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WBURFreelancers Fight State’s Independent Contractor Law

Freelance illustrator Ken Dubrowski calls the state's law for independent contractors a "Scarlet Letter" for those in creative industries. (Andrea Shea/WBUR)

BOSTON — Let’s say you’re an independent contractor based in the Berkshires, and you work from home as a freelance writer. Then let’s say you get an e-mail from one of your main clients, a big, out-of-state publishing company. You’re informed they won’t be giving you any more assignments. In fact, the company has pretty much blacklisted Massachusetts independent contractors altogether.

“All the industries we’re trying to grow in the creative economy, we’ve now just put up a huge roadblock,” says Kathy Bitetti.

Bitetti calls this a horror story that’s playing out across the state. She’s a tireless arts advocate, constantly roaming Beacon Hill’s halls, cornering politicians, going to bat for artist health care and housing. Now she’s obsessed with the Massachusetts Independent Contractor Law.

“We’ve been very quiet about it because we’ve been trying to fix it,” Bitetti says. “But now it’s just like, forget it, you know, this is really a problem, and the fact that our writers cannot get work, and it’s going to start hitting our graphic designers, our illustrators.”

Longtime freelance illustrator Ken Dubrowski says he’s already feeling it. Some of his out-of-state clients are in a tizzy. They’re confused by the state law.

“It’s like a stigma, you know, the Scarlet Letter,” Dubrowski says. “It’s like, ‘Oh my God, I’m from Massachusetts, what does that mean?’ This tax law, this Independent Contractor’s Law.”

So, what exactly is the law? And how did we get here?

“It’s a law that went into effect in 1990,” says Waltham employment attorney Robert Shea, who consults corporate clients about this law all the time. “And it was tweaked in 2004 to deal with a concern about the use of independent contractors in the construction area, and the tweak has had a lot of unintended consequences.”

In a 2005 article, Shea predicted the “tweak” would reach beyond the construction industry. It has.

But in a nutshell — if complex law can ever be put into a nutshell — the law was created to prevent worker exploitation. Companies hiring, say, a carpenter would classify him or her as an independent contractor to save money on payroll, taxes and benefits. Under the tweaked law, that carpenter must be granted employee status unless he or she performs duties “outside the usual course of business.” What that means, exactly, can seem gray. And there are other criteria that must be met.

Critics say the law is broadly written, making it susceptible to open interpretation.

But, bottom line, classifying workers as independent contractors now requires major hoop-jumping. If employers get busted classifying incorrectly — say, giving a worker a 1099 form at tax time rather than a W-2 — they’ll face hefty fines. The attorney general’s office is charged with enforcing the law.

“This law applies to so many different businesses that use so many different types of independent contractors,” Shea says, including bike messengers, delivery drivers and accountants. And it protects a lot of them. But, the attorney adds, writers and artists are a different breed. “I mean, they’re a clear victim of this change in the law,” he says, somewhat bemused.

Artist Bitetti says — whether by design or by accident — the law needs to change. Not every worker wants a W-2.

“Most of us are independent contractors and we want to be because once you’re classified as an employee you don’t own any rights to your intellectual property,” she says, “whether you’re a visual artist, a dancer, an engineer, videogamer.”

Bitetti is endeavoring for an amendment to acknowledge this. But Frank Callahan, president of the Massachusetts Building Trades Council, is wary.

“At the risk of sounding very stubborn, we’ve been working on this very hard for over six years,” he explains, “and we’re always open to any change that could address legitimate concerns without impacting the workforce as a whole in a negative manner.”

Callahan was a prime mover on the 2004 amendment. He represents 74 local unions and says the law is doing exactly what it was intended to do — especially in the drywall and painting industries.

“I haven’t seen the unintended consequences that you reference,” Callahan says. “We heard this argument back in 2004 and 2005. They trotted out a number of different groups — the hair dressers, the bike messengers.”

And they’re fine, he says. But state Rep. Smitty Pignatelli, D-Lenox, is concerned about the law’s unintended impact ripping through his district. Many of his constituents are indie artists, and he says western Massachusetts — and the state as a whole — really can’t afford to lose its creative workforce because of this law.

“This creative economy is certainly putting people back to work and all I know is out in the Berkshires, if it wasn’t for the creative economy, I’m not sure where the Berkshires would be on the radar map at this point,” he says.

Pignatelli also co-chairs the House’s Cultural Caucus, which is organizing an upcoming forum at the State House to educate legislators and artists unions on the contractor law — a lot of people don’t know the law exists. Or how it really works. But Sen. Thomas McGee, D-Lynn, does. He voted on the more restrictive version back in 2004.

“There’s strong, legitimate arguments on both sides of this issue, so you don’t want to blow up a piece of legislation that’s doing what it was intended to do,” McGee says.

