I. INTRODUCTION
Generally, when a company wants to challenge a finding of employment by the Texas Workforce Commission (the "TWC") under the Texas Unemployment Compensation Act, the company follows a statutorily prescribed administrative appeals process. Once the TWC renders a final decision, the company may still then appeal the decision to a court of competent jurisdiction to review the agency's decision. Here, however, the parties never engaged in the statutorily prescribed administrative appeals process regarding the employment status of certain truck drivers who provide services to Pioneer Carriers, LLC (the "Debtor") and, thus, the TWC never rendered a final decision on the issue. Instead, as detailed more fully below, the issue of whether the truck drivers who provide services to the Debtor are the Debtor's employees or are independent contractors was brought before this Court via proofs of claim filed by the TWC.
On February 17, 2017, the TWC filed a proof of claim in the amount of $26,100.92 for alleged pre-petition unpaid unemployment taxes ("Claim No. 8"), owed by the Debtor, one of the debtors in this jointly
Pursuant to Federal Bankruptcy Rules 7052 and 9014,
II. FINDINGS OF FACT
1. The Debtor is a privately-held company owned 100% by Pedro Lagos ("Lagos").
2. The Debtor was founded in 2014 and its headquarters are located at 724 E 19th Street, Houston, Texas 77008. The Debtor is in the business of transporting crude oil from sites to pipelines by contracting with individual truckers who operate the Debtor's fleet of trucks and trailers.
3. The Debtor owns 16 trucks and 26 trailers.
4. Lagos negotiates with individual truckers to transport crude oil for the Debtor's customers. There are no written contracts signed between the Debtor and the individual truckers.
6. The Debtor provides no training to the individuals who drive the Debtor's trucks in transporting the crude oil for the Debtor's customers.
7. There is no question that without the Debtor's use of these truck drivers, the Debtor's operations could not be carried out. Stated differently, the Debtor's success depends upon these individuals delivering the crude oil.
8. Once Lagos negotiates with an individual for a specific job, that individual is allowed to assign this task to another individual so long as that individual (a) is properly licensed under applicable state and federal law to operate a truck; and (b) has previously transported oil for the Debtor.
9. The individuals whom Lagos retains to deliver crude do not supervise any helpers; rather, they operate the trucks by themselves without assistance.
10. Since its inception, the Debtor has always experienced a high turnover rate among the individual truck drivers it has used. Indeed, Lagos testified at the Hearing that the Debtor's biggest challenge is driver retention. Stated differently, the truck drivers that the Debtor has used do not constantly work for the Debtor, but rather come and go and drive routes for other companies.
11. The individuals who deliver crude for the Debtor work on their own time and set their own schedules for driving the trucks to deliver the crude. The Debtor does not set their schedules.
12. The individuals who deliver crude for the Debtor do not devote full time service to the Debtor exclusively. Rather, they enter into agreements with other companies to drive their trucks as well.
13. The truck drivers who enter into agreements with the Debtor to deliver crude oil choose when to do so and also choose what routes they want to drive. Very infrequently, about 2% of the time, a customer will have a specific need on the sequence of the loads. When this occurs, the Debtor contacts the driver assigned to the load to check whether the customer's needs align with the sequence the driver is willing to undertake. If the driver does not want to follow the sequence set out by the customer, then the Debtor must find another driver who is willing to follow the sequence as requested by the customer.
14. The Debtor does not require that the individuals who deliver crude submit regular oral or written reports about the work in progress. Stated differently, these individuals are not required to notify the Debtor how many hours they have been on the road and how many hours they still have to be on the road to deliver the crude.
15. The Debtor pays the individuals who deliver the crude by invoice. Stated differently, these individuals receive payment only after they have actually delivered the crude and the Debtor has received payment from the customer.
16. The Debtor does not pay the travel expenses of the individuals who deliver the
17. The Debtor does not provide individual truckers with the clothing and accessories required by applicable law, such as hard hats, fire retardant clothing, steel-toed boots, and safety glasses. The truck drivers must provide these items by themselves or purchase such items from the Debtor. For those individuals who are not owner/operators (i.e., who own their own trucks), the Debtor does supply one of the trucks from its own fleet for the individual to deliver the crude.
