[Federal Register Volume 74, Number 202 (Wednesday, October 21, 2009)]
[Proposed Rules]
[Pages 53941-53954]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: E9-25199]
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SMALL BUSINESS ADMINISTRATION
13 CFR Part 121
RIN 3245-AF70
Small Business Size Standards: Other Services Industries
AGENCY: U.S. Small Business Administration.
ACTION: Proposed rule.
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SUMMARY: The U.S. Small Business Administration (SBA) proposes to
increase the small business size standards for 18 industries in North
American Industry Classification System (NAICS) Sector 81, Other
Services, and retain the current standards for the remaining 30
industries in the Sector. As part of its ongoing initiative to review
all size standards, SBA has evaluated each industry in Sector 81 to
determine whether the existing size standards should be retained or
revised. This proposed rule is one of a series of proposals that will
examine industries grouped by an NAICS Sector. As part of this series
of proposed rules SBA is publishing concurrently in this issue of the
Federal Register a proposed rule to modify small business size
standards in Sector 44-45, Retail Trade and, in Sector 72,
Accommodation and Food Services. SBA has established its ``Size
Standards Methodology'' and published elsewhere in this issue of the
Federal Register a notice of its availability on SBA's Web site at
http://www.sba.gov/size. SBA has applied ``Size Standards Methodology''
to this proposed rule.
DATES: SBA must receive comments to this proposed rule on or before
December 21, 2009.
ADDRESSES: You may submit comments, identified by RIN 3245-AF70 by one
of the following methods: (1) Federal eRulemaking Portal: http://www.regulations.gov. Follow the instructions for submitting comments;
or (2) Mail/Hand Delivery/Courier: Khem R. Sharma, Chief, Size
Standards Division, 409 Third Street, SW., Mail Code 6530, Washington,
DC 20416.
SBA will post all comments on www.regulations.gov. If you wish to
submit confidential business information (CBI) as defined in the User
Notice at www.regulations.gov, please submit the information to U.S.
Small Business Administration, Khem R. Sharma, Chief, Size Standards
Division, 409 Third Street, SW., Mail Code 6530, Washington, DC 20416,
or send an e-mail to [email protected]. Highlight the information
that you consider to be CBI and explain why you believe SBA should hold
this information as confidential. SBA will review the information and
make the final determination of whether it will publish the information
or not.
FOR FURTHER INFORMATION CONTACT: Carl J. Jordan, Program Analyst, Size
Standards Division, (202) 205-6618 or [email protected].
SUPPLEMENTARY INFORMATION: To determine eligibility for Federal small
business assistance programs, SBA establishes small business
definitions (referred to as size standards) for private sector
industries in the U.S. SBA's existing size standards use two primary
measures of business size--receipts and number of employees. Financial
assets, electric output, and refining capacity are used as size
measures for a few specialized industries. In addition, SBA's Small
Business Investment Company (SBIC) and the Certified Development
Company (CDC) Programs determine small business eligibility using
either the industry based size standards or net worth and net income
size standards. Currently, SBA's size standards consist of 45 different
size levels, covering 1,141 NAICS industries and 17 sub-industry
activities. Of these size levels, 32 are based on average annual
receipts, eight are based on number of employees, and five are based on
other measures. In addition, SBA has established 11 other size
standards for its financial and procurement programs.
Over the years, SBA has received comments that its size standards
have not kept up with changes in the economy and, in particular, that
they do not reflect the changes in the Federal contracting marketplace.
The last overall review of size standards occurred during the late
1970s to early 1980s. Since then, most reviews of size standards have
been limited to in-depth analyses of specific industries in response to
requests from the public and Federal agencies. SBA also makes periodic
inflation adjustments to its monetary based size standards. The latest
inflation adjustment to size standards was published in the Federal
Register on July 18, 2008 (73 FR 41237).
[[Page 53942]]
The evaluation of the size standards in the Other Services is also
necessary to account for changes in the industry classification. The
development of NAICS in 1997 included significant changes in the
definition of industries compared to the earlier Standard Industrial
Classification (SIC) system. The NAICS update used in the 2002 Economic
Census included further changes in industry definitions from the 1997
NAICS used in the 1997 Economic Census. These changes in the industry
classification have led SBA to evaluate if the existing size standards
for the Other Services industries are appropriate. Most of the size
standards for industries in Sector 81, Other Services, have not been
reviewed since the 1980s, and many have not been changed since the
1960s, except for periodic adjustments for inflation.
SBA recognizes that industrial changes over time have rendered
existing size standards for some industries no longer supportable by
current data. Accordingly, SBA has begun a comprehensive review of its
size standards to ensure that existing size standards have supportable
bases and, where necessary, to make revisions to current size
standards. This proposed rule affords the public an opportunity to
review and comment on the data and methodology SBA uses to evaluate and
revise a size standard.
Rather than review all size standards at one time, SBA believes
that a more manageable approach would be to examine a group of related
industries within an NAICS Sector in phases. Except for manufacturing,
an NAICS Sector generally consists of 25 to 75 industries. Once a
review of size standards for industries within an NAICS Sector is
completed, SBA will issue a proposed rule for those industries in which
the analysis of industry data supports a change to the existing size
standards. SBA expects to complete a review of all NAICS Sectors in two
years.
Below is a discussion of SBA's size standards methodology,
including analyses of industry structure, Federal procurement trends
and other factors for industries within Sector 81, Other Services, and
the impact of the proposed revisions to size standards on Federal small
businesses assistance.
Size Standards Methodology
SBA has recently developed a ``Size Standards Methodology'' that it
uses for developing and modifying size standards when necessary. SBA
has published the document which is available at http://www.sba.gov/size. SBA does not apply all features of its ``Size Standards
Methodology'' to all cases because not all are appropriate. However,
SBA does make it available in its entirety for parties with an interest
in SBA's overall approach to evaluating, establishing and modifying
small business size standards. SBA always explains its analysis in the
proposed and final rules that relate to size standards for specific
industries. The following discussion is of SBA's size standard analysis
applied to industries in Sector 81, Other Services.
SBA welcomes comments from the public on a number of issues. SBA is
aware that different choices among size standards can involve complex
tradeoffs among relevant variables; SBA invites comments on how to
identify and weigh those variables. Suggestions are invited on
alternative methodologies for determining small businesses; on how
these size standards affect competition in general and within the
specific industry; on alternative or additional factors that SBA should
consider; on whether SBA's approach to small business size standards
makes sense in the current economic environment; on whether SBA's using
anchor size standards is appropriate in the current economy; on whether
there are gaps in SBA's methodology because of the lack of
comprehensive data; and on alternative datasets SBA should consider for
a specific sector.
Congress granted SBA's Administrator discretion to establish
detailed small business size standards (15 U.S.C. 632(a)(2)). Section
3(a)(3) of the Small Business Act (15 U.S.C. 632 (a)(3)) requires that
size standards vary by industry to the extent necessary to reflect
differing characteristics among various industries. Accordingly, the
economic structure of an industry serves as the underlying basis for
developing and modifying small business size standards. By examining
data on economic characteristics defining the industry structure (as
described below), the small business segment of an industry is
identified. In addition to the industry structure, SBA also takes into
consideration its program objectives and whether a size standard
successfully excludes businesses that are dominant in the industry.
Discussed below is SBA's analysis of the economic characteristics of
each industry in Sector 81, Other Services, the impact of proposed size
standards on SBA programs, and the evaluation of whether a revised size
standard would exclude dominant firms in the industry from being
considered as small.
Industry Analysis
For the current comprehensive size review, SBA has established
three ``base'' or ``anchor'' size standards that apply to most
industries--$7.0 million in average annual receipts for industries that
have receipts based size standards, 500 employees for manufacturing and
other industries that have employee based size standards (except for
Wholesale Trade), and 100 employees for industries in the Wholesale
Trade Sector. SBA established 500 employees as the anchor size standard
for the manufacturing industries at SBA's inception in 1953 and shortly
thereafter established a receipts based anchor size standard of $1
million in average annual receipts for the nonmanufacturing industries.
The receipts based anchor size standard has been adjusted periodically
for inflation. The inflation adjustment over the years has increased it
to $7.0 million today. Since 1986, all industries in the Wholesale
Trade Sector have had the 100-employee size standard for all non-
procurement SBA programs. For procurement purposes, the size standard
for a non-manufacturer is 500 employees.
These long-standing anchor size standards have gained legitimacy
through practice and general public acceptance. An anchor size standard
is neither a minimum nor a maximum size standard. It is a common size
standard for a large number of industries that have similar economic
characteristics and serves as a reference point in evaluating size
standards for individual industries. SBA uses the anchor in lieu of
trying to establish precise small business size standards for each
industry. Otherwise, theoretically, that could require that the number
of size standards be as high as the number of industries for which SBA
establishes size standards. SBA presumes an anchor size standard is
appropriate size standard for a particular industry unless that
industry displays significantly different economic characteristics, as
compared to the characteristics of industries with the anchor size
standard, thereby suggesting a need for revision to an existing size
standard.
