DOL: Employee or Independent Contractor Status under the Fair Labor Standards Act (April 28, 2026)

The FMI – The Food Industry Association welcomes the opportunity to comment on the Department of Labor’s (DOL) notice of proposed rulemaking (NPRM) on Employee or Independent Contractor Status Under the Fair Labor Standards Act, Family and Medical Leave Act, and Migrant and Seasonal Agricultural Worker Protection Act (RIN 1235-AA46). FMI appreciates DOL’s recognition of the importance of independent contractors to various economic sectors, including the food industry, by proposing a flexible standard for determining worker status.

The food industry is also ever evolving due to many factors including supply chain challenges, consumer trends and demands, and economic conditions. Staffing options for manufacturing, warehousing, and retailing must remain flexible to meet these changes and demands. The NPRM recognizes the need for this operational flexibility in our industry.

Thus, FMI welcomes the prudent decision of DOL in this NPRM to readopt the independent contractor standard finalized in 2021, which FMI supported, and to rescind the divergent standard implement in 2024, which FMI opposed. FMI also appreciated that DOL acted on May 1, 2025, through Field Assistance Bulletin No. 2025-1, to not enforce the 2024 rule.

April 28, 2026 The Honorable Andrew Rogers Administrator Wage and Hour Division U.S. Department of Labor 200 Constitution Avenue, NW, Room S-3502 Washington, D.C. 20210 Submitted via regulations.gov RE: Employee or Independent Contractor Status; RIN 1235-AA46 Dear Administrator Rogers: The FMI – The Food Industry Association welcomes the opportunity to comment on the Department of Labor’s (DOL) notice of proposed rulemaking (NPRM) on Employee or Independent Contractor Status Under the Fair Labor Standards Act, Family and Medical Leave Act, and Migrant and Seasonal Agricultural Worker Protection Act (RIN 1235-AA46). FMI appreciates DOL’s recognition of the importance of independent contractors to various economic sectors, including the food industry, by proposing a flexible standard for determining worker status. As the food industry association, FMI works with and on behalf of the entire industry to advance a safer, healthier, and more efficient consumer food supply chain. FMI brings together a wide range of members across the value chain – from retailers that sell to consumers, to producers that supply food and other products, as well as a variety of companies providing critical services – to amplify the collective work of the industry. A collective of FMI’s membership manufactures, distributes, and sells the food and consumer goods that are found in pantries, refrigerators, medicine cabinets, and laundry rooms across the country. Our retail members, which range in size from independent operators to regional and large national and international businesses and brands, operate 45,000 grocery stores and 12,000 supermarket pharmacies. The food industry produces and supplies over 30,000 different food and consumer good products found on store shelves, employs over 6.3 million individuals, and ultimately touches the lives of more than 100 million U.S. households per week. FMI members have unique needs in meeting staffing requirements in stores, distribution facilities, and divisions throughout business operations. The food industry provides a wide range of full-time, part-time, seasonal, and flexible workforce opportunities in a variety of careers, and serves as an essential employer in every community around the country. The diversity of career 2 opportu nities offered through the food industry provides employment to individuals at any stage of life and with any education and skill level. In addition to hiring direct employees, these busiApril nesse28, 2s ful026 fill operational needs through vendors, contracts, and temporary staffing rel ationships. All businesses along the supply chain utilize a host of local, regional, and national vendThe Hors, conorable ontracAtorsndre, andw Rogers outsid e staffing to supply products and move goods. A dministrator ThWage ande food in