Baltimore County, Maryland

Recovery Plan 

State and Local Fiscal Recovery 

Funds

2021 Report

Note: The Recovery Plan Performance Report will provide the public and Treasury information on the projects 

that recipients are undertaking with program funding and how they are planning to ensure program outcomes 

are achieved in an effective, efficient, and equitable manner. While this template includes the minimum 

requirements for the Recovery Plan, each recipient is encouraged to add information to the plan that they feel is 

appropriate to provide information to their constituents on efforts they are taking to respond to the pandemic 

and promote an equitable economic recovery. 

Each jurisdiction may determine the general form and content of the Recovery Plan, as long as it meets the 

reporting requirements, and recipients are encouraged to tailor this template to best meet their needs. Use of 

infographics, tables, charts, pictures, case studies, and other explanatory elements are encouraged.
Baltimore County 2021 Recovery Plan Performance Report 1

Baltimore County, Maryland 

2021 Recovery Plan

Table of Contents

General Overview ..............................................................................................................................2

Executive Summary...................................................................................................................................2

Uses of Funds............................................................................................................................................2

Promoting Equitable Outcomes................................................................................................................5

Community Engagement ..........................................................................................................................5

Labor Practices..........................................................................................................................................5

Use of Evidence.........................................................................................................................................5

Table of Expenses by Expenditure Category.............................................................................................6

Project Inventory ...............................................................................................................................6

Project #IA1-02: Payroll Costs for Staff Responding to COVID-19............................................................6

Project #IA1-01: Premium Pay ..................................................................................................................7

Project #IA4-18: Other Public Health Response .......................................................................................7

Performance Report...........................................................................................................................8

Project #IA1-01: Premium Pay ..................................................................................................................8
Baltimore County 2021 Recovery Plan Performance Report 2

GENERAL OVERVIEW

Executive Summary 

On March 11, 2021, the American Rescue Plan (ARP) Act was signed into law by the President. Title VI, 

Section 602 of the Social Security Act establishes the Coronavirus State Fiscal Recovery Fund, and section 

603 establishes the Coronavirus State and Local Fiscal Recovery Fund (together, the Fiscal Recovery

Funds). The Fiscal Recovery Funds are intended to provide support to State, local, and Tribal governments 

in responding to the impact of COVID-19 and in their efforts to contain COVID-19 on their communities, 

residents, and businesses. The Fiscal Recovery Funds expand the support provided to these governments 

over the last year, including through the Coronavirus Relief Fund (CRF). In general, this funding may be 

used to respond to the public health emergency with respect to COVID-19 or its negative economic 

impacts.

Baltimore County received $80.3 million, half of its allotted $160,706,923 directly from the US Treasury

through the Coronavirus State and Local Fiscal Recovery Funds (SLFRF). The fund expenditures must be 

obligated during the period that begins on March 3, 2021, and ends on December 31, 2024, with all work 

completed and funding spent by December 31, 2026. Similar to our CARES funding expenditures, SLFRF

will be used for a holistic, County-wide response and recovery effort. The current allotment will fund a 

County-wide grant program managed by the Office of Budget and Finance that will be serving its most 

impacted residents and businesses. 

The County created an Economic Recovery Subcabinet, led by Director of Economic and Workforce 

Development Leonard Howie. Comprised of department and programmatic leaders across County 

government, the Subcabinet has been tasked with information gathering, examining nationwide best 

practices, and hosting listening forums with community stakeholders to develop recommendations on 

SLFRF spending. In addition to prioritizing communities that were disproportionately impacted by the 

COVID-19 pandemic, the Subcabinet is focused on integrating a data-driven approach. 

Excluding Premium Pay expenditures, the following report details Baltimore County’s expected plan for 

future distribution of the first allotment of State and Local Fiscal Recovery Funds. With continued public 

outreach and input on proposals and a prioritization of an equitable recovery plan, in addition to the 

evolving COVID-19 pandemic, the outlined uses of funds are expected to change and will be updated in 

next year’s Performance Plan. 

Uses of Funds

Similar to how the County structured its CARES funding, the County broke down the SLFRF blueprint of 

spending into five different “Impact Areas”: 
Baltimore County 2021 Recovery Plan Performance Report 3

IMPACT AREA 1 – MISC, INCREASED EXPENSES BUDGET EST. $78 MILLION

Impact Area 1 includes an estimate of the breakdown of costs in various categories that will be a 

continuation of increased costs the County has incurred in its efforts to respond to the COVID-19 

pandemic. These costs are separate from the FY 2022 operating budget as adopted by the County Council. 

