Knoxville’s proximity to Oak Ridge National Laboratory and the Y-12 National Security Complex creates a federal facility services market that most janitorial BSCs never seriously consider: because the classified nature of the work makes it invisible to operators who haven't done the research. The DOE-managed Oak Ridge complex alone represents hundreds of millions in annual facility operations spending, with janitorial and environmental services a component of multi-function performance work statements. At the civilian federal level, the Howard H. Baker Jr. U.S. Courthouse and the Knoxville VA Medical Center anchor a consistent GSA and VA solicitation pipeline that right-sized BSCs can pursue without the security clearance overhead of the laboratory contracts.

Federal Building Inventory and Contract Volume

Key federal sites in the Knoxville MSA include the Howard H. Baker Jr. U.S. Courthouse (800 Market St.), the Knoxville VA Medical Center (1921 Dayton Blvd.), the Edley H. Jones Federal Building, and multiple SSA, IRS, and USCIS field offices in Knox and Anderson counties. Additionally, the Oak Ridge National Laboratory (managed by UT-Battelle for DOE) and the Y-12 National Security Complex (managed by Consolidated Nuclear Security for NNSA) are located 25 miles west of Knoxville in Anderson County. The GSA Inventory covers civilian federal space; DOE/NNSA sites operate under separate facility management contracting structures.

Civilian federal janitorial spend in the Knoxville metro is estimated at $4–$10 million/year. DOE/NNSA facility services (where janitorial is a component of broader contracts) represent substantially larger spend. The VA Medical Center solicitations through VA NCO 9 are the most accessible recurring civilian federal awards.

SCA Wage Determinations for Knox County

SCA Wage Determinations for Knox County are available at sam.gov/wage-determinations, filtered by Tennessee / Knox County. Occupation code 11150 (Janitor) base rates for Knox County typically run $13.00–$15.00/hr. Tennessee has no state minimum wage above the federal $7.25/hr, and commercial janitor wages in Knoxville run approximately $12–$14/hr per BLS OEWS data, placing the SCA floor $1–$2/hr above commercial market. Add the CONUS H&W fringe of $5.36/hr per DOL Wage and Hour Division guidance. See the wages breakdown for the Knoxville MSA.

DOE facility management contracts at Oak Ridge use separate wage determinations and may incorporate prevailing wage requirements under the Davis-Bacon Act for construction-related facility work; the janitorial component within a broader DOE award follows SCA occupation codes.

SAM.gov Activity for NAICS 561720

For civilian federal buildings, search SAM.gov with NAICS 561720, PSC S201, place of performance Tennessee, Knox County. Knoxville generates three to seven active NAICS 561720 solicitations at any given time. The VA Medical Center is the largest recurring award and recompetes on a five-year cycle through VA NCO 9. GSA Southeast Sunbelt Region handles the courthouse and federal office space. For DOE/NNSA work at Oak Ridge or Y-12, search under the facility’s specific contracting office rather than NAICS 561720 alone; these solicitations may use broader NAICS codes for multi-function performance work statements.

SBA Set-Asides and Small Business Programs in Knoxville

Knox County contains HUBZone-designated tracts in portions of north and east Knoxville. Confirm current boundaries at the SBA HUBZone map. SDVOSB certification is relevant for VA Medical Center work; the DOE/NNSA complex also has small business goals that create pathways for certified firms in facility services subcontracting roles.

• 8(a): sole-source up to $4.5M in NAICS 561720
• HUBZone: north/east Knoxville tracts; document 35% employee residency
• WOSB/EDWOSB: available for NAICS 561720
• SDVOSB: particularly relevant for VA Knoxville; search DSBS for teaming candidates

Past Performance Pathways for New Entrants

New Knoxville BSCs entering the civilian federal market have the standard entry paths: subcontract on the VA Medical Center or Baker Courthouse prime, build a GSA Schedule 03FAC contract, or form a mentor-protégé joint venture. For DOE/NNSA entry, the path is substantially longer and requires demonstrated facility services performance in laboratory or industrial environments. Realistic timeline to first civilian prime award: 18–24 months. For Oak Ridge or Y-12 subcontracting: 36+ months of documented commercial or federal facility experience with appropriate security clearance infrastructure.

What Knoxville Federal Solicitations Require

Standard FAR requirements apply to civilian Knoxville federal solicitations:

1. Active SAM.gov registration with current UEI and CAGE code
2. SCA compliance under FAR 52.222-41; Knox County WD posting at worksites
3. E-Verify enrollment for contracts at or above $150,000
4. GL + WC + auto insurance naming the government as additional insured
5. Section L capability narrative including past performance references and quality control plan

DOE/NNSA contracts add Department of Energy Acquisition Regulation (DEAR) clause requirements, Q clearance or L clearance personnel requirements for certain facilities, and stringent physical protection plan documentation. Reference FAR Part 52 and DOE’s acquisition portal for DEAR clauses applicable to Oak Ridge and Y-12 scope.

Local Conditions Affecting Bid Math in Knoxville

Tennessee workers’ comp rates for janitorial run approximately $1.80–$2.60 per $100 payroll per the Tennessee Department of Labor and Workforce Development. The VA Medical Center and any DOE-adjacent work requires HSPD-12 background investigations; for Oak Ridge or Y-12 janitorial work with access to controlled areas, L or Q clearances may be required with investigation timelines of 90–180 days. Factor in the investigative attrition rate (not all applicants will receive favorable adjudications) when projecting staffing levels for security-sensitive sites.

A Tradeoff: Laboratory Contracts vs. Clearance Infrastructure

DOE and NNSA facility work at Oak Ridge and Y-12 represents the largest federal cleaning opportunity within 50 miles of Knoxville. Winning a component of that work requires building and maintaining a cleared workforce that is expensive to assemble and operationally fragile: a single adverse adjudication for a key supervisor can trigger operational disruption that cascades through the contract. A BSC without existing clearance infrastructure will spend 18–24 months building it before being competitive on the lab work. The civilian VA and courthouse track is more accessible and builds CPARS history faster, but the revenue ceiling is lower. Operators should pursue both tracks sequentially (civilian first, laboratory later) rather than simultaneously. Model the two-phase revenue ramp with the account profitability auditor.

Primary Sources

• SAM.gov: Contract Opportunities (NAICS 561720)
• SAM.gov: SCA Wage Determinations (Tennessee)
• GSA Inventory of Owned and Leased Properties
• SBA HUBZone Eligibility Map
• FAR Part 52: Solicitation Provisions
• Tennessee DOL: Workers’ Compensation
• DSBS: Dynamic Small Business Search
• BLS OEWS Metropolitan Area Wage Data

Review the companion commercial bid template for Knoxville, TN. Use the bid generator for the federal capability statement and the production rate calculator to model staffing levels for the VA Medical Center scope.

By the Opora Editorial Team · Last updated: 2026