At the same time


“We have been able to clearly recognize — particularly in the arts and in freelance writing — that there is an impact that is not an intended impact and that we are trying to address,” he adds.

McGee, also chairman of the Committee for Workforce and Labor Development, introduced a draft of a new amendment to the law a few weeks ago. It didn’t make it out of committee, though. Bitetti calls it a nice try, but says “it doesn’t even come close to fixing it.”

While Massachusetts tries to figure it out, other states are also starting to crack down on companies that incorrectly classify independent contractors. And there’s movement on the federal level to do the same.

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  • I believe that “big brother” is getting too big for his britches. Controlling and now allowing creativity is not how this country developed and grew. What is most important and overlooked is that if one chooses to work independently (forfeit workers compensation and other company benefits i.e. health insurance) and to pay his/her own taxes this is an option that should be allowed. What is free about America if everything is dictated. Bottom line is that I.C.’s or employers/employees pay taxes.

    Posted by Joan Millet on July 21, 2010, at 9:39 PM
  • The Independent Contractor “act” became law because it was introduced quietly (and innocently, I believe) under the legislative radar. Those who knew about the bill, when introduced, apparently weren’t adequately informed about intellectual property – surprising but true. Are not most legislators lawyers?

    So it appears this is both a failure of the legislative process and our legislators’ scrutiny – who else would be trained in all aspects of the law so as to protect the public from these unintended consequences?

    For the record, I would like to add a bit of background to Adrea’s well researched and cogent presentation.

    As both a concerned artist and long-time labor union member, I felt it my responsibility this Spring to contribute to a solution to this needless Independent Contractor impasse. I undertook the initiative to speak together with Frank Callahan and Senator Steve Tolman, a great union friend, to request a “sit down” to sort out a solution. Senator Tolman generously offered his services in support of a solution that would protect and promote the interests of both the intellectual property community and organized labor. I succeeded, with kind support of Kathy Bitetti, in arranging a time with Senator Tolman and key people in the Mass Cultural Council, the AG’s office, artists leaders such as artistsunderthedome.org and several interested state reps. Frank Callanhan, who “owns” this law, was the only person not interested enough to return phone calls despite repeated attempts. Many, like the tireless Kathy Bitetti, volunteer their time to advocate in support of fairness and equal opportunity for every worker and artist in this state. Their efforts apparently were not worth consideration by this bill’s proponent. I know personally that Mr. Callahan knows this is a problem for artists and others who create IP. To say otherwise is disingenuous.

    Unions are having a very tough time politically in Massachusetts despite some comments on this page thinking “Labor” owns the Democratic Party. In truth, both political parties have been hammering away at labor. Organized labor desperately needs to get idle members back to work – nearly 30% of its statewide membership are laid off. Isn’t it true, though, that many people in Massachusetts need to “get back to work”, union or not? In other words, labor leaders need to wake up and support ALL people in difficulty, especially those they needlessly put in jeopardy with this law. The election of Senator Brown was just a warning shot across the bow. Labor needs to make the proper strategic adjustment now more than ever.

    Posted by Don Schaefer on July 13, 2010, at 7:19 PM
  • It’s not only writers and graphic designers, but also software developers, tech consultants, and, my industry, freelance translators and interpreters.
    I translate for companies whose main business is translation. The thing is, they may have a project in my language pair and area of expertise today, and not have another for 6 months, while working in other areas or languages. It would make no sense for them to put me on full-time.

    Posted by tony on July 1, 2010, at 9:40 PM
  • I’ve worked as a contract software developer since 1992. Most of the time, I have to work via staffing agencies, since the majority of companies don’t want to even try to navigate the vague federal laws regarding independent contractor status. The Massachusetts legislation just makes it even more difficult for those of us who choose to work independently to get work.

    It’s not just the “creative” freelancers who have to worry about IP. Software developers fall into this category, as well. If I had software that I created and wanted to retain my rights to, I would have a hard time actually using it as part of most work I do because of the kinds of contracts companies insist on having via the staffing firms.

    This law also has a high impact on small businesses. Many of them don’t need or have the resources to hire a permanent employee to handle a lot of functions. For example, they may not need a network engineer on staff full time, but only when they have upgrade projects or need a problem fixed. The same goes for a company that develops software. What if they get a contract to produce some software for a company or the government, but with no guarantee of follow-on work? Why should they have to hire permanent staffers only to lay them off afterward. They should have the option of hiring freelancers if they want, even if developing software is a regular part of their business.

    It really doesn’t surprise me that the unions are pushing this. Like another poster has mentioned, they would really love to unionize us, which I don’t feel would do anything except cost us more money (like what we already lose to staffing firms) and make us even less likely to be hired due to higher costs and prohibitive work rules. Personally, I work as a contractor so *I* can be in control of my work life and not some company for whom I happen to work. I don’t need another “nanny” organization to take care of me. I get paid quite well for what I do and pay the appropriate taxes, so I’m in no way exploiting or being exploited by being a freelancer. Laws like this simply deny freelancers the ability to work the way they choose.