Examples of items in this category are Personal Protective Equipment (PPE), increased janitorial expenses,

and additional supplies including IT equipment to facilitate teleworking for employees. It includes 

personnel and fringe chargebacks for additional positions or labor chargebacks for employees whose 

activity is directly related to COVID-19 specific activities. These chargebacks will assist the County in 

retaining an adequate fund balance going into FY 2022. The $15.8 million in this estimate assumes that 

effort reporting will drop off in the future, and is also dedicated to fund additional temporary personnel 

to support our efforts in relation to food access coordination, small business resource consultants, 

additional legal assistance for Child Welfare and approximately 60 additional public health staff to 

continue contact tracing, testing and vaccination support. 

Premium Pay 

In response to the heightened risk faced by essential workers, on April 16, 2021, the County Executive 

announced that most County employees would be receiving a one-time premium pay in the amount of 

$1,000 or $3,000 during the month of July 2021. Please see Project Inventory section for further details. 

Impact Area 1 Summary

This is the only category where there were expenditures as of July 31, 2021. Those expenditures total 

$17.7 million and were primarily from the premium pay program. The $78 million budget estimate is over 

the entire 21⁄2 year grant duration. By comparison, as of April 30, 2021, in 131⁄2 months during the CARES 

grant period, the County spent $87.6 million in these categories in CARES Act funding. This significant 

reduction in planned expenditures is based on the current anticipated reduction in the County’s overall 

emergency response over that period. However, we will continue to closely monitor the pandemic and 

necessary response as we go, and will maintain the flexibility to adjust as necessary. 

IMPACT AREA 2 – ADDRESSING NEGATIVE ECONOMIC IMPACTS BUDGET EST. $25 MILLION

A large focus of the SLFRF funding is to respond to the public health emergency caused by COVID-19, or 

to the negative economic impacts of the pandemic. The business, tourism, travel, hospitality, recreation 

and non-profit industries have been hurt by the pandemic, and many families have also faced negative 

Premium Pay $20,000,000

Labor Including Straight Time, OT, Fringe and/or Additional Positions $15,800,000

PPE Supplies $16,600,000

Janitorial Supplies and Other Services $ 4,700,000

Equipment and MISC Supplies $ 7,500,000

County Building Modifications $10,000,000

Public Works $ 3,500,000

$78,100,000
Baltimore County 2021 Recovery Plan Performance Report 4

economic impacts. The placeholder in this Impact Area is estimated at $25 million that will be dedicated 

to supporting the needs of businesses, communities and families in the form of grants or other support.

Using our CARES allotment, we provided $10.8 million in that supported other external funding that 

provided 1,489 grants across a wide range of businesses, including restaurants, hotels, personal services 

and retail.

In this $25 million estimate, the County has the opportunity to take a broader approach to economic 

recovery that includes other impacted industries such as tourism, travel and hospitality as well as the notfor-profit sector. This could be in the form of grants to these effected industries as well as assistance to 

individuals and families. 

The Subcabinet on Economic Recovery has already held three public roundtables to solicit ideas from

members of in the community in these various sectors, and will be submitting recommendations in the 

near future. There have not been any expenditures in this impact area as of July 31, 2021. 

IMPACT AREA 3 – PUBLIC AND BEHAVIORAL HEALTH BUDGET EST. $5 MILLION

The County’s $5 million placeholder in this function aims to supplement another $28 million in grant 

funding that the Department of Health has included in the FY 2022 budget that is reserved for COVID-19 

related activities, specifically for supporting vaccination efforts. Over the course of the last year, the 

County spent $18.7 million in CARES funding dedicated to testing, contract tracing, and vaccination as well 

as labor chargebacks dedicated to the public health response. 

We know that the pandemic has exposed and exacerbated inequities and health disparities and well as 

behavioral health issues, so $3.4 million of this new funding will be used for the previously announced 

expansion of our Mobile Crisis team and to support chronic disease prevention in relation to COVID-19 

with an emphasis in our disproportionately and underrepresented communities. 

As we have learned over this past year, public health responses are fluid situations and must remain 

flexible. While we have shifted from large-scale, location-specific vaccination efforts to a more targeted 

mobile approach, if things change significantly this fall and the need for testing ramps up again, or we 

begin vaccinating children under 12 and/or potentially providing booster shots to the general public, the 

County is prepared to adjust funding in this area as necessary. There have not been any expenditures in 

this impact area as of July 31, 2021. 

