[House Report 117-140]
[From the U.S. Government Publishing Office]


117th Congress    }                                   {      Report
                        HOUSE OF REPRESENTATIVES
 1st Session      }                                   {      117-140

======================================================================



 
                  INVESTING IN MAIN STREET ACT OF 2021

                                _______
                                

October 12, 2021.--Committed to the Committee of the Whole House on the 
              State of the Union and ordered to be printed

                                _______
                                

  Ms. Velazquez, from the Committee on Small Business, submitted the 
                               following

                              R E P O R T

                        [To accompany H.R. 4256]

    The Committee on Small Business, to whom was referred the 
bill (H.R. 4256) to amend the Small Business Investment Act of 
1958 to increase the amount that certain banks and savings 
associations may invest in small business investment companies, 
subject to the approval of the appropriate Federal banking 
agency, and for other purposes, having considered the same, 
reports favorably thereon without amendment and recommends that 
the bill do pass.

                                CONTENTS

                                                                   Page
   I. Purpose and Bill Summary........................................1
  II. Background and Need for Legislation.............................2
 III. Hearings........................................................3
  IV. Committee Consideration.........................................3
   V. Committee Votes.................................................3
  VI. Section-by-Section Analysis for H.R. 4256.......................3
 VII. Congressional Budget Cost Estimate..............................3
VIII. New Budget Authority, Entitlement Authority, and Tax Expenditure4
  IX. Committee Oversight Findings and Recommendations................4
   X. Statement of General Performance Goals and Objectives...........4
  XI. Duplication of Federal Programs.................................4
 XII. Congressional Earmarks, Limited Tax Benefits, and Limited Tariff 
      Benefits........................................................4
XIII. Federal Mandates Statement......................................4
 XIV. Federal Advisory Committee Statement............................5
  XV. Applicability to Legislative Branch.............................5
 XVI. Constitutional Authority Statement..............................5
XVII. Changes in Existing Law Made by the Bill, as Reported...........5

                      I. Purpose and Bill Summary

    The purpose of H.R. 4256, the ``Investing in Main Street 
Act of 2021,'' is to increase the amount of capital and surplus 
a financial institution or savings association may invest in a 
Small Business Investment Company (SBIC) licensed by the Small 
Business Administration (SBA) from 5 to 15 percent with the 
goal to improve access to investment capital for small 
businesses.

                II. Background and Need for Legislation

    H.R. 4256 was introduced by Rep. Judy Chu (D-CA) and Rep. 
Andrew Garbarino (R-NY) on June 30, 2021. H.R. 4256 is 
identical to H.R. 116, which was introduced in the 116th 
Congress. H.R. 116 was introduced on January 3, 2019, by Rep. 
Chu and Rep. Ralph Norman (R-SC). H.R. 116 passed the House on 
January 14, 2019, under Suspension of the Rules by a vote of 
403-2 (Roll Call No. 30). H.R. 116 was received in the Senate 
and read twice and referred to the Committee on Small Business 
and Entrepreneurship on January 15, 2019.
    Authorized by the Small Business Investment Act of 1958, 
the SBIC program provides access to low-cost, government-backed 
investment capital for small businesses, which strengthens 
local communities and empowers American business owners to grow 
and compete in the global economy. SBA licenses and regulates 
privately owned and managed investment funds that use their own 
capital, plus SBA-guaranteed leverage, to make equity and debt 
investments in small businesses. Leveraged funds obtained under 
the program generally carry rates lower than would otherwise be 
available from traditional lending sources. This enables SBIC 
funds to make investments in greater amounts than would be 
possible solely with private funds. The size of an SBIC fund's 
private capital determines the amount of SBA funding for which 
the SBIC fund is eligible. SBIC funds are generally eligible 
for up to two tiers of leverage on their private capital, 
meaning an SBIC fund with $75 million in private capital could 
have a total fund size of up to $225 million, with up to $150 
million of SBA leverage. Investors that typically provide SBICs 
with private capital include public and private pension funds, 
banks and other financial institutions, institutional 
investors, and other high-net-worth individuals. SBIC funds 
represent approximately $30 billion in investment capital, 
which have helped create or sustain more than 9.5 million jobs 
since 1995.
    Currently, the Office of the Comptroller of the Currency's 
(OCC) regulations permit financial institutions and savings 
associations to invest up to 15 percent (subject to OCC 
approval) of their capital and surplus into qualified public 
welfare investments. An SBIC is considered a public welfare 
investment,\1\ however, the Small Business Investment Act of 
1958 restricts these institutions from investing more than five 
percent of their capital and surplus in SBICs.\2\ To harmonize 
the Small Business Investment Act of 1958 with the OCC's public 
welfare investment regulations, the bill permits financial 
institutions and savings associations to invest up to 15 
percent of their capital and surplus in an SBIC, subject to the 
approval of the appropriate federal regulator.
---------------------------------------------------------------------------
    \1\12 CFR Sec. 24.4(a).
    \2\15 U.S.C. Sec. 682(b)(1), (2).
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                             III. Hearings

