, there is often a presumption in favor of requiring a PLA, though this is currently subject to legal challenges.

ABC’s national legal and policy teams continue challenging rigid PLA mandates, but Ohio Valley construction contractors must operate under current rules while advocating for change.

What This Means for Your 2026–2027 Federal Bids

Until EO 14063 is rescinded or narrowed, assume most new direct federal construction projects at or above $35 million will include a PLA requirement unless a documented waiver is granted.

Recommended approach:

1. Coordinate internally among estimating, operations, HR, and legal to develop a clear PLA decision framework
2. Determine when to bid, when to pass, and how to price risks and administrative load
3. Track ongoing litigation through ABC Ohio Valley alerts and the ABC National newsroom
4. Monitor specific examples—such as Corps or GSA solicitations modified after the Holte ruling—to identify project-level opportunities

Favorable court decisions could open new competitive space mid-procurement for merit shop bidders seeking equal employment opportunity on publicly funded projects.

Political Leverage: Merit Shop Voice Heading into the 2026 Midterms

The Harris Poll data functions as electoral “intel” that Ohio Valley construction leaders can use when engaging candidates and elected officials in the 2026 cycle. Nonunion construction workers—the backbone of the Ohio Valley workforce—have become a decisive voting bloc in competitive House and Senate races across Ohio, Kentucky, and Indiana.

Connect the polling result that nonunion workers oppose union preferences in federal contracting by a two-to-one margin to local districts where federal construction dollars are flowing. Both nonunion and many union workers agree on best-value contracting (83% and 73% respectively), giving candidates cover to support fair and open competition on publicly funded construction projects without appearing “anti-worker.”

Frame conversations with policymakers around taxpayer value, workforce opportunity, and regional competitiveness—not abstract labor ideology. The federal government’s interest should align with achieving economy and efficiency, which requires open competition rather than government neutrality violations through union control mandates.

How to Use the Data in Advocacy Conversations

Practical talking points for town halls, in-district meetings, and candidate forums:

• “83% of nonunion workers and 73% of union workers support best-value contracting”
• “Nine out of ten construction workers in our region are nonunion—PLAs lock them out”
• “Reduced competition means higher total cost for taxpayers on public construction projects”

Ask candidates whether they support rescinding or reforming EO 14063, or, at a minimum, giving federal agencies greater flexibility to waive PLAs where they limit competition and raise construction costs. Tie PLA mandates to specific local projects—Intel-related construction, VA hospitals, river infrastructure—to make stakes tangible.

Reference ABC resources such as the Ohio Merit Shop Scorecard and Free Enterprise Alliance materials to show that PLA reform is part of a broader open-competition agenda affecting labor and employment standards across the region.

Action Steps for Ohio Valley Contractors: Compete, Comply, and Advocate

The Harris Poll data and continuing PLA mandate demand a clear response from Ohio Valley firms. Here is what to do next.

Operational steps:

1. Audit your 24–36 month opportunity pipeline for PLA exposure
2. Develop internal guidance on whether and how to bid PLA projects
3. Quantify cost premiums and workforce disruption associated with mandated project labor agreements
4. Collaborate with member firms—GCs, specialty trades, suppliers—to share intelligence on specific federal solicitations and waiver opportunities

Training priorities: Ensure procurement, HR, and project management teams understand how to read PLA contract clauses, manage union benefit obligations, and protect company culture and safety programs (including regulations governing safety on mixed-labor jobs).

Engaging in advocacy is a risk management strategy. Changing the rules over time is as important as adapting to them in the near term. Negotiating a PLA involves establishing a project-specific collective bargaining agreement—firms need to understand these requirements even as they push for reform.

Plugging Into ABC Ohio Valley and National Advocacy Tools

ABC Legislative Conference 2026 serves as the central hub for federal policy updates, member briefing materials, and registration information. Make this your first stop for coordinated advocacy.

Free Enterprise Alliance: Engage with ABC’s advocacy arm to support issue advocacy, voter education, and targeted campaigns ensuring compliance with fair and open competition principles on federal construction projects.

Ohio Merit Shop Scorecard: Track how state and federal policymakers across Ohio, Kentucky, and Indiana align with open-competition principles and workforce freedom. Use scores in candidate conversations.

ABC Action App: Download and actively use the app to receive real-time alerts, send messages to elected officials about EO 14063, and track key votes affecting local workers and construction projects.

Coordinate with ABC Ohio Valley staff on testimony, comment letters, and local media engagement highlighting how PLA mandates harm the region’s nine-out-of-ten merit shop workforce. The data published in the Federal Register through rulemaking comments shapes policy—your voice matters.

FAQ: Project Labor Agreements and Your Ohio Valley Business

These frequently asked questions address practical bidding and workforce issues for Ohio Valley contractors navigating PLA requirements on federally funded projects.

Can a nonunion contractor still bid and work on a PLA project?

Nonunion (merit shop) construction contractors can sometimes bid PLA jobs, but must agree to PLA terms. This typically means hiring through union halls rather than your existing workforce, paying union wage rates and benefits, and following union work rules. For many ABC Ohio Valley members, these requirements make participation costly and operationally disruptive—particularly those firms with established safety programs and trained crews. Research indicates that PLAs may discourage non-union contractors from bidding on projects, reducing competition and potentially increasing costs for project owners. PLAs provide a steady, reliable supply of highly trained craft workers, proponents argue, but this benefit must be weighed against the business disruption they cause for merit shop firms.

How do PLAs interact with Davis-Bacon requirements on federal construction projects?

Davis-Bacon sets minimum prevailing wage and fringe requirements for federally funded construction projects. A job can meet Davis-Bacon without a PLA. However, a mandated project labor agreement typically goes well beyond Davis-Bacon compliance by adding union-specific obligations—such as union hall hiring, contributions to the union benefits fund, and union work rules. This means such an agreement creates additional layers beyond baseline employment standards.

Where can my team see which upcoming federal projects in our region may involve PLA mandates?

Monitor SAM.gov for federal solicitations, agency procurement forecasts (GSA, Corps, VA), and ABC Ohio Valley legislative and procurement alerts. When reviewing a specific project, look for references to EO 14063, FAR 52.222-34, and “use of project labor” contract clause language. Contact the ABC Ohio Valley staff for help reviewing specific solicitations—we can identify PLA requirements and other factors that affect your bid decision.

Is there any benefit to seeking a PLA waiver, and how realistic is it?

EO 14063 allows agencies limited discretion to waive PLA requirements when they are not practicable or cost-effective. The Judge Holte decision demonstrates that waivers and removals are achievable. Waiver rates have reached 20-25% on projects under $100 million or in areas with limited union labor. ABC Ohio Valley can help members document the impacts of costs and competition to strengthen waiver requests and ensure contractors receive fair consideration.

What is the single most important step my company should take in the next 30 days?

Identify your top federal pursuits for 2026–2027, screen them for PLA exposure, and connect with ABC Ohio Valley to align business strategy with advocacy. Register for the ABC Legislative Conference 2026, enroll in ABC Action App alerts, and join the conversation about producing labor management stability through merit shop excellence—not government mandates that sideline 90% of our regional workforce development pipeline.