DOL: If You Were an Independent Contractor, You Probably Still Are

Analysis January 10, 2024 at 10:34 AM
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Officials at the Labor Department have completed regulations that could determine whether or not you're really your own boss.

The DOL Wage and Hour Division published an employee and independent contractor final rule today in the Federal Register. The rule is set to take effect March 11.

Life insurers, agent groups and many individual agents, brokers and advisors wrote to the division to complain about the possibility that agents happily classified as self-employed people today could suddenly lose their independent contractor status.

Division officials maintain that the new regulations are like the old regulations that were in place before January 2021. "This rule is not intended to disrupt the businesses of independent contractors who are, as a matter of economic reality, in business for themselves," officials say in the official introduction to the regulations.

But officials also note that determination of a worker's status will depend on "the totality of the circumstances" and that they cannot say for certain whether an agent's legal relationship with a life insurer, ability or lack of ability to negotiate commission payment rates, level of spending on desks and computers, centrality to the insurer's operations or any other specific factors will make the agent the life insurer's employee.

What it means: Whether you, a financial professional, will be an independent contractor or an employee may depend on additional DOL regulations, future DOL guidance documents and federal court decisions.

The history: The federal Fair Labor Standards Act of 1938 sets the federal rules for matters such as the federal minimum wage and federal overtime pay requirements.

For decades, the Labor Department and federal courts used a five-factor "economic reality" test to decide whether a worker was an employee who was protected by FLSA rules or an independent contractor who was exempt from the rules.

Traditionally, many life insurance agents, brokers and advisors have preferred to operate as independent contractors to benefit from the federal income tax rules for self-employed people and to enjoy the privilege of not having a boss.

But some financial professionals have argued that they would be better off if life insurers classified them as employees. In 2009, for example, three former Northwestern Mutual Life representatives sued in a federal court in California over allegations that the company had deprived them of FLSA protections by classifying them as independent contractors.

In 2019, representatives for Uber drivers and other gig workers persuaded California lawmakers to pass Assembly Bill 5, legislation that established a broader definition of "employee" for California employers.

Federal efforts: The National Association of Insurance Commissioners and other agent and broker groups joined with the American Council of Life Insurers to oppose efforts by members of Congress to set a federal definition for employee that would be similar to the California definition.

During the administration of former President Donald Trump, the Labor Department tried to address the concerns about worker classification by adopting a new, shorter "core factors" test. Those regulations took effect in January 2021.

In October 2022, after Joe Biden became president, the department announced in a notice that it was planning to rescind and replace the new regulations because the new regulations were not fully compatible with the FLSA and conflicted with decades of court decisions based on the economic reality test.

Commenters sent the department 55,400 comments about the department's new draft regulations.

The new six-factor test: DOL officials now plan to use six factors to determine whether you or other workers are independent contractors:

  1. Opportunity for profit or loss depending on managerial skill.
  2. Investments by the worker and the potential employer.
  3. The degree of permanence of the work relationship.
  4. The nature and degree of control.
  5. The extent to which the work performed is an integral part of the potential employer's business.
  6. The worker's skill and initiative;

Life industry player concerns: DOL officials note in the preamble, or official introduction, to the final rule that NAIFA, Finseca, the American Council of Life Insurers and other life and annuity issuers and industry groups wrote to complain that the proposed regulations threaten the independent status of agents, brokers and advisors.

"Having considered the comments, the department continues to believe that this rulemaking will not jeopardize legitimate independent contracting arrangements," officials say in the preamble. "Fears to the contrary are not realistic given that the department is adopting guidance derived from the same analysis that courts have applied for decades."

The ACLI argued, for example, that requiring independent contractors to have the ability to set prices conflicts with the reality that life and annuity commission rates may be built into insurance regulations.

The ACLI also noted that any requirement that independent contractors be separate from companies might conflict with regulator requirements for life agents and brokers to have legal connections with life insurers.

In response to a DOL suggestion that independent contractor status might depend partly on how much agents and brokers invest in their businesses, the ACLI noted that the spending requirement might punish thrifty agents and brokers.

The DOL response to the concerns: Officials responded to the concerns by softening language in some sections and emphasizing the role of the "totality of the circumstances" analysis in providing flexibility.

In another section, relating to a worker's "managerial skill" and use of skill to impact economic success, the department changed the language to refer to a worker having an "opportunity" to exercise skill to affect success, rather than whether a worker actually succeeds in doing so.

Officials eliminated a requirement that producers or other employees spend as much as the employers.

"As an initial matter, the department is not giving any factor any greater predetermined weight than any of the other factors for all of the reasons explained in this final rule," officials say. "And as reiterated in this final rule, workers will not be 'deemed employees' when applying the economic realities analysis based on one fact or factor because the analysis considers the totality of the circumstances."

In a discussion of a section about how "integral," or central, a worker is to a business, the department said the "integral factor" would be just one part of the department's classification analysis.

The ACLI asked the department to state that the integral factor is, at most, a neutral factor for insurance workers.

Analysis of the integral factor "is specific to the factual circumstances of a particular relationship, and the department cannot broadly make a determination about the status of an entire sector of workers whose economic relationships are varied," DOL officials say in the preamble. "Therefore, the department declines to provide exemptions from a particular factor for certain industries."

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