When evaluating a size standard, the economic characteristics of a
specific industry under review are compared to the average
characteristics of industries with one of the three anchor size
standards (referred to as ``anchor comparison group'') to assess
industry structure and to determine whether the industry displays
significant differences relative to the industries in the anchor size
standard group. If the characteristics of a specific industry
[[Page 53943]]
under review are similar to the average characteristics of the anchor
comparison group, the anchor size standard would be considered
appropriate for that industry. SBA will consider adopting a size
standard below the anchor size standard only when (1) all or most of
the industry characteristics are significantly smaller than the average
characteristics of the anchor comparison group, or (2) other industry
considerations strongly suggest that the anchor size standard would be
an unreasonably high size standard for the industry.
If the specific industry's characteristics are significantly higher
than those of the anchor comparison group, a size standard higher than
the anchor size standard may be considered appropriate. The larger the
differences are between the characteristics of the industry under
review and those in the anchor comparison group, the larger will be the
difference between the appropriate industry size standard and the
anchor size standard. To determine the level of a size standard above
the anchor size standard, the characteristics of a second comparison
group are analyzed. For industries with receipts based size standards,
SBA has developed a second comparison group consisting of industries
with the highest levels of receipts based size standards. The size
standards for this group of industries range from $23 million to $35.5
million in average receipts, with the weighted average size standard
for the group equaling $29 million. SBA refers to this comparison group
as the ``higher level receipts based size standard group.''
The primary factors that SBA evaluates in analyzing the structural
characteristics of an industry include average firm size, startup costs
and entry barriers, industry competition, and distribution of firms by
size (13 CFR 121.102(a) and (b)). SBA also evaluates the possible
impact of both existing and revised size standards on Federal
contracting assistance to small businesses as an additional primary
factor. SBA generally considers these five factors as the most
important ones for establishing or revising a size standard for an
industry. However, SBA will also consider and evaluate other
information that it believes relevant to the decision on a size
standard for a particular industry (such as technological changes,
growth trends, SBA financial assistance and other program factors,
etc.). Public comments on a proposed size standard rule also provide
important additional information. SBA thoroughly reviews all public
comments before making a final decision on its proposed size standard.
Below is a brief description of each of the five primary evaluation
factors. A more detailed description of this analysis is provided in
the ``SBA Size Standards Methodology'' paper which is available at
http://www.sba.gov/size.
1. Average firm size. SBA computes two measures of average firm
size: simple average firm size and weighted average firm size. For
industries with receipts based standards (including Other Services
industries), the simple average firm size is calculated as total
receipts of an industry divided by the total number of firms in that
industry. The weighted average firm size is computed as the sum of
weighted simple average firm size in different receipts size classes
where weights are the shares of total industry receipts for respective
size classes. The simple average firm size weighs all firms within an
industry equally regardless of their size. The weighted average
overcomes that limitation by giving more weights to larger firms.
If the average firm size of an industry under review is
significantly higher than the average firm size of industries in the
anchor comparison industry group, this would generally support a size
standard higher than the anchor size standard. Conversely, if the
industry's average firm size is similar to or significantly lower than
that of the anchor comparison industry group, it would be a basis to
adopt the anchor size standard or, in rare cases, a standard lower than
the anchor.
2. Startup costs. Startup costs reflect a firm's initial size in an
industry. New entrants to an industry must have sufficient capital to
start and maintain a viable business. If firms entering a particular
industry have greater capital requirements than firms do in industries
in the anchor comparison group, this will form a basis for establishing
a size standard higher than the anchor standard. In lieu of data on
actual startup costs, SBA uses average assets size as a proxy measure
to assess the levels of capital requirements for new entrants to an
industry.
SBA calculates the average assets size within a particular industry
by applying the sales to total assets ratios from the Risk Management
Association's Annual Statement Studies, 2006-2008 to the average
receipts size of firms in that industry. An industry with a
significantly higher level of average assets size than that of the
anchor comparison group is likely to have higher startup costs, which
would support a size standard higher than the anchor size standard.
Conversely, if the industry has a significantly smaller average assets
size compared to the anchor comparison group, the anchor size standard,
or in rare cases one lower than the anchor, would be considered
appropriate.
3. Industry competition. Industry competition is generally assessed
by measuring the share of total industry receipts obtained by firms
that are among the largest in an industry. In this proposed rule, SBA
evaluates the share of industry receipts generated by the four largest
firms in the industry. This is referred to as the ``four-firm
concentration ratio.'' SBA then compares the four-firm concentration
ratio for an industry under review to the average four-firm
concentration ratio for industries in the anchor comparison group. If a
significant share of economic activity within the industry is
concentrated among a few relatively large companies, SBA would
establish a size standard relatively higher than the anchor size
standard. SBA would not consider the four-firm concentration ratio as
an important factor in assessing a size standard if its value for an
industry under review is less than 40 percent. For industries in which
the four largest firms account for 40 percent or more of an industry's
total receipts, SBA examines the average size of the four largest firms
in determining a size standard.
4. Distribution of firms by size. SBA examines the shares of
industry total receipts accounted for by firms of different receipts
and employment size classes in an industry. This is an additional
factor SBA evaluates in assessing competition within an industry. If
the preponderance of an industry's economic activity is attributable to
smaller firms, this would indicate that small businesses are
competitive in that industry and supports adopting the anchor size
standard. A size standard higher than the anchor size standard would be
supported for an industry in which the distribution of firms indicates
that most of the economic activity is concentrated among the larger
firms.
Concentration among firms is a measure of inequality of
distribution. To evaluate the degree of inequality of distribution
within an industry, SBA computes the Gini coefficient by constructing
the Lorenz curve. The Gini coefficient values vary between zero and
one. If receipts are distributed perfectly equally among all the firms
in an industry, the value of the Gini coefficient would equal to zero.
If an industry's total receipts are attributed to a single firm, the
Gini coefficient would equal to one.
[[Page 53944]]
SBA compares the degree of inequality of distribution for an
industry under review with that for industries in the anchor comparison
group. If an industry shows a higher degree of inequality of
distribution (i.e., higher Gini coefficient) compared to industries in
the anchor comparison industry group this would, all else being equal,
warrant a higher size standard than the anchor. Conversely, for
industries with similar or more equal distribution (i.e., similar or
lower Gini coefficient values) than the anchor group, the anchor
standard, or in some cases a standard lower than the anchor, would be
adopted.
5. Impact on SBA programs. SBA examines the possible impact a size
standard change may have on the level of Federal small business
assistance. This assessment most often focuses on the share of Federal
contracting dollars awarded to small businesses in the industry in
question. In general, if the share of Federal contracting dollars
awarded to small businesses in an industry that receives a significant
amount of Federal contracting dollars is significantly less than the
small business share of the industry's total receipts, a justification
would exist for considering a size standard higher than the existing
size standard. The disparity between the small business Federal market
share and industry-wide share may be attributed to a variety of
reasons, such as extensive administrative and compliance requirements
associated with Federal contracts, the different skill set required on
Federal contracts as compared to typical commercial contracting work,
and the size of contracting requirements of Federal customers. These,
as well as other factors, are likely to influence the type of firms
within an industry that compete for Federal contracts and, hence, the
firms receiving such contracts are expected to possess different
characteristics than the average characteristics for all firms in that
industry. By comparing the small business Federal contracting share
with the industry-wide small business share, SBA includes in its size
standards analysis the latest Federal contracting trends. This analysis
may indicate a size standard larger than the current standard.
For this proposed rule, SBA considered Federal procurement trends
in the size standards analysis only if (1) the small business share of
Federal contracting dollars is at least 10 percentage points lower than
the small business share of total industry receipts and (2) the amount
of total Federal contracting averages $100 million or more during
fiscal years 2006-2008 (the latest years for which complete Federal
procurement data are available). SBA has selected these thresholds
because they reflect a significant level of contracting in which a
revision to a size standard may have an impact on expanding small
business opportunities.
Another factor that SBA evaluates is the impact of a proposed size
standard on SBA's loan programs, that is, the volume of SBA guaranteed
loans within an industry and the size of firms obtaining those loans.
This factor is examined to assess whether the existing or the proposed
size standard for a particular industry may be restricting the level of
financial assistance to small firms in that industry. If the analysis
shows a reduction in financial assistance to small businesses, a higher
size standard would be supportable. If small businesses have already
been receiving significant amounts of financial assistance through
SBA's loan programs, or if the financial assistance has been provided
mainly to businesses that are much smaller in size than the existing
size standard, consideration of this factor for determining the size
standard may not be necessary.
Sources of Industry and Program Data
The primary source of data for SBA's industry analysis is a special
tabulation of the 2002 Economic Census (see http://www.census.gov/econ/census02/) prepared by the U.S. Bureau of the Census (Census Bureau)
for SBA. The special tabulation provides SBA with industry-specific
data on the number of firms, number of establishments, number of
employees, annual payroll and annual receipts of companies by the size
of firm reporting the data to Census. That is, the data are by the size
class of the total company; however, the data itself, within a
particular size class, represents the company's total data in that
industry only. The special tabulation enables SBA to evaluate average
firm size, the four-firm concentration ratio, and distribution of firms
by receipts and employment size.
