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