Dauphin County, Pennsylvania

Recovery Plan 

State and Local Fiscal Recovery 

Funds (SLFRF)

2021 Report

(Reporting Period: Date of Award – July 31st, 2021)
Dauphin County, Pennsylvania 2021 Recovery Plan Performance Report 1

Dauphin County, Pennsylvania

2021 Recovery Plan

Table of Contents

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

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

Uses of Funds .........................................................................................................................4

Promoting Equitable Outcomes .............................................................................................17

Community Engagement .......................................................................................................19

Labor Practices .....................................................................................................................20

Use of Evidence ....................................................................................................................21

Table of Expenses by Expenditure Category.........................................................................22

Project Inventory.....................................................................................................................22
Dauphin County, Pennsylvania 2021 Recovery Plan Performance Report 2

GENERAL OVERVIEW

Executive Summary

Since the beginning of the COVID-19 pandemic, the Dauphin County Commissioners 

have overseen both the on-the-ground health response as well as the deployment of 

millions of dollars in critical federal, state, and local assistance to impacted residents, 

small businesses, municipal governments, and nonprofit entities within the county.

Between March 2020 and the date of this initial Recovery Plan Performance Report, 

Dauphin County has administered over $43 million in non-SLFRF assistance to its local 

governments, small businesses, nonprofits, and residents with the goals of preventing 

and containing the spread of COVID, supporting the healthcare response to COVID, 

stabilizing local communities, small businesses, and nonprofits, and ensuring the 

continued delivery of critical county services. 

In addition to the above, the American Rescue Plan Act (ARPA) of 2021 provides $54 

million in additional State and Local Fiscal Recovery Funds (SLFRF) to Dauphin County, 

the potential uses of which this initial Recovery Plan Performance Report covers. On top 

of the direct Dauphin County allocation, the American Rescue Plan further provides an 

additional $48.9 million in direct SLFR funds to the City of Harrisburg, $22.6 million to the 

other 39 municipalities within the county, and billions in other ARP specific programs to 

support a wide range of needs including education, health, economic assistance, 

broadband, and infrastructure. 

Within the broad and complex context above, as well as the pending nature of the US 

Department of Treasury’s Final Rule governing the use of SLFR funds, the Dauphin 

County Board of Commissioners are taking a methodical, deliberate, and judicious 

approach to planning for the use of its allocation and developing corresponding programs. 

Pursuant to this approach, the Dauphin County Commissioners have not expended 

American Rescue Plan SLFR funds during the initial reporting period (Award date 

– July 31, 2021) and will await issuance of the Treasury Final Rule before making 

final commitments on the use of SLFR funds. Therefore, this initial Recovery Plan 

Performance Report reports zero expenditures to date and contains information on 

planned uses and program designs currently under consideration, but not final. 

Therefore, metrics like key outcome goals, progress to date on outcome goals, and 

noteworthy challenges or opportunities identified during the reporting period are 

somewhat premature as use decisions and corresponding programmatic development 

are still under consideration—and subject to final guidance from the US Department of 

Treasury in the form of the Treasury Final Rule. Further, the Dauphin County 

Commissioners are in the process of gathering specific input from minority and 

underserved community stakeholders prior to making final spending decisions to ensure 

robust and full participation by these constituencies.
Dauphin County, Pennsylvania 2021 Recovery Plan Performance Report 3

This cautious and deliberate approach allows Dauphin County to review the Final Rule 

with its consultants to ensure all spending decisions are eligible, compliant, strategic, and 

will support a strong and equitable recovery from the COVID-19 pandemic. It further 

allows Dauphin County to take stock of the myriad forms of available federal, state, and 

local assistance (both past and present) to implement a spending strategy that is efficient, 

impactful, and non-duplicative. Just as importantly, this deliberate approach affords the 

Dauphin County Commissioners the time necessary to fully consult with all stakeholders, 

including representatives from minority and underserved communities, to plan SLFRF 

investments in a manner that promotes equity, inclusion, and an impactful recovery for 

those communities most impacted by the pandemic. Meetings with minority stakeholders 

are already underway and will continue through the final spending and implementation 

process. 

As stewards of a historic investment of public dollars, the Dauphin County Commissioners 

are committed to spending wisely, deliberately, and based on final guidance with thorough 

stakeholder input. 

As we continue to see the negative impacts of the COVID-19 pandemic on our 

community, we will strive to provide as many resources as possible to our residents,

businesses, nonprofit organizations, and public service providers to ensure that the public 

health, economic downturn, disadvantaged communities, and infrastructure needs of 

Dauphin County continue to be addressed. While the Dauphin County Commissioners 

await the Treasury Final Rule and develop a judicious final spending plan, Dauphin 

County will continue to deploy existing resources in response to COVID-19 including the 

Emergency Rental Assistance Program, Community Development Block Grant Program, 

HOME Investment Partnerships Program, and any other forms of federal, state, and local 

assistance available to aid in recovery from the pandemic. 
Dauphin County, Pennsylvania 2021 Recovery Plan Performance Report 4

Use of State and Local Fiscal Recovery Funds

As noted in the Executive Summary, the overall strategy of the Dauphin County 

Commissioners is to choose SLFRF uses within the context of the overall framework of 

COVID-19 assistance program previously and currently deployed in Dauphin County, as 

well as new forms of non-SLFRF assistance available to the county (see below for more 

details on the overall framework of non-SLFRF programs). Coupled with awaiting the 

Treasury Final Rule, and fully consulting with community stakeholders including minority 

leaders, this overall strategy will ensure funds are invested wisely, equitably, and in a 

manner that avoids duplication with other programs. 