In some cases, where Census data were not available due to
disclosure prohibitions, SBA either estimated missing values using
available relevant data or, examined data at a higher level of industry
aggregation, such as at the 2- or 3-digit NAICS level. In some
instances, SBA had to base its analysis only on those factors for which
data were available or missing values could be estimated. Data sources
and estimation procedures SBA uses in its size standards analysis are
documented in detail in the ``SBA Size Standards Methodology'' paper,
which is available at http://www.sba.gov/size.
Sales to total assets ratios used to calculate average assets size
are from the Risk Management Association's Annual Statement Studies,
2006-2008.
To evaluate Federal contracting trends, SBA examined Federal
contract award data for fiscal years 2006-2008 from the U.S. General
Service Administration's Federal Procurement Data System--Next
Generation (FPDS-NG). SBA's internal data on its guaranteed loan
programs for fiscal years 2006-2008 were analyzed to assess the impact
on financial assistance to small businesses.
Dominant in Field of Operation
Section 3(a) of the Small Business Act (15 U.S.C. 632(c)) defines a
small business concern as one that is (1) independently owned and
operated, (2) not dominant in its field of operation, and (3) within a
specific small business definition or size standard established by the
SBA Administrator. SBA considers as part of its evaluation of a size
standard whether a business concern at a proposed size standard would
be considered dominant in its field of operation. For this, SBA
generally examines the industry's market share of firms at the proposed
standard or other factors that may indicate whether a firm can exercise
a major controlling influence on a national basis in which significant
numbers of business concerns are engaged. If SBA's analysis indicates
that a proposed size standard would include a dominant firm, a lower
size standard would be considered to exclude the dominant firm from
being defined as small.
Selection of Size Standards
To simplify size standards, for the ongoing comprehensive size
standards review, SBA has proposed to select a size standard for an
industry from a limited number of receipts based size standard levels.
For many years, SBA has been concerned about the complexity of
determining small business status caused by a large number of varying
receipts based size standards (see 69 FR 13130, March 4, 2004, and 57
FR 62515, December 31, 1992). Currently, there are 32 different levels
of receipts based size standards, ranging from $0.75 million to $35.5
million, with many of those levels applying to one or just a few
industries only. SBA believes that such a large number of variations
with small variations are both unnecessary and difficult to justify
analytically. Simplifying the administration of SBA's
[[Page 53945]]
size standards to a fewer number of size standard levels will produce
more common size standards for businesses operating in multiple related
industries and greater consistency in the size standards among
industries that are similar in their economic characteristics.
This proposed rule, therefore, applies one of eight receipts based
size standards to each industry in Sector 81, Other Services. These
eight ``fixed'' size standard levels are $5 million, $7 million, $10
million, $14 million, $19 million, $25.5 million, $30.0 million and
$35.5 million. These eight receipts based size standard levels are
established by taking into consideration the minimum, maximum, and the
more commonly used receipts based size standards. Currently, the more
commonly used receipts based size standards cluster around the
following six levels -$2.5 million to $4.5 million, $7 million, $9.0
million to $10 million, $12.5 million to $14.0 million, $25.0 million
to $25.5 million, and $33.5 million to $35.5 million. SBA has selected
$7 million as one of eight fixed levels of receipts based size
standards because this is also an anchor standard for receipts based
standards. A lower or minimum receipts based size level is established
at $5 million. Excluding monetary standards for agriculture and those
based on net commissions (such as real estate brokers and travel
agents), $5 million is in the close neighborhood of the current minimum
receipts based standard of $4.5 million. Among the higher levels size
clusters, $10 million, $14 million, $25.5 million, and $35.5 million
are selected as other four levels of the fixed size standards. Because
of a large gap between two of the size standard intervals, SBA has
established intermediate levels of $19 million between $14 million and
$25.5 million, and $30 million between $25.5 million and $35.5 million.
These two intermediate size levels reflect roughly similar proportional
differences between the two successive size standard levels.
In a further effort to simplify size standards, SBA may propose a
common size standard for certain closely related group of industries.
Although the size standard analysis may support a specific size
standard level for each industry, SBA believes that establishing
different size standards for closely related industries may not be
appropriate. For example, in cases where many of the same businesses
operate in the same two industries, establishing the common size
standard would better reflect the industry marketplace than
establishing separate size standards for each of those industries. This
situation has led SBA to establish a common size standard for the
information technology (IT) services industries (NAICS 541511, NAICS
541112, NAICS 541513 and NAICS 541519), even though the industry data
might support a distinct size standard for each industry. Businesses
engaged in IT related services typically perform activities in two or
more other related industries. Consequently, SBA has continued to use a
common size standard for Computer and Office Machine Repair Maintenance
industry in the Other Services Sector (NAICS 811211) and Computer
Systems Design and Related Services sector (NAICS 541511-541519).
Whenever SBA proposes a common size standard for closely related
industries it will provide a justification for that in the proposed
rule.
Evaluation of Industry Structure
SBA has evaluated the structure of each industry in the Other
Services Sector to assess the appropriateness of the current size
standards. As described above, SBA compared data on the economic
characteristics of each industry in that Sector to the average
characteristics of industries in two comparison groups. The first
comparison group is comprised of all industries with $7.0 million size
standards--referred to as the ``receipts based anchor comparison
group.'' Because the goal of SBA's size review is to assess whether a
specific industry's size standard should be at or different from the
anchor size standard, this is the most logical set of industries to
group together for the industry analysis. In addition, this group
includes a sufficient number of firms to provide a meaningful
assessment and comparison of industry characteristics.
If the characteristics of an industry under review are similar to
the average characteristics of industries in the anchor comparison
group, the anchor size standard would be considered an appropriate
standard for that industry. If an individual industry's structure is
significantly different from that of the anchor group, a size standard
lower or higher than the anchor size standard would be selected. The
level of the new size standard is determined based on the difference
between the characteristics of the anchor comparison group and a second
industry comparison group. As described above, the second comparison
group for receipts based standards consists of industries with the
highest receipts based size standards, ranging from $23 million to
$35.5 million, with the average size standard for the group equaling
$29 million. SBA refers to this group of industries as the ``higher
level receipts based size standard comparison group.'' Differences in
industry structure between an industry under review and the industries
in the two comparison groups are determined by comparing data on each
of the industry factors, including average firm size, average assets
size, four-firm concentration ratio, and the Gini coefficient of
distribution of firms by size. Table 1 shows two measures of the
average firm size (simple and weighted), average assets size, four-firm
concentration ratio, average receipts of the four largest firms, and
the Gini coefficient for both anchor level and higher level comparison
groups for receipts based size standards.
Table 1--Average Characteristics of Receipts Based Comparison Groups
----------------------------------------------------------------------------------------------------------------
Avg. firm size ($
million) Avg. assets Avg. four-firm Avg. receipts
Receipts based comparison ---------------------- size ($ concentration of four largest Gini
group Simple Weighted million) ratio (%) firms ($ coefficient
Average Average million) \a\
----------------------------------------------------------------------------------------------------------------
Anchor Level................ 1.19 17.64 0.71 18.7 189.9 0.599
Higher Level................ 4.77 52.27 2.05 22.3 639.4 0.725
----------------------------------------------------------------------------------------------------------------
\a\ To be used for industries with a four-firm concentration ratio of 40% or greater.
[[Page 53946]]
Derivation of Size Standards Based on Industry Factors
For each of the industry factors shown in Table 1, SBA derives a
separate size standard based on the amount of differences between their
values for an industry under review and those for the two comparison
groups. An estimated size standard that is supported by each industry
factor is derived by comparing its value for a specific industry under
review to the corresponding value for the two comparison groups. If the
industry value for a particular factor is near that for the anchor
comparison group, the $7.0 million anchor size standard would be
considered appropriate for that factor.
If an industry's value for a factor is significantly above or below
the anchor comparison group value, a size standard above or below the
$7.0 million anchor size would be warranted. The level of the new size
standard in these cases is derived based on the proportional difference
between the industry value and the values for the two comparison
groups.
For example, if an industry's simple average receipts size equals
$3.0 million, SBA's analysis would support a size standard of $19
million. The $3.0 million level is 50.6 percent between the average
firm size of $1.19 million for the anchor comparison group and $4.77
million for the higher level comparison group (($3.00 million - $1.19
million) / ($4.77 million - $1.19 million) = 0.506 or 50.6%). This
proportional difference is applied to the difference between the $7.0
million anchor size standard and average size standard of $29 million
for the higher level size standard group and then added to $7.0 million
to estimate a size standard of $18.12 million ([{$29.0 million - $7.0
million{time} * 0.506] + $7.0 million = $18.12 million). The final
step rounds the estimated size standard of $18.12 million to the
nearest fixed size standard level, in this case to $19 million.
SBA applies the above method of calculation to derive a size
standard for each industry factor. Detailed formulas involved in these
calculations are presented in ``SBA Size Standards Methodology'' which
is available at http://www.sba.gov/size. Table 2 shows ranges of values
for each industry factor and the levels of size standards supported by
those values.