    Posted by Anita Wilcox on July 1, 2010, at 5:37 PM
  • As someone who’s been an independent contractor (IC) and done business with independent contractors for 25 years (mostly within publishing), this article only touches on what has huge potential for becoming a major problem for IC creatives, but also all ICs.

    The afterthought line at the end — “And there’s movement on the federal level to do the same” — doesn’t even begin to describe what’s going on at the federal level. There are multiple bills in Congress right now that will essentially take this Massachusetts law to a national level if they get passed. If that were to happen, it may become very difficult or even impossible for creatives (and many ICs in general) to get clients. As some of the tales in these comments reveal, clients will instead shift toward employed creatives or those hired by services-referral agencies (like temp agencies). Outsourcing overseas, which has already hurt creatives here in the U.S., will be even more appealing.

    Why? The risk (again, if Congress passes these bills) is monumental for companies. The penalties for misclassifying someone as an independent contractor instead of employee would amount to thousands of dollars per worker *per incident*, not to mention back taxes. So, a single IC “misclassified” for a 30-day project could be interpreted as being a violation 30 times. Not only that, this law would NOT require intent — i.e., even if the client had done it by mistake, they’d still be immediately liable for the penalties and would have to prove otherwise through an appeal. In other words, the burden of proof for misclassification would shift from the IRS to the client. As a result, most clients will find themselves in a position whereby they can’t afford to defend themselves — or proactively avoid the problem by simply not hiring independent contractors in the first place. Worse yet, small- to mid-size clients are at significant risk because they don’t likely have sophisticated legal counsel at their disposal that’s necessary to navigate what would be complex regulation.

    Of course, you ICs out there who contract or sub-contract other ICs, as I do, you have two ways to get slammed in this.

    So, please spread the word among the creative professionals in your circles. This situation is serious. Because there are huge tax revenues and penalties at stake, and the government is strapped for cash, they are pushing hard for this. I co-preside over a large publishers and writers association in San Diego, and we’re going to get the word out. Do the same in your associations, groups, or whatever. Also, check out the Coalition to Preserve Independent Contractor Status at ICCoalition.org. Read their statement under “Latest News” about this legislation, called the Employee Misclassification Prevention Act (S. 3254).

    Posted by Andrew Chapman on July 1, 2010, at 4:01 PM
  • You can not HIRE independent contractor. You can HIRE an employee.

    Posted by Kimberley Winslow on June 30, 2010, at 3:46 PM
  • Over the past ten years the artist’s community, comprised of photographers, illustrators, artists, musicians and other similar fields have seen their intellectual property become the commerce for corporations who wish to seize control of this property and profit without compensation to the creators of the work. This attempted corporate takeover of our industry has resulted in a loss of revenue to artists as well as a loss of taxable revenue to states such as our own.

    The Massachusetts Independent Contractors Law which was initiated by unions, reclassifies freelance creators who produce intellectual property as employees. This creates two dramatically illegal effects to freelance creators. Both result in the illegal confiscation of a creator’s property and copyright licensing revenue. First, it imposes an illegal Work-for-Hire copyright status upon freelance creators – who are also known as “authors” and violates current U.S. Copyright Law. Second it imposes an illegal employee status upon freelance creators – also known as independent contractors, that violates the Wagner Act or the National Labor Relations Act.

    Unions have tried in the past to unionize the independent freelancer community but by law they were prevented to so. This new law creates an atmosphere to classify independent contractors as employees who could lose authorship of their work to their employers. Unions could seize on this opportunity that they helped create to demand an artist’s union to protect these newly declared employees. We would have to ask ourselves if we as an artist’s community should allow a situationin which we would be lose authorship of our work that we have currently, for a union to come in demand membership to negotiate on our behalf with large corporations the rights we already have and the freedoms that we enjoy as independents?

    In 2004, the Conyers bill was a national attempt by one union (the UAW/GAG Local 3030) to forcibly legislate an unwanted freelance artists union by re-classifying freelance artists as employees for the purpose of collective bargaining. It was defeated when the Illustrators’ Partnership of America (IPA) exposed its irreconcilable legal conflicts with US Copyright Law and the National Labor Relations Act. Now we have another attempt in a different method.

    There have been other recent federal and state attempts to weaken creators’ exclusive rights in order to gain a financial stake in their copyrights. The Orphan Works Bill is one example of corporations trying to gain control of our domestic royalties. Artists have already seen their earned foreign royalties diverted to non-profit organizations that have illegally claimed to represent independent contractors’ copyrights. These losses not only deprive artists from their earned income, but deprive states and the US Treasury from revenue by diverting taxable royalties to non-profits.