While awaiting the Treasury Final Rule, Dauphin County has received and considered

input from key stakeholders to develop a comprehensive list of potential SLFRF uses

currently under consideration and subject to final Treasury guidance. Stakeholders with 

which Dauphin County has received feedback include minority leaders, small businesses, 

tourism, emergency management and health sectors, broadband providers, housing 

developers, and internal departments, to name a few. The Dauphin County Board of 

Commissioners continues to review this comprehensive list and, in consultation with the 

pending Treasury Final Rule, will finalize a spending plan after the Final Rule is issued 

and analyzed.

Below is a non-exhaustive list of potential SLFRF uses under consideration by the 

Dauphin County Commissioners based on feedback to date. Please note that Dauphin 

County is considering uses of funds and activities under all Expenditure Categories (EC 

1 through EC 6) and respectfully reserves the right to allocate funds to eligible activities 

outside of those listed below based on the Treasury Final Rule. The list below 

encompasses major use categories under strongest consideration.

Uses Under Consideration (Non-Exhaustive/Subject to Change)

Priority Use – Revenue Replacement - EC 6.1

The first area in which the Dauphin County Commissioners plan to use SLFR funds is 

revenue replacement (EC 6). Based on the broad range and impact of services provided 

by Dauphin County to over 286,000 residents in areas ranging from health and human 

services to housing to public safety, it is a primary objective of the Commissioners to first 

“shore up” the financial ability of the county to continue to provide said services to all 

county residents. 

Dauphin County is currently calculating lost revenue per the formula instructions provided 

by the US Department of Treasury pending any changes in the Treasury Final Rule and 

will utilize this expenditure prior to committing SLFR funds to other projects.
Dauphin County, Pennsylvania 2021 Recovery Plan Performance Report 5

How Revenue Replacement Supports Strong and Equitable Recovery

The financial impact of the COVID-19 pandemic forced Dauphin County to cut costs and

limit its delivery of government services due to declines in county revenues. Cost-saving 

actions included both temporary and permanent layoffs, spending freezes, halts in 

contracts with third-party public service providers, and other measures that continue to 

limit the ability of Dauphin County to deliver services at pre-pandemic levels. Over the 

course of the pandemic, Dauphin County furloughed 373 employees with some remaining

on furlough to date. The estimated additional costs related to furloughs to the county 

amount to roughly $1.8 million. Third-party public service providers through which the 

county delivers many of its social, health, and human services were further forced to halt 

or curtail activities. 

Using SLFR funds to replace lost revenue will allow Dauphin County to restore its full 

functional capacity and ability to deliver its full range of services to residents in 40 

municipalities, both rural and urban, and many times targeted to the most vulnerable 

citizens. The wide range of critical functions and services provided by Dauphin County 

directly to residents lends itself to making revenue replacement a priority use consistent 

with a strong and equitable recovery as it has the potential to impact every community 

county-wide.

Strategy to Maximize Programmatic Impact and Effective, Efficient, 

and Equitable Outcomes

As previously stated, the Dauphin County Commissioners are invoking the strategy of 

making lost revenue replacement the priority SLFRF use. From an efficiency standpoint, 

this strategy ensures SLFR funds are invested in a built-in system to maximize 

programmatic impact and deliver effective, efficient, and equitable outcomes. 

Regarding programmatic impact, Dauphin County’s existing infrastructure (including over 

25 departments and 1,700-plus employees) provides a built-in mechanism for maximum 

programmatic impact with long-term institutional knowledge and experience in delivering 

a wide range of services.

Regarding equitable outcomes, Dauphin County’s wide range of services and programs 

in one way or another impacts every one of its 286,000-plus residents. More specifically, 

a majority of Dauphin County’s human services, community development, and social 

service programs target the residents with the greatest need, whether it be a low-income 

homeowner in need of critical housing repairs, a public service provider delivering

programming for low-to-moderate income residents, a family seeking addiction treatment 

for a loved one, or a senior seeking assistance with daily activities. The broad and diverse 

range of constituencies served by Dauphin County programs in all areas lends itself to 

SLFRF investments leading to equitable outcomes. 
Dauphin County, Pennsylvania 2021 Recovery Plan Performance Report 6

Finally, the strategy of prioritizing revenue replacement mitigates pressure on Dauphin 

County to raise taxes in the next fiscal year. Given the financially precarious position of 

many Dauphin County residents—especially those on fixed and lower incomes—this 

strategy protects our most vulnerable from additional financial insecurity and keeps 

residents in their homes. Coupled with the administration of over $24 million in 

Emergency Rental Assistance, this strategy is timely and critical when housing stability is 

at a potential tipping point. 