18. The individuals who make deliveries for the Debtor, but who do not own their own trucks, have no investment in the Debtor's business in general or in the job assignment in particular. Conversely, the owner/operators who make deliveries for the Debtor do have a significant investment insofar as they own the truck that makes the delivery.
19. The individuals who make deliveries for the Debtor can either realize a profit or suffer a loss on each job, depending upon how they manage their expenses.
20. The individuals who make deliveries for the Debtor do not provide such services solely for the Debtor, but rather provide the same or similar services for other companies. The only prohibition in place is that an individual making deliveries for the Debtor on any particular day may not provide services on that same day for another company.
21. Individuals who make deliveries for the Debtor hold separate licenses to drive a truck and make their services available to the public at large, as opposed to just the Debtor.
22. If the individual who is delivering crude for the Debtor fails to actually do so, or fails to return the Debtor-owned truck to the Debtor, then the Debtor will hold back the payment that it would otherwise pay to this individual.
23. If the work relationship between the Debtor and an individual driver becomes unworkable, the Debtor can terminate the work relationship with the driver. If this happens, the driver will have no legal recourse against the Debtor. Conversely, if a driver decides to walk away from the job that he has agreed to undertake for the Debtor, the Debtor does not have any recourse against the driver. In the words of Lagos, "it is a mutually agreeable relationship ... until it's not." [Tape Recording, Apr. 10, 2018, Hrg. at 3:01:00-3:01:11 P.M.].
24. The Debtor provides no health insurance, no medical benefits, and no retirement accounts to any of the individuals with whom it enters into agreements to deliver crude to the Debtor's customers.
25. The Debtor pays for insurance on the trucks that it owns; the individuals who drive the Debtor's trucks to deliver crude to the Debtor's customers do not pay any portion of this insurance.
26. The individuals who drive the Debtor's trucks do not have any ownership interest in these trucks.
27. When the Debtor first started its operations in 2014, it did hire some individuals as employees of the Debtor to serve as truck drivers. For purposes of the Debtor's tax liability, the relevant time period is the third and fourth quarters of
III. CREDIBILITY OF WITNESSES
Lagos was the only person who testified at the Hearing. The Court finds that Lagos testified forthrightly and the Court finds his testimony to be very credible. The Court therefore gives his testimony substantial weight.
IV. CONCLUSIONS OF LAW
A. Jurisdiction, Venue, and Constitutional Authority to Enter a Final Order
1. Jurisdiction
The Court has jurisdiction over this matter pursuant to
This matter is a core proceeding pursuant to
2. Venue
Venue is proper pursuant to
3. Constitutional Authority
In the wake of the Supreme Court's issuance of Stern v. Marshall ,
Alternatively, even if Stern applies to all of the categories of core proceedings brought under
Finally, in the alternative, this Court has the constitutional authority to enter a final order because the parties have consented to adjudication of this matter by this Court. Wellness Int'l Network, Ltd. v. Sharif , --- U.S. ----,
For all of the reasons set forth above, this Court concludes that it has constitutional authority to enter a final order on the Objections lodged by the Debtor.
B. Applicable Law
1. Burden of Proof and Quantum of Proof Regarding Objections to Proofs of Claim
Under Rule 3001(f), "a party correctly filing a proof of claim is deemed to have established a prima facie case against [the] [d]ebtor's assets." Jacobsen v. Sramek (In re Jacobsen) ,
The Court notes that the burden of proof in the dispute at bar is different than if this dispute was in a state district court or in a federal district court, after the parties had actually undergone an administrative hearing and the appeals process within the TWC. See Tex. Lab. Code § 212.201 (West 2018) (emphasis added) (stating that "[a] party aggrieved by a final decision of the commission may obtain judicial review of the decision by bringing an action in a court of competent jurisdiction ...."); Harris Cty. Appraisal Dist. v. Tex. Workforce Comm'n ,
decisions enjoy a presumption of validity, and the party seeking to set aside such a decision has the burden of showing that the decision is not supported by substantial evidence-that is, it is not supported by more than a scintilla of evidence. A trial court may not set aside a TWC decision merely because it would have reached a different conclusion; rather, the court may do so only if it finds that the [TWC's] decision was made without regard to the law or the facts and therefore was unreasonable, arbitrary, or capricious. This methodology was purposefully designed by the Legislature so that agency decisions are afforded significant deference, and a court is not allowed to substitute its judgment for that of the agency.