IMPACT AREA 4 – REVENUE LOSS AND STABILIZATION TBD

SLFRF funding can be used to provide government services to the extent of reduction in revenue 

experienced due to COVID-19 on an entity-wide basis. Funding cannot be used for pre-pandemic 

projections as a basis to estimate the reduction in revenue. Funding also cannot be used for directly or 

indirectly offsetting a reduction in the net tax revenue resulting from a change in law, regulation, or 

administrative interpretation.

Methodologies are currently being reviewed in this area to determine impacts and eligibility of this 

provision. There have not been any expenditures in this impact area as of July 31, 2021. 
Baltimore County 2021 Recovery Plan Performance Report 5

IMPACT AREA 5 – CAPITAL IMPROVEMENTS BUDGET EST $45 MILLION

Another main focus of SLFRF is to make necessary investments in water, sewer, and broadband 

infrastructure. The $45 million placeholder will be dedicated to a host of different capital needs including 

transportation, solid waste improvements and stabilization, broadband, streetscapes and other 

community improvements as allowed. There have not been any expenditures in this impact area as of 

July 31, 2021. 

Promoting Equitable Outcomes 

Baltimore County has over 850,000 residents-- the third largest population in Maryland. Nearly 30 percent 

of the County's population is African American, 100,000 residents are foreign-born, and students in the 

County's school system speak 97 different languages. From 2010 to 2020, the Hispanic or Latino 

population grew over 71.7%, 7.2% of residents. Nine percent of the County's households live below the 

federal poverty line, and 29 percent fall under the Asset Limited, Income Constrained, Employed (ALICE), 

threshold, according to the United Way. Given Baltimore County's diversity, ensuring that our SLFRF 

expenditures prioritize equitable outcomes is key to our overall recovery. The Economic Recovery 

Subcabinet will work in conjunction with community stakeholders to define the SLFRF equity goals and 

ultimately a County-wide equity framework. Using the data-based performance model already in place 

across County government, BCSTAT will support the Economic Recovery Subcabinet in ensuring that 

equity outcomes match Treasury guidance and demonstrate measurable impacts to the community. 

Community Engagement 

The Economic Recovery Subcabinet has engaged with many different community stakeholders throughout 

their internal planning process. With the expanded treasury guidance, the County is developing a multipronged community engagement plan to allow the general public to provide feedback and input on SLFRF 

spending proposals. A detailed outline will be published on the County website alongside communitypartner led outreach to ensure that all residents and stakeholders can participate. When possible, 

proposals will also prioritize building the capacity of our community partners who fill crucial gaps in 

supporting County residents.

Labor Practices 

The Baltimore County Council approved prevailing wage legislation in 2020 for County contracts, a 

foundation that the County will follow if infrastructure projects are identified for SLFRF spending.

Use of Evidence 

Baltimore County launched BCSTAT, the County’s first data-driven performance management program, in 

2019. Using evidence and data based systems for decision-making is well integrated throughout County 

government and SLFRF projects will follow this model while also following Treasury guidance. 
Baltimore County 2021 Recovery Plan Performance Report 6

Table of Expenses by Expenditure Category

Category Cumulative

expenditures to 

date ($)

Amount spent 

since last 

Recovery Plan

1 Expenditure Category: Public Health

1.9 Payroll Costs for Public Health, Safety, and Other 

Public Sector Staff Responding to COVID-19

28,617 28,617

2 Expenditure Category: Negative Economic Impacts

3 Expenditure Category: Services to 

Disproportionately Impacted Communities

4 Expenditure Category: Premium Pay

4.1 Public Sector Employees 17,670,495 17,670,495

4.2 Private Sector: Grants to other employers 

5 Expenditure Category: Infrastructure

6 Expenditure Category: Revenue Replacement

6.1 Provision of Government Services

7 Administrative and Other 3,691 3,691

7.1 Administrative Expenses 

7.2 Evaluation and data analysis 

7.3 Transfers to Other Units of Government

7.4 Transfers to Non Entitlement Units 

(States and Territories only)

