What is the Difference Between WHOLESALE and RETAIL sales? Especially when it Comes to a PLANT Nursery?

We were recently told that the county assumed we wanted to get the CUP in order to do retail plant sales. This caused us to be confused because when the complaints were made by the neighbor, we were only hosting very private plant fundraisers. In fact on the day the county caseworker made a personal appearance and tried to fit us in a retail setting she asked, do you purchase the plants you sell. Ken said, ” I have been because we just finished the greenhouse so you have to buy the stock you will grow” She insisted if we did not start from SEED that we were doing retail sales.