What is an essential business?
Generally, an essential business will be exempt from direct government orders suspending commerce, travel, or other activities.11 Thus, on the surface, it would appear that an essential business would not qualify for the retention credit. However, a deeper analysis reveals direct and indirect effects on commercial activity resulting from government orders related to COVID-19.
The FAQs outline specific fact patterns in which an employer is or is not an eligible employer. According to FAQ 30, if an essential business is excluded from a business suspension order, it will not be considered to have a full or partial suspension of operations for purposes of the retention
credit.
Despite the guidance that an essential business will not be considered suspended if it’s allowed to continue operations under governmental orders, FAQ 31 makes an exception for when the essential business cannot get materials because of government orders affecting its suppliers:
If the facts and circumstances indicate that the essential business’s operations are fully or partially suspended as a result of the inability to obtain critical goods or materials from its suppliers that were required to suspend operations, then the essential business would be considered an Eligible Employer and may be eligible to receive the Employee Retention Credit.Example: Employer A operates an auto parts manufacturing business that is considered an essential trade or business in the jurisdiction where it operates. Employer A’s supplier of raw materials is required to shut down its operations due to a governmental order. Employer A is unable to procure these raw materials from an alternate supplier. As a consequence of the suspension of Employer A’s supplier, Employer A is not able to perform its operations. Under these facts and circumstances, Employer A would be considered an Eligible Employer because its operations have been suspended as a result of the governmental order that suspended operations of its supplier.
The key element of this FAQ is the acknowledgement that there may be circumstances under which an essential business is unable to perform its operations because the operations of a third party are suspended as the result of COVID-19-related government orders. The key takeaways are:
- identify vendors that have been affected by COVID-19-related government orders to suspend operations; and
- identify how those government orders have resulted in the essential business not being able to conduct specific activities within its business operations.
Demonstrating that an essential business has specific types of business activities that are affected by a vendor supply chain disruption would show that the essential business has been partially suspended. In contrast, according to FAQ 32, experiencing a reduced volume of business operations simply because customers are required to stay at home under governmental orders would not be viewed as partially suspending an essential business:
An employer that operates an essential business that is not required to close its physical locations, or otherwise suspend its operations, is not considered to have a full or partial suspension of its operations for the sole reason that its customers are subject to a governmental order requiring them to stay at home.Example: Employer B, an automobile repair service business, is an essential business and is not required to close its locations or suspend its operations. Due to a governmental order that limits travel and requires members of the community to stay at home except for certain essential travel, such as going to the grocery store, Employer B’s business has declined significantly. Employer B is not considered to have a full or partial suspension of operations due to a governmental order. However, Employer B may be considered an Eligible Employer if it has a significant decline in gross receipts.
According to the FAQs, there is a nuanced distinction between (1) supply chain disruptions causing a suspension within part of the essential business operations and (2) reduced customer demand, which affects revenue but does not cause a partial suspension of operations. This distinction between “essential” and “nonessential” businesses is not in the statutory language of the CARES Act, and the distinction between governmental edicts that cause a partial suspension of the business because of reduced customer demand versus governmental edicts that cause a partial suspension of business operations because vendors are unable to perform does not seem well founded under the statute.
FAQ 32 appears inconsistent with the statute, which refers to the operation of a trade or business being “partially suspended . . . due to orders from an appropriate governmental authority limiting commerce, travel, or group meetings . . . due to the coronavirus disease 2019.” In the FAQ 32 example, the operations of the auto repair business have been affected by stay-at-home government orders. The resulting reduction in business will cause a partial suspension of the repair business activity, creating fewer working hours for employees.
It seems appropriate for the legislation to seek to keep the repair business employees voluntarily paid by their employer the same way that it seeks to keep the employees of a closed restaurant voluntarily paid by their employer. As noted, the statute simply links qualification to the identification of government orders limiting commerce, travel, or group meetings because of COVID-19. The distinction between customers or suppliers causing a suspension of operations appears arbitrary and contradictory to the intent of the law. Congress declared the purpose of the CARES Act as “providing emergency assistance and health care response for individuals, families, and businesses affected by the 2020 coronavirus pandemic.” It did not draw a distinction between businesses that were affected as the result of governmental orders affecting their suppliers, rather than their customers.
Even if a reduction in demand is insufficient to qualify as a partial suspension, the other possibility would be for the auto repair business in FAQ 32 to evaluate its qualification by considering potential direct and indirect effects on the business, such as: What government orders affected the auto repair business? Were limitations placed on operating hours? Was there any effect on the availability of parts to sell to customers? Were there travel restrictions limiting the ability to receive or make deliveries?
B. Effects on the Essential Business
Beyond customer demand, there are likely other effects that could qualify an essential business as an eligible employer. Because it’s difficult to apply all the qualifying criteria simultaneously, they can be reordered as:
- identify an order from government related to COVID-19 that limits (A) commercial activity, (B) travel, or (C) group meetings; and
- that partially suspends operations.
At a high level, there has been very little direct impact from COVID-19 on business. That is, the number of actual employees and customers suffering the effects of COVID-19 is relatively small compared with the total population. Most of the damaging effects on businesses have not been from the illness itself but rather from the government orders that have shut down or hurt almost every business, including essential businesses. Therefore, it may be more effective to start without a filter and focus on identifying all the COVID-19-related effects on the essential business. It is likely working from the bottom up — that is, the COVID-19-related effects on the business are related to government orders, not to the illness itself. This analysis could begin by reviewing the material segments of the business, posing these questions:
- What effect has COVID-19 had on the business?
- How was the COVID-19 impact connected to government orders?
- Will the connection between the government order and the COVID-19 impact qualify as a partial suspension of operations?