Harris County

Recovery Plan 

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.
Harris County 2021 Recovery Plan Performance Report 1

Harris County

2021 Recovery Plan

Table of Contents

GENERAL OVERVIEW ............................................................................................................. 2

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

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

Promoting Equitable Outcomes .............................................................................................. 6

Community Engagement .......................................................................................................13

Labor Practices .....................................................................................................................15

Use of Evidence ....................................................................................................................16

Table of Expenses by Expenditure Category.........................................................................18

PROJECT INVENTORY ...........................................................................................................19

Harris County Recovery Assistance ......................................................................................19

PERFORMANCE REPORT ......................................................................................................22

Harris County Recovery Assistance ......................................................................................22
Harris County 2021 Recovery Plan Performance Report 2

GENERAL OVERVIEW

Executive Summary

Harris County Commissioners Court has identified four investment priorities supporting a robust 

recovery from the COVID-19 pandemic: Health, Housing, Jobs and Education, and County 

Operations. Commissioners Court has also established an equity framework under which 

programs will be selected, developed, implemented, and evaluated, and a governance 

process allowing for rapid approval of immediate relief projects while a parallel research and 

community input phase identifies opportunities for more strategic, transformational investments.

Our equity framework targets delivery of the same outcomes and opportunities across 

populations, relying heavily on community input throughout the program lifecycle and revising

programs as needed for maximum accessibility and fairness. Through our investments, we aim

to reduce disparities in health, housing, and economic outcomes that have been exacerbated by 

the pandemic.

We have heard from over 1,000 community members thus far, via three mechanisms:

• Local nonprofit BakerRipley conducted an Appreciative Community Inquiry process, 

interviewing 200 residents across the county about pandemic impacts, needs, support 

systems, and aspirations. 

• Harris County staff held nearly 200 stakeholder interviews with community, non-profit, 

and business leaders, academics, philanthropists, and public policy experts. 

• More than 600 community members responded to a public survey soliciting community 

input on recovery needs and investment opportunities. 

Common themes emerged across all input streams: the extent to which the pandemic has 

exacerbated pre-existing structural inequities, the need to use ARPA funds to deliver both 

continued relief and transformational investments, challenges related to housing instability and 

the inability to afford housing, ongoing struggles with small business closures and 

unemployment or underemployment, disproportionate economic impacts on women and

especially Black and Hispanic women, concerns about safety issues and domestic violence, 

healthcare access as a critical need, widespread mental health impacts due to economic stress, 

isolation, grief and loss, together with challenges of virtual schooling and increased caregiving 

responsibilities, and more. Broadly, community members expressed a desire to move toward 

economic self-sufficiency, with easier access to the support needed to achieve their goals.

With that input in mind, we have proceeded to develop immediate relief projects addressing 

households’ basic needs, stabilizing families in their homes, preventing the pandemic from 

further impacting mental and physical health, as well as longer-term strategic investments 

enabling economic mobility and household security. 

The most critical need initially identified was flexible financial assistance. During this reporting 

period ending July 31, 2021, Commissioners Court approved the following:

• Harris County Recovery Assistance: Initially approved for $32.7 million, this program 

was expanded by an additional $32.7 million due to high demand. The program provides 

low-income households impacted by the pandemic with a $1,500 grant towards housing 

costs, utility payments, transportation, food, healthcare, childcare, or other basic needs. 

The key outcome goals for this program are maintaining family financial stability,

increasing household income, and reducing debt burdens.
Harris County 2021 Recovery Plan Performance Report 3

Since the end of the reporting period (after July 31, 2021), additional programs have been

approved: 

• Small Business Grants (Jobs & Education): Approved for $32.1 million.

o The Program provides small and micro businesses with grants up to $25,000. 

o The key outcome goals for this program are supporting the survival and growth of 

small and micro businesses, ideally with spillover effects of preserving pandemicimpacted jobs.

• Permanent Supportive Housing support services (Housing): Approved for $5.5

million, with additional State of Texas funding.

o The Program provides navigation, case management, and support services

(mental health, substance abuse, domestic violence support) for 1,200 

unsheltered individuals, allowing the Emergency Housing Vouchers made 

available to the Houston Housing Authority and Harris County Housing Authority 

under ARPA to be utilized for Permanent Supportive Housing. 

o The key outcome goals for this Program are reducing the population 

experiencing homelessness, reducing time spent in homelessness, reducing 

homelessness recidivism, and increasing the number of successful housing 

placements. Potential spillover effects include improving economic prospects and

providing support for individuals to successfully exit domestic violence, 

substance abuse, or poor mental health situations. 

• Vaccine Incentives (Health): Approved for $12.6 million. 

o The Program provides a cash incentive of $100 upon receipt of the first dose of a 

COVID-19 vaccine. 

o The key outcome goals are increasing the population of vaccinated individuals

and returning COVID-19 status to green in the face of the Delta variant, with 

spillover effects reducing the strain placed on local hospital systems and 

improving health outcomes for patients. 

