I think USTA needs more levels. 3.5, 4.0, and 4.5 are probably 90% of the USTA levels with the vast majority of those being in the 3.5 and 4.0 levels. They need about 5 or 6 levels that include 90% of the players - like 3.25, 3.5, 3.75, 4.0, 4.25 and 4.5. Then the really bad or really good 10% would be 3.0 or lower or 5.0 or higher.
I play in ALTA in Atlanta and they have too many level C1, C2... thru C8, B1 thru B8, A1 thru A8, and AA1, AA2, and AA3. That's 27 levels which is a bit extreme.
But, USTA needs more levels in the middle groups where 90% of the players reside.