Harris Cty. Appraisal Dist. ,
Here, there was no decision made by the TWC determining that the individuals who drive trucks for the Debtor are employees. Rather, after the Debtor filed its Chapter 11 petition, the TWC filed two proofs of claim asserting that the Debtor owes taxes under the Texas Unemployment Compensation Act because these truck drivers are employees of the Debtor. Under these
2. The Texas Unemployment Compensation Act
Under the Texas Unemployment Compensation Act ("TUCA"), "an employer is obligated to contribute to the unemployment compensation fund on wages for employment paid, in accordance with rules adopted by the Commission." Critical Health Connection, Inc. v. Tex. Workforce Comm'n ,
"[E]mployment" means a service, including service in interstate commerce, performed by an individual for wages or under an express or implied contract of hire, unless it is shown to the satisfaction of the commission that the individual's performance of the service has been and will continue to be free from control or direction under the contract and in fact.
Tex. Lab. Code § 201.401.
Thus, the key focus under TUCA when determining whether an "employer" is obligated to contribute to the unemployment compensation fund is whether an employment relationship exists between the "employer" and the individual who provides services. See Harris Cty. Appraisal Dist. ,
"A presumption of employment arises upon a showing that an individual is paid for performing services. This presumption is rebutted only if the alleged employer carries its burden of showing that the individual's service is free from control or direction under the contract and in fact." Harris Cty. Appraisal Dist. ,
(1) whether the worker receives instructions about when, where, and how the work is to be performed; (2) whether the worker receives training by a more experienced worker or whether the worker is required to attend meetings or take training courses; (3) whether the worker's services are integrated, as the services of an employee are usually merged into the remunerating entity's overall operation; the entity's success depends on those workers' services; (4) whether the worker renders services personally, as employees do not hire their own substitutes or delegate work to them; (5) whether hiring, supervising, and payinghelpers is done by the entity; (6) whether there is a continuing relationship, either month after month or year after year; (7) whether the entity sets hours of work, either during hours and days or "on call"; (8) whether working full time is required; (9) whether the entity has a right to mandate the location where services are performed; (10) whether the order or sequence of services are set by the entity; (11) whether submission of oral or written reports is required; (12) whether payment is by the hour, week, or month; (13) whether the entity pays business and travel expenses; (14) whether tools and equipment are furnished; (15) whether the worker has a significant investment in the business, as an employee typically does not; (16) whether the worker realizes profits or losses in the business; (17) whether the worker is permitted to work for more than one firm at a time; (18) whether the worker makes services available to the public; (19) whether the worker may be discharged at any time without liability; and (20) whether the worker may quit at any time without liability.
Tex. Workforce Comm'n ,
Here, there is a presumption that truck drivers used by the Debtor are employees because the Debtor does indeed pay these truckers once the Debtor's customers pay the Debtor. [Finding of Fact No. 15]. Thus, the issue is whether the Debtor can overcome this presumption by establishing that all or many of the 20 factors weigh in favor of a finding that the truckers are independent contractors.
C. Application of the Law to the Facts In the Dispute at Bar
At the Hearing, TWC's counsel stipulated that drivers who provide their own trucks (i.e., owner/operators) are independent contractors. [Tape Recording, Apr. 10, 2018, Hrg. at 1:53:10-1:53:20 P.M.]. Thus, the status of drivers who do not provide their own trucks-that is, those drivers who use the Debtor's trucks when making deliveries-is the only employment determination in question. The analysis set forth below therefore applies only to the status of those truckers who do not provide their own trucks. The Court will review each of the 20 factors in the TWC test in order to arrive at its ruling as to whether the individuals using the Debtor's truck are employees or independent contractors.
