Merced County

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.
MERCED COUNTY 2021 Recovery Plan Performance Report 1

MERCED COUNTY

2021 Recovery Plan

Table of Contents

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

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

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

Promoting Equitable Outcomes ................................................................................... 4

Community Engagement.............................................................................................. 7

Labor Practices............................................................................................................ 9

Use of Evidence........................................................................................................... 9

Table of Expenses by Expenditure Category............................................................... 9

Project Inventory........................................................................................................... 9

Projects ....................................................................................................................... 9

Performance Report................................................................................................... 10

Ineligible Activities: Tax Offset Provision ................................................................ 11
MERCED COUNTY 2021 Recovery Plan Performance Report 2

GENERAL OVERVIEW

Executive Summary 

Merced County was allocated a total of $53,936,085 in SLFRP funding as part of the 

American Rescue Plan Act. On May 20, 2021 the County received its first tranche 

disbursement of $26,968,042.50. In response to the guidance released from the 

Treasury, the County has conducted an analysis of the overall impacts of the COVID-19 

pandemic, including the impacts on operations and services provided, and revenue 

received and anticipated. This analysis was conducted using information gathered from 

County Departments on existing operations and projects, as well as utilizing the formula

provided by the Department of the Treasury to determine projected reductions in revenue 

as a result of the pandemic. 

Part of the analysis included identifying operations and expenses realized as part of the 

County’s direct response to the pandemic, and project needs anticipated to be unmet 

moving forward due to the operational and revenue impacts resulting from the pandemic. 

As a result of the projected revenue loss, staff sought direction from the Board of 

Supervisors to utilize the ARPA funding under the category of EC6 – Revenue 

Replacement, and create a framework for identifying projects and expenditures. On 

August 10, 2021, the Board of Supervisors gave direction to begin designing an 

expenditure plan and structure based on seven focus areas addressing anticipated unmet 

project needs: 

1. Homeless Services $ 4.0 M

2. COVID-19 Support $ 2.0 M

3. Community Facilities $14.8 M

4. Flood Control/Water $ 7.2 M

5. Roads $10.0 M

6. Correctional Facilities $13.5 M

7. Contingency $ 2.5 M

Due to impacts in operations from COVID-19 and the resulting projected reduction in 

anticipated revenue, there are multiple projects in each program category which are 

necessary to the provision of government services that would be indefinitely be delayed 

without the replacement of revenue. 

Uses of Funds

a. Public Health (EC 1)

b. Negative Economic Impacts (EC 2)

c. Services to Disproportionately Impacted Communities (EC 3)

d. Premium Pay (EC 4)

e. Water, sewer, and broadband infrastructure (EC 5)

f. Revenue Replacement EC 6)
MERCED COUNTY 2021 Recovery Plan Performance Report 3

The above identified programmatic categories are based on the County’s 

assessment of the impacts on operations and revenue resulting from the pandemic. 

Activities falling under these areas are part of planned operations that would have 

been impacted due to the reduction in revenue experienced during the pandemic. 

In order to determine the impact on revenue, the County utilized the calculation 

formula released by the Department of the Treasury as part of the guidance for 

determining eligibility. Based on the County’s analysis using the formula provided, 

our actual revenue did not meet our counterfactual projections. According to the 

calculation formula provided by the Treasury to calculate projected revenue growth, 

the County projected an average revenue growth rate through 2023 of 7.6%. Actual 

revenues received in 2020 fell short of this rate by $36,039,354, and is anticipated 

to continue this trend through 2023. 

The identified gap in revenue would have prevented the County from moving 

forward with several emergency projects in FY 2020-21 necessary for the provision 

of government services, as well as additional projects scheduled for the coming 

years. As such, the County’s strategy for expenditure of the funds falls under the 

category of (EC 6) Revenue Replacement in order to enable specified projects in 

the programmatic categories to move forward. 