How Investment of State and Local Fiscal Recovery Funds (SLFRF) in 

Revenue Replacement Supports Communities, Populations, or 

Individuals in Dauphin County

As noted previously, replacing revenue as a priority use of SLFR funds supports over 

286,000 Dauphin County residents by ensuring the continued function of county 

departments providing critical services in areas including: 

• Aging services

• Children and Youth services

• Community and Economic Development

• Conservation District activities 

• Criminal Justice 

• Planning

• Drug and Alcohol Services

• Public Safety 

• Emergency Management

• Magisterial District Justice system

• Mental Health, Autism, and Developmental Programs

• Human Services

• Parks and Recreation

• Pre-Trial Services

• Prison operations

• Solid Waste Management and Recycling

• Tax Assessment

• Tax Claims 

• Veterans Affairs

• Victims Services
Dauphin County, Pennsylvania 2021 Recovery Plan Performance Report 7

Please see map below detailing service area of Dauphin County by population density.

Dauphin County will be able to continue to provide government services and programs 

county-wide by prioritizing revenue replacement as the first use of SLFRF funds. 

DAUPHIN COUNTY POPULATION BY DENSITY
Dauphin County, Pennsylvania 2021 Recovery Plan Performance Report 8

Broadband Infrastructure – EC 5.16 - 5.17

The Dauphin County Commissioners are also strongly considering setting aside SLFRF

dollars to support broadband expansion efforts---either through direct investment in 

currently shovel-ready projects or long-term planning for future expansion. Over the past 

year, Dauphin County has worked with internet service providers, municipalities,

intermediate units, and its broadband consultant to not only assess the overall need for 

broadband in the county, but also pursue funding for shovel-ready projects in known 

areas of need. 

Specifically, Dauphin County, in partnership with an internet service provider (ISP) is

currently pursuing non-SLFRF grant funding for the purposes of expanding fiber 

broadband to 115 households and three (3) businesses in Lykens Township, Rush 

Township, and Jefferson Township (rural communities). These chosen locations are 

based upon long-standing requests from each municipality and its residents in the project 

areas who currently lack broadband coverage. 

An SLFRF broadband set-aside will first be considered as a potential match (if needed) 

to current ISP applications to the Pennsylvania Act 132 Broadband Grant Program, the 

NTIA Broadband Infrastructure Grant Program, or other existing non-SLFRF programs 

related to broadband. This approach will allow SLFR funds to be leveraged against other 

sources of funds and be used on immediately impactful projects, thus maximizing the 

impact of SLFR funds. 

If SLFR funds are not needed as a match for the specific projects mentioned above, 

Dauphin County would utilize the set-aside to engage in a formal broadband study to 

identify additional areas of need to be funded with the second tranche of SLFR funds

and/or other sources. This study would build upon the on-the-ground efforts Dauphin 

County has been conducting with internet service providers, consultants, and other 

stakeholders over the previous two years.

Use of SLFR funds for broadband infrastructure expansion would focus primarily on rural 

areas in Northern Dauphin County when related to infrastructure expansion with 

additional consideration for addressing affordability/access in urbanized parts of the 

county.

How Investment in Broadband Promotes a Strong and Equitable 

Recovery

Investing SLFR funds in rural broadband will support a strong recovery by expanding 

digital access to workers, families, and students currently struggling to participate in 

remote work/educational settings. Improving remote work/education conditions in 

Northern Dauphin County will further allow more flexibility for workers and students to 

safely participate in remote scenarios especially in instances of COVID resurgence. 
Dauphin County, Pennsylvania 2021 Recovery Plan Performance Report 9

Finally, expanding rural broadband in Northern Dauphin County improves access to 

digital resources and information allowing rural residents to participate in the digital world 

that has become increasingly necessary.

Investing in rural broadband also supports an equitable recovery by bringing portions of 

Northern Dauphin County “up to speed” with Southern Dauphin County (which is highly 

built out). As previously stated, access to high-speed broadband will help bring digital 

resources to Northern Dauphin County residents that are currently available widely in 

Southern Dauphin County thus bridging the “digital divide.” From accessing job postings 

to retrieving the latest COVID information to accessing online banking, Northern Dauphin 

County residents will begin to have equitable access to digital resources.

A parallel emphasis on affordability and access issues in Southern Dauphin County will 

ensure financially vulnerable residents are still afforded access to broadband and the 

many critical resources it provides. 

Strategy to Maximize Programmatic Impact and Effective, Efficient, 

and Equitable Outcomes Related to Broadband Uses

The strategy to maximize impact and effective, efficient, and equitable outcomes related 

to broadband will be, first and foremost, to leverage SLFR funds with non-SLFR 

programs. As Dauphin County has already completed much of the legwork in forming a 

partnership with an ISP to apply for grants, finance, and execute the projects noted above, 

SLFR funds will be utilized only if needed to leverage the Pennsylvania Act 132 Program, 

or the NTIA Broadband Infrastructure Program applications submitted by the ISP. Further, 

the projects themselves would consist of running broadband fiber, the “gold standard” in 

reliable broadband infrastructure, that is capable of being upgraded and approved upon 

in the future. 