Hdustour Dry ivisisi alsoon ever evolving due to many factors including supply chain challenges, cU.S. Donsumeper artmetrends nt ofand Ladebomandr s, and economic conditions. Staffing options for manufacturing, 2w0arehousi0 Constitng, utiand on Aretvenuailine,g NW, Room must remain S-3flex502ib le to meet these changes and demands. The WashingNPRM recton, ogniDz.C. es t20he 21ne0 ed for this operational flexibility in our industry. ThSubmius, FMttedI w velia cregomes ulatithe onpruds.govent decision of DOL in this NPRM to readopt the independent 1 c ontractor standard finalized in 2021, which FMI supported , and to rescind the divergent 2 standRE: Emplard ioympeele or Iment ndeinp 2e0n2de4, nwt Chiconth FMraIctor opposedStatu.s FM; RIN I also appre1235-AAc4iat6 ed that DOL acted on May 1 , 2025, through Field Assistance Bulletin No. 2025-1, to not enforce the 2024 rule. Dear Administrator Rogers: Un der the NPRM and 2021 rule, five factors are applied to assess the totality of the Thcirce umFMstI an– Thces e to Fooded teIndurmistry Ane whetssocher, iationas a m welattecomer ofs t ehe conomiopportuc renialityty t, a o cwommorker ients e on ither the ecDepartmonomiceallnt yof d Lepenaboder’s nt (Don a pOL) notiotence tiofal pemroposedployer rufor wlemakingork or i (Ns iPn RMbusi) oness n Empfoloyr herseee or lf or himself. IInden thepen NPdeRMnt andContrac 202tor 1 rulStatus e, DOUnL wdeiser tly elhe evFaatedir La btwor Standao factors as rds Acore fct, Faacmitoly rs band ecMause tedical heLyeave are Amostct, and probatiMigrant ve on tand he Suleatisonal mate qAgriuestculion tural of eWorkconoemir Proc dteepection Andencct e (RIand N 1hen235c-e AshoulA46).d FMcarrI y more apprecweight. Tiathes eseDO core fL’s recacogtonirs are: tion of t(1) thehe im nature portancand e ofde igrendee penof cdeontrolnt contrac over wtors orkto ; and various (2) an ecindionomividualc’s seopportuctors, inniclutydi for profitng the food i or loss.ndu Thstre y, NPbyR proposiM and 2ng 02a flex1 ruleib also ile standedard ntify tfohreer de addtermiitionning al faworkctors ter statuhat as.c t as guideposts in the event a decision cannot be made based on the two core fa ctors alone. These factors are: (1) the amount of skill required for the work; (2) the degree of Aperms the anenfood ce inofdust the ryw assorking ociatrelion, atiFMonshiI wp orkbets wweeith n and the ion bndiviehaldualf of and the the entpoire teinntidustal emry tplo advoyer; ancane d (3a saf) wer, hetheher altthehier, worand k is mopare rt effof an icient inteconsumgrated uer nifot oofd psupplroduyc ction.hain. FMFMI bI belriiengs ves togthatet ther his approaa wide ch is range groundof medem in bera stres acamlrossined the , evalueasy t co hain comp– rehefrom nrd etecailonomiers thatc re sealill tito es cteonsumst and ers, repreto produsents acers n artithatc suulatipplon y fwood andell-suite otd fhor ter produhe 21st cts, centas wurely wl as a orkforcvariee.ty of companies providing critical services – to amplify the collective work of the industry. Conversel y, the 2024 rule adopted a six-factor totality of the circumstances test based on the foA cllollowecintig ve facoftors: ( FMI’s 1) oppmembortuniershityp fomanufr profacittur andes, losdistris depebutes, ndiand ng on msells anagethe food andrial skill; c(2onsum) er ingoods vestmethatnts are by tfohe undwork in pantrier and es, therefrig emperloyators, mer; (3) eddeicgreine e cofabine permts, anence and laundof thery roo worms k across the crelountry. Oationship; (ur ret4) natureail mem abnd ers, dewgrehice h ofrange controlin si; (z5e ) frexom tent indeto penwhicdeh nt theo peratwork pors terformedo regional is an and “largintee gralnati” ponal art and of the inteemrnplatioyonal er’s busibusinesseness; and s and (6br) skilands, opl and erinate itiat4iv5e; ,00w0it ghorout ceryassig stores andning spec ial w12ei,0ght00 su to anpermy of tarkheseet phar facmactors. ies. TAs nhe otedfood in inthedust NPryRM produc, the 2es 02and 4 rusule fpplailieeds ove to provir 30,0de0 e0 dffeifcferenttive foguiod dancand e cregonsumarding er hogoowd theproduse dicffts erenfoundt fa on ctorstos shre ouldshel