• Court Backlog (County Operations): Approved for $4.7 million. 

o The funding provides additional court space, judges, jury services, and attorneys 

to mitigate the impact of the pandemic-related court backlog. Both defendants 

and victims have been negatively impacted by having cases remain unheard for 

long periods of time. 

o The key outcome goals are reducing exposure to the criminal justice system and 

improving access to a speedy hearing or trial. 

Going forward, Harris County is creating a broader set of priority outcomes under each area of 

Health, Housing, Jobs & Education, and County Operations. While there are still a few 

immediate relief projects being considered, projects focused on longer-term strategic 

investments and their associated portfolio allocations are being developed with the achievement 

of these priority outcomes in mind. 
Harris County 2021 Recovery Plan Performance Report 4

Uses of Funds

Each of the programs approved thus far supports a strong and equitable recovery by focusing 

assistance on the communities that have been most impacted by the pandemic. First, beyond

community input, our approach is also informed by national and local data and analysis of the 

health and economic effects of the pandemic upon different communities. For example, many of 

our programs use the CDC Social Vulnerability Index (SVI), Census data, and labor market 

projections to inform program design, implementation, monitoring, and evaluation. Feedback 

mechanisms based on this data for program outreach and engagement statistics help us ensure 

we are always reaching the most vulnerable populations. Second, we understand that true 

recovery requires not only relief, but equipping people with the tools to succeed in the future. 

While most of our present efforts focus on direct assistance to households and businesses, our 

strategic portfolio focuses on building the long-term infrastructure to address homelessness and 

housing stability, to build systems of mental and behavioral health support, and to train workers 

for the economic conditions of the future. 

Programs in key expenditure categories follow. Note that only Harris County Recovery 

Assistance was launched in the reporting period; the remainder have been approved since July 

31, 2021.

a. Public Health (EC 1)

Vaccine Incentives: Providing $100 incentives for people to receive their first dose has 

been shown to be especially helpful to communities facing access barriers such as 

concern about taking time off work. Initial results show particularly strong impact for 

young people (age 20-29) and Black and Hispanic community members. Higher 

vaccination rates may slow the spread of the Delta variant and prevent serious 

hospitalization and illness, especially in vulnerable communities. 

b. Negative Economic Impacts (EC 2)

Harris County Recovery Assistance: Direct assistance is targeted towards low-income 

families impacted by the COVID-19 pandemic. Funds will enable families negatively 

impacted (e.g. unemployed, reduced hours, increased healthcare costs) by COVID-19 to 

cover emergency and basic expenses. The program includes outreach targeted at 

families not traditionally connected to safety net supports, as well as families for whom 

English is not the primary language. Monitoring application rates by neighborhood and 

language relative to expectations has allowed us to adjust outreach accordingly. Direct 

assistance can help households make ends meet while longer-term programs are rolled 

out. 

Small Business Assistance: Small business assistance is targeted towards small and 

micro-businesses with less than $500,000 in revenue and fewer than 30 employees, 

since many of these businesses had the smallest margins, were forced to close during 

the downturn, and had trouble accessing federal loans and grants without technical 

assistance. In particular, recipients are prioritized if they are in industries with high job 

loss (e.g. Restaurants, Arts & Entertainment), if they are minority-, women- or veteranowned (since many of these owners have access to less informal support), if they are 

located in high-SVI neighborhoods, and if they did not previously receive federal or local 

funding. Funding can be used to cover business debt and operational expenses, helping 

the most vulnerable businesses on a path to growth again. 
Harris County 2021 Recovery Plan Performance Report 5

c. Services to Disproportionately Impacted Communities (EC 3)

While most Harris County programs are designed to support disproportionately impacted 

communities, the following program is particularly targeted:

Permanent Supportive Housing Support Services (CCHP 2.0): Not only were 

homeless populations hard-hit by the pandemic, with little access to health protections, 

many housing-unstable individuals also became homeless. Allocating emergency 

housing vouchers towards the homeless population holds real promise as a housing-first 

solution to homelessness that can set the most vulnerable unhoused people on a track 

to stability. These additional support services help individuals address underlying 

problems often linked to housing instability – domestic violence, mental health, and 

substance abuse – providing navigation and case management to find appropriate 

counseling and support options, as well as providing overall social support services that 

can assist with finding employment and community. 

d. Premium Pay (EC 4)

[No current projects] 

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

[No current projects]

f. Revenue Replacement (EC 6)

Court Backlog: Revenue replacement is being used to speed up key county operations 

that have been delayed due to the pandemic. Civil and criminal court backlogs are being 

addressed through expanded jury services and court staffing. 
Harris County 2021 Recovery Plan Performance Report 6

Promoting Equitable Outcomes

a. Goals

Harris County’s pandemic recovery efforts are acutely conscious of how race, class, age,

gender, language, geography, and more all shaped our residents’ vulnerability to the pandemic 

and its associated economic downturn. Black and Hispanic communities have been 

disproportionately impacted; historical patterns of social inequity and segregation contributed to

higher rates of preexisting conditions, increased exposure by working in frontline “essential” 

jobs, living in crowded places conducive to virus spread, and reduced access to healthcare. 