Regarding the second option for use--funding a comprehensive broadband study--

Dauphin County would ensure the study touched on both infrastructure buildout in rural 

Northern Dauphin County and affordability/access in the urbanized and suburban 

Southern Dauphin County municipalities. This strategy would ensure no population is left 

out of the broadband discussion and planned investments in broadband access. 

How Investment in Broadband Supports Communities, Populations, 

or Individuals in Dauphin County

In relation to investing SLFR funds directly in Northern Dauphin County infrastructure 

buildout, the communities most immediately supported would primarily be residents in 

Lykens Township, Rush Township, and Jefferson Township. However, additional project 
Dauphin County, Pennsylvania 2021 Recovery Plan Performance Report 10

opportunities would be under consideration pending receipt of additional financial

resources to continue a build-out throughout Northern Dauphin County. 

Regarding the second option of funding a comprehensive broadband study, the 

communities impacted would encompass all of Dauphin County’s 280,000-plus residents. 

Other Uses Under Consideration Pending Treasury Final Rule

Aside from the above-stated uses under consideration, the Dauphin County 

Commissioners continue deliberation on allocating SLFR funds to additional use

categories subject to the Treasury Final Rule including but not limited to: 

• PUBLIC HEALTH – EC 1.1 - 1.12: Dauphin County is continuing to monitor the 

changing conditions on the ground related to COVID-19 including emerging trends 

in transmission of COVID variants to determine appropriate investments of SLFR

funds related to mitigation and response. Potential uses include vaccine 

distribution programs, testing, personal protective equipment distribution, reopening vaccine distribution centers, vaccine education programs, assistance in 

expanding healthcare capacity to manage surges in hospitalizations, investment 

in ventilation systems to improve public facilities, etc. 

Dauphin County is further considering specific uses related to mental health services 

including but not limited to: 

o PUBLIC HEALTH – MENTAL HEALTH SERVICES - EC 1.10:

Based on the SAMHSA Behavioral Health Crisis Response System toolkit 

published in December 2020, and in response to increased behavioral health 

crises during the COVID-19 pandemic, Dauphin County is considering use of 

SLFR funds to develop a Mental Health Crisis Stabilization Center to respond to 

and deescalate behavioral health crises and provide emergency resources.

Related to mental health, the COVID-19 pandemic has highlighted the important role 

parks and open greenspace play in promoting the health of Dauphin County residents. 

As evidenced by the overwhelming demand for park usage over the past year, county 

parks and open space are critical in promoting physical activity, enhancing well-being, 

and improving mental health both during and after pandemics. For this reason, the 

Commissioners are considering allocating SLFR funds to preserve and expand public 

parks and greenspaces.

o PUBLIC HEALTH – OTHER PUBLIC HEALTH SERVICES – EC 1.12:

Dauphin County is considering dedicating a portion of SLFR funds to the 

Department of Parks and Recreation for purposes of preserving and expanding 
Dauphin County, Pennsylvania 2021 Recovery Plan Performance Report 11

greenspace and public park space as a community asset contributing to public 

health. 

• NEGATIVE ECONOMIC IMPACTS – EC 2.1 - 2.14: Based on recent feedback 

from the small business community and community stakeholders, Dauphin County 

is considering additional small business/nonprofit grant programs targeted to 

entities continuing to demonstrate revenue losses due to COVID-19 (2.9, 2.10). 

These programs may consist of general small business assistance as well as 

minority-owned business and nonprofit assistance. Potential EC 2 uses under 

consideration include: 

• General Small Business and Nonprofit Assistance Program based on 

continued revenue loss. 

• Minority-owned Small Business and Nonprofit Assistance Program to 

promote an equitable economic recovery (2.9. 2.10). 

• Replenishment of funds to the Dauphin County Tourism Grant Program 

which supports tourism generating activities and major events. This 

program experienced significant revenue loss due to COVID-19’s impact on 

the hotel industry whose room tax funds the program (2.11). 

• Financial support of Dauphin County’s Destination Marketing Organization

(2.11). 

• Investing in county technology upgrades to provide faster and more efficient 

delivery of services (2.13). 

• Studies to examine minority and women-owned businesses (MBE/WBEs) 

and strategies to ensure COVID economic recovery is inclusive and 

equitable. 

• SERVICES TO DISPROPORTIONATELY IMPACTED COMMUNITIES - EC 3.1 -

3.16: Dauphin County is currently considering several uses within the “Services to 

Disproportionately Impacted Communities” category. Specific uses under 

consideration include but are not limited to:

• COMMUNITY VIOLENCE INTERVENTIONS – EC 3.16:

Dauphin County is considering investment of SLFR funds as 

leverage to increase capacity of the existing Dauphin County Co-
Dauphin County, Pennsylvania 2021 Recovery Plan Performance Report 12

Responder Program. A Co-Responder serves as a behavioral health 

professional that is positioned alongside police officers to respond to 

behavioral health calls by helping de-escalate situations and connect 

people in crisis to needed mental health resources. 

• HOUSING SUPPORT – EC 3.10 - 3.12:

In preparation for increased housing instability caused by the 

COVID-19 pandemic, and as part of the Blueprint to End 

Homelessness, Dauphin County is considering using SLFR funds to 

support the development of affordable housing options for persons 

experiencing homelessness or at-risk for homelessness, including 

but not limited to, transitional housing, permanent supportive 

housing, rental housing, and additional shelter facilities. Any use of 

SLFRF funds in this category would leverage existing resources and 

partnerships with homelessness providers to deliver the broadest 

impact. 