bvese w, eeimpgheloyd s oor ver appl6ie.3d mtogillion iether, ndicviredualating s, and uncertultiaintmatey andly touc risk whes hethe n englives agiofng minore tdivihan dual1s a00s i mndeillion Upende.S. househnt contracoldtors ps. er The week.NPR M and 2021 rule and their streamlined core factors approach provide vital clarity to employers while acFMcIounti memng bers for thave he ecunionoquemi nceed realis itin es meofet the ing modstaffeinrn g wreqorldui. remBecentause of s in storeour s, drazorist-rithibutn ion margins, facilities, and divisions throughout business operations. The food industry provides a wide range of full-time, part-time, seasonal, and flexible workforce opportunities in a variety of careers, and 1 FMI comments on RIN1235-AA34 Independent Contractor Status under FLSA, October 26, 2020 serves as an essential employer in every community around the country. The diversity of career 2 FMI comments on RIN1235-AA443 Employee or Independent Contractor Classification under FLSA, December 12, 2022 23 theopportu food ininduties stroffered y is partithrcough ularlythe vul food inerablndue to stranyy p regrovidulatoryes em stplrucoymeture, nt lito ke inthedivi 20dual24 rus at anyle, that destage presse of ls iife nnovatiand witve h oanpey eratiduconal ation andmodels and skill le invelcreases . In addiboth tion tuno hicertriaintng ydi arecnd t liemtigatiployon.ees, these busi April nesse28, 2s ful026 fill operational needs through vendors, contracts, and temporary staffing relFurtheationshir, the ps. ANPRll bMusi andnesse 202s al1 ruong le, as thew suell pplas thy ce h2ain 024uti rulizlee , pea host rmit ofaddi loctial, ronal egunnameional, and d fanatictorons ial n an iThvende ndeHors, conorable penontracdent Actorsndreontra, andwc Rtor analogers outsid ye sisstaff if theing fato ctors suppltendy produc to showts and whetmoheve r tgohe wods.ork er is in business A fodmr herinistselratorf or hi mself or reliant on a business for work. As the NPRM notes, the 2024 rule cited ThtheWage ande addfood itionalin Hdustou ur Dnnamery ivisisi alsoond feveactors r evolvfolloinwgin dueg the to m sixa-nyfac factor tors totaliintyclu of tding he suppcirculy cmsthain ances challtest engand es, thucU.S. Donsums, wepas ier artmentetrends rnt pretofand ed La as debomandirf a seves, and n- oecr monomiore-facc ctorondis htiad tons. o beStaff coinnsig odeptredions in fo ervery c manufase tacturo ing, 2cwlassi0arehousi0 Constfy a witng, orkutiand on Aer. Thretvenuis ailapine,proag NW, Room much st cremreatedain S-3 uflex5n0c2ibert leain to mty andeet c theseonfusi changeon among s andbusi demnesseands.s. ThFMe I apprecWashingNPRM riates ecton, ognithatDz.C. e ts the 20he 2N1neP0R edM re for tcognihis opezes thiratis onmial saliflegxinedbili ctyit atiin our on, reinitdusteraterys t. hat the underlying ec onomic reality test is based on two core factors, and notes that "...additional factors will not be cThSubmionsidus, FMtterededI w v ielia n cmanregomes ulyati ctasehe ons bpruds.govecentause t deche isionident ofifi DedOL f acin ttors his NPwill Rbe M more to readothan pt suffthe iicientndepen to mdeaknt e the 1 cde ontractermitor natistandon.” ard finalized in 2021, which FMI supported , and to rescind the divergent 2 standRE: Emplard ioympeele or Iment ndeinp 2e0n2de4, nwt Chiconth FMraIctor opposedStatu.s FM; RIN I also appre1235-AAc4iat6 ed that DOL acted on May I1 n , 2c0onc25, tlusiohronugh, FM FieI apldpre Assiciatstances thate Bul the letiNn PNo.RM 2 re02a5dopt-1, to s thenot indeenforcpene dethent 2c0ontrac24 ruletor st. andard undD ear er Athedm in20ist21rat ruor Rogele and rrsesc: inds the standard under the 2024 rule. The NPRM provides clarity Un and decr tonhsise teNPncRyM t ao ennd sur202e 1that rule b, five usinessefactors s andare waopplrkers have ied to assess tthe flexhe ibtotilitaly andity of t tools he by which to Thdecirce teumFMrmistIne an– Thcthees e irto Foo pderospecd teIndurmitivstry Ane e wwhetorkssocher, iniatg relionas a mati wonshielattecomeps.r ofs t We appr ehe conomiopportuecciat renie alityytyour c t, a o cwommonorker isidenteratis e on on of tither the hese