Undocumented immigrants are least able to access healthcare and more likely to lose a job 

while having no safety net, while those who do not speak English had a more difficult time 

accessing resources or seeking help during the recession. The pandemic has taken a toll on 

elderly populations, especially those isolated from support networks. Individuals who identify as 

LGBTQ+ were more likely to have comorbidities, reported worse mental health effects, be living 

on lower incomes, and have encountered discrimination or barriers in access to care and 

employment during the pandemic. 

In light of these disparities, we are conscious of the need to reach Black and Hispanic residents, 

low-income residents, LGBTQ+ residents, immigrants, and those for whom English is not a 

primary language. Moreover, we understand that for many people, marginalization and adverse 

effects (both historic and as a direct result of the pandemic) may be experienced along more 

than one dimension: women of color, for example, may face higher burdens than white women 

or men of color; low-income youth in the LGBTQ+ population may have encountered many 

more challenges than straight or higher-income counterparts. In design and outreach for many 

of our programs, the County has taken into account statistics such as neighborhood Social 

Vulnerability Index, demographic information, and the input of these communities and 

organizations that work closely with them in order to come up with goals and equitable outreach. 

Moving forward, as more programs are designed and rolled out in response to specific needs in 

health, housing, or jobs and education, we will incorporate knowledge of how needs change or 

differ for different target populations in order to ensure programs are especially accessible and 

helpful to those who need them most. 

b. Awareness

Thus far, all programs that are open across the county (Harris County Recovery Assistance, 

Small Business Grants, and Vaccine Incentives) funded by the SLFRF have taken several steps 

to ensure equal awareness across residents. 

For Harris County Recovery Assistance and Small Business programs, the following tactics 

were used to ensure equity in awareness and application processes: 

• Outreach and navigation approach: Both programs have engaged community-based 

organizations to spread information about each program, as well as to provide direct 

application support. Outreach has included not only social media and media coverage 

but in-person events, canvassing, and webinars.

• Multilingual media and application: Application websites for both programs were 

available in the major languages spoken throughout the county, English, Spanish and 

Vietnamese (and Chinese for direct assistance). Media outreach was also conducted 

across multiple languages, with extensive engagement of community-specific media 

outlets. 
Harris County 2021 Recovery Plan Performance Report 7

• Multiple application methods: In addition to filling out applications online, residents are

able to apply in-person with navigating agencies located throughout the county, 

especially in high-need neighborhoods. Multilingual call centers offer additional support.

• Planning periods: Information about each program, including necessary documentation 

and eligibility, was released far in advance of the application windows in order to allow 

applicants time to prepare, especially those who may need more help. This transparency 

allowed awareness about the program requirements to also circulate amongst family, 

friends, and word of mouth. 

• Application selection and monitoring: Applications are not first-come, first-served, but 

are instead selected randomly so as not to advantage those with greatest access. 

Applications are monitored for representation across geographies and demographics, 

with outreach strategies adjusted accordingly.

Vaccine incentives were likewise publicized across multilingual media platforms to 

ensure widespread public awareness, with support from local organizations broadcasting 

the information to different vaccine-hesitant communities. 

c. Access and Distribution

Thus far, the Harris County Recovery Assistance and Small Business Grant programs rolled out 

by Harris County have been designed to ensure that more vulnerable and disadvantaged 

populations are able to access benefits and services, and that communities hardest hit will be 

prioritized through eligibility criteria, application design, and applicant selection. 

• As mentioned under awareness, both programs provide for navigators and in-person 

events to help households apply who may not have access to steady internet or who 

may simply need extra guidance in the process. These events have been and will be 

located across the county to ensure that geography is not a disadvantage for in-person 

help, with reinforcements in area where application numbers are not meeting 

expectations given demographics. Small business grants will also be rolled out with 

webinars that allow attendees to ask for help and information regardless of location.

• Eligibility criteria also prioritize groups that have been hardest-hit by the pandemic. For 

direct assistance, households are only eligible to apply if they are public benefits 

recipients or make less than 60% of area media income. For small business grants, 

applicants must have fewer than 30 employees and have revenue less than $500,000 in 

2019 and 2020, prioritizing the smallest businesses. 

