Proposed Fee Increase for Artist Visas Threatens International Cultural Exchange

By: Smitha Gundavajhala

On Thursday, February 12, the Seattle Symphony opened its doors for a three-day run of Beethoven’s Symphony No. 6. For weeks, the symphony had advertised that soloist Carla Caramujo would take the stage for the performance. However, as opening day approached, the Symphony had a change of plans. The web page for the concert displayed a message: “Due to delays with artist visa processing, soloist Carla Caramujo is regretfully unable to perform on this program.”

Delays in artist visa processing have prevented international artists from making their scheduled performances in the United States, and deprived American audiences of valuable opportunities for cultural exposure and exchange. As Tom Davis, a former Chairman of the Committee on Government Reform, said in an April 4, 2006 hearing on the impact of visa processing delays, “the American cultural scene will continue to remain vibrant only as long as foreign artists are able to bring their work to American stages and galleries.” This blog will explore a history of delays in processing the artist visa, a proposed rule to increase the efficiency of visa processing, and the implications of that rule for cultural exchange.

Delayed Artist Visas: A History

The term “artist visa” actually refers to two kinds of visas: O visas and P visas. O visas are for artists who are coming to the United States for longer terms, and P visas are for artists who are staying only temporarily to perform. Petitions for O and P visas are reviewed by the United States Citizenship & Immigration Service (USCIS). Under the Immigration and Nationality Act (INA), the statute that created USCIS, O and P visa petitions must be processed within 14 days (8 U.S.C. §1184 (c)(6)(D)).

USCIS has struggled to meet this processing time for decades. Art advocacy groups have traced the delay to 2001, when USCIS implemented a Premium Processing Service (PPS) that would guarantee visa processing in 15 calendar days for artists who paid a $1,225 fee. Similar to the creation of express lanes on highways, the PPS option created “traffic” for applicants who could not pay the fee: the processing time for applicants was an average of 45 days before PPS, and extended up to 6 months after PPS. In 2010, the Department of Homeland Security (DHS) adopted a rule that committed USCIS to meeting the day processing time required by the INA.

In 2019, Congress passed the USCIS Stabilization Act (HR 8089), a piece of emergency legislation intended to address processing delays, in part by increasing the PPS fee. The USCIS Stabilization Act allowed DHS to suspend the use of premium processing if circumstances prevented the timely processing of petitions. However, despite consistent delays in processing, DHS has not suspended premium processing. Today, the PPS fee costs $2500, and artist visa delays continue to accumulate.

When President Biden took office in 2021, the Biden administration faced the task of reducing backlogs in visa processing times that had been deepened by Trump-era policies. That is where DHS’s proposed rule comes in.

The Proposed DHS Rule

The Department of Homeland Security is proposing a rule that would increase the cost of applying for an O or P visa by more than 250 percent. O visa fees would increase from $460 to $1,655, and P visa fees would increase from $460 to $1,615. DHS justifies the fee increase by citing high demand and insufficient staff in USCIS. The fee increase, along with an increase in the required processing time from 15 calendar days to 15 business days, is intended to provide USCIS with more funding, staff, and time to catch up with the backlog in processing O and P visa petitions. 

DHS’s authority to propose and promulgate this rule comes from the Immigration and Nationality Act — in particular, from the section on the “disposition of moneys” (8 U.S.C. §1356). Administrative agencies like DHS have the power to propose and enact rules to carry out the objectives stated in statutes that the agencies administer, like the INA. If the rule is adopted, it adds an additional layer of requirements to the statute that must be met along with the base requirements of the statute itself. Agencies must provide the public with a Notice of Proposed Rulemaking (NPRM) and allow the public an opportunity to comment before adopting a rule.

The proposed fee increase for artist visas sits within this unassuming administrative framework. Members of the public are often unaware of the existence of NPRMs and uninformed on how to comment. In addition, even though anyone can submit a comment, many of the stakeholders impacted by this proposed rule do not live in the United States, and are unlikely to be aware of the opportunity to comment on the rule.

Implications of the Rule

After the Biden administration committed to reducing processing times, it followed through by approving a $389 million budget for the 2023 fiscal year to support that effort. It is unclear whether that added funding is actually being used to improve processing times. DHS is still passing costs down to artists, and if the rule is passed, those costs will only increase.

The current framework for O and P visa petitions is already inequitable: those without the resources to pay a $2500 PPS fee are impacted by visa processing delays, and risk losing out on opportunities to perform. Independent artists and non-profit organizations are particularly impacted by this inequity, and are likely underrepresented in international cultural exchange. However, the current processing fees are lower than the proposed fees, so despite processing delays, artists currently have greater access to petitioning than they would under the new rule.

If the rule is adopted and implemented, DHS may or may not catch up with the backlog in O and P petitions. However, the cost of applying for an artist visa will increase, and the pool of artists that are able to apply for and obtain visas will skew in favor of those wealthy enough to absorb the fee increase. One thing is certain: adopting the rule will cause the United States to lose out on a great deal of talent, and cultural exchange is likely to suffer. 

DHS is currently accepting written comments on this proposed rule until March 6, 2023. The electronic Federal Docket Management System will accept comments before midnight eastern time at the end of that day.

Bloomers and Black Widows: Furthering Feminist Law Through Contract

By: Paige Gagliardi

What does a singing suffragette and comic book assassin have in common? They both will not stand for a breach of contract.

Actress Scarlett Johansson, star of the latest Marvel blockbuster “Black Widow,” recently made headlines when she filed a lawsuit against her employer The Walt Disney Company. While it may seem unwise to battle an entertainment powerhouse like Disney, this is not the first time the female lead of a feminist film has sued an entertainment giant for breach of contract. Spoiler: last time, the actress WON. 

