Congressional Research Service IN11233 (Workplace Leave and Unemployment Insurance for Individuals Affected by COVID-19)

Summary

A Congressional Research Service Insight, IN11233, by Julie M. Whittaker, Katelin P. Isaacs and Sarah A. Donovan, dated March 6, 2020, on workplace leave and unemployment insurance (UI) for individuals affected by COVID-19. It gives an overview of job-connected assistance, covering paid and unpaid workplace leave workers may use for their own medical needs or to care for family members, and UI benefits. It notes that leave, even unpaid, may be preferable to separation if it continues health care benefits, and that most federal civil service employees are entitled to paid sick and annual leave while no federal law requires private-sector employers to provide paid leave of any kind. It also discusses policy options to expand UI programs.

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INSIGHTi

Workplace Leave and Unemployment
Insurance for Individuals Affected by
COVID-19

Julie M. Whittaker
Specialist in Income Security

Katelin P. Isaacs
Specialist in Income Security

Sarah A. Donovan
Specialist in Labor Policy

March 6, 2020
This Insight provides a brief overview of the current availability of job-connected assistance to
individuals, which may be relevant to the outbreak of coronavirus disease 2019 (COVID-19).
Specifically, this product discusses workplace leave, paid and unpaid, that may be available to workers
affected by the virus, as well as unemployment insurance (UI) benefits. It also discusses policy options to
amend or expand existing UI programs to be more responsive to the effects of COVID-19.

Workplace Leave
Workers affected by COVID-19 may seek to use paid or unpaid workplace leave for their own medical
needs or to care for family members. Leave, even if unpaid, may be preferable to a complete separation
from employment if it allows for continuation of health care benefits and facilitates the employee’s return
to work following recovery. Most federal civil service employees are entitled to paid sick and annual
leave, but no federal law requires private-sector employers to provide paid leave of any kind.

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IN11233

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Family and Medical Leave Act
The Family and Medical Leave Act (FMLA) provides an entitlement to eligible workers to unpaid, job-
protected leave for a limited set of family caregiving and medical needs, with continued group health plan
coverage; eligible employees may use up to 12-workweeks of leave in a 12-month period. FMLA
coverage and eligibility is not universal. Federal, state, and local governments are covered employers, but
private-sector employers employing fewer than 50 employees are not. Employees of covered employers
must also meet tenure, hours-of-service, and work-site coverage requirements before using FMLA-leave.
No other federal law creates a leave entitlement for private-sector workers.
FMLA and COVID-19 Considerations
A key consideration is whether FMLA-leave can be claimed for COVID-19-related needs, such as testing,
quarantine, treatment, and caregiving. In most instances, FMLA-leave for medical needs (the employee’s
own or a family member’s) is limited to serious health conditions, which require overnight inpatient care
or continuing treatment by a health care provider. Continuing treatment generally constitutes several days
of incapacitation and multiple in-person treatments by a health care provider; a single in-person treatment
may suffice if the employee is prescribed a regimen of continuing treatment (e.g., prescription
medication). As such, hospitalization and, potentially, testing for COVID-19 may be FMLA-qualifying
needs. However, a worker who tests positive for the virus and is sent home to rest and take over-the-
counter medications is unlikely to qualify for FMLA-leave for the period of home recovery. Federal law
and regulations do not provide for FMLA-leave to address general needs related to public health
emergencies (e.g., school closures).

State Leave and Leave Insurance Laws
Some states have enacted family and medical leave laws (similar to FMLA) that entitle workers to unpaid
leave in certain instances. In addition, five states currently operate state leave insurance programs, which
provide cash benefits (a percentage of the employee’s usual earnings, up to a maximum amount) to
eligible workers who are absent from work for certain medical and caregiving reasons. As with FMLA,
the extent to which state leave entitlements and leave insurance benefits may be claimed by COVID-19-
affected workers will depend upon the worker meeting the criteria set out in state law.
Some states have paid sick leave or paid time-off laws that require covered employers to allow employees
to accrue and use several days of leave per year. Paid sick leave can generally be used for the employee’s
own medical needs or to attend to the medical needs of certain family members. Some states, like New
Jersey, allow that accrued sick leave may be used for workplace or school closures due to a public health
emergency or because a public health official has determined that the employee should be quarantined.