• Application design and selection are also intended to provide greater access to 

benefits for more vulnerable groups. For direct assistance, applicants are able to certify 

income through various methods, and they are not disqualified if documents are not 

submitted at the time of application. Instead, if someone is selected with incomplete 

documentation, program administrators reach out to applicants to verify eligibility 

together, with the understanding that some of the lowest-income families have faced a 

difficult level of stress and might have more difficulty putting together proof of income

without a stable job. Applicants are also selected with prioritization by the SVI of their 

neighborhood. 

For small business grants, the application is also designed to be easy-to-use, with the 

knowledge that lack of technical know-how kept many of the smallest businesses from applying 

for PPP and other federal support. Applicants are prioritized for grant receipt by whether they 

are minority-, women-, or veteran-owned, the pandemic impact on job loss in their industry, the 
Harris County 2021 Recovery Plan Performance Report 8

SVI of the neighborhood, the number of employees (with smaller businesses prioritized), and 

whether they have not previously received assistance (with unassisted businesses prioritized).

As much as possible, levels of access to benefits and eligibility criteria have been configured in 

order to address disparities between groups exacerbated by the pandemic. 

d. Outcomes:

Harris County’s programs actively work towards closing gaps and disaggregating progress by 

equity dimensions for different policy objectives, prioritizing groups that otherwise would lack 

necessary support, resources, or service. 

Thus far, we know that communities of color are lagging in vaccination rates and have fared far 

worse economically, as they were more likely to be employed in industries that were impacted 

by shutdowns and unable to go virtual. As such, the vaccine incentives, direct assistance, and 

small business assistance all intend to close these health and economic gaps. While all of these 

programs are still in the process of being delivered, the County has designed equity-conscious 

targets for each program, with dashboards that have tracked program reach along equity 

dimensions. (For example, see the dashboard for direct assistance here, with plans for a similar 

dashboard for small business and additional programs rolled out across the County). Our 

evaluation plans which will track the outcomes of each program are also designed to include 

statistics across different dimensions of equity. 

Beyond our County-wide programs, programs serving specific populations are by nature 

focused on closing gaps. The permanent supportive housing support services are focused on 

especially vulnerable homeless populations, and support services are tailored to each person’s 

needs rather than a one-size-fits-all approach, with the understanding that the path to stability 

will look different for each person. Court backlog funding will work towards ensuring speedy

hearings and trials, especially for those currently in jail who cannot afford bail who are largely 

low-income people of color. Doing so works to minimize these individuals’ unnecessary contact 

with the criminal legal system. Outcomes for each of these programs will be tracked along 

multiple equity dimensions. 

All Harris County program proposals are first assessed and scored against an equity framework, 

included below. This ensures that racial and economic equity are a part of the conversation 

when deciding upon how funds will be spent in the first place, and includes a statement of broad 

equity goals, as well as strategies to reach these goals in each step of an ARPA project’s lifecycle (from capacity building in departments, to project development, selection, monitoring and 

evaluation, and finally evaluation and accountability). Each project includes equity reflections 

(see Appendix A, copied below) and equity scoring (see Appendix B, copied below).

(As previously described, our equity strategy so far has resulted in and shaped programs in both 

categories listed above: Harris County Recovery Assistance and Small Business Grants provide 

direct relief to communities most severely impacted by the pandemic, while Permanent 

Supportive Housing support services assist disproportionately impacted communities and 

provides for basic needs.)
Harris County 2021 Recovery Plan Performance Report 9

Harris County Equity Framework

for Investments Funded by the American Rescue Plan Act (ARPA)

Background

The COVID-19 pandemic has been devastating to all, but it has not impacted all Harris County 

residents equally. Instead, it has exacerbated long-standing inequities. Black 

and Hispanic residents, already facing disproportionately negative health outcomes, 

have suffered the highest coronavirus disease burden and death rates.1 With lower prepandemic wages and less money available to cover 

shortfalls, Black and Hispanic families have felt the economic fallout of the 

pandemic acutely, facing additional loss of income and greater-than-average housing 

insecurity.2 Women, and particularly women of color, have also experienced higher rates of 

unemployment, dealing with virtual schooling, reduced daycare and afterschool options, and 

inflexible work schedules on top of the collapse of essential industries like retail and hospitality. 

These are just a few of the disproportionate impacts that have affected already-struggling 

households. 

Equity Goals 

Advancing equity means striving for the same outcomes and opportunities across different 

groups, not simply delivering the same treatment when it fails to yield fair, just, and equal 

results. With this Equity Framework, Harris County will ensure an equity lens is applied 

to investments made possible by the American Rescue Plan Act of 2021 (ARPA). 

In determining how to deploy ARPA funds, Harris County will pursue investments that advance 

the following equity goals:

• Reversing negative pandemic-related trends and closing gaps in health, economic, and 

housing outcomes; positioning disproportionately impacted groups and neighborhoods 

for improved future outcomes. 