Deccommepartmonomientces aallnt ynd of d Leour ppenaboder’srior nt (Ddeon a pOLtai) notileotend cce ommtiofal pementroposedpls fioleyer d ruonfor wle makingtheor NPk or iRM (Ns is iPn Rn Mbusi2) o02ness n 0 Eampnd foloy2r 0herse2ee 2. or lf or himself. IInden thepen NPdeRMnt andContrac 202tor 1 rulStatus e, DOUnL wdeiser tly elhe evFaatedir La btwor Standao factors as rds Acore fct, Faacmitoly rs band ecMause tedical heLyeave are AmostSincct, ereland probatiyM, igrant ve on tand he Suleatisonal mate qAgriuestculion tural of eWorkconoemir Proc dteepection Andencct e (RIand N 1hen235c-e AshoulA46).d FMcarrI y more wappreceight. Tiathes eseDO core fL’s recacogtonirs are: tion of t(1) thehe im nature portancand e ofde igrendee penof cdeontrolnt contrac over wtors orkto ; and various (2) an ecindionomividualc’s seopportuctors, inniclutydi for profitng the food i or loss.ndu Thstre y, NPbyR proposiM and 2ng 02a flex1 ruleib also ile standedard ntify tfohreer de addtermiitionning al faworkctors ter statuhat as.c t as guideposts in the event a decision cannot be made based on the two core Christine Pollack fa ctors alone. These factors are: (1) the amount of skill required for the work; (2) the degree of Vice President, Government Relations permAs the anenfood ce inofdust the ryw assorking ociatrelion, atiFMonshiI wp orkbets wweeith n and the ion bndiviehaldualf of and the the entpoire teinntidustal emry tplo advoyer; ancane d (3a saf) wer, hetheher altthehier, worand k is mopare rt effof an icient inteconsumgrated uer nifot oofd psupplroduyc ction.hain. FMFMI bI belriiengs ves togthatet ther his approaa wide ch is range groundof medem in bera stres acamlrossined the , evalueasy t co hain comp– rehefrom nrd etecailonomiers thatc re sealill tito es cteonsumst and ers, repreto produsents acers n artithatc suulatipplon y fwood andell-suite otd fhor ter produhe 21st cts, centas wurely wl as a orkforcvariee.ty of companies providing critical services – to amplify the collective work of the industry. Conversel y, the 2024 rule adopted a six-factor totality of the circumstances test based on the Afo cllollowecintig ve facoftors: ( FMI’s 1) oppmembortuniershityp fomanufr profacittur andes, losdistris depebutes, ndiand ng on msells anagethe food andrial skill; c(2onsum) er ingoods vestmethatnts are by tfohe undwork in pantrier and es, therefrig emperloyators, mer; (3) eddeicgreine e cofabine permts, anence and laundof thery roo worms k across the crelountry. Oationship; (ur ret4) natureail mem abnd ers, dewgrehice h ofrange controlin si; (z5e ) frexom tent indeto penwhicdeh nt theo peratwork pors terformedo regional is an and “largintee gralnati” ponal art and of the inteemrnplatioyonal er’s busibusinesseness; and s and (6br) skilands, opl and erinate itiat4iv5e; ,00w0it ghorout ceryassig stores andning spec ial w12ei,0ght00 su to anpermy of tarkheseet phar facmactors. ies. TAs nhe otedfood in inthedust NPryRM produc, the 2es 02and 4 rusule fpplailieeds ove to provir 30,0de0 e0 dffeifcferenttive foguiod dancand e cregonsumarding er hogoowd theproduse dicffts erenfoundt fa on ctorstos shre ouldshel bvese w, eeimpgheloyd s oor ver appl6ie.3d mtogillion iether, ndicviredualating s, and uncertultiaintmatey andly touc risk whes hethe n englives agiofng minore tdivihan dual1s a00s i mndeillion Upende.S. househnt contracoldtors ps. er The week.NPR M and 2 021 rule and their streamlined core factors approach provide vital clarity to employers while FMaccIounti memng bers for thave he ecunionoquemi nceed realis itin es meofet the ing modstaffeinrn g wreqorldui. remBecentause of s in storeour s, drazorist-rithibutn ion margins, facilities, and divisions throughout business operations. The food industry provides a wide range of full-time, part-time, seasonal, and flexible workforce opportunities in a variety of careers, and 1 FMI comments on RIN1235-AA34 Independent Contractor Status under FLSA, October 26, 2020 serves as an essential employer in every community around the country. The diversity of career 2 FMI comments on RIN1235-AA443 Employee or Independent Contractor Classification under FLSA, December 12, 2022