    I believe an amendment to the Independent Contractors Law to those who produce intellectual property is needed immediately and only we need to speak out quickly and with more assertion to our representatives.

    Posted by Ken Dubrowski on June 30, 2010, at 1:17 PM
  • I’ve been an independent software developer for more than a decade. The first time I heard of this law was in wrapping up negotiations with a new potential client (which happens to be the largest company working in the particular software niche I specialize in.) We were all set to finish the deal when one of their lawyers notices, “oh, wait, you live in Massachusetts? Sorry, we can’t work with you.” And that was the end of that.

    I understand and support the intent behind this law, but as it stands currently it’s obviously broken.

    Posted by Daniel Beck on June 30, 2010, at 12:33 PM
  • Great story. I have been a Photo Researcher, working as an Independent Contractor by choice, in the publishing industry for 20 years. At this point, I am not able to obtain work due to the Independent Contractor Law.

    Several of us have been working to amend this law for the past year. We have a blog http://masscontractors.blogspot.com/ where you can follow the progress of any potential changes to the law. We also have a petition http://www.thepetitionsite.com/1/fix-the-massachusetts-freelancer-law that one can sign and make a comment if you would like to see the law changed.

    Posted by Laurie Frankenthaler on June 30, 2010, at 11:52 AM
  • For years, I was a freelance graphic designer. As an owner of a sole-proprietor design business now, I still get my 30 or 40 1099s at tax time. I also hire artists, photographers and writers. (In fact, I have hired Ken Dubrowski, profiled in this report.)

    As someone who serves the nonprofit sector primarily, for me, it is essential that artists and photographers maintain the rights to their work. I am often in the position of having to negotiate prices for my cash-poor clients. Many creatives have been quite generous, discounting their work for the common good. The fact that they retain the rights to their work provides them with the opportunity to re-sell that work at a later date, thus making it easier for them to offer my nonprofit clients a discount.

    Creative contractors spend a lifetime honing their skills, often working for next to nothing (or sometimes nothing) in their early years in order to build a portfolio. They don’t get to climb a corporate ladder. They don’t get matching funds in 401k accounts. They don’t get health insurance or paid vacations. They do retain the right to resell their creations. They’ve earned it.

    Let me end with a brief story. More than a decade ago, I hired an artist to do a technical drawing for a nonprofit newsletter I designed. The Boston Globe Magazine took interest in the report and asked the nonprofit group if they could “borrow” the basic script of the story and re-use the artwork. They were given permission. However, the writer, the designer (me), and the illustrator were all contract employees who retained the rights to our work. Frankly, I was flattered and I didn’t consider remuneration. However, the illustrator’s manager sued the Globe, reaching a settlement before it went to court. This is as it should be. I had negotiated a price with the illustrator worth approximately half of the work’s market value. His only hope of making a living wage was to resell the artwork at some point in the future.

    I agree with the previous writer. A simple rewrite to the law would protect those who it intended to protect, and protect the right of creatives to make a living wage.

    Posted by David Gerratt on June 30, 2010, at 9:19 AM
  • I’m running into this problem now. I took a layoff from a writing job in a department one of the schools in a major area university, which was a good move for me. Now, the university cites this law (and perhaps IRS regulations) to tell me my layoff status makes me ineligible to do any freelance writing for any department or school or program of this vast university. This is ridiculous. It affects freelance relationships I’ve had that preceded my employment. I’m sympathetic with the need to protect against exploitation, but I need a tweak in the law to support my right to freelance.

    Posted by ccmorton on June 30, 2010, at 9:12 AM
  • This is why unions get a bad name. They often over-reach. Make the law narrow for construction workers if you have to. I have a friend who works for a major publishing company. They won’t hire MA independent contractors because of this law.

    I am an independent contractor in urban planning. I’m hoping my major clients don’t hear about this law.

    Posted by Mark on June 30, 2010, at 9:03 AM
  • This report missed two important points. First, the report made it seem that only or mainly artists and people in the so-called creative economy are impacted by the independent contractor law. However, all independent contractors including technical and business consultants are affected. Second, and most importantly, the report made it seem like there is some legitimacy to both views on this law–an opinion stated clearly by Senator McGee–“There’s strong, legitimate arguments on both sides of this issue, so you don’t want to blow up a piece of legislation that’s doing what it was intended to do,”

    However, that is just nonsense. It would be trivially easy to change the wording of the law to provide union and construction workers with all the protection the current law provides while also allowing those people who choose to be independent contractors, and whose livelihood depends on them being so, to be able to earn a living. The REAL issue is that the Massachusetts legislature is beholden to the unions, and the unions say no. What we have here is a clear case of political corruption and special interests destroying the lives of people who are being denied the ability to work. That is the real bottom line in this case–nothing else.

    Posted by Roy Mallory on June 30, 2010, at 7:19 AM
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