• Building capacity within County government, creating a shared understanding of and 

commitment to equity, and developing tools and practices to support equity-centered 

solutions. 

• Measuring racial and ethnic disparities in health, economic, social, and 

environmental outcomes so that pandemic recovery plays a role in the longterm remediation of systemic harms to populations of color. 

• Incorporating an equity assessment in each project, with opportunities to reflect and 

adapt based on interim results and community input throughout the project. 

• Monitoring investment across the entire program to ensure the overall 

portfolio is reaching populations and neighborhoods most impacted by the pandemic.

Equity Strategies

To ensure Harris County addresses existing and exacerbated inequities, we will employ the 

following strategies when developing, selecting, and delivering ARPA programs.3

• Disaggregate historical data and outcome measures by race, ethnicity, 

gender, and/or geography and other demographic 

variables to identify inequities and ensure programs are prioritizing disproportionately 

impacted groups. 

• Analyze specific factors underlying inequities such as racial and 

gender discrimination, disparate policy impacts, and institutional and structural barriers, 

adjusting program design accordingly.

• Include community representatives of groups disproportionately impacted by the 

pandemic throughout program development, delivery and evaluation. 
Harris County 2021 Recovery Plan Performance Report 10

• Target resources and strategies to minimize incremental burdens on groups most 

affected by the pandemic while maximizing their access to relief.

• Evaluate the performance of projects through defined 

metrics and provide opportunities for reflection, creating space for continual 

improvement throughout implementation. 

• Publish transparent program results via a publicly available website and other 

outlets, ensuring performance information reaches disproportionately impacted groups. 

Equity Approach

An equity-oriented approach will be embedded throughout the lifecycle of each ARPA-funded 

project and across the full ARPA program as follows:

1. Capacity Building: The Budget Management Department will identify resources 

to provide training and technical assistance on equity-centered program development to 

support ARPA Working Groups, relevant Department staff, and project administrators. 

2. Project Development: All project proposals should incorporate responses to the Equity 

Reflections (Appendix A) or other materials describing implementation of the Equity Strategies 

listed above.

3. Project Selection: An Equity Assessment tool (Appendix B) will be used to inform 

project selection. The tool includes questions assessing each project’s application of 

the Equity Strategies. It must be completed by the Working Group Lead, approved by voting 

members of the associated Working Group, and included in the project’s submission to the 

Steering Committee. 

4. Project Monitoring & Evaluation: At an interim checkpoint and at the end of each 

project, qualitative and quantitative responses to the Equity Reflections (Appendix A) will 

be refreshed to ensure consistency with the original project intent and identify opportunities for 

improvement.

5. Program Evaluation & Accountability: Program-wide financial analyses will be 

conducted by the Budget Management Department to determine ARPA funding impact on 

targeted populations and geographies where feasible. Reporting on investment relative to 

social vulnerability, reporting on investment by race, ethnicity, gender, and/or other specific 

populations where available, and/or other program-level equity analyses will be provided to 

Commissioners Court on a quarterly basis beginning in Q4 2021 and also made available 

online.

Equity Framework Modifications

Modifications to this Equity Framework may be required based on learnings throughout its 

use. Minor modifications may be approved by the ARPA Steering Committee, comprised of 

Commissioners Court Chiefs of Staff or their designees, and transmitted to Commissioners 

Court. Substantive modifications must be approved by Commissioners Court. All modifications 

must be tracked in the Change Log below.

Change Log

Version Effective Date Description of Changes

1.0 Request for approval 

at Commissioners Court 

April 21, 2021

Initial document
Harris County 2021 Recovery Plan Performance Report 11

APPENDIX A: Equity Reflections

For each project, the following questions addressing the Equity Strategies may be adapted 

for use in the initial project proposal, at interim checkpoints, and in a final look-back. Team 

members responsible for proposing and implementing a project should reflect on the project’s 

impact on equity via overall project results and associated community engagement. 

1. How does your project leverage clear outcome measures and disaggregated data from 

beginning to end to identify inequity and ensure programs are prioritizing disproportionately 

impacted groups? Who has been disproportionately impacted? 

2. How have you analyzed specific factors underlying inequities? What did the analysis 

reveal? 

3. How does your project include voices from disproportionately impacted groups? How have 

community members been engaged in project development and / or evaluation?

4. How does your project minimize additional burdens and maximize benefits 

for disproportionately impacted groups? 

5. How does your project evaluate performance through defined metrics and provide 

opportunities for reflection? What do the evaluation and reflection reveal and what changes 

may be needed? 

