90-005830 Maribel Mackey Landscaping vs. Department Of Transportation
 Status: Closed
Recommended Order on Thursday, January 24, 1991.


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Summary: Disadvantaged Business Enterprise certification properly denied where inexperienced hispanic woman's business not separate and independent of husband's well-established business.

1STATE OF FLORIDA

4DIVISION OF ADMINISTRATIVE HEARINGS

8MARIBEL MACKEY LANDSCAPING, )

12)

13Petitioner, )

15)

16vs. ) CASE NO. 90-5830

21)

22DEPARTMENT OF TRANSPORTATION, )

26)

27Respondent. )

29___________________________________)

30RECOMMENDED ORDER

32Pursuant to Notice, this cause was heard by Linda M. Rigot, the assigned

45Hearing Officer from the Division of Administrative Hearings, on November 1,

561990, in Fort Lauderdale, Florida.

61APPEARANCES

62For Petitioner: Maribel Mackey, pro se

685032 Southwest 121st Avenue

72Cooper City, Florida 33330

76For Respondent: William Peter Martin

81Assistant General Counsel

84Department of Transportation

87605 Suwannee Street, Mail Station 58

93Tallahassee, Florida 32399-0458

96STATEMENT OF THE ISSUE

100The issue in this cause is whether Petitioner is entitled to certification

112as a Disadvantaged Business Enterprise, pursuant to Chapter 14-78, Florida

122Administrative Code.

124PRELIMINARY STATEMENT

126The Petitioner, Maribel Mackey Landscaping, filed with Respondent

134Department of Transportation, a Schedule "A" application dated May 17, 1990, for

146certification as a Disadvantaged Business Enterprise. By letter dated August

15628, 1990, the Department informed Petitioner that its application had been

167denied. By letter dated September 6, 1990, Maribel Mackey requested a formal

179hearing regarding that denial, and this matter was referred to the Division of

192Administrative Hearings for conduct of that formal proceeding.

200At the hearing, Petitioner presented the testimony of Maribel Mackey and

211Robert Mackey, husband of Maribel Mackey. Petitioner did not submit any

222documentary evidence as exhibits. Respondent presented the testimony of Kathy

232Garner, Sylvia Grinan-Chatmon, and Ruth B. Dillard. Additionally, Respondent's

241Exhibits numbered 1-3 were admitted in evidence.

248Both parties submitted post-hearing proposed findings of fact. A ruling on

259each proposed finding of fact can be found in the Appendix to this Recommended

273Order.

274FINDINGS OF FACT

2771. Maribel Mackey is the sole proprietor of Petitioner Maribe1 Mackey

288Landscaping. As a woman of Hispanic heritage (Cuban), she falls into two of the

302presumptive categories of socially and economically disadvantaged individuals.

3102. Petitioner is a landscaping company started in April, 1990, by Maribel

322Mackey as its sole owner. The company does not itself perform either irrigation

335or sod work as was sworn to on its application; rather, it subcontracts those

349items of work when they are required under a contract.

3593. Petitioner conducts business out of the home of Maribel and Robert

371Mackey at 5032 S.W. 121 Avenue, Cooper City, Florida.

3804. Robert and Maribel Mackey were married in March, 1988.

3905. Maribel Mackey had no prior experience in the landscaping business

401prior to starting her business.

4066. Robert Mackey is the sole shareholder of a landscaping company known as

419Robert Mackey Landscaping, Inc., incorporated in 1988. Prior to the formation

430of that business entity, Robert Mackey was the sole proprietor of Robert Mackey

443Landscaping from approximately 1982 to 1988. In total, Robert Mackey has been

455in the landscaping business for approximately 17-18 years.

4637. Robert Mackey also conducts his 1andscaping business out of the home he

476shares with Maribel.

4798. Both businesses share the same office in the Mackey home and share the

493same office equipment, which includes: a desk, a phone (which doubles as their

506home phone), a file cabinet, a copying machine and a fax machine.

5189. Robert Mackey acts in more than an advisory capacity with Petitioner.

530Robert Mackey also assisits Maribel Mackey with bid estimating and in the

542supervision of field operations. Robert Mackey has also helped Maribel Mackey

553Landscaping to obtain credit for the purchase of landscaping supplies at

564nurseries and in the leasing of equipment used in the landscaping business.

57610. Robert Mackey performed and/or assisted Maribel Mackey in putting

586together a Proposal on the Kathcar Building. The original of this Proposal was

599done on a form of Robert Mackey Landscaping and was signed by Robert Mackey.

613The copy forwarded to the Department and admitted as an exhibit during the final

627hearing had been altered to reflect Petitioner's name and the signature of

639Maribel Mackey had been added to that of Robert.

64811. Robert and Maribel Mackey maintain a line of credit in the amount of

662$100,000. This line of credit is available to both of them for either personal

677or business purposes and requires both signatures. This line of credit is

689secured by a mortgage on the Mackeys' personal residence.

69812. Maribel and Robert Mackey have an informal, oral agreement not to

710compete with each other in the landscaping business. Maribel Mackey is prepared

722to forfeit substantial profits on behalf of Petitioner by referring potential

733landscaping jobs to her husband's company.