Table 2--Values of Industry Factors and Supported Size Standards
--------------------------------------------------------------------------------------------------------------------------------------------------------
Or if avg.
Or if weighted Or if avg. assets receipts of Or if Gini Then size standard
If simple avg. receipts size ($ million) avg. receipts size size ($ million) largest four firms coefficient is ($ million)
($ million) ($ million)
--------------------------------------------------------------------------------------------------------------------------------------------------------
<1.03............................................... <16.07 <0.65 <169.4 <0.593 5.0
1.03 to1.43......................................... 16.07 to 20.00 0.65 to 0.80 169.4 to 220.5 0.593 to 0.608 7.0
1.44 to 2.00........................................ 20.01 to 25.51 0.81 to 1.02 220.6 to 292.0 0.609 to 0.628 10.0
2.01 to 2.74........................................ 25.52 to 32.59 1.03 to 1.29 292.1 to 384.0 0.629 to 0.653 14.0
2.75 to 3.67........................................ 32.60 to 41.65 1.30 to 1.64 384.1 to 501.5 0.654 to 0.686 19.0
3.68 to 4.57........................................ 41.66 to 50.30 1.65 to 1.97 501.6 to 613.8 0.687 to 0.718 25.5
4.58 to 5.38........................................ 50.31 to 58.17 1.98 to 2.28 613.9 to 716.1 0.719 to 0.746 30.0
>5.38............................................... >58.17 >2.28 >716.1 >0.746 35.5
--------------------------------------------------------------------------------------------------------------------------------------------------------
Table 3 shows the results of analyses of industry data and latest
Federal contracting trends for each industry in Sector 81, Other
Services. Each NAICS industry row in columns 2, 3, 4, 6, 7, and 8 shows
two numbers. The upper number is the value for the industry factor
shown on the top of the column, while the lower number is the size
standard supported by that factor. For the four-firm concentration
ratio, a size standard is estimated based on the average receipts of
the top four firms if its value is 40 percent or more. If the four-firm
concentration ratio for an industry is less than 40 percent, no size
standard is estimated for that factor and column 5 is left blank. The
value for Federal contracting factor in column 8 is shown only for
industries that averaged $100 million or more annually in Federal
contracting dollars during fiscal years 2006-2008. A size standard for
that factor is derived only if the small business share of total
Federal contracting dollars is 10 percentage points less than the small
business share of industry's total receipts. Otherwise column 8 is also
left blank. Column 9 shows the proposed or revised size standard for
each industry in the Other Services Sector, calculated as the average
of size standards supported by each industry factor and rounded to the
nearest fixed size level. Analytical details involved in the averaging
procedure are described in the SBA ``Size Standards Methodology'' paper
which is available at http://www.sba.gov/size. For comparison, the
current size standards for industries in Sector 81 are also shown in
column 10 of Table 3.
Table 3--Size Standards Supported by Each Industry Factor
[In millions of dollars]
--------------------------------------------------------------------------------------------------------------------------------------------------------
(8)
(2) Simple (3) (4) (5) Four- (6) Four- (7) Gini Federal (9) (10)
(1) NAICS average Weighted Average firm firm coefficient contract Revised Current
firm size average assets ratio average factor size size
firm size size (%) size (%) standard standard
--------------------------------------------------------------------------------------------------------------------------------------------------------
811111............................................ $0.4 $1.3 $0.1 1.9 $150.8 0.154 ......... $5.0 $7.0
General Automotive Repair......................... $5.0 $5.0 $5.0 ......... ......... $5.0 ......... ......... .........
811112............................................ $0.4 $1.4 $0.1 4.6 $14.3 0.142 ......... $5.0 $7.0
Automotive Exhaust System Repair.................. $5.0 $5.0 $5.0 ......... ......... $5.0 ......... ......... .........
811113............................................ $0.4 $1.0 ......... ......... ......... 0.066 ......... $5.0 $7.0
Automotive Transmission Repair.................... $5.0 $5.0 ......... ......... ......... $5.0 ......... ......... .........
811118............................................ $0.4 $2.0 $0.1 5.8 $39.5 0.210 -86.6 $7.0 $7.0
[[Page 53947]]
Other Automotive Mechanical and Electrical Repair $5.0 $5.0 $5.0 ......... ......... $5.0 $14.0 ......... .........
and Maintenance..................................
811121............................................ $0.7 $2.3 $0.2 2.5 $142.2 0.252 ......... $5.0 $7.0
Automotive Body, Paint, and Interior Repair and $5.0 $5.0 $5.0 ......... ......... $5.0 ......... ......... .........
Maintenance......................................
811122............................................ $0.8 $51.3 $0.3 27.6 $260.8 0.533 ......... $10.0 $7.0
Automotive Glass Replacement Shops................ $5.0 $30.0 $5.0 ......... ......... $5.0 ......... ......... .........
811191............................................ $0.8 $13.2 ......... 17.3 $169.5 0.473 ......... $5.0 $7.0
Automotive Oil Change and Lubrication Shops....... $5.0 $5.0 ......... ......... ......... $5.0 ......... ......... .........
811192............................................ $0.4 $2.0 $0.5 6.1 $78.2 0.262 ......... $5.0 $7.0
Car Washes........................................ $5.0 $5.0 $5.0 ......... ......... $5.0 ......... ......... .........
811198............................................ $0.7 $11.8 $0.2 24.0 $95.6 0.535 -18.5 $7.0 $7.0
All Other Automotive Repair and Maintenance....... $5.0 $5.0 $5.0 ......... ......... $5.0 $10.0 ......... .........
811211............................................ $0.4 $6.9 ......... 27.4 $101.7 0.482 ......... $5.0 $7.0
Consumer Electronics Repair and Maintenance....... $5.0 $5.0 ......... ......... ......... $5.0 ......... ......... .........
811212............................................ $1.2 $18.1 $0.4 22.4 $356.8 0.678 -25 $14.0 $25.0
Computer and Office Machine Repair and Maintenance $7.0 $7.0 $5.0 ......... ......... $19.0 $30.0 ......... .........
811213............................................ $1.3 $11.5 ......... ......... ......... 0.587 -38.0 $10.0 $7.0
Communication Equipment Repair and Maintenance.... $7.0 $5.0 ......... 23.8 $120.5 $5.0 $14.0 ......... .........
811219............................................ $1.9 $30.6 $0.8 42.4 $540.1 0.731 -11.6 $19.0 $7.0
Other Electronic and Precision Equipment Repair $10.0 $14.0 $7.0 ......... $25.5 $30.0 $10.0 ......... .........
and Maintenance..................................
811310............................................ $0.8 $6.5 $0.3 4.8 $233.8 0.494 -27.4 $7.0 $7.0
Commercial and Industrial Machinery and Equipment $5.0 $5.0 $5.0 ......... ......... $5.0 10.0 ......... .........
(except Automotive and Electronic) Repair and
Maintenance......................................
811411............................................ $0.3 $0.6 ......... 3.7 $6.0 0.064 ......... $5.0 $7.0
Home and Garden Equipment Repair and Maintenance.. $5.0 $5.0 ......... ......... ......... $5.0 ......... ......... .........
811412............................................ $0.8 $52.4 $0.2 0.0 $0.0 0.646 ......... $14.0 $7.0
Appliance Repair and Maintenance.................. $5.0 $30.0 $5.0 ......... ......... $14.0 ......... ......... .........
811420............................................ $0.2 $0.7 ......... 2.1 $6.8 0.067 ......... $5.0 $7.0
Reupholstery and Furniture Repair................. $5.0 $5.0 ......... ......... ......... $5.0 ......... ......... .........
811430............................................ $0.1 $0.5 ......... 7.7 $3.6 0.044 ......... $5.0 $7.0
Footwear and Leather Goods Repair................. $5.0 $5.0 ......... ......... ......... $5.0 ......... ......... .........
811490............................................ $0.3 $1.6 $0.1 0.0 $0.0 0.263 ......... $5.0 $7.0
Other Personal and Household Goods Repair and $5.0 $5.0 ......... ......... ......... $5.0 ......... ......... .........
Maintenance......................................
812111............................................ $0.1 $7.7 ......... 16.2 $20.4 0.207 ......... $5.0 $7.0
Barber Shops...................................... $5.0 $5.0 ......... ......... ......... $5.0 ......... ......... .........
812112............................................ $0.2 $23.0 $0.1 10.4 $391.6 0.246 ......... $5.0 $7.0
Beauty Salons..................................... $5.0 $10.0 $5.0 ......... ......... $5.0 ......... ......... .........
812113............................................ $0.1 $0.3 ......... 1.9 $4.2 0.019 ......... $5.0 $7.0
Nail Salons....................................... $5.0 $5.0 ......... ......... ......... $5.0 ......... ......... .........
812191............................................ $1.3 $101.0 ......... 60.2 $253.9 0.802 ......... $19.0 $7.0
Diet and Weight Reducing Centers.................. $7.0 $35.5 ......... ......... $10.0 35.5 ......... ......... .........
812199............................................ $0.2 $1.8 ......... 5.5 $27.5 0.175 ......... $5.0 $7.0
Other Personal Care Services...................... $5.0 $5.0 ......... ......... ......... $5.0 ......... ......... .........