6. How are you sharing information about the project? Is it reaching people from 

disproportionately impacted groups? 
Harris County 2021 Recovery Plan Performance Report 12

APPENDIX B: Equity Assessment Tool 

 Does the project proposal... Score

Leverage clear 

outcome measures & 

disaggregated data

Include a statement of inequities to be addressed: specific 

outcomes, disaggregated by race, gender, geography, or other 

relevant variables (using appropriate proxies for these if not 

available)? 

Identify specific groups disproportionately impacted by the 

pandemic? 

Prioritize disproportionately affected groups as primary 

audiences? 

Analyze specific factors 

underlying inequity

Describe how discrimination, policy impacts, institutional 

barriers, or other social or 

environmental conditions have contributed to the identified 

inequities?

Consider if other groups, not identifiable in data, may also be 

affected by the identified inequities based on the factors above?

Articulate how the program design takes into 

account discrimination, policy impacts, institutional 

barriers, or other social and environmental conditions? 

Include voices of community 

representatives

Identify potential partners from community institutions, non-profits, 

and other organizations representing disproportionately affected 

groups? 

Incorporate meaningful moments to engage with representatives 

or individuals from the disproportionately affected groups? 

Incorporate input from representatives of disproportionately 

affected groups who have participated in project 

development, taking into account their lived experiences?

Target resources and 

strategies to minimize 

burden & maximize access

Target resources and strategies to minimize burden 

on disproportionately impacted groups? 

Target resources and strategies to maximize access for 

disproportionately impacted groups? 

Evaluate performance through 

defined metrics and reflection

Include a plan to measure and evaluate outcomes, specifying 

metrics to be tracked and how data will be disaggregated by race, 

gender, geography or other demographic variables? 

Include a plan to expand access to relevant data if original data 

sources were insufficient? 

Include plans to engage in Equity Reflections and adapt the 

project as needed based on interim results and community 

impact? 

Publish transparent program 

results

Discuss channels for disseminating reports and information? 

Include means of reaching disproportionately impacted 

groups within the results dissemination plan?

Total Proposal Score

Scoring:

-1 = Not done, or including adverse impacts contrary to the Equity Strategy

 0 = Minimally completed

+1 = Thoroughly completed 

Proposals are scored by the relevant Working Group.

Proposals with a negative score are rejected or sent back for significant redesign.

Proposals with a neutral score are further reviewed and refined by the Working Group.

Proposals with a positive score may be considered for submission to the Steering Committee.
Harris County 2021 Recovery Plan Performance Report 13

Community Engagement

Community input has and will continue to shape how Harris County spends ARPA funding. Over 

the past few months, we have solicited diverse feedback through three main channels: an 

Appreciative Community Inquiry (ACI) carried out by local non-profit BakerRipley; a stakeholder 

interview process with local community leaders, academics, philanthropists, public policy 

experts, and community-based organizations; and a public survey hosted on the county’s 

website asking for open feedback on pandemic impacts and how funding should be spent. 

The Appreciative Community Inquiry involved one-on-one interviews, focus group discussions, 

and community outreach with over 200 individuals in English and Spanish. Participants came 

from across all four County precincts, different age groups, and were primarily members of 

communities of color who earned less than $75,000 – representatives of households that have 

been most impacted by the pandemic. The results pointed out key community needs that were 

under-addressed – such as childcare and the need for high-quality jobs – and also highlighted 

barriers and predatory practices, like payday loans and transportation, which keep residents

from reaching their aspirations. 

Across the priority areas selected by Commissioners Court, ACI respondents highlighted key 

concerns which will inform our approach to SLFRF investments: 

1. Health: Community members highlighted access to affordable, high-quality 

healthcare; mental health services and support, and caregiver support to be key 

areas of concern exacerbated by the pandemic. Community members reiterated the 

difficulty of meeting in person, one-on-one with a trusted medical professional when 

medical needs arose, without health insurance and with long wait times. They spoke to

the sense of grief and loss people felt and the trust gap between communities needing 

mental healthcare and professionals who may not share or understand their 

experiences. Caregivers highlighted the difficulty of caring for both children in online 

school and family members more vulnerable to COVID-19 while also being employed in 

fields that had high risk of exposure.

2. Jobs and Education: Community members first noted the difficulties in being able to 

meet their basic needs due to unemployment, reduced hours, emergencies, and debt. 

Secondly, many people wanted better job security and tailored skill- and careerbuilding opportunities that could (a) help them secure living-wage, meaningful careers 

with job ladder opportunities, and (b) be targeted towards populations beyond those 

reached by traditional upskilling programs, given that many people who lost a job and 

are seeking to return to work are older people and women. 

3. Housing: Community members first highlighted the continued need for rental relief, 

before addressing their longer-term dreams of homeownership. Here, key barriers 

described were difficulties building credit, and interest in credit repair, as well as lack 

of information and support for homeownership, with a trust gap between many 

communities and traditional financial institutions and lenders.

