Analysts expect the number of freelancers to grow amid the government's push for more flexible working arrangements to address the country's labor shortage, as more companies are allowing employees to take on second or side jobs to increase their incomes.
The government recognizes the need to assist freelancers who tend to be pressured into disadvantageous contracts when negotiating with companies, officials said.
The overall estimate, based on the Cabinet Office survey covering 50,000 workers, includes around one million salaried employees and housewives who take on freelance jobs.
The popularity of new services such as Uber Eats, where individual contractors deliver food, has also added to the rise in freelance workers.
Mizuho Financial Group Inc. and SoftBank Corp. are among major companies that have moved to allow employees to hold side jobs.