812210............................................ $1.0 $48.9 $0.6 19.4 $536.7 0.353 ......... $7.0 $7.0
Funeral Homes and Funeral Services................ $5.0 $25.5 $5.0 ......... ......... $5.0 ......... ......... .........
812220............................................ $0.7 $54.8 $1.4 36.6 $295.8 0.668 ......... $19.0 $7.0
Cemeteries and Crematories........................ $5.0 $30.0 $19.0 ......... ......... $19.0 ......... ......... .........
[[Page 53948]]
812310............................................ $0.3 $36.3 $0.2 28.6 $247.6 0.427 ......... $7.0 $7.0
Coin-Operated Laundries and Drycleaners........... $5.0 $19.0 $5.0 ......... ......... $5.0 ......... ......... .........
812320............................................ $0.3 $1.7 $0.1 2.6 $50.9 0.187 ......... $5.0 $4.5
Drycleaning and Laundry Services (except Coin- $5.0 $5.0 $5.0 ......... ......... $5.0 ......... ......... .........
Operated)........................................
812331............................................ $3.9 $38.3 $1.9 31.6 $243.8 0.768 ......... $30.0 $14.0
Linen Supply...................................... $25.5 $19.0 $25.5 ......... ......... $35.5 ......... ......... .........
812332............................................ $9.7 $157.3 $5.7 61.1 $938.1 0.864 ......... $35.5 $14.0
Industrial Launderers............................. $35.5 $35.5 $35.5 ......... $35.5 $35.5 ......... ......... .........
812910............................................ $0.2 $2.0 ......... 6.3 $23.3 0.118 ......... $5.0 $7.0
Pet Care (except Veterinary) Services............. $5.0 $5.0 ......... ......... ......... $5.0 ......... ......... .........
812921............................................ $1.7 $103.5 $0.7 45.3 $354.3 0.725 ......... $19.0 $7.0
Photo Finishing Laboratories (except One-Hour).... $10.0 $35.5 $7.0 ......... $14.0 $30.0 ......... ......... .........
812922............................................ $0.5 $74.5 ......... 34.0 $61.3 0.391 ......... $14.0 $7.0
One-Hour Photo Finishing.......................... $5.0 $35.5 ......... ......... ......... $5.0 ......... ......... .........
812930............................................ $2.8 $122.2 $2.7 47.4 $819.1 0.833 ......... $35.5 $7.0
Parking Lots and Garages.......................... $19.0 $35.5 $35.5 ......... $35.5 $35.5 ......... ......... .........
812990............................................ $0.4 $11.8 $0.2 19.7 $248.3 0.422 ......... $5.0 $7.0
All Other Personal Services....................... $5.0 $5.0 $5.0 ......... ......... $5.0 ......... ......... .........
813211............................................ $3.5 $47.6 $15.0 15.3 $1,021.8 0.795 ......... $30.0 $7.0
Grantmaking Foundations........................... $19.0 $25.5 $35.5 ......... ......... $35.5 ......... ......... .........
813212............................................ $3.1 $18.4 $2.3 24.0 $464.2 0.730 ......... $25.5 $7.0
Voluntary Health Organizations.................... $19.0 $7.0 $35.5 ......... ......... $30.0 ......... ......... .........
813219............................................ $4.7 $84.5 ......... 14.6 $432.8 0.821 ......... $35.5 $7.0
Other Grant Making and Giving Services............ $30.0 $35.5 ......... ......... ......... 35.5 ......... ......... .........
813311............................................ $2.3 $189.8 ......... 46.5 $460.7 0.794 ......... $25.5 $7.0
Human Rights Organizations........................ $14.0 $35.5 ......... ......... $19.0 35.5 ......... ......... .........
813312............................................ $1.1 $43.6 $1.5 22.8 $249.5 0.644 ......... $14.0 $7.0
Environment, Conservation and Wildlife $7.0 $25.5 $19.0 ......... ......... 14.0 ......... ......... .........
Organizations....................................
813319............................................ $0.8 $8.2 $0.7 11.8 $109.9 0.537 ......... $5.0 $7.0
Other Social Advocacy Organizations............... $5.0 $5.0 $7.0 ......... ......... $5.0 ......... ......... .........
813410............................................ $0.5 $5.7 $0.7 2.6 $96.4 0.393 ......... $5.0 $7.0
Civic and Social Organizations.................... $5.0 $5.0 $7.0 ......... ......... $5.0 ......... ......... .........
813910............................................ $1.0 $13.8 $0.9 3.9 $168.7 0.601 ......... $7.0 $7.0
Business Associations............................. $7.0 $5.0 $10.0 ......... ......... $7.0 ......... ......... .........
813920............................................ $1.6 $17.2 $1.6 6.4 $176.6 0.672 ......... $14.0 $7.0
Professional Organizations........................ $10.0 $7.0 $19.0 ......... ......... $19.0 ......... ......... .........
813990............................................ $0.7 $19.0 $0.8 8.3 $315.6 0.465 ......... $7.0 $7.0
Other Similar Organizations (except Business, $5.0 $7.0 $10.0 ......... ......... $5.0 ......... ......... .........
Professional, Labor, and Political Organizations)
--------------------------------------------------------------------------------------------------------------------------------------------------------
As can be seen in Table 3, the results of SBA analyses of industry
and Federal contracting data would support reducing the current size
standards for 20 of 48 industries in the Other Services Sector.
However, SBA believes that lowering size standard for those industries
would not be in the best interests of small businesses in these
difficult times when the economy is in a deep recession.
Aiming to promote economic recovery and to preserve and create jobs
the U.S. Congress passed and the President signed the American Recovery
and Reinvestment Act of 2009 (Recovery Act). The purposes and goals of
the Recovery Act are to promote economic recovery and to preserve and
create jobs.
Under the Recovery Act, SBA has changed its various programs to
assist small businesses, including the following: (1) Temporary
reduction or elimination of fees in the 7(a) and 504 loan guarantee
programs; (2) creation of a temporary 90 percent guarantee loan
program; (3) creation of a temporary Secondary Market Guarantee
Authority to provide a Federal guarantee for pools of first lien 504
loans that are to be sold to third-party investors; (4) new authority
for refinancing community development loans under the 504 program; (5)
revision of the job creation goals of the 504 program; (6)
simplification of the maximum leverage limits and aggregate investment
limits required of Small Business Investment Companies; (7) temporary
authority to provide loans on a deferred basis to viable small business
concerns that have a qualifying small business loan and are
experiencing immediate financial hardship; (8) temporary increase in
the surety bond maximum amount; (9)
[[Page 53949]]
establishment of a Secondary Market Lending Authority to make loans to
systemically important broker dealers in SBA's 7(a) secondary market;
and 10) application of SBA's Certified Development Company (CDC)
alternative size standard to its 7(a) Business Loan Program (see 13 CFR
121.301).
SBA believes that to reduce size standards and thereby reduce
eligibility for those programs, or to reduce the number of firms that
can participate in financial and Federal contracting assistance
programs would run counter to what it is trying to do for small
businesses. Reducing size eligibility for Federal contracting
opportunities would not preserve or create more jobs; rather, it would
have the opposite effect. Therefore, SBA has decided not to propose to
reduce the size standards for those industries. SBA has decided to
retain the current size standards for those industries. Further, SBA
does not anticipate that it will propose to lower size standards after
the Recovery Act terminates on September 30, 2010. SBA intends for the
proposed size standards, if adopted, to remain in effect unless and
until it receives information or data that suggests a change is needed.
Evaluation of Federal Contracting and SBA Loan Data
Besides industry structure, SBA also evaluates Federal contracting
data to assess the extent to which small businesses are successful in
getting Federal contracts under the existing size standards. However,
the available data on Federal contracting are limited to identifying
businesses as small or other than small, with no information on exact
size of businesses receiving Federal contracts in order to conduct a
more precise analysis.
Given limited data, for the current comprehensive size review, SBA
has decided to designate a size standard at one level higher than their
current size standard for industries where the small business share of
total Federal contracting dollars is between 10 and 30 percentage
points lower than their shares in total industry receipts and at two
levels higher than the current size standard if the difference is
higher than 30 percentage points.
SBA has chosen not to designate a size standard for the Federal
contracting factor alone that is higher than two levels above the
current size standard because doing so would result in most cases of
designating a size standard more than twice the current size standard.
Given the limitations of the FPDS data, and the complex relationships
among a number of variables affecting small business participation in
the Federal marketplace, SBA believes that a larger adjustment to size
standards based on Federal contracting activity should be based on a
more detailed analysis of the impact of any subsequent revision to the
current size standard. In limited situations, however, SBA may conduct
a more extensive examination of Federal contracting experience to
support a different size standard than indicated by this general rule
to take into consideration significant and unique aspects of small
business competitiveness in the Federal contract market. SBA welcomes
comment on its methodology of incorporating the Federal contracting
factor in the size standard analysis and suggestions for alternative
methods and other relevant information on small business experience in
the Federal contract market.