    On May 19, 2015, the Subcommittee on Economic Growth, Tax, 
and Capital Access held a hearing on improving SBA's capital 
access program, and more specifically there were discussions 
about improvements that could be made to the SBIC program.\3\ 
On April 5, 2016, the Subcommittee on Economic Growth, Tax, and 
Capital Access held a field hearing in Pasadena, California.\4\ 
During the hearing, Ms. Jeri Harman testified in support of 
lifting the cap. On September 26, 2019, the Committee held a 
management review hearing on the SBIC program, with Mr. Joe 
Shepard, Associate Administrator of Investment and Innovation, 
and a panel of private sector SBIC program participants and 
stakeholders.\5\
---------------------------------------------------------------------------
    \3\Improving Capital Access Programs Within the SBA: Hearing Before 
the H. Comm. on Small Business Subcomm. on Economic Growth, Tax, and 
Capital Access, 114th Cong. (2015) (statement of Brett Palmer, 
President, Small Business Investor Alliance).
    \4\Field Hearing in Pasadena, CA: Bridging the Gap--Increasing 
Access to Venture Capital for Small Businesses: Hearing Before the H. 
Comm. on Small Business Subcomm. on Economic Growth, Tax, and Capital 
Access, 114th Cong. (2016) (statement of Jeri J. Harman, Managing 
Partner & CEO, Avante Mezzanine Partners).
    \5\SBA Management Review: Small Business Investment Company 
Program: Hearing Before the H. Comm. on Small Business, 116th Cong. 
(2019).
---------------------------------------------------------------------------

                      IV. Committee Consideration

    The Committee on Small Business met in open session, with a 
quorum being present, on July 29, 2021 and ordered H.R. 4256 
favorably reported to the House of Representatives. During the 
markup, no amendments were offered.

                           V. Committee Votes

    Clause 3(b) of rule XIII of the Rules of the House of 
Representatives requires the Committee to list the recorded 
votes on the motion to report legislation and amendments 
thereto. The Committee approved by voice vote to favorably 
report H.R. 4256 to the House at 10:19 AM.

             VI. Section-by-Section Analysis for H.R. 4256


Section 1. Short title

    This Act may be cited as the ``Investing in Main Street Act 
of 2021.''

Section 2. Investments in Small Business Investment Companies

    This section increases the percent of capital and surplus a 
financial institution or federal savings institution may invest 
in an SBIC from 5 to 15 percent, subject to the approval of the 
appropriate federal banking agency.

                VII. Congressional Budget Cost Estimate

    Pursuant to 3(c)(2) of rule XIII of the Rules of the House 
of Representatives, the Committee adopts as its as its own the 
cost estimate prepared by the Director of the Congressional 
Budget Office pursuant to section 402 of the Congressional 
Budget Act of 1974. The Committee has requested but not 
received from the Director of the Congressional Budget Office a 
cost estimate for the Committee's provisions.