In addition, consideration is being given to use SLFR funds to 

increase the number of traditional permanent affordable housing 

units in Dauphin County, specifically in high opportunity areas close 

to employment centers and educational opportunities. This use 

would include increasing the number of accessible, affordable units 

to allow for persons of all abilities to successfully live independently.

• OTHER –– EC 3.13:

SLFR funding under this category would be used to support 

additional training and resources to the Dauphin County District 

Attorney’s Office to combat human trafficking. Potential uses include

increasing capacity at the Children’s Advocacy Center, expanded 

trauma certification and training for direct support staff, support for 

mental health services for victims of human trafficking, public 

awareness programs, and other supports to combat human 

trafficking whose victims are disproportionately from low-income and 

vulnerable populations. 

Dauphin County will further consider use of SLFR funds for additional activities 

within the “Services to Disproportionately Impacted Communities” category and is 

taking the additional steps below to ensure disproportionately impacted 

communities benefit from SLFR-funded programs: 
Dauphin County, Pennsylvania 2021 Recovery Plan Performance Report 13

• Dauphin County is reviewing the list of qualified census tracts (QCTs) within 

the county boundaries to determine areas of potential SLFRF investments. 

• Support to organizations in disproportionately impacted communities to 

build social resources and capacity to deliver services.

• Dauphin County continues to hold minority stakeholder meetings to inform 

SLFRF decisions related to all areas of impact, including services to 

disproportionately impacted communities. 

• WATER/SEWER INFRASTRUCTURE – EC 5.1 - 5.17: Dauphin County is 

currently assessing infrastructure needs of its municipalities and will consider 

these projects within the context of existing county infrastructure programs like the 

Dauphin County Infrastructure Bank, available state and federal infrastructure 

grant and loan programs, and planned uses of direct SLFRF allocations by 

municipalities.

• ADMINISTRATIVE - EC 7.1 - 7.4: Dauphin County will use a portion of SLFR funds 

to cover administrative costs related to programs including day-to-day operational 

costs related to administering programs, materials, and evaluation and data 

analysis costs.

As seen below, Dauphin County is implementing a broad strategy to ensure each use 

enumerated above results in a strong and equitable recovery with maximum impact. 

Additional equity strategies specific to each use will be provided on future reports where 

appropriate—after uses and program designs are finalized.

It is important to reiterate that, due to the interim nature of Treasury guidance 

governing use of SLFR funds, the Dauphin County Commissioners are deliberately 

waiting for issuance of the Treasury Final Rule before making final commitments 

to SLFRF fund uses. 
Dauphin County, Pennsylvania 2021 Recovery Plan Performance Report 14

Overall Strategy to Maximize Impact of SLFRF Uses

To maximize impact, aside from taking the deliberate approach of fully analyzing the 

Treasury Final Rule prior to committing SLFR funds, Dauphin County is further

considering SLFRF investments within the context of the totality of available COVIDrelated assistance (both prior and current) as well as non-COVID standing assistance 

programs like CDBG, ESG, HOME, Tourism, Local Share, and other traditional 

assistance programs administered by Dauphin County. This strategy ensures SLFR funds 

are either targeted to areas of unmet need or leveraged with existing assistance programs 

where demand exceeds availability of assistance.

Consideration of Existing Forms of Other Assistance When Determining SLFRF

Investments

Since the beginning of the pandemic, Dauphin County has administered multiple forms 

of COVID-specific federal, state, and local assistance in response to the pandemic. From 

small business grants to emergency rent and utility relief to direct municipal allocations, 

Dauphin County continues to administer myriad forms of COVID-related financial 

assistance that—coupled with traditional grant programs administered by Dauphin 

County--forms the total context in which the Commissioners must consider SLFRF 

investments.

In April 2020, the County received approximately $850,000 in 2020 HUD Community 

Development Block Grant-COVID Recovery Funds to provide working capital and payroll 

assistance grants to small businesses and nonprofits recovering from the economic 

impact of the pandemic. These grants were awarded based upon the applicant meeting 

certain eligibility criteria and were targeted to low-to-moderate income small businesses 

and nonprofits. Through this program, the County was able to award 73 grants to assist 

in the economic recovery process. 

In August 2020, the County was awarded $25.1 million in Coronavirus Aid, Relief, and 

Economic Security (CARES) Act funding. With CARES funding, the County ran three 

separate grant programs: one offering direct funding to local municipal governments, 

another providing additional financial support to local small businesses, and the final 

providing additional assistance to nonprofit organizations. Through these programs, the 

County awarded a total of $17 million (68% of funds received) in grant funds, with the 

remaining funds used to reimburse internal County response expenditures. Over $11 

million in CARES Act assistance was directly appropriated to municipalities based on 

eligible expenses while over $5.2 million was provided to small businesses and 

nonprofits.