While the ACI was informative for directing our attention to priorities, the ultimate goal of the ACI 

will be to create robust, participatory ecosystems that allow communities to elevate their own 

visions for solutions and directly contribute to building the solutions they want to see. Through 

the one-on-one interviews, the ACI sought to build trust and strengthen relationships directly 

with community members, as well as empower them to speak out about both ARPA funds and 
Harris County 2021 Recovery Plan Performance Report 14

future county-wide investments. Respondents gave guidelines for how programs could be best 

designed, including the need for programs to minimize burdens on recipients, to be sustainable 

over time so networks could be activated, to be culturally cognizant and responsive, to integrate 

as many interventions as possible into one program or hub, reduce barriers to entry and 

participation, and also to prevent and address the rejection fatigue and fear that many people 

feel in applying repeatedly for assistance. 

In addition to the ACI, Harris County also carried out an extensive stakeholder interview 

process. The first round of interviews with experts and community-based organizations allowed 

us to get a macro-level sense of where the needs were across the county, and to collect a wide 

variety of imaginative solutions from people who work closely with the communities we most 

want to serve on a daily basis. Now, continued stakeholder input is being solicited to fine-tune 

projects and ensure that they directly address the root cause of problems and truly provide 

transformation in addition to relief. 

Lastly, Harris County rolled out an open public survey that allowed anyone to share their 

thoughts with us online. The survey allowed people to identify most critical pandemic impacts 

and suggest potential investment ideas.

All of these forms of community engagement, and the County’s ongoing relationship-building 

with our community organizations and members, have been vital inputs into planning for ARPA 

spending, as well as for building a more democratic, engaging infrastructure for change. 
Harris County 2021 Recovery Plan Performance Report 15

Labor Practices

Not required; no infrastructure projects have yet been initiated.
Harris County 2021 Recovery Plan Performance Report 16

Use of Evidence

Harris County’s initial investments are most focused on providing immediate relief. As such, 

while each program comes with an evaluative component and are based off of evidence on 

what works, they are not structured to be rigorously measured interventions. Future investments 

in our strategic portfolio, however, will be aligned with our learning agenda and will include 

evaluation partners that can design and carry out rigorous program evaluations, building 

evidence for what works. 

At present, the evidence-based and evaluative aspects of our projects are as follows: 

• Harris County Recovery Assistance: The provision of direct cash assistance to 

households is based on a fairly large body of research literature finding that (a) due to 

the effects of the pandemic, many households were struggling to meet basic needs, (b) 

that direct cash transfer provided the speediest, most efficient, and flexible way for 

families to meet their needs, and (c) that such transfers have no, or at most very slight, 

negative behavioral or other impacts on households. The evidence from several rounds 

of universal federal emergency pandemic payments has also shown that direct cash for

specifically low-income families not only relieves poverty, but also helps to sustain local 

economies, as low-income families spend money on necessary goods and services 

immediately. 

As an immediate relief program, we do not have a rigorous evidence-gathering design in 

place for the program in the interest of equity and minimizing burdens to families. (For 

example, we wanted the application to be quick and painless, rather than create a long 

application with all the questions that a full research agenda would require answering of 

all participants). However, we did create a set of follow-up surveys designed to help us 

evaluate the following variables: 

• Use of funds 

• The top concerns of the household 

• Employment situation

• Mental health 

• Outlook and hope for the future 

Our evaluation plan includes sending surveys to both recipients and non-recipients of 

the grant amount, in order to see if any differences between them arise. Because being 

a recipient is not perfectly randomly assigned (we employ a formula taking into account 

neighborhood SVI for equity), differences between groups along these variables may not 

be entirely attributed to receiving cash assistance. However, we can hold SVI and other 

variables constant to compare between similar neighborhoods and provide some insight 

into the impacts of direct assistance across neighborhoods. 

• Small Business Grant Program: This grant program is based upon evidence indicating 

that micro and small businesses, especially in particular neighborhoods and industries, 

had been hit especially hard by the pandemic and struggled with access to bigger capital 

loans or federal relief like PPP payments absent technical assistance. Similar to direct 

assistance, a grant program has the benefit of being both efficient and flexible at helping 

businesses survive and recover. Since applicants will be selected based off prioritized 

variable scoring, they will not be randomly assigned to either receive or not receive 

grants; therefore, it is even more difficult to see whether impacts on grantees are 
Harris County 2021 Recovery Plan Performance Report 17

because of the grant program. However, information on the following variables will still 

be collected for comparison: 

• Operational status of business

• Use of funds 

• Change in revenue 

• Change in number of employees (hired, furloughed, re-hired, future hires) 

• Business owner’s outlook on sustainability of operations 

• Business owner’s outlook on expected duration of pandemic 

• Additional resources needed 

A baseline survey will be sent at time of grant receipt, followed by a second survey in 

March 2022 and a third survey in August 2022. Several fixed data points, including 

average wages per employee, industry, household size and annual revenue are part of 

the initial application and can be tied to a recipient’s questionnaire responses.