History is set to repeat itself, and in doing so, it may set some powerful legal precedent for the entertainment industry. 

Grab your popcorn! 

The Lawsuit of Yesterday

Shirley MacLaine Parker is a woman with multiple roles and identities- director, artist, author, academy-award winner, dancer, singer, author, traveler, wife, mother, and activist. Credited with the dismantling of the exploitative Old-Hollywood star-system of actor management, Parker has never shied away from risking her position and using the court to fight for her rights as a creative. 

In 1965, Parker signed a contract with 20th Century-Fox Film Corporation to lead the slated production of a motion picture entitled “Bloomer Girl” (based on Arlen and Harburg’s musical-comedyof the same name). The musical’s plot tracks Evelina, the fictional niece of Amelia Bloomer, as she follows the political footsteps of her aunt.Bloomer, famous cohort of Elizabeth Cady Stanton and Susan B. Anthony, was a mid-nineteenth century feminist, suffragist, and abolitionist who founded the first U.S. newspaper for and by women- The Lily. While the musical takes a few liberties with history, this musical adaptation not only presented the perfect opportunity for Parker to display her talents as a lead singer and dancer, but also provided her an opportunity to introduce audiences to an important human rights movement and advance feminist messages. 

Unfortunately, this musical would not see the screen. The company instead offered to employ Parker as the leading actress in another film tentatively entitled “Big Country, Big Man” (hereinafter, “Big Man”). The compensation offered was identical, as were 31 of the 34 numbered provisions of the original contract. However, unlike the musical “Bloomer Girl,” “Big Man” was a dramatic ‘western type’ movie. Furthermore, while “Bloomer Girl” was to be filmed near her home in California, “Big Man” was to be filmed in Australia. The new contract also required that Parker accept an unchangeable script and to work under a different director in whose selection she had no choice. 

Afforded only one week to accept the radically different substitute offer, Parker allowed the offer to lapse, choosing instead to file suit.

It is not unreasonable to assume that “Big Man” and “Bloomer Girl” would have adhered to their respective genres and associated gender tropes, offering two drastically different portrayals of women (the gendered titles ‘Bloomer Girl’ and ‘Big Country, Big Man’ speak for themselves). In one, Parker would have been the leading lady and the top-billed cast member, while in the other, she would have been relegated to a secondary role under the male hero. “Bloomer Girl’s” source material tackled issues of race and gender and because of 20th Century Fox’s decision, Parker was denied the opportunity to star in a film that would showcase not only her talent, but her political acumen as well. The genre gap between the two films, as well as disparities of control, were not merely what the dissent in Parker’s suit referred to as “superficial differences,” but illustrative of a legally recognizable inferior position that Parker would be in by accepting the new role. 

By affirming that the studio failed to mitigate damages to Ms. Parker, this case marked a major turning point for creatives: finally, a woman entered the “man’s world” of contracts to fight for equity and successfully stood up to a major studio and demanded they afford the respect owed to her. This case thus served as a watershed moment for performers in the entertainment industry because it clarified the concept of mitigation of damages for entertainers and severely hindered a method by which studios could take advantage of talent without risking fiscal responsibility. Clearly, it was a game changer. To this day, this case remains a staple in contract law casebooks when introducing mitigation. It is also often one of the first cases with a female as one of the parties.

The Lawsuit Today

Scarlet Johansson, the world’s highest paid actress and star of the most successful film franchise in history, alleges her contract was breached when Marvel’s “Black Widow” premiered on the Disney+ home streaming service at the same time it premiered in theaters (contrary to an exclusive theatrical debut stipulated in her contract). 

“Black Widow,” a highly anticipated in medias res addition to the Marvel Cinematic Universe, finally liberated a female character originally designed for the male gaze. In getting her own independent film, the Black Widow is finally afforded the center stage to tell her unique narrative. Tackling feminist issues such as gender, objectification, human trafficking, reproductive rights, and family ideals, the superhero’s story intentionally parallels the real life stories of many women who experience abuse by men of power. In taking revenge and in taking power back, Black Widow helps reshape the cultural gaze and pushes the boundaries of how women are represented in the media.  

Despite a successful opening weekend, this film has recently seen a sharp nose-dive in box office gross revenue week-to-week. Worse, as the Wall Street Journal reports, Johansson stands to lose an estimated $50 million on the film due to Disney’s hybrid-release strategy. That’s a super-sized pay cut anyone would want to avenge. 

Cue lawsuit.

Johansson claims that she tried to renegotiate the terms of her contract with Disney after she discovered the film would not be released exclusively in theaters, but the studio did not respond, and thus willfully induced the breach. However, this is bigger than just “Black Widow.” Many production companies and creatives negotiate box office incentives in their contracts, but as content consumption trends towards streaming, creatives are floundering for ways to legally assert their worth and navigate a growing power imbalance as media companies refuse to release their proprietary viewer numbers. And while other companies are undertaking similar hybrid-release strategies, fair compensation for creatives remains a gray area without legal precedent- precedent Johansson’s lawsuit could set. 

The Law of Tomorrow:

The parallels between Parker’s and Johansson’s lawsuits are clear: actress wants to star in feminist film; studio breaches contract; actress stands to lose what she could have gained, financial or otherwise; actress stands up for her rights; actress sues. Should today’s case follow the same path as its sister-suit, Johansson’s lawsuit will likely have profound implications. Using her position of privilege to push this potential precedent, the ramifications could trickle down to all creatives, protecting not only the top actress working for the biggest media company in the world, but all other creatives seeking to assert their worth contractually. And regardless of whether Johansson wins, her suit will surely shape how every party approaches a contract in the ever-changing industry of entertainment. 

Mark your calendars, everyone. New law is coming to a theater near you.