73913. Maribel and Robert Mackey, as part of this agreement, have agreed that

752Petitioner will concentrate exclusively on public or government projects, while

762Robert Mackey Landscaping will concentrate exclusively on private projects.

771Petitioner has, however, done private work, and Robert Mackey Landscaping has

782done public work and currently has a bid in on another public project. In

796addition, Maribel Mackey's business card states on its face that Petitioner

807performs "residentia1 and interior" work.

81214. Petitioner is currently certified as a Women's Business Enterprise

822and/or a Minority Business Enterprise with the following governmental entities:

832Broward County, The School Board of Broward County, and Palm Beach County.

844Broward County, in its evaluation of Petitioner's application to be certified as

856a WBE/MBE, did not visit Petitioner's place cf business to conduct an on-site

869interview with Maribel Mackey. Broward County, when it certified Petitioner as

880a WBE/MBE, did not know that Petitioner shared the same office space and

893equipment with Robert Mackey Landscaping. Broward County also did not know that

905Robert Mackey had his own landscaping business or that he had been in the

919landscaping business for approximately 17-18 years.

925CONCLUSIONS OF LAW

92815. The Division of Administrative Hearings has jurisdiction over the

938subject matter of and the parties to this proceeding. Section 120.57(1),

949Florida Statutes (1990).

95216. The Department administers a certifiation program which certifies

961applicants as Disadvantaged Business Enterprises (hereinafter "DBEs") . DBEs

971are accorded competitive advantages and preferential treatment because they are

981eligible to participate in the Department of Transportation's set-aside program

991under DBE contract goals. DBEs are small business concerns that are owned and

1004controlled by socially and economically disadvantaged individuals, as defined by

1014the Federal Surface Transportation and Uniform Relocation Assistance Act of

10241987, 23 U.S.C. 101, et seq. The United States Department of Transportation

1036has promulgated 49 C.F.R., Part 231, to implement that Act and provide

1048guidelines for state "recipients" who receive federal highway funds. Chapter

105814-78, Florida Administrative Code, implements that Act at the state level.

106917. Petitioner must prove by a preponderance of the evidence that it is

1082entitled to certification as a DBE. Rule 14-78.005(7) sets forth the standards

1094for certification of a DBE. Rule 14-78.005(7)(c) requires that the DBE be an

"1107independent business entity" and that the ownership and control exercised by

1118the socially and economically disadvantaged individual must be "real,

1127substantial, and continuing . . . and go beyond mere pro forma ownership. . ."

114218. Rule 14-78.005(7)(e) requires that the socially and economically

1151disadvantaged owner have "the power to direct or to cause the direction of the

1165management, policies, and operations of the firm and to make day-to-day as well

1178as major business decisions concerning the firm's management, policy and

1188operation" in these areas. This subsection further provides, in part, as

1199follows:

1200In determining whether the socially and

1206economically disadvantaged owners also

1210possess the power to direct or cause the

1218direction of the management, policies and

1224operations of the firm and have the

1231requisite decision-making authority, the

1235Department may look to the control lodged in

1243the owners who are not socially and

1250economically disadvantaged individuals. If

1254the owners who are not socially and

1261economically disadvantaged individuals are

1265disproportionately responsible for the

1269operation of the enterprise or if there

1276exists any requirement which prevents the

1282socially and economically disadvantaged

1286owners from making business decisions

1291without concurrence of any owner or employee

1298who is not a socially and economically

1305disadvantaged individual, then the

1309enterprise, for purposes of this rule

1315chapter, is not controlled by socially and

1322economically disadvantaged individuals and

1326shall not be considered a DBE within the

1334meaning of this rule chapter.

133919. Maribel and Robert Mackey are wife and husband, and Petitioner was

1351established approximately two years after they were married. Robert Mackey's

1361extensive background and experience in the landscaping business, when compared

1371to Maribel Mackey's total lack of experience and coupled with the timing of

1384their marriage and the commencement of Petitioner, clearly show that Maribel

1395Mackey did not and does not have the requisite background or experience to start

1409and conduct a landscaping business without the participation and assistance of

1420Robert Mackey. Robert Mackey assists Maribel Mackey in obtaining credit for the

1432purpose of purchasing materials at nurseries, which is perhaps the only area of

1445the business requiring substantial capital investment. Robert Mackey

1453participates in the operations of Petitioner by assisting Maribel Mackey with

1464estimating, the leasing of equipment and supervising field operations. The two

1475businesses share the Mackey home for their office space and share all their

1488office equipment. The Mackeys have a joint line of credit in the amount of

1502$100,000 for either personal or business use, which is secured by a mortgage on

1517their home, and which requires both signatures.

152420. The Department's task in assessing DBEs pursuant to state and federal

1536rules includes analyzing those business relationships between the applicant and

1546a non-DBE business to determine whether or not they vary from normal industry

1559practice. More particularly, is the applicant enjoying some advantage from a

1570private source that other small businesses do not similarly enjoy. In the case

1583of Petitioner, it has been afforded opportunities and advantages unknown to

1594other minority businesses due solely to the fact that its owner is married to

1608someone who owns the identical type of business and has vast experience in the

1622field.