Five industries in Sector 81, Other Services, received an average
of $100 million or more annually in Federal contracting dollars during
fiscal years 2006-2008. These industries include NAICS 811118, NAICS
811198, NAICS 811213, NAICS 811219, and NAICS 811310. Those are the
industries that have a Federal contracting factor in column 8 of Table
3. In each of these five industries, the small business share of
Federal contracting dollars was more than 10 percentage points lower
than small business share of industry's total receipts. Therefore, as
shown in Table 3, a separate size standard was estimated for the
Federal contracting factor for industries. In all cases, the estimated
size standard for the Federal contracting market was higher than the
current standard. The latest data show that Federal contracting
activity is insignificant for most of the industries in Sector 81 and,
for a few industries where it is significant, small businesses seem to
be struggling in the Federal marketplace relative to their share in
industry's total sales.
Before deciding on an industry's size standard, SBA also considers
the impact of new or revised standards on SBA's loan programs. SBA
examined 7(a) Loan Program data for fiscal years 2006-2008 to assess
whether the existing or proposed size standards need further
adjustments to ensure credit opportunities for small businesses though
that program. For the Other Services industries, primarily small
businesses that are much smaller than the current size standards use
the 7(a) Loan Program. Based on that analysis and SBA's decision not to
reduce any size standards in the proposed rule under the current
economic conditions, no size standard needs an adjustment.
Other Considerations
SBA has decided not to review the size standard for NAICS 811212,
the Computer and Office Machine Repair and Maintenance industry, at
this time and will continue to apply the current $25 million size
standard. The history of the Computer and Office Machine Repair
industry explains the reasons for this decision. Under the former
Standard Industrial Classification (SIC) System, SBA had established a
common size standard for all industries in Sector 737, ``Computer
Programming, Data Processing, and Other Computer Related Services'' (56
FR 38364, August 13, 1991 and 57 FR 27907, June 23, 1992). In 1997, the
NAICS replaced the SIC System and moved most of the industries in
Sector 737 industry to the Sector 54, ``Professional, Scientific, and
Technical Services.'' However, the Computer Maintenance and Repair
activity was moved to Sector 81 and was combined with Computer and
Office Machine Repair Maintenance services to form NAICS 811212.
Because Computer Maintenance and Repair was the largest component of
the new industry, SBA continued to apply the size standard for computer
services (64, FR 57188. October 22, 1999 and 65 FR 30836, May 15,
2000). SBA continues to believe that a common size standard should
apply to all of the computer services related industries.
SBA plans to analyze the industries within the NAICS Sector 54 in
the near future and will examine at that time whether to retain the
current $25 million size standard for the Computer Services related
industries (NAICS 541511-541519) or to propose a different size
standard. SBA welcomes comments on whether it should continue to apply
the same size standard for computer services to the Computer and Office
Machine Repair Maintenance industry or consider a different size
standard based on its industry characteristics.
SBA does not have industry data for three industries in Sector 81--
Religious Organizations (NAICS 813110), Labor Unions and Similar Labor
Organizations (NAICS 813930), and Political Organizations (NAICS
813940). SBA's primary source of industry data is a special tabulation
of 2002 Economic Census obtained from the Census Bureau. However, the
Census Bureau does not collect data on these industries as part of the
Economic Census (See ``Religious, Grantmaking, Civic, Professional, and
Similar Organizations, 2002'', Other Services (Except Public
[[Page 53950]]
Administration), Industry Series, EC02-811-03, November 2004). In the
absence of relevant industry data on organizations operating in these
industries, SBA is proposing to retain the $7 million current size
standard. Although entities in these industries are not-for-profit
concerns, a need exists for a numerical size standard for purposes of
the Regulatory Flexibility Act. SBA welcomes comments on the
suitability of continuing the $7 million size standard for these
industries and possible sources of alternative data.
Summary of size standards changes
Based on the analyses of currently available data industry
structure and Federal contracting data, SBA proposes to increase size
standards for 18 of 47 industries in Sector 81, Other Services,
reviewed in this proposed rule. These industries and their proposed
size standards are shown in Table 4. The analyses supported retaining
the existing standards for 10 industries in that Sector.
SBA's analyses supported a decrease to the current size standard
for 19 industries in Other Services. However, as discussed above, SBA
feels that proposing to lower small business size standards would be
inconsistent with its ongoing effort to promote small business
assistance under the Recovery Act. Therefore, SBA proposes to retain
the current size standards for those industries. SBA intends for the
proposed size standards, if adopted, to remain in effect unless and
until it receives information or data that suggests a change is needed.
Table 4--Summary of Proposed Size Standard Revisions
------------------------------------------------------------------------
Current size Revised size
NAICS standard standard
($million) (million)
------------------------------------------------------------------------
811122--Automotive Glass Replacement $7.0 $10.0
Shops..................................
811213--Communication Equipment Repair $7.0 $10.0
and Maintenance........................
811219--Other Electronic and Precision $7.0 $19.0
Equipment Repair and Maintenance.......
811412--Appliance Repair and Maintenance $7.0 $14.0
812191--Diet and Weight Reducing Centers $7.0 $19.0
812220--Cemeteries and Crematories...... $7.0 $19.0
812320--Dry-cleaning and Laundry $4.5 $5.0
Services (except Coin-Operated)........
812331--Linen Supply.................... $14.0 $30.0
812332--Industrial Launderers........... $14.0 $35.5
812921--Photo Finishing Laboratories $7.0 $19.0
(except One-Hour)......................
812922--One-Hour Photo Finishing........ $7.0 $14.0
812930--Parking Lots and Garages........ $7.0 $35.5
813211--Grantmaking Foundations......... $7.0 $30.0
813212--Voluntary Health Organizations.. $7.0 $25.5
813219--Other Grant Making and Giving $7.0 $35.5
Services...............................
813311--Human Rights Organizations...... $7.0 $25.5
813312--Environment, Conservation and $7.0 $14.0
Wildlife Organizations.................
813920--Professional Organizations...... $7.0 $14.0
------------------------------------------------------------------------
Evaluation of Dominance in Field of Operation
SBA has determined that for each industry in Sector 81, Other
Services, no firm at or below the proposed size standard would be large
enough to dominate its field of operation. A firm at the proposed size
standard in each of these industries generates less than one percent of
total industry receipts. This level of market share effectively
precludes a firm at or below the proposed size standard from exerting a
controlling effect on this industry.
Request for Comments
SBA invites public comments on the proposed rule, especially on the
following areas.
1. In an effort to simplify size standards, for this proposed rule,
SBA has proposed a set of eight fixed size levels for receipts based
size standards: $5.0 million, $7.0 million, $10.0 million, $14.0
million, $19.0 million, $25.5 million, $30.0 million, and $35.5
million. SBA invites comments on whether simplification of size
standards in this way is necessary and if these proposed fixed size
levels are appropriate, or suggestions on alternative approaches to
simplifying small business size standards.
2. For industries in Sector 81, Other Services, SBA has proposed
receipts based size standards ranging from $5 million to $35.5 million.
SBA seeks feedback on whether the levels of size standards it proposes
seem right given the economic characteristics of each industry. SBA
also seeks feedback and suggestions on alternative standards, if they
would be more appropriate, including whether an employee based standard
for certain industries is a more suitable measure of size, and what
that employee level should be.
3. SBA's proposed standards are based on its evaluation of five
primary factors--average firm size, average assets size (as proxy of
startup costs and entry barriers), four-firm concentration ratio,
distribution of firms by size, and the level and small business share
of Federal contracting dollars. SBA welcomes comments on these and
other factors that interested parties believe are important to consider
for describing industry characteristics when SBA evaluates its size
standards. Please provide relevant data sources, if available.
4. SBA derives its proposed standards by applying equal weights to
each of the five primary factors in all industries. Should SBA continue
with the equal weighting of each factor or should it give more weight
to one or more factors in size standard determination of certain
industries? If it is more appropriate to weigh some factors more than
others, SBA welcomes suggestions on specific weights for each factor
along with supporting information.
5. For some industries, SBA proposes to increase the existing size
standards by a large amount, while for others the proposed increase is
less. Should SBA, as a policy, limit the amount of increase or decrease
to a size standard? Also should SBA, as a policy, establish certain
minimum or maximum values for its size standards? SBA seeks suggestions
on appropriate levels of change to size standards and on their minimum
or maximum levels.
[[Page 53951]]
6. For analytical simplicity and efficiency, SBA has refined its
size standard methodology to obtain a single value as a proposed size
standard instead of a range of values as was SBA's methodology in its
past size regulations. SBA welcomes any comments on this procedure and
suggestions for alternative methods.
Public comments on above issues are very critical for SBA to
validate its size standard methodology and move forward in a timely
manner with review of size standards of other industry groups under the
two-year comprehensive size review.
Compliance With Executive Orders 12866, 12988, and 13132, the Paperwork
Reduction Act (44 U.S.C. Ch. 35), and the Regulatory Flexibility Act (5
U.S.C. 601-612)
Executive Order 12866
The Office of Management and Budget (OMB) has determined that this
proposed rule is a ``significant'' regulatory action for purposes of
Executive Order 12866. Accordingly, the next section contains SBA's
Regulatory Impact Analysis. This is not a major rule, however, under
the Congressional Review Act, 5 U.S.C. 800.