As part of the analysis and planning process for expenditure of the funds, the 

County looked back to pandemic response activities beginning with the starting date 

of the ARPA allocation of March 3, 2021, and identified eligible expenses directly 

related to Community Facilities programming and COVID-19 Support activities. 

Eligible expenses identified for Community Facilities during this period included 

costs related to park infrastructure improvements, Library handrails at the front 

access point, and Veterans and Community Hall improvements. The projects 

improving facilities as well as park infrastructure addressed deficiencies in the 

functionality of these locations and were vital for the health and safety of the 

communities.

Eligible expenses identified for COVID-19 Support activities during this time period 

included support for EFMLA employee leave, Administrative and Sick Leave, 

Personal Protective Equipment, Data Collection management systems, and 

Vaccination Clinic support costs. Locations for the Vaccination Clinics has varied 

widely across incorporated cities and unincorporated communities within Merced 

County. Special consideration and priority for outreach has centered around hardto reach populations, including migrant and agricultural communities, low-income 

and/or uninsured populations, and communities of color. Programming around 

outreach and clinics included information in multiple languages and available 

translation services.
MERCED COUNTY 2021 Recovery Plan Performance Report 4

While Merced County is using the ARPA funding as a Category 6 expenditure for 

Revenue Replacement, it has utilized other federal funding under the CARES act 

for additional programming. The County expended CARES funding for emergency 

employee leave costs, staffing costs for COVID-19 emergency operations, testing 

centers and contact tracing, Emergency Rental Assistance Programs, and a 

Business Assistance Program administered by the Merced County Workforce 

Development Board. The County deployed these COVID-19 related activities 

utilizing a coordinated team approach among a variety of County Departments. 

Employee time spent on COVID specific activity was reimbursed through the 

CARES Act.

Additionally, the County received a grant from the California Department of Public 

Health (CDPH) Emergency Preparedness Office (EPO) originating from the 

Coronavirus Response and Relief Supplement Appropriations Act of 2021. The 

purpose of this funding is to provide critical resources for COVID-19 response to

include expanded testing, case investigation, contact tracing, surveillance, 

containment and mitigation under the Epidemiology and Laboratory Capacity 

Enhancing Detection (ELC ED Expansion) project. 

Currently, the County has opted for the State of California to administer its 

Emergency Rental Assistance Program (Round 2) allocation, to continue to 

efficiently serve those impacted by COVID and in need of housing assistance. The 

Merced County Workforce Development Board is also continuing to actively work 

with local businesses to help coordinate information and application processes for 

State business assistance programs. COVID-19 testing and vaccination clinics are 

ongoing, and part of the overall COVID-19 Direct Response programming for use 

of ARPA funds. There are additional opportunities for programming, partnerships 

and funding through ARPA, some on a competitive basis, and the County is 

currently evaluating potential grant applications and partnerships to serve the 

eligible populations. Particularly as it pertains to mental health and substance abuse 

programming, the Merced County Department of Behavioral Health and Recovery 

Services is actively working with its community partners to maximize available 

funding and opportunities under ARPA. 

Looking forward, there is anticipated to be more critical public facility improvements 

that are necessary for the safety of public use, and the County is currently working 

on its planning process to identify those projects and associated public outreach. 

Information on the process and additional expenditures will be forthcoming in the 

next SLFRF Recovery Plan Performance Report. 

Promoting equitable outcomes 

Merced County has worked cooperatively with other government agencies, staff and 

community-based organizations to ensure the information and outreach regarding 
MERCED COUNTY 2021 Recovery Plan Performance Report 5

available services is being provided to the public and is prioritized for those groups that 

are disadvantaged. Merced County is located within the Central Valley region of 

California, which is a primarily agricultural economy with large migrant populations that 

have been historically underserved, with high rates of poverty, homelessness, low 

educational attainment levels, and communities that often lack infrastructure and 

resources to meet basic needs. 

According to the recently released Census 2020 data, Merced County as a whole is 

disadvantaged, with a 17% persons in poverty rate for the area, and an overall per capita 

income level that is far below both State and Federal per capita income levels. 