162321. The Rule requires that the DBE be an "independent" business entity.

1635Petitioner is not an independent business entity pursuant to the rule. In

1647addition to sharing office space and equipment, the Mackeys have an informal,

1659oral agreement not to compete in the landscaping business. More specifically,

1670they have agreed that Petitioner will bid on public or governmental work, while

1683Robert Mackey Landscaping will continue bidding on private work. In support of

1695this agreement, Maribel Mackey is prepared to forego substantial profits on

1706behalf of Petitioner, in order to refer private contracts to her husband's

1718business. However, it is worth noting that both Petitioner and Robert Mackey

1730Landscaping have performed contracts in the other's field.

173822. Rule 14-78.005(7)(c), Florida Administrative Code, provides, in part,

1747as follows:

1749In assessing business independence, the

1754Department shall consider all relevant

1759factors, including the date the firm was

1766established, the adequacy of its resources,

1772and the degree to which financial

1778relationships, equipment leasing, and other

1783business relationships with non-DBE firms

1788vary from industry practice.

179223. Maribel Mackey formed Petitioner approximately two years after her

1802marriage to Robert Mackey. Petitioner's application for DBE certification was

1812filed approximately one month after the creation of the business. It cannot be

1825seriously argued that it is normal industry practice for one company to refer

1838potentially lucrative contracts to another company for no consideration. The

1848weight of credible evidence is that Maribel Mackey set up a business identical

1861to that of her husband in order to enjoy the benefits of his experience,

1875technical knowledge, and contacts in the business and to take advantage of

1887public contracts as a DBE. While Petitioner and Robert Mackey Landscaping have

1899been legally established as two separate businesses, it is in form only and not

1913in substance. Common sense and the weight of the credible evidence require the

1926conclusion that Petitioner and Robert Mackey Landscaping are operating as one

1937business entity, and Petitioner has failed to prove that it qualifies as a DBE,

1951pursuant to the applicable rules.

1956RECOMMENDATION

1957Based upon the foregoing Findings of Fact and Conclusions of Law, it is

1970RECOMMENDED that a Final Order be entered denying Petitioner Maribel Mackey

1981Landscaping certification as a Disadvantaged Business Enterprise.

1988DONE AND ENTERED in Tallahassee, Leon County, Florida, this 24th day of

2000January, 1991.

2002___________________________________

2003LINDA M. RIGOT

2006Hearing Officeer

2008Division of Administrative Hearings

2012The DeSoto Building

20151230 Apalachee Parkway

2018Tallahassee, Florida 32399-1550

2021(904) 488-9675

2023Filed with the Clerk of the

2029Division of Administrative Hearings

2033this 24th day of January, 1991.

2039APPENDIX TO RECOMMENDED ORDER

2043DOAH CASE NO. 90-5830

20471. Petitioner's proposed findings of fact numbered 1-3 and 5 have been

2059adopted either verbatim or in substance in this Recommended Order.

20692. Petitioner's proposed findings of fact numbered 4 and 6-8 have been

2081rejected as not being supported by the weight of the credible evidence in this

2095cause.

20963. Petitioner's proposed findings of fact numbered 9-11 have been rejected

2107as not constituting findings of fact but rather as constituting argument.

21184. Respondent's proposed findings of fact numbered 1-15 have been adopted

2129either verbatim or in substance in this Recommended Order.

2138COPIES FURNISHED:

2140William Peter Martin

2143Assistant General Counsel

2146Department of Transportation

2149605 Suwannee Street, M.S. #58

2154Tallahassee, Florida 32399-0458

2157Maribel Mackey

21595032 Southwest 121 Avenue

2163Cooper City, Florida 33330

2167Ben G. Watts, Secretary

2171Department of Transportation

2174605 Suwannee Street, M.S. #58

2179Tallahassee, Florida 32399-0458

2182NOTICE OF RIGHT TO SUBMIT EXCEPTIONS

2188All parties have the right to submit written exceptions to this Recommended

2200Order. All agencies allow each party at least 10 days in which to submit

2214written exceptions. Some allow a larger period within which to submit written

2226exceptions. You should contact the agency that will issue the final order in

2239this case concerning agency rules on the deadline for filing exceptions to this

2252Recommended Order. Any exceptions to this Recommended Order should be filed

2263with the agency that will issue the final order in this case.

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Date
Proceedings
PDF:
Date: 02/09/1991
Proceedings: Agency Final Order
PDF:
Date: 02/09/1991
Proceedings: Recommended Order
PDF:
Date: 01/24/1991
Proceedings: Recommended Order (hearing held , 2013). CASE CLOSED.

Case Information

Judge:
LINDA M. RIGOT
Date Filed:
09/17/1990
Date Assignment:
10/29/1990
Last Docket Entry:
01/24/1991
Location:
Fort Lauderdale, Florida
District:
Southern
Agency:
ADOPTED IN TOTO
 

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