VIII. New Budget Authority, Entitlement Authority, and Tax Expenditures

    Pursuant to clause 3(c)(2) of rule XIII of the Rules of the 
House of Representatives and section 308(a) of the 
Congressional Budget Act of 1974, the Committee provides the 
following opinion and estimate with respect to new budget 
authority, entitlement authority, and tax expenditures. While 
the Committee has not received an estimate of new budget 
authority contained in the cost estimate prepared by the 
Director of the Congressional Budget Office pursuant to Sec. 
402 of the Congressional Budget Act of 1974, the Committee does 
not believe that there will be any additional costs 
attributable to this legislation. H.R. 4256 does not direct new 
spending, but instead reallocates funding independently 
authorized and appropriated.

          IX. Committee Oversight Findings and Recommendations

    In accordance with clause 3(c)(1) of rule XIII and clause 
2(b)(1) of rule X of the Rules of the House of Representatives, 
the oversight findings and recommendations of the Committee on 
Small Business with respect to the subject matter contained in 
H.R. 4256 are incorporated into the descriptive portions of 
this report.

        X. Statement of General Performance Goals and Objectives

    With respect to the requirements of clause 3(c)(4) of rule 
XIII of the Rules of the House of Representatives, the 
performance goals and objectives of H.R. 4256 is to increase 
the amount of capital and surplus financial institutions and 
savings associations may invest in an SBIC to improve access to 
investment capital for small businesses.

                  XI. Duplication of Federal Programs

    Pursuant to clause 3(c)(5) of rule XIII of the Rules of the 
House of Representatives, no provision of H.R. 4256 is known to 
be duplicative of another Federal program, including any 
program that was included in a report to Congress pursuant to 
section 21 of Public Law 111-139 or the most recent Catalog of 
Federal Domestic Assistance.

 XII. Congressional Earmarks, Limited Tax Benefits, and Limited Tariff 
                                Benefits

    With respect to clause 9 of rule XXI of the Rules of the 
House of Representatives, the Committee finds that the bill 
does not contain any congressional earmarks, limited tax 
benefits, or limited tariff benefits as defined in clause 9(e), 
9(f), or 9(g) of rule XXI of the Rules of the House of 
Representatives.

                    XIII. Federal Mandates Statement

    The Committee adopts as its own the estimate of Federal 
mandates prepared by the Director of the Congressional Budget 
Office pursuant to section 423 of the Unfunded Mandates Reform 
Act.

               XIV. Federal Advisory Committee Statement

    No advisory committees within the meaning of section 5(b) 
of the Federal Advisory Committee Act were created by this 
legislation.

                XV. Applicability to Legislative Branch

    The Committee finds that the legislation does not relate to 
the terms and conditions of employment or access to public 
services or accommodations within the meaning of section 
102(b)(3) of the Congressional Accountability Act.

                XVI. Constitutional Authority Statement

    Pursuant to clause 7 of rule XII of the Rules of the House 
of Representatives, the Committee finds the authority for this 
legislation in Art. I, Sec. 8, cl. 1 of the Constitution of the 
United States.

      XVII. Changes in Existing Law Made by the Bill, as Reported

    In compliance with clause 3(e) of rule XIII of the Rules of 
the House of Representatives, changes in existing law made by 
the bill, as reported, as shown as follows: existing law 
proposed to be omitted is enclosed in black brackets, new 
matter is printed in italic, and existing law in which no 
change is proposed is shown in roman:

         Changes in Existing Law Made by the Bill, as Reported

  In compliance with clause 3(e) of rule XIII of the Rules of 
the House of Representatives, changes in existing law made by 
the bill, as reported, are shown as follows (new matter is 
printed in italics and existing law in which no change is 
proposed is shown in roman):