Our County government services are intrinsically designed and built around the 

recognition of these circumstances, and so processes appropriate to disadvantaged 

populations are in place in any circumstance to ensure greater access to available 

resources. These processes include cooperative partnerships with Community Based 

Organizations for the provision of a wide variety of services to targeted populations, 

information and outreach materials available in multiple languages, and county facility 

locations in unincorporated and underserved areas to assist residents where they are. 

With this in mind, vaccination clinics are targeted to hard-to-reach populations at a variety 

of locations in the County, with an effort to provide these services evenly throughout the 

region in order to ensure residents have multiple, and ongoing opportunities to get tested 

and/or get vaccinated. Outreach materials and programming have been developed and 

made available using multiple languages to ensure a broader impact in the community. 

During future reporting periods, it is unknown at this point the prevalence of County 

administered vaccine clinics, and the County will continue to monitor its COVID-19 case 

rates and hospitalizations. 

As the County’s use of the ARPA funding is for Revenue Replacement (EC6), new 

programs specific to this funding have not currently been established; the County is 

continuing to identify and develop projects using the focus areas as directed by the Board 

of Supervisors. Funding will be used to continue projects within the above stated 

programming categories to ensure continuity of service to County residents. Programs 

and facilities to benefit from the funding have built-in controls to ensure access for 

disadvantaged populations. 

Efforts for Equity

a. Goals

Merced County provides public services to its residents with the goal of 

delivering those services in a manner inclusive of the vastly diverse populations 

and communities residing within the County. County communications, 

programming, meetings, and materials are available in multiple languages. 

County departments and staff are well-versed in the practices necessary and 
MERCED COUNTY 2021 Recovery Plan Performance Report 6

community partnerships that assist in providing services to hard-to-reach and 

sensitive populations, many of whom may not have access to internet or 

broadband, are non-English speakers, and may require the assistance of 

trusted messengers within their community. With the assistance of the ARPA 

funding, the County will continue providing access to services and outreach to 

our most vulnerable residents. 

b. Awareness

Outreach Programming will include informational materials in multiple 

languages on the County website, as well as posted in hard copy at County and 

community facilities. The County is also in process for planning and scheduling

presentations to Municipal Advisory Councils and providing surveys to

community groups and community-based organizations for feedback and 

information gathering. These groups and other members of the public will have 

additional opportunity to provide comments and feedback during upcoming 

public hearings (to be scheduled). These groups are comprised of community 

members in their locations and are representative of the diversity of residents in 

their neighborhoods. Information and materials detailing County ARPA project 

plans will be presented to these groups to allow local residents multiple 

opportunities to learn about the County’s progress and provide comment. 

c. Access and Distribution

Merced County is spread over a large geographic area and contains a variety 

of populations and communities that speak multiple languages and has 

individualized sets of challenges, which includes access to resources such as 

broadband and transportation. The County facilities eligible for the expenditure 

category EC 6 are spread throughout the County and are open to residents for 

the provision of services or for community use. The process for outreach and 

informing the public is currently being planned with the needs of individual 

communities being considered. As stated above, practices and procedures 

design to incorporate access to information for diverse communities are 

conducted as a part of the County’s normal operations, and these operations 

will continue on their course due to the funding assistance of ARPA. 

No applications or eligibility are required for projects in this expenditure

category, as the County is utilizing EC6 – Revenue Replacement.

d. Outcomes

As stated above, the County during its normal course of business has 

developed practices and procedures that incorporate inclusivity as a priority. 
MERCED COUNTY 2021 Recovery Plan Performance Report 7

We in Merced County are responsible to serve some of California’s most 

vulnerable populations, and as such work tirelessly with Department staff and 

community agencies to ensure that all residents are provided with the 

opportunity to access services and critical information. Although there are no 

new programs currently being developed specifically with the use of ARPA

funds, the County will continue to ensure that equity and access continues to 

be a priority for our local residents. 

a. Negative Economic Impacts (EC 2): 