Regulatory Impact Analysis
1. Is there a need for the regulatory action?
SBA believes that adjustments to certain size standards in Sector
81, Other Services, are needed to better reflect the economic
characteristics of small businesses in those industries. SBA's mission
is to aid and assist small businesses through a variety of financial,
procurement, business development, and advocacy programs. To assist
effectively the intended beneficiaries of these programs, SBA must
establish distinct definitions of which businesses are deemed small
businesses. The Small Business Act (15 U.S.C. 632(a)) delegates to
SBA's Administrator the responsibility for establishing small business
definitions. The Act also requires that small business definitions vary
to reflect industry differences. The supplementary information section
of this proposed rule explains SBA's methodology for analyzing a size
standard for a particular industry.
2. What are the potential benefits and costs of this regulatory action?
The most significant benefit to businesses obtaining small business
status as a result of this rule is eligibility for Federal small
business assistance programs, including SBA's financial assistance
programs, economic injury disaster loans, and Federal procurement
preference programs for small businesses. Federal procurement provides
opportunities for small businesses under SBA's business development
programs, such as 8(a), Small Disadvantaged Businesses (SDB), small
businesses located in Historically Underutilized Business Zones
(HUBZone), women owned small businesses, and service disabled veteran
owned small businesses (SDVOSB). Other Federal agencies also may use
SBA size standards for a variety of regulatory and program purposes.
Through the assistance of these programs, small businesses become more
knowledgeable, stable, and competitive businesses.
Of 18 industries in Sector 81 for which SBA has proposed to
increase their size standards, 12 are for-profit industries and six are
non-profits. In the 12 for-profit industries for which SBA has proposed
to increase their size standards, about 325 additional firms are
estimated to obtain small business status and become eligible for these
programs. That represents 0.6 percent of total firms and 5.6 percent of
total sales in those industries. In the six non-profit industries,
about 1,175 additional firms, representing 4.2 percent of total firms
and 16.9 percent of total sales in those industries, are estimated to
qualify as small organizations (a non-profit cannot qualify as a small
business). 13 CFR 121.105. In the 19 industries (including non-profits)
for which SBA's analyses indicated a lower size standard is
appropriate, about 1,850 firms, representing 0.6 percent of total firms
and 5.1 percent of total sales in those industries, might have lost
their small business status, had SBA proposed lowering their size
standards. Thus, the net impact for the Sector as a whole is about
1,400 additional firms gaining and none losing small business status
under the proposed rule. This will increase the small business share of
total industry receipts for the Sector from 59.0 percent under the
current size standards to 63.5 percent under the proposed standards.
The benefits of increasing certain size standards to a more
appropriate level would accrue to three groups: (1) Businesses that
benefit by gaining small business status from the higher size standard
that also use small business assistance programs; (2) growing small
businesses that may exceed the current size standards in the near
future and that will retain small business status from the higher size
standard; and (3) Federal agencies that award contracts under
procurement programs that require small business status.
More than 40 percent of total Federal contracting dollars received
by industries in Sector 81 (excluding NAICS 811212 and those in
Subsector 813)) during fiscal years 2006-2008 was accounted for by two
of the 18 industries for which size standards have been proposed to
increase, namely NAICS 811213 and NAICS 811219. SBA estimates that
additional firms gaining small business status in those two and other
industries in Subsectors 811 and 812 under the proposed size standards
could potentially obtain Federal contracts totaling up to between $25
million and $30 million per year under the small business set-aside
program, the 8(a), HUBZone, and SDVOSB Programs, or unrestricted
procurements. The added competition for many of these procurements also
would likely result in a lower price to the Government for procurements
reserved for small businesses, but SBA is not able to quantify this
benefit.
Under SBA's 7(a) Guaranteed Loan Program and Certified Development
Company (504) Program, SBA estimates that approximately 10 additional
loans totaling between $4 million and $5 million in new Federal loan
guarantees could be made to these newly defined small businesses.
Because of the size of the loan guarantees, however, most loans are
made to small businesses well below the size standard. Moreover, under
the Recovery Act, effective February 17, 2009, SBA is temporarily
raising guarantees on its SBA 7(a) loan program and also temporarily
eliminating fees for borrowers on SBA 7(a) loans and for both borrowers
and lenders on 504 Certified Development Company loans, through
calendar year 2009, or until the funds are exhausted. The fee
elimination is retroactive to February 17, 2009, the day the Recovery
Act was signed. Furthermore, SBA is developing a mechanism for
refunding fees paid on loans since then. In addition, since SBA has
applied its CDC alternative size standard to its 7(a) Business Loan
Program, more capital is available to small businesses. Thus,
increasing the size standards will likely result in an increase in
small business guaranteed loans to businesses in these industries, but
it would be impractical to try to estimate the extent of their number
and the total amount loaned.
The newly defined small businesses would also benefit from SBA's
Economic Injury Disaster Loan (EIDL) Program. Since this program is
contingent upon the occurrence and severity of a disaster, no
meaningful estimate of benefits can be projected for future disasters.
[[Page 53952]]
To the extent that 325 additional firms in Subsectors 811 and 812
that become small under the proposed size standards could become active
in Federal procurement programs, this may entail some additional
administrative costs to the Federal Government associated with
additional bidders for Federal small business procurement
opportunities, additional firms seeking SBA guaranteed lending
programs, additional firms eligible for enrollment in Central
Contractor Registration's Dynamic Small Business Search database, and
additional firms seeking certification as 8(a) or HUBZone firms or
qualifying for SDB status. Among businesses in this group seeking SBA
assistance, there could be some additional costs associated with
compliance and verification of small business status and protests of
small business status. These additional costs are likely to be minimal
because mechanisms are already in place to handle these additional
administrative requirements.
The costs to the Federal Government may be higher on some Federal
contracts. With a greater number of businesses defined as small,
Federal agencies may choose to set aside more contracts for competition
among small businesses rather than using full and open competition. The
movement from unrestricted to set-aside contracting is likely to result
in competition among fewer bidders. In addition, higher costs may
result if additional full and open contracts are awarded to HUBZone and
SDB businesses because of a price evaluation preference. The additional
costs associated with fewer bidders, however, are likely to be minor
since, as a matter of law, procurements may be set aside for small
businesses or reserved for the 8(a) or HUBZone Programs only if awards
are expected to be made at fair and reasonable prices.
The proposed size standards may have distributional effects among
large and small businesses. Although the actual outcome of the gains
and losses among small and large businesses cannot be estimated with
certainty, several likely impacts can be identified. There will likely
be a transfer of some Federal contracts to small businesses from large
businesses. Large businesses may have fewer Federal contract
opportunities as Federal agencies decide to set aside more Federal
contracts for small businesses. Also, some Federal contracts may be
awarded to HUBZone or SDB concerns instead of large businesses since
those two categories of small businesses may be eligible for an
evaluation adjustment for contracts competed on a full and open basis.
Similarly, currently defined small businesses may obtain fewer Federal
contracts due to the increased competition from more businesses defined
as small. This transfer may be offset by a greater number of Federal
procurements set aside for all small businesses. The number of newly
defined and expanding small businesses that are willing and able to
sell to the Federal Government will limit the potential transfer of
contracts away from large and currently defined small businesses. The
potential distributional impacts of these transfers may not be
estimated with any degree of precision because the data on the size of
businesses receiving a Federal contract are limited to identifying
small or other than small businesses, without regard to the exact size
of the business.
As mentioned above, in addition to the estimated 325 businesses
that may qualify as small if this proposed rule is adopted, an
additional 1,175 non-profit organizations may also be designated as
small organizations within the industries in Subsector 813--Religious,
Grantmaking, Civic, Professional and Similar Organizations. Non-profit
organizations do not qualify for SBA small business programs or for
Federal contracts reserved for small business (13 CFR 121.105).
However, Federal agencies pursuant to the Regulatory Flexibility Act
must consider the impact of their regulations on small entities, which
by definition include small businesses, small organizations, and small
governmental jurisdictions (5 U.S.C. 601(b)). SBA's Office of Advocacy
advises Federal agencies to use SBA's numerical size standards by NAICS
industry when assessing the impact of a regulation on small
organizations.
The proposed revisions to the existing size standards for the Other
Services industries are consistent with SBA's statutory mandate to
assist small business. This regulatory action promotes the
Administration's objectives. One of SBA's goals in support of the
Administration's objectives is to help individual small businesses
succeed through fair and equitable access to capital and credit,
Government contracts, and management and technical assistance.
Reviewing and modifying size standards, when appropriate, ensures that
intended beneficiaries have access to small business programs designed
to assist them.
Executive Order 12988
For purposes of Executive Order 12988, SBA has determined that this
rule is drafted, to the extent practicable, in accordance with the
standards set forth in that Order.
Executive Order 13132
For purposes of Executive Order 13132, SBA has determined that this
rule does not have any Federalism implications warranting the
preparation of a federalism assessment.