In December 2020, the County received an additional $1.8 million in 2020 CDBG-COVID 

Recovery Funds (Round Two) to provide even more working capital and payroll 

assistance grants to assist small businesses and nonprofits in recovering from the 

economic impact of the pandemic. Through this program, the County was able to award
Dauphin County, Pennsylvania 2021 Recovery Plan Performance Report 15

an additional 118 grants to assist businesses and nonprofits in the economic recovery 

process. 

In February 2021, Governor Wolf signed into law legislation to set aside funds to aid 

hospitality industry businesses that were adversely impacted by COVID-19. Dauphin 

County applied for and received $3.1 million to provide grant money to selected eligible 

hospitality businesses and to pay allowable administrative costs. Through this program, 

the County was able to award a total of 129 grants to hospitality industry businesses 

within the County. Grants were awarded between $5,000 and $30,000, with 105 

businesses receiving at least $25,000. Awards were based on the business’ allowable 

expenses incurred between March 1, 2020, and the date of the application, less any other 

COVID-19 relief funds received for those same expenditures. 

In February 2021, the Emergency Rental Assistance Program (ERAP) was created to 

help renters dealing with financial challenges related to the COVID-19 pandemic. 

Dauphin County was awarded approximately $24.4 million in Federal and State funds 

under this program. For eligible households, the program offers rental and utility 

assistance to help avoid eviction or loss of utility services. Through this program, the 

County has been able to award a total of $4.1 million to further help residents of the 

County to obtain not only household stability, but also financial security. The Program is 

still open for residents to apply and continues to provide targeted relief to residents of the 

County to address housing stability.

Related to addressing the potential increase in homelessness due to the pandemic, 

Dauphin County is further in receipt of $2,348,835 in HOME Investment Partnerships 

Program – American Rescue Plan (HOME-ARP) assistance. This assistance will be used 

to develop additional affordable housing in Dauphin County to support permanent 

homeownership amongst vulnerable populations. 

Table 1 provides a summary of COVID-related assistance provided through Dauphin 

County to date. This assistance (both previous and still available) must be considered 

when finalizing the framework on SLFRF investments by Dauphin County. 

Program Total Assistance Beneficiaries

CDBG-CV Round 1 Small 

Business/Nonprofit

Assistance

$853,568 73 small 

businesses/nonprofits

CDBG-CV Round 2 Small 

Business/Nonprofit 

Assistance

$1,810,829 118 small 

businesses/nonprofits

CARES Act Small 

Business/Nonprofit 

Assistance

$5,273,638 261 small 

businesses/nonprofits

COVID Hospitality Industry 

Recovery Program

$3,085,000 129 small businesses
Dauphin County, Pennsylvania 2021 Recovery Plan Performance Report 16

CARES Act Municipal Grant 

Assistance

$11,768,106 20 municipalities

CARES Act Tourism 

Assistance

$150,000 1 Destination Marketing 

Organization

Emergency Rental 

Assistance Program

$24,865,241 TBD

HOME ARP $2,348,835 TBD

On top of county administered assistance noted above, the American Rescue Plan further 

provides over $70 million in direct SLFRF allocations to Dauphin County’s 40 

municipalities (including over $48 million to the City of Harrisburg) and over $106 million 

to Dauphin County school districts. Direct ARP allocations to Dauphin County 

municipalities and school districts must also be considered as part of a strategy to invest 

the county’s allocation in an efficient and non-duplicative manner. To ensure this, 

measures taken to date include surveying Dauphin County municipalities to gather 

information on planned uses of their specific SLFRF allocations. 

In addition to previous and currently available non-SLFRF COVID assistance and 

concurrent ARP specific allocations to municipalities and school districts, the 

Commissioners must also consider current requests and investments made from Dauphin 

County’s traditional standing grant programs which cover many of the eligible SLFRF 

uses.

Examples include, but are not limited to:

• The Dauphin County Infrastructure Bank and Bridge Bundling Program.

• The Dauphin County Local Share Grant Program.

• The Dauphin County Tourism Grant Program. 

• The Dauphin County Community Development Block Grant Program. 

• The Dauphin County HOME Investment Partnerships Program. 

• The Dauphin County First-Time Homebuyer Program. 

• The Dauphin County HOME Rehab Program. 

• The Dauphin County CDBG-ESG Program. 

These programs cover a wide range of uses and beneficiaries providing the potential for 

overlap with eligible SLFRF uses. This is also the case for direct ARP allocations to 

municipalities and school districts in Dauphin County. For this reason, the Dauphin 

County Commissioners are attempting to gain a comprehensive picture of use of funds 

from other available sources, as well as await any guidance related to duplication of 

benefits requirements in the Treasury Final Rule prior to making final SLFRF 

commitments. 

Again, during this interim period, it is critical to consider ARP investments after reviewing 

the Treasury Final Rule and in the context of the many forms of assistance (both COVID 

and non-COVID) already available prior to committing Dauphin County’s SLFRF 
Dauphin County, Pennsylvania 2021 Recovery Plan Performance Report 17

allocation to specific uses. In doing so, the Dauphin County Commissioners will ensure 

all uses are necessary, non-duplicative, and serve a purpose that either leverages 

existing programs or would otherwise not be served. 