Policy Options
As noted, the extent to which employees may use FMLA-leave for COVID-19 related needs is limited
and must be assessed on a case-by-case basis. Congress may consider expanding FMLA-qualifying needs
to include those related to a declared public health emergency or expanding the act’s employer coverage
(e.g., including some employers with fewer than 50 employees). Given the likelihood that such changes
will complicate employers’ scheduling and otherwise disrupt business activity, Congress may also
consider pairing them with employer assistance (e.g., through state grants or tax credits to help cover the
costs of hiring replacements for workers on leave).
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The Federal-State Unemployment Insurance System
Two programs within the federal-state unemployment insurance (UI) system may either respond to some
types of unemployment caused by COVID-19 or could be modified to respond more broadly to provide
weekly income replacement for individuals unavailable to work or unemployed as a result of COVID-19.
Unlike workplace leave, the UI system generally treats public-sector workers similarly to private-sector
workers.

Unemployment Compensation
The joint federal-state Unemployment Compensation (UC) program provides income support through
weekly UC benefit payments. Although there are broad requirements under federal law regarding UC
benefits and financing, the specifics are set out under each state’s laws. States administer state-funded UC
benefits with U.S. Department of Labor (DOL) oversight, resulting in 53 different UC programs operated
in the states, the District of Columbia, Puerto Rico, and the Virgin Islands.
To receive UC benefits, claimants must generally have been laid off through no fault of their own; have
enough recent earnings (distributed over a specified period) to meet their state’s requirements; and be
able, available, and actively searching for work. The UC program generally does not provide UC benefits
to the self-employed, those who are unable or unavailable to work, or those who do not have a recent
earnings history.

UC and COVID-19 Considerations
Individuals who are laid off for COVID-19-related reasons would be subject to UC laws regarding benefit
eligibility in the state where the previous work was performed. As described above, some categories of
workers would not meet state eligibility requirements for UC benefits. Additionally, individuals who are
unavailable for work due to COVID-19—whether they are quarantined or caregiving for sick or
quarantined family members—would likely be ineligible for UC benefits because (1) they may not be
separated from employment, and thus would not meet state definitions of unemployment or (2) may not
meet state requirements regarding being able and available for work.

Disaster Unemployment Assistance
Disaster Unemployment Assistance (DUA), which is authorized under the Robert T. Stafford Disaster
Relief and Emergency Assistance Act (the Stafford Act), provides federally funded unemployment
benefits to individuals unable to work as a result of a federally declared major disaster and otherwise
ineligible for regular UC benefits. For example, DUA benefits may be available to the self-employed and
workers unable to reach their place of employment as a direct result of a major disaster, among other
categories of DUA eligible employees.

DUA and COVID-19 Considerations
The current law definition of major disaster for the purposes of DUA, however, does not include a
disease outbreak or other public health emergency. (No public health incident has ever been declared as
“major disaster” under the Stafford Act.) Therefore, DUA benefits would not be available in response to
unemployment or unavailability for employment related to COVID-19.

UI Policy Options to Respond to COVID-19
Unlike some other federal or state programs, UC and DUA have the ability to rapidly respond and provide
immediate income support. Thus, Congress may consider amending or expanding current unemployment
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benefits for individuals affected by COVID-19. For example, the DUA authority under the Stafford Act
could be a model for responding to public health emergencies. More generally, in response to the 2007-
2009 recession, UC benefits were temporarily augmented and extended, with some costs temporarily
assumed by the federal government.

IN11233 · VERSION 1 · NEW
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