1. Instructions
"INSTRUCTIONS: An Employee receives instructions about when, where, and how the work is to be performed. An Independent Contractor does the job his or her own way with few, if any, instructions as to the details or methods of the work." Harris Cty. Appraisal Dist. ,
2. Training
"TRAINING: Employees are often trained by a more experienced employee or are required to attend meetings or take training courses. An Independent Contractor uses his or her own methods and thus need not receive training from the purchaser of those services." Harris Cty. Appraisal Dist. ,
3. Integration
"INTEGRATION: Services of an Employee are usually merged into the firm's overall operation; the firm's success depends on those Employee services. An Independent Contractor's services are usually separate from the client's business and are not integrated or merged into it." Harris Cty. Appraisal Dist. ,
4. Services Rendered Personally
"SERVICES RENDERED PERSONALLY: An Employee's services must be rendered personally; Employees do not hire their own substitutes or delegate work to them. A true Independent Contractor is able to assign another to do the job in his or her place and need not perform services personally." Harris Cty. Appraisal Dist. ,
5. Hiring, Supervising, and Paying Helpers
"HIRING, SUPERVISING & PAYING HELPERS: An Employee may act as a foreman for the employer but, if so, helpers are paid with the employer's funds. Independent Contractors select, hire, pay and supervise any helpers used and are responsible for the results of the helpers'
6. Continuing Relationship
"CONTINUING RELATIONSHIP: An Employee often continues to work for the same employer month after month or year after year. An Independent Contractor is usually hired to do one job of limited or indefinite duration and has no expectation of continuing work." Harris Cty. Appraisal Dist. ,
7. Set Hours of Work
"SET HOURS OF WORK: An Employee may work 'on call' or during hours and days as set by the employer. A true Independent Contractor is the master of his or her own time and works the days and hours he or she chooses." Harris Cty. Appraisal Dist. ,
8. Full Time Required
"FULL TIME REQUIRED: An Employee ordinarily devotes full-time service to the employer, or the employer may have a priority on the Employee's time. A true Independent Contractor cannot be required to devote full-time service to one firm exclusively." Harris Cty. Appraisal Dist. ,
9. Location Where Services Performed
"LOCATION WHERE SERVICES PERFORMED: Employment is indicated if the employer has the right to mandate where services are performed. Independent Contractors ordinarily work where they choose. The workplace may be away from the client's premises." Harris Cty. Appraisal Dist. ,
10. Order or Sequence Set
"ORDER OR SEQUENCE SET: An Employee performs services in the order or sequence set by the employer. This shows control by the employer. A true Independent Contractor is concerned only with the finished product and sets his or her own order or sequence of work." Harris Cty. Appraisal Dist. ,
11. Oral or Written Reports
"ORAL OR WRITTEN REPORTS: An Employee may be required to submit regular oral or written reports about the work in progress. An Independent Contractor is usually not required to submit regular oral or written reports about the work in progress."
12. Payment by the Hour, Week, or Month
"PAYMENT BY THE HOUR, WEEK OR MONTH: An Employee is typically paid by the employer in regular amounts at stated intervals, such as by the hour or week. An Independent Contractor is normally paid by the job, either a negotiated
13. Payment of Business and Travel Expenses
"PAYMENT OF BUSINESS & TRAVEL EXPENSES: An Employee's business and travel expenses are either paid directly or reimbursed by the employer. Independent Contractors normally pay all of their own business and travel expenses without reimbursement." Harris Cty. Appraisal Dist. ,
Additionally, factor 13 states that "Independent Contractors normally pay all of their own business and travel expenses without reimbursement."
For all the reasons set forth above, this Court finds that this factor weighs in favor of independent contractor status.
14. Furnishing Tools & Equipment
"FURNISHING TOOLS & EQUIPMENT: Employees are furnished all necessary tools, materials and equipment by
15. Significant Investment
"SIGNIFICANT INVESTMENT: An Employee generally has little or no investment in the business. Instead, an Employee is economically dependent on the employer. True Independent Contractors usually have a substantial financial investment in their independent business."
16. Realize Profit or Loss
"REALIZE PROFIT OR LOSS: An Employee does not ordinarily realize a profit or loss in the business. Rather, Employees are paid for services rendered. An Independent Contractor can either realize a profit or suffer a loss depending on the management of expenses and revenues."