                 SMALL BUSINESS INVESTMENT ACT OF 1958




           *       *       *       *       *       *       *
                TITLE III--INVESTMENT DIVISION PROGRAMS


Part A--Small Business Investment Companies

           *       *       *       *       *       *       *



                          capital requirements

  Sec. 302.
  (a) Amount.--
          (1) In general.--Except as provided in paragraph (2), 
        the private capital of each licensee shall be not less 
        than--
                  (A) $5,000,000; or
                  (B) $10,000,000, with respect to each 
                licensee authorized or seeking authority to 
                issue participating securities to be purchased 
                or guaranteed by the Administration under this 
                Act.
          (2) Exception.--The Administrator may, in the 
        discretion of the Administrator and based on a showing 
        of special circumstances and good cause, permit the 
        private capital of a licensee authorized or seeking 
        authorization to issue participating securities to be 
        purchased or guaranteed by the Administration to be 
        less than $10,000,000, but not less than $5,000,000, if 
        the Administrator determines that such action would not 
        create or otherwise contribute to an unreasonable risk 
        of default or loss to the Federal Government.
          (3) Adequacy.--In addition to the requirements of 
        paragraph (1), the Administrator shall--
                  (A) determine whether the private capital of 
                each licensee is adequate to assure a 
                reasonable prospect that the licensee will be 
                operated soundly and profitably, and managed 
                actively and prudently in accordance with its 
                articles; and
                  (B) determine that the licensee will be able 
                both prior to licensing and prior to approving 
                any request for financing, to make periodic 
                payments on any debt of the company which is 
                interest bearing and shall take into 
                consideration the income which the company 
                anticipates on its contemplated investments, 
                the experience of the company's owners and 
                managers, the history of the company as an 
                entity, if any, and the company's financial 
                resources.
          (4) Exemption from capital requirements.--The 
        Administrator may, in the discretion of the 
        Administrator, approve leverage for any licensee 
        licensed under subsection (c) or (d) of section 301 
        before the date of enactment of the Small Business 
        Program Improvement Act of 1996 that does not meet the 
        capital requirements of paragraph (1), if--
                  (A) the licensee certifies in writing that 
                not less 50 percent of the aggregate dollar 
                amount of its financings after the date of 
                enactment of the Small Business Program 
                Improvement Act of 1996 will be provided to 
                smaller enterprises; and
                  (B) the Administrator determines that such 
                action would not create or otherwise contribute 
                to an unreasonable risk of default or loss to 
                the United States Government.
  (b) Financial Institution Investments.--
          (1) Certain banks.--Notwithstanding the provisions of 
        section 6(a)(1) of the Bank Holding Company Act of 
        1956, any national bank, or any member bank of the 
        Federal Reserve System or nonmember insured bank to the 
        extent permitted under applicable State law, may invest 
        in any 1 or more small business investment companies, 
        or in any entity established to invest solely in small 
        business investment companies, except that in no event 
        shall the total amount of such investments of any such 
        bank exceed 5 percent of the capital and surplus of the 
        bank or, subject to the approval of the appropriate 
        Federal banking agency, 15 percent of such capital and 
        surplus.
          (2) Certain savings associations.--Notwithstanding 
        any other provision of law, any Federal savings 
        association may invest in any one or more small 
        business investment companies, or in any entity 
        established to invest solely in small business 
        investment companies, except that in no event may the 
        total amount of such investments by any such Federal 
        savings association exceed 5 percent of the capital and 
        surplus of the Federal savings association or, subject 
        to the approval of the appropriate Federal banking 
        agency, 15 percent of such capital and surplus.
          (3) Appropriate federal banking agency defined.--For 
        purposes of this subsection, the term ``appropriate 
        Federal banking agency'' has the meaning given that 
        term under section 3 of the Federal Deposit Insurance 
        Act.
  (c) Diversification of Ownership.--The Administrator shall 
ensure that the management of each licensee licensed after the 
date of enactment of the Small Business Program Improvement Act 
of 1996 is sufficiently diversified from and unaffiliated with 
the ownership of the licensee in a manner that ensures 
independence and objectivity in the financial management and 
oversight of the investments and operations of the licensee.

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