Promoting Equitable Outcomes in SLFRF Planning and 

Implementation

Dauphin County is awaiting issuance of the Treasury Final Rule prior to making 

final SLFRF use and program decisions. Therefore, during this interim period, 

specific goals, strategies, and program designs related to promoting equitable 

outcomes and tied to a specific use are forthcoming. When appropriate, Dauphin 

County is prepared to implement a strategy of performance evaluation, measurement, 

and promoting equitable outcomes utilizing existing program models when specific 

programs are finalized. In the interim, Dauphin County is performing proactive outreach 

to minority and disadvantaged community stakeholders to ensure a full understanding of 

on-the-ground needs on which to base equitable outcome measures. Stakeholder 

consultation meetings began in August 2021 and will continue throughout the SLFRF 

planning and implementation process.

Dauphin County has extensive experience in administering equity-based assistance 

programs with specific qualitative and quantitative performance and evaluation metrics 

including the Community Development Block Grant (CDBG), Community Development 

Block Grant Emergency Solutions Grant (CDBG-ESG) and HOME Investment 

Partnership Programs through its Department of Community and Economic Development

and Human Services Department. Through these programs, Dauphin County has

provided significant support to underserved communities for decades with the goal of 

promoting equitable outcomes. Program outcomes are regularly measured, reported, and 

quantified for performance evaluation and program effectiveness purposes. The eligibility 

guidelines, accomplishment metrics, and overall composition of these programs can

serve as a framework for SLFRF program designs related to promoting equitable 

outcomes and assessing program performance compared to specific goals.

In considering final uses of SLFR funds, considerations related to promoting equitable 

outcomes will include:

• Reviewing historically underserved areas (outside of the City of Harrisburg due to 

its separate SLFRF allocation) for potential areas of priority investment. This 

includes a review of historically low-to-moderate income census tracts in Northern 

and Southern Dauphin County based on data used by Dauphin County in 

administering the CDBG program. 
Dauphin County, Pennsylvania 2021 Recovery Plan Performance Report 18

• Utilizing the Qualified Census Tract listing specific to the SLFRF program to 

identify areas for eligible investments. 

• Reviewing the continuum of public service providers based on previous CDBG 

experience to determine effective providers in areas of need based on past 

performance. 

• Utilizing public feedback and stakeholder input to identify areas of greatest need. 

Once final uses are determined, design considerations for Dauphin County SLFRF

programs related to promoting equitable outcomes will include:

• Equitable Promotion

o Earned media promotion of Dauphin County SLFRF programs.

o Utilizing the Dauphin County website and social media to promote Dauphin 

County SLFRF programs.

o Public outreach events to promote Dauphin County SLFRF programs in 

low-to-moderate income communities.

o Multi-lingual translation of material related to Dauphin County SLFRF

programs and partnering with providers to non-English speaking 

populations to disseminate program information.

o Distribution of SLFRF program materials in high-volume areas of low-tomoderate income communities (e.g., post offices, laundry mats, 

convenience stores, government buildings.) 

• Income or area-based eligibility guidelines like the CDBG/HOME Program or 

utilizing QCTs specific to the SLFRF program. 

• Program eligibility guidelines based on benefit to low-to-moderate beneficiaries or 

limited clientele beneficiaries based on HUD standards, specifically related to any 

SLFRF public service activities. 

• Program evaluation and performance metrics including number of incomequalified beneficiaries served, number of limited clienteles served, programs and 

services delivered by type, location, and specific beneficiary goal measurements.

Dauphin County intends to quantify equity strategies, goals, and outcomes tied to specific 

SLFRP programs in the next Annual Recovery Plan Performance Report proceeding 
Dauphin County, Pennsylvania 2021 Recovery Plan Performance Report 19

issuance of the Treasury Final Rule to allow for the development of goals and strategies 

specific to final approved SLFRF programmatic investments. 

Community Engagement Plans

Public input and community engagement is a cornerstone to Dauphin County’s SLFRF 

development process. Specifically, the Dauphin County Commissioners are in the 

process of hosting minority stakeholder meetings to fully understand the needed 

investments to promote an equitable recovery. The first such meeting with African 

American community leaders took place on August 24th, 2021, with additional meetings 

specific to minority communities planned throughout the SLFRF planning process. These 

preliminary meetings serve as the foundation and beginning of a robust community 

engagement process that considers all constituencies. 

After reviewing the Treasury Final Rule, Dauphin County will follow a public input process 

to help inform its final spending plan. Measures taken to incorporate written, oral, and 

other forms of public input from constituents and stakeholders in the planning process are 

as follows:

• Dauphin County will host a dedicated, public-facing, SLFRF webpage where the 

public can view SLFRF reports, plans, and provide feedback on planned uses of 

funds via an SLFRF-specific email address. The website will be promoted by 

Dauphin County via a local media release and social media. 

• Dauphin County will publicize significant planned SLFRF investments via local 

media.

• Continued meetings with leaders from minority and underserved communities 

through the planning and implementation process. 

• The Dauphin County Board of Commissioners will provide periodic updates on the

SLFRF spending plan during regularly scheduled weekly board meetings. These 

meetings are open to the public and covered by the local media.

