Another senior official retired from the agency and 12 days later took a job with a construction management firm that benefited from a $16 million procurement he helped arrange while he was still with the highway administration.
The violations were serious enough that the auditors referred the matter to the state attorney general's office for potential criminal investigation. David Paulson, a spokesman for Attorney General Douglas F. Gansler, said the office "will be reviewing the audit."
The report casts a critical eye on the revolving door between the agency, which has one of the largest budgets in Maryland state government, and a small group of companies that routinely compete for lucrative highway contracts.
The audit's release comes one day after the retirement of Neil J. Pedersen, who had headed the SHA for eight years. In an interview last month when his retirement was announced, Pedersen said his decision to leave state government at age 60 was for personal reasons unrelated to the audit's findings.
However, acknowledging that a critical audit was expected, Pedersen said at the time that some top officials at the agency had let him down. According to the Transportation Department, Pedersen was traveling Friday and was not available to comment. He remains on the agency payroll as a consultant on the Intercounty Connector project.
The investigation was launched, the report said, after the auditors received a tip on a waste, fraud and abuse hotline.
State Transportation Secretary Beverley K. Swaim-Staley said in an interview that she was "very disappointed" in the findings about the SHA, one of six agencies that make up her department. She said the lapses were a result of "people not following the rules."
"It's not acceptable," she said. "There's no excuse for not following these standard state policies and procedures."
The transportation chief said she had asked Deputy Secretary Darrell B. Mobley, who took over as acting highway administrator Friday, to conduct a thorough review of the actions of all high-ranking SHA managers. She said she had also directed the top officials of the other five transportation agencies to make sure procedures are in place to prevent similar abuses in their offices.
State Sen. James C. Rosapepe, who chairs the General Assembly's Joint Audit Committee, said he was "fairly shocked" by the charges. He said his panel would discuss the report and decide whether to hold a hearing before its regular December audit review.
"It reflects the inherent problem of the revolving door with state agencies, and it's been true of the SHA for decades, and it's been true of other agencies where people go back and forth between agencies and contractors for the agency," the Prince George's County Democrat said.
Rosapepe said the problem was especially acute at the SHA because it has so much money to spend — the bulk of it in contracts with private companies. For the budget year that started Friday, the SHA has a combined operating and capital budget of more than $950 million.
The report portrays a cozy relationship between highway officials and the contractors who carry out the bulk of the department's work. In some cases, auditors found, employees have left high-ranking jobs at the SHA only to be employed by agency contractors a short time afterward.
In one case, the audit said, a senior employee in the agency's Office of Construction, who was the part-owner of a company that promoted sports events, appeared to have solicited companies that do business with the agency to sponsor a golf tournament in which he had a business interest. The report said the companies gave amounts ranging from $250 to $2,500.
The report said that finding was significant because five of those firms had active contracts with the agency as of the end of last year — awarded, at least in part, by the office the manager supervised. Swaim-Staley said that the official is no longer on the payroll and indicated that he was terminated.
As is standard in legislative audits, the names of individuals and companies involved in questionable activities were not disclosed in the report.
James Hagerty, now retired after 32 years with the agency, said he worked in the construction office and brought the golf tournament sponsorships to the attention of the auditors several years ago. He said that after raising concerns about the supervisor's activities, he was the target of job retaliation.