Project Inventory 

Project #IA1-02: Payroll Costs for Staff Responding to COVID-19

Funding amount: $28,617 

Project Expenditure Category: 1.9; Expenditure Category: Public Health

Project overview

This project includes labor costs for payroll and covered benefits expenses for public safety, public health, 

health care, human services, and similar employees, to the extent that their services are devoted to 

mitigating or responding to COVID-19. Baltimore County considers public health/safety employees to be 

entirely devoted to mitigating/responding to COVID-19, and are fully recovered, if the employee, or 

his/her operating unit or division, is primarily dedicated to responding to the COVID-19 public health 

emergency. The $28,617 expenditure during the reporting period reflects additional legal staff to assist 

with Child In Need of Assistance and other child welfare work, which has been backlogged since the start 

of the pandemic. 
Baltimore County 2021 Recovery Plan Performance Report 7

Project #IA1-01: Premium Pay

Funding amount: $17,670,465

Project Expenditure Category: 4.1; Expenditure Category: Premium Pay, Public Sector Employees

Project overview

On April 16, 2021 the County Executive announced that most County employees would be receiving a 

one-time premium pay in the amount of $1,000, while public safety and public health employees would 

receive $3,000 during the month of July 2021. Recognizing the heightened risk faced by Police, Fire, EMS, 

Corrections, 911, and Sheriff’s Office employees, as well as health and human service workers, these 

departments received the higher allotment. Premium pay covered by SLFRF funding was only eligible for 

those County employees reporting to work in person, however, those employees that were on a telework 

arrangement were eligible for a bonus paid for by County General Funds. 

Sections 602(c)(1) and 603(c)(1) of the American Rescue Plan Act of 2021 provide that funds may be used 

“to respond to workers performing essential work during the COVID-19 public health emergency by 

providing premium pay to eligible workers.” Sections 602(g)(2) and 603(g)(2) define eligible worker to 

mean “those workers needed to maintain continuity of operations of essential critical infrastructure 

sectors and additional sectors as each Governor of a State or territory, or each Tribal government, may 

designate as critical to protect the health and well-being of the residents of their State, territory, or Tribal 

government.” 602(g)(2) and 603(g)(2), state that “the chief executive of each recipient has discretion to 

add additional sectors to this list, so long as additional sectors are deemed critical to protect the health 

and well-being of residents.” As such, since County government, including all executive, judicial and 

legislative functions, continued and will continue throughout the COVID-19 pandemic and in light of the 

new Delta variant and increase in positivity rate to 5 percent in Baltimore County, County services have 

and will remain uninterrupted. As a result, the Baltimore County Executive determined most County 

employees eligible for either the $3,000 or $1,000, excluding elected officials.

Expenditures from the one-time Premium Pay program from SLFRF funding totaled $17.7 million. 

Premium pay went to approximately 33 percent of staff who identify as non-white. The premium pay 

allotment contributed to a 14 percent increase in the number of employees whose total pay fell above 

$93,765 (150 percent of the Baltimore County Average Annual Wage for all occupations)1

. Considering 

the impact through an equitable framework, employees of color and female employees each comprised 

22 percent of those who benefited from the premium pay bonus increasing their total pay above the 

$93,765 threshold. Considering the “public health/safety vs regular premium pay” differential, the impact 

was greater for public health/safety employees with this group experiencing a 13.54 percent increase in 

the percentage who fell above the $93,765 threshold for their total pay (compared to 6.05 percent

increase for those in the “other” category). 

Project #IA4-18: Other Public Health Response

Funding amount: $3,691 

Project Expenditure Category: 7; Expenditure Category: Administrative and Other 

 1 Per 31 CFR Part 35, the County median annual wage is taken to be that of the metropolitan or nonmetropolitan 

area that includes the county. See U.S. Bureau of Labor Statistics, May 2020 Metropolitan and Nonmetropolitan 

Area Estimates listed by county or town, https://www.bls.gov/oes/2020/may/oessrcma.htm
Baltimore County 2021 Recovery Plan Performance Report 8

Project overview

This project includes expenses for personnel working to ensure safe social distancing for jury selection for 

the Circuit Court. Additional expenses above and beyond current line item budgets will be included in this 

category going forward. 

Performance Report

In future reports, Project Inventories will include key performance indicators (KPI) for all major SLFRF 

funded projects. Key performance indicators for each project, or group projects with substantially similar 

goals and the same outcome measures will be included. 

Project #IA1-01: Premium Pay

Activity Desired Outcome KPI 1 KPI 2 

Premium pay to address heightened 

risk faced by essential workers 

during the public health emergency

Prioritized financial compensation to 

frontline health and safety workers

Percentage of total 

employees receiving 

Premium Pay classified as 

Public Health or Safety

Percentage of total Premium 

pay allocated to Public Health 

and Safety employees

65% 83%