• Where applicable, provide translated materials promoting SLFRF programs 

including program announcements, applications, and guidelines when 

administering specific programs.

It is important to note that, in this interim period between date of award and issuance of 

the Treasury Final Rule, Dauphin County has consulted with a wide range of stakeholders 

within the community to solicit feedback informing SLFRF spending decisions. 

Stakeholders have ranged from small businesses to community organizations/nonprofits 

to broadband providers to tourism/hospitality. It is Dauphin County’s full intent to engage 
Dauphin County, Pennsylvania 2021 Recovery Plan Performance Report 20

the community further through the SLFRF planning process both via direct outreach and 

public relations efforts. 

Labor Practices in Administration of SLFRF-funded Programs

For any infrastructure projects (EC 5) funded either partially or wholly with SLFRF dollars, 

Dauphin County will mainly follow federal labor standards utilized in the administration of 

the Dauphin County Community Development Block Grant (CDBG) Program, with some 

practical exceptions. Utilizing the CDBG administrative framework will allow the county to 

enforce strong labor practices using rules and standards in which it is highly experienced, 

knowledgeable, and has an administrative capacity to enforce.

Labor standards to be implemented include the following: 

• Utilization of federal procurement requirements related to bidding infrastructure 

projects including proper method of procurement, prohibition on restrictive bidding 

practices, equal opportunity employment and non-discrimination requirements. 

• Requirement that all contractors/subcontractors pay Pennsylvania Prevailing 

Wage to employees based on proper workforce classification. This includes 

submission of weekly certified payroll reports detailing employee, classification, 

hours worked, dates worked, wage rate, and fringe benefit rate.

• Requirement that all contractors/subcontractors comply with the Contract Work 

Hours and Safety Standards Act, where applicable, including provisions for 

overtime compensation.

• Standard bid, performance, and payment bond requirements for all construction 

contracts and bids to ensure capacity to pay employees in instances of contractor 

default. 

• Requirement that all SLFRF infrastructure projects are managed by a certified 

engineer including review of all contractor applications for payment, certified 

payroll reports, and other labor compliance standards. 

• Requirement that any project receiving more than $200,000 in SLFR funds follow 

federal Section 3 training and outreach requirements for any job openings. This 

will ensure local economic opportunity for the lowest-income individuals in a project 

community. 

• Provisions for use of women and minority-owned businesses (WBE/MBE) in 

bidding and contracting including participation goals for infrastructure projects.
Dauphin County, Pennsylvania 2021 Recovery Plan Performance Report 21

• Certification by contractor of non-segregation of facilities, Section 3 outreach 

(when applicable), non-collusion, nondiscrimination, etc. 

Additional labor standards will be implemented at the discretion of the Dauphin County 

Commissioners. 

Use of Evidence-Based Interventions and Performance Evaluations in 

Administration of SLFRF Programs

Due to the interim status of the Treasury Final Rule, Dauphin County does not have 

SLFRF funds committed to specific uses related to evidence-based interventions and/or 

projects being evaluated through rigorous program evaluations.

Pursuant to guidance in the Treasury Final Rule, Dauphin County will utilize evidencebased interventions and program evaluations, where appropriate and required, in the 

design and implementation of final SLFRF-funded programs. This will include, but not be 

limited to, considering SLFRF subrecipients that can demonstrate evidence of an 

intervention, program, or activity’s effectiveness and implementing program evaluations 

specific to approved activities. 

Dauphin County is considering making reporting of evidence-based intervention data a 

part of SLFR application processes including prioritizing applicants that can demonstrate 

strong or moderate evidence of program/service effectiveness. 

SLFR funds will also be considered for building internal evaluation capacity, perform 

evaluations, or contract with external organizations for evaluation of related activities. 

Performance Report

Due to the interim status of the Treasury Final Rule, Dauphin County has not finalized 

SLFRF spending decisions and, therefore, does not currently have specific SLFRF 

projects for which to report key performance indicators. 

Dauphin County will report both key performance indicators and progress-to-date on

chosen indicators on its 2022 Recovery Plan Performance Report. This will include both 

self-selected and mandatory performance indicators required by Treasury and specific to 

Expenditure Category.

Dauphin County is currently coordinating with its Information Technology Department to 

develop a data-driven infrastructure to collect, aggregate, analyze, and report 

performance data on SLFRF program-specific metrics. Dauphin County is considering 

incorporating performance reporting as part of a public dashboard available on the 

Dauphin County ARP website. 
Dauphin County, Pennsylvania 2021 Recovery Plan Performance Report 22

Table of Expenses by Expenditure Category

The Dauphin County Commissioners have made the decision to wait for the issuance of 

the Treasury Final Rule before committing to the best use of the ARP-SLFR Funds. As 

such, no expenditures have been incurred as of July 31, 2021, and this section will be 

completed with the issuance of subsequent reports filed with Treasury. 

PROJECT INVENTORY

For the period covered in this plan (date of award until July 31st, 2021) no projects are 

reported nor are underway. The Dauphin County Commissioners continue to identify 

projects in which to invest SLFRF funds and are awaiting issuance of the Treasury Final 

Rule prior to committing funds and developing a project inventory. 

A copy of this report is available to the public at www.dauphincounty.org/arp.