Merced County is utilizing EC 6 – Revenue Replacement

Services to Disproportionately Impacted Communities (EC 3):

b. Merced County is utilizing EC 6 – Revenue Replacement

Current Efforts to Promote Equity 

Current efforts to promote equity as part of the County’s work includes the provision 

of information and public notices in multiple languages according to our communities; 

information provided in both electronic and hard copy formats; contracts with 

community agencies and organizations for community and culturally-specific 

outreach, trusted messengers, and translation services; ongoing relationships with 

community and culturally specific media outlets; and the ability provided to residents 

to provide public comment through a variety of methods, including email, phone and 

in-person during Board meetings. 

These efforts are representative of the County’s overall goals of providing greater 

access to critical government services, and will continue through the use of ARPA 

funding for to date are for Revenue Replacement (EC6).

Distribution of Funding

ARPA funding is being utilized as Revenue Replacement, and as such will be 

supporting ongoing government services and projects. The County is currently 

evaluating project needs in our programming categories and designing a process to 

evaluate and identify projects that create benefit for residents as well as address high 

priority structural improvements necessary for continuity of services. The County of 

Merced is largely comprised of traditionally marginalized communities, and continues 

to work within those communities and their representatives to ensure equity of access. 

As projects are identified and information becomes available.

Community Engagement 

Throughout the COVID-19 pandemic, the County has been working closely with local 

agencies to provide continuity of service delivery. The County held its first public 
MERCED COUNTY 2021 Recovery Plan Performance Report 8

presentation on ARPA on August 10, 2021 as part of its early community engagement 

efforts. The CEO’s Office presented information to the Board of Supervisors regarding 

eligible expenses that took place for ARPA in FY 20/21 and requested feedback on 

structure for expenditure (EC6 – Revenue Replacement). Public comment was taken as 

part of this meeting. The County will continue to schedule periodic updates and 

presentations to the Board of Supervisors as part of the community engagement process. 

These presentations will be part of the published agenda and members of the public will 

have the ability to make comment. The County is continuing to work through the planning 

process and schedule for these meetings. 

As part of a prior effort for Jail facility improvements, the County contracted with a 

consultant to gather feedback from constituents on what they see as being the most 

problematic issues in the County, and their priorities for projects and programs. Feedback 

was gathered prior and post the COVID-19 emergency. As a part of that exercise, prior 

to COVID-19, County residents identified homelessness, drugs and gangs as the top 

problems being experienced in their communities. The survey was again conducted post 

COVID-19 shutdowns, and the top problems identified by residents still included 

homelessness, but had changed to reflect the economic impact of COVID-19 as being 

the most pressing issue. This prior effort has provided the County with a strong reference 

point to start from, and is helping to provide a model for staff to use in their current 

outreach efforts for ARPA. 

Survey results such as these have proven invaluable to help guide the planning process 

for large community projects, and the County recognizes its usefulness in this context. 

The County anticipates developing additional community surveys to help gather feedback 

on the current needs and priorities of the communities in our region as we continue to 

identify projects. The planning process for these efforts is continuing, and staff is working

to formulate an outreach plan and schedule of events and presentations. Some key 

efforts (schedule pending) will include: 

- Updates to the public through scheduled and agendized presentations to the 

Board of Supervisors, with an opportunity for public comment and feedback 

- Community surveys

- Community-Based Organization Surveys

- Web page specific to the County’s ARPA funding, and associated progress and 

documentation. 

- Presentations to Municipal Advisory Councils, to include materials in multiple 

languages and potential translation services

The County will be reaching out to key contacts in community-based organizations 

throughout our region to discuss potential presentation opportunities and 

accommodations for members of the public. 
MERCED COUNTY 2021 Recovery Plan Performance Report 9

Labor Practices – EC5

Merced County is utilizing (EC 6) Revenue Replacement. Merced County follows all 

appropriate Federal and State labor practice rules during the normal course of service.