17. Working for More than One Firm at a Time
"WORKING FOR MORE THAN ONE FIRM AT A TIME: An Employee ordinarily
18. Making Service Available to the Public
"MAKING SERVICE AVAILABLE TO THE PUBLIC: An Employee does not make his or her services available to the public except through the employer's company. An Independent Contractor may advertise, carry business cards, hang out a shingle or hold a separate business license." Harris Cty. Appraisal Dist. ,
19. Right to Discharge Without Liability
"RIGHT TO DISCHARGE WITHOUT LIABILITY: An Employee can be discharged at any time without liability on the employer's part. If the work meets the contract terms, an Independent Contractor cannot be fired without liability for breach of contract." Harris Cty. Appraisal Dist. ,
20. Right to Quit Without Liability
"RIGHT TO QUIT WITHOUT LIABILITY: An Employee may quit work at any time without liability on the Employee's part. An Independent Contractor is legally responsible for job completion and, on quitting, becomes liable for breach of contract." Harris Cty. Appraisal Dist. ,
D. Summary of the 20 Factors as Applied in the Dispute at Bar
In sum, five factors weigh in favor of
Assuming arguendo that the TWC had issued a decision and the parties had gone through the statutorily prescribed administrative process in appealing that decision, and therefore state law regarding the burden of proof applies,
E. The Case Cited by the TWC from 1957 is Not Persuasive Given that the TWC Promulgated the 20 Factor Test In 1998
Finally, at the Hearing, counsel for the TWC argued that the Court should consider Johnston v. Texas ,
V. CONCLUSION
For the reasons set forth herein, the Court sustains the Objections. Therefore, the amounts set forth in Claim No. 8 and Claim No. 14 are disallowed in their entirety. However, this does not bring complete closure to this matter. At the Hearing, counsel for the Debtor stipulated that when the Debtor first began operating in 2014, it did hire some individuals in the third and fourth quarter of 2014 who fall within "employee" status. [Finding of Fact No. 27]. Further, at the Hearing, counsel for the TWC stipulated that the tax amount of $4,009.50 for the third quarter and fourth quarter of 2014 must be reduced because the TWC agrees that the mechanics who repair the Debtor's trucks at that time were not employees of the Debtor, but rather were independent contractors. [Id. ]. What the parties could not stipulate to at the Hearing was how much of a reduction of the $4,009.50 should be made. The Court therefore directs the Debtor and TWC to confer and determine if they can agree upon an amount. If they can, then they should submit an agreed motion and a proposed agreed order. If they cannot, then the TWC shall be allowed
An order consistent with this Memorandum Opinion will be entered on the docket simultaneously herewith.
Notes
Transport Dry Freight, L.L.C. is the other debtor in this jointly administered case. However, the claims in dispute are filed solely against Pioneer Carriers, L.L.C., and the objection to these claims is lodged solely by Pioneer Carriers, L.L.C.
The TWC used the standard proof of claim form in asserting that pre-petition unpaid unemployment taxes of $26,100.92 are owed. With respect to the claim for post-petition unpaid unemployment taxes of $1,267.10, the TWC did not use the standard form, but rather created a document entitled "Administrative Expense Proof of Claim and Request for Payment."
Hereinafter, any reference to a "Rule" is a reference to the Federal Rules of Bankruptcy Procedure. Moreover, any reference to "the Code" refers to the United States Bankruptcy Code, and reference to any section (i.e., §) refers to a section in 11 U.S.C., which is the United States Bankruptcy Code, unless otherwise noted.
The Debtor also uses so called "owners/operators"-i.e., individuals who own their own trucks-to transport crude oil for the Debtor's customers. However, the dispute at bar involves solely those individuals who do not own their own trucks but rather operate trucks owned by the Debtor.
Factors 3, 14, 15, 19, and 20 weigh in favor of employee status.
Factors 1, 2, 4, 6, 7, 8, 9, 10, 11, 12, 13, 16, 17, and 18 weigh in favor of independent contractor status.
Critical Health Connection, Inc .,
The Court emphasizes that there is no indication whatsoever that the parties engaged in the normal administrative process as set forth in the Texas Labor Code § 212 et seq. for determining the employment status of the truckers.
