Colorado government workers are underpaid compared to the private sector, state data shows. And those relative low wages and thousands of unfilled positions leave the state ill-equipped to meet all many demands, they allege. The state’s ability to compete for new hires and fill empty slots impacts the function of its basic services — from prisons to housing-assistance helplines, mental health facilities to public universities. The average base salary for a state worker is now 6.5% lower than the prevailing market, according to a Department of Personnel and Administration report released Wednesday.