Use of Evidence 

Merced County is expending the funds under category EC6 – Revenue Replacement. 

There are no new evidence-based interventions planned for development specifically for

the use of this funding. The County is currently evaluating new program and partnership 

opportunities funded through the other sections of ARPA.

Table of Expenses by Expenditure Category

Category Cumulative

expenditures 

to date ($)

Amount spent 

since last 

Recovery 

Plan

6 Expenditure Category: Revenue 

Replacement

6.1 Provision of Government Services $537,665 $537,665

Project Inventory 

Project: Community Facilities 

Funding amount: $235,237

Project Expenditure Category: EC6 Revenue Replacement

Project overview

This programming category includes building and infrastructure improvements made 

to public-use facilities and open park space. The list of facility projects funded during 

this reporting period include:

• Gustine Veterans Hall improvements

• HVAC for LeGrand Community Hall 

• ADA handrails for the Merced Library 

Park improvements funded in this category include:

• Bicentennial Grove Septic System 

• Courthouse Park Irrigation System 

• Henderson Park Bat Removal 

These projects were completed during the reporting timeline. 
MERCED COUNTY 2021 Recovery Plan Performance Report 10

Project: COVID-19 Support

Funding amount: $302,428

Project Expenditure Category: EC6 Revenue Replacement

Project overview

Projects funded in this programming category includes all County staff and resources 

that were devoted during the reporting period to staff support and activities for 

vaccination clinics. This category includes:

• EFMLA for employees, 

• Personal protective equipment and vaccination clinics. 

• Administrative and Sick Leave

• Data Collection Management 

• Freight for PPE

• Outreach equipment 

• Vaccination Clinic Support, including software, supplies, and janitorial services

Use of Evidence

Funds are being utilized through category EC6 – Revenue Replacement. No new 

evidence-based interventions or evaluations for new programs are currently being 

developed under this funding category. 

Dollar amounts toward evidenced-based interventions for Public Health (EC 1), 

Negative Economic Impacts (EC 2), and Services to Disproportionately Impacted 

Communities (EC 3) Expenditure Categories:

(EC 1) - Public Health $0

(EC 2) – Economic Impacts $0

(EC 3) – Services to Impacted Communities $0

Merced County is utilizing ARPA funding for (EC 6) – Revenue Replacement, the 

above expenditure categories do not apply at this time. 

Performance Report

Key Performance indicators to projects completed under the Community Facilities 

area include: Construction timeline, construction completion, and completion of 

the project within budget.

Key Performance indicators for activities under the COVID-19 Support activities 

included under eligible costs for revenue replacement included the number of 
MERCED COUNTY 2021 Recovery Plan Performance Report 11

residents served by the vaccination clinics assisted by the County, as shown in the 

following table: 

Facility

HF #’s from County Data 

report

May - July

Merced County Department of Public Health 203

OptumServe dba Logistics Health-Merced & 

Atwater

1552

SnapMedTech, Inc dba SnapNurse Merced 509

Well Path John Latorraca Correctional Facility 124

Well Path Merced County Jail 64

Totals 2452

Mandatory Performance Indicators 

Merced County is utilizing ARPA funding under the category (EC 6) – Revenue 

Replacement 

Household Assistance (EC 2.2 & 2.5) and Housing Support (EC 3.10-3.12): N/A

Number of people or households receiving eviction prevention services 

(including legal representation)

Number of affordable housing units preserved or developed

Negative Economic Impacts (EC 2): N/A

Number of workers enrolled in sectoral job training programs

Number of workers completing sectoral job training programs

Number of people participating in summer youth employment programs

Education Assistance (EC 3.1-3.5): N/A

Number of students participating in evidence-based tutoring programs

Healthy Childhood Environments (EC 3.6-3.9): N/A

Number of children served by childcare and early learning (pre-school/preK/ages 3- 5)

Number of families served by home visiting

Ineligible Activities: Tax Offset Provision (States and territories only)

N/A

Item Amount

a. Revenue-reducing Covered Changes $