Paperwork Reduction Act
For the purpose of the Paperwork Reduction Act, 44 U.S.C. Ch. 35,
SBA has determined that this rule would not impose new reporting or
recordkeeping requirements, other than those required of SBA.
Initial Regulatory Flexibility Analysis
Under the Regulatory Flexibility Act (RFA), this rule, if
finalized, may have a significant impact on a substantial number of
small entities in Sector 81, Other Services. As described above, this
rule may affect small entities seeking Federal contracts, SBA (7a) and
504 Guaranteed Loan Programs, SBA Economic Injury Disaster Loans, and
other Federal small business programs.
Immediately below, SBA sets forth an initial regulatory flexibility
analysis (IRFA) of this proposed rule addressing the following
questions: (1) What is the need for and objective of the rule? (2) what
is SBA's description and estimate of the number of small entities to
which the rule will apply? (3) what are the projected reporting,
recordkeeping, and other compliance requirements of the rule? (4) what
are the relevant Federal rules which may duplicate, overlap or conflict
with the rule? and (5) what alternatives will allow the Agency to
accomplish its regulatory objectives while minimizing the impact on
small entities?
(1) What is the need for and objective of the rule?
Most of SBA's size standards for the Other Services industries have
not been reviewed since the early 1980s, and many have not been changed
since the 1960s, except for periodic adjustments for inflation.
Technology, productivity growth, international competition, mergers and
acquisitions, and updated industry definitions may have changed the
structure of many industries. Such changes can be sufficient to support
a revision to size standards for some industries. Based on an analysis
of the latest data available to the Agency, SBA believes that the
revised standards in this proposed rule more appropriately reflect the
size of businesses in those industries that need Federal assistance.
[[Page 53953]]
(2) What is SBA's description and estimate of the number of small
entities to which the rule will apply?
If this rule is adopted in its present form, SBA estimates that
approximately 1,400 additional firms will become small because of
proposed increases in size standards in the 18 industries within Sector
81. That represents about 1.8 percent of approximately 75,500 total
firms in those industries. This will result in an increase in the small
business share of total industry receipts for that Sector from 59.0
percent under the current size standards to 63.5 percent under the
proposed standards.
(3) What are the projected reporting, record keeping, and other
compliance requirements of the rule and an estimate of the classes of
small entities which will be subject to the requirements?
A new size standard does not impose any additional reporting,
recordkeeping or compliance requirements on small entities. Revising
size standards alters the access to SBA programs that assist small
businesses, but does not impose a regulatory burden as they neither
regulate nor control business behavior.
(4) What are the relevant Federal rules which may duplicate, overlap or
conflict with the rule?
This proposed rule overlaps with other Federal rules that use SBA's
size standards to define a small business. Under section 3(a)(2)(C) of
the Small Business Act, 15 U.S.C. 632(a)(2)(c), Federal agencies must
use SBA's size standards to define a small business, unless
specifically authorized by statute. In 1995, SBA published in the
Federal Register a list of statutory and regulatory size standards that
identified the application of SBA's size standards as well as other
size standards used by Federal agencies (60 FR 57988-57991, dated
November 24, 1995). SBA is not aware of any Federal rule that would
duplicate or conflict with establishing size standards.
However, the Small Business Act and SBA's regulations allow Federal
agencies to develop different size standards if they believe that SBA's
size standards are not appropriate for their programs, with the
approval of SBA's Administrator (13 CFR 121.903). The Regulatory
Flexibility Act authorizes an Agency to establish an alternative small
business definition, after consultation with the Office of Advocacy of
the U.S. Small Business Administration (5 U.S.C. 601(3). Thus, there
may be instances where this rule conflicts with other rules.
(5) What alternatives will allow the Agency to accomplish its
regulatory objectives while minimizing the impact on small entities?
SBA is required to develop numerical size standards for identifying
businesses eligible for Federal small business programs. Other than
varying the size standards, no viable alternative exists to the systems
of numerical size standards.
List of Subjects in 13 CFR Part 121
Administrative practice and procedure, Government procurement,
Government property, Grant programs--business, Individuals with
disabilities, Loan programs--business, Reporting and recordkeeping
requirements, Small businesses.
For the reasons set forth in the preamble, SBA proposes to amend 13
CFR Part 121 as follows.
PART 121--SMALL BUSINESS SIZE REGULATIONS
1. The authority citation for part 121 continues to read as
follows:
Authority: 15 U.S.C. 632, 634(b)(6), 636(b), 637(a), 644, and
662(5); and Pub. L. 105-135, sec. 401 et seq., 111 Stat. 2592.
2. Amend the table in Sec. 121.201 by revising all entries under
Sector 81 to read as follows:
Sec. 121.201 What size standards has SBA identified by North American
Industry Classification System codes?
* * * * *
Small Business Size Standards by Naics Industry
------------------------------------------------------------------------
Size standards Size standards
NAICS codes NAICS U.S. industry in millions of in number of
title dollars employees
------------------------------------------------------------------------
Sector 81--Other Services (Except Public Administration)
------------------------------------------------------------------------
Subsector 811--Repair and Maintenance
------------------------------------------------------------------------
811111........... General Automotive $7.0 ..............
Repair.
811112........... Automotive Exhaust $7.0 ..............
System Repair.
811113........... Automotive $7.0 ..............
Transmission Repair.
811118........... Other Automotive $7.0 ..............
Mechanical and
Electrical Repair
and Maintenance.
811121........... Automotive Body, $7.0 ..............
Paint and Interior
Repair and
Maintenance.
811122........... Automotive Glass $10.0 ..............
Replacement Shops.
811191........... Automotive Oil Change $7.0 ..............
and Lubrication
Shops.
811192........... Car Washes........... $7.0 ..............
811198........... All Other Automotive $7.0 ..............
Repair and
Maintenance.
811211........... Consumer Electronics $7.0 ..............
Repair and
Maintenance.
811212........... Computer and Office $25.0 ..............
Machine Repair and
Maintenance.
811213........... Communication $10.0 ..............
Equipment Repair and
Maintenance.
811219........... Other Electronic and $19.0 ..............
Precision Equipment
Repair and
Maintenance.
811310........... Commercial and $7.0 ..............
Industrial Machinery
and Equipment
(except Automotive
and Electronic)
Repair and
Maintenance.
811411........... Home and Garden $7.0 ..............
Equipment Repair and
Maintenance.
811412........... Appliance Repair and $14.0 ..............
Maintenance.
811420........... Reupholstery and $7.0 ..............
Furniture Repair.
811430........... Footwear and Leather $7.0 ..............
Goods Repair.
811490........... Other Personal and $7.0 ..............
Household Goods
Repair and
Maintenance.
------------------------------------------------------------------------
Subsector 812--Personal and Laundry Services
------------------------------------------------------------------------
812111........... Barber Shops......... $7.0 ..............
[[Page 53954]]
812112........... Beauty Salons........ $7.0 ..............
812113........... Nail Salons.......... $7.0 ..............
812191........... Diet and Weight $19.0 ..............
Reducing Centers.
812199........... Other Personal Care $7.0 ..............
Services.
812210........... Funeral Homes and $7.0 ..............
Funeral Services.
812220........... Cemeteries and $19.0 ..............
Crematories.
812310........... Coin[dash]Operated $7.0 ..............
Laundries and
Drycleaners.
812320........... Drycleaning and $5.0 ..............
Laundry Services
(except
Coin[dash]Operated).
812331........... Linen Supply......... $30.0 ..............
812332........... Industrial Launderers $35.5 ..............
812910........... Pet Care (except $7.0 ..............
Veterinary) Services.
812921........... Photo Finishing $19.0 ..............
Laboratories (except
One[dash]Hour).
812922........... One[dash]Hour Photo $14.0 ..............
Finishing.
812930........... Parking Lots and $35.5 ..............
Garages.
812990........... All Other Personal $7.0 ..............
Services.
------------------------------------------------------------------------
Subsector 813--Religious, Grantmaking, Civic, Professional and Similar
Organizations
------------------------------------------------------------------------
813110........... Religious $7.0 ..............
Organizations.
813211........... Grantmaking $30.0 ..............
Foundations.
813212........... Voluntary Health $25.5 ..............
Organizations.
813219........... Other Grantmaking and $35.5 ..............
Giving Services.
813311........... Human Rights $25.5 ..............
Organizations.
813312........... Environment, $14.0 ..............
Conservation and
Wildlife
Organizations.
813319........... Other Social Advocacy $7.0 ..............
Organizations.
813410........... Civic and Social $7.0 ..............
Organizations.
813910........... Business Associations $7.0 ..............
813920........... Professional $14.0 ..............
Organizations.
813930........... Labor Unions and $7.0 ..............
Similar Labor
Organizations.
813940........... Political $7.0 ..............
Organizations.
813990........... Other Similar $7.0 ..............
Organizations
(except Business,
Professional, Labor,
and Political
Organizations).
------------------------------------------------------------------------
* * * * *
Dated October 9, 2009.
Karen G. Mills,
Administrator.
[FR Doc. E9-25199 Filed 10-20-09; 8:45 am]
BILLING CODE 8025-01-P