• Vaccine Incentives: Although this has less of an evidence base, the pursuit of cash 

incentives for vaccination was inspired by limited emerging evidence from other 

jurisdictions where such incentives have increased vaccination rates. 

Thus far, as a result of incentives, there has been a sixfold increase in daily vaccination 

rates. We will continue to track partial and full vaccination rates and spillover effects on 

health systems throughout the County. 

• Permanent Supportive Housing support services: Our approach with the permanent 

supportive housing support services is based off a rich literature indicating that a 

housing-first approach to homelessness is both a more helpful and humane approach to 

homeless populations, and also more effective at reducing homelessness and more 

cost-efficient than other approaches. Part of an effective housing-first approach is the 

provision of supportive services that are tailored to each homeless individual’s needs. 

Particularly for those who have been chronically homeless and are literally homeless 

without shelter, permanent supportive housing models have resulted in higher long-term 

stability, better health outcomes, and reduced use of crisis services. 

As there is no random assignment involved in this program, it is also not designed as an 

experimental intervention. However, the program will monitor retention rates and 

reasons for positive and negative exits, with a goal of maximizing retention and positive 

exits, and minimizing negative exits. We will also track finer details on how different 

support services affect individuals and whether it aids in the improvement of their 

situations. Program statistics may be roughly compared with other housing programs 

where either permanent housing or support services were not provided. 
Harris County 2021 Recovery Plan Performance Report 18

Table of Expenses by Expenditure Category

Category Cumulative

expenditures to 

date ($)

Amount spent 

since last 

Recovery Plan

2 Expenditure Category: Negative Economic 

Impacts

2.3 Household Assistance: Cash Transfers $10,000,000 $10,000,000
Harris County 2021 Recovery Plan Performance Report 19

PROJECT INVENTORY

Information provided below is for only the project launched during the reporting period.

Harris County Recovery Assistance

Project 001: Flexible Financial Assistance

Funding amount: $32,700,000 (approved in reporting period) + $32,700,000 (approved following 

reporting period) = $65,400,000 (total funding approved). Expended in reporting period: 

$10,000,000

Project Expenditure Category: 2.3, Cash Transfers 

Project overview: The program will provide $1,500 in flexible financial assistance to 40,000 lowincome households that have experienced economic hardship during the COVID-19 pandemic. 

To be eligible for the program, applicants must be Harris County residents and have a current 

household income at or below 60% of the HUD Average Median Income. Households may 

demonstrate income eligibility through participation in qualifying public benefits programs. 

The application launched on July 28th and remained open through August 11th. The first 

payments were distributed on August 12th; all funds will be distributed by December 30th, 2021. 

The program provides $60 million in flexible financial assistance ($30 million approved in 

reporting period). Catholic Charities of the Archdiocese of Greater Houston is responsible for 

operating the program including application processing and payment, contact center operation, 

technology platform development, and outreach to vulnerable populations in partnership with 

nonprofits and other local entities. 

The primary goal of the project is for an increased ability for families/ individuals to be able to

pay for basic needs in Harris County. Intended outcomes for the program include a decrease in 

the number of households that report they are behind on their bills and an increase in the 

number of households that report they can pay for essential needs (e.g., food). 

Project website: harriscountyrelief.org/

Use of evidence: The project was based on the evaluation of a previous direct assistance 

program offered by Harris County under the CARES Act (by Notre Dame’s Lab for Economic 

Opportunities), as well as a rich literature surrounding direct cash assistance. 

Ample research has shown that households have been unable to afford basic needs during the 

pandemic. By April 2020, Pew Research reported that only 23% of households that emergency 

funds that would last 3 months; about half of low-income Americans had reported a job or wage 

loss due to COVID-19 by that point. The Center on Budget and Policy Priorities, the Urban 

Institute, and the Federal Reserve all indicate that families struggled with food insecurity, paying 

for bills and other basic expenses, and that the impacts were felt especially by those who 

entered the pandemic with fewer resources and/or experienced a layoff. While the impacts have 

been blunted by safety net programs, for many households, such assistance has not been 

enough. 

Meanwhile, a large literature shows that unconditional cash transfers can be a quick and 

efficient way to aid households in crisis. There are also few labor market side effects; 

preliminary research on pandemic unemployment benefits showed that those who received 

larger benefits became unemployed at and resumed work at similar rates to those with smaller 

benefits. In general, work on cash transfers suggests few negative labor market effects
Harris County 2021 Recovery Plan Performance Report 20

(although most research is don, and may even help increase adult labor supply by alleviating 

liquidity and risk constraints. Although most work is done in developing country contexts, cash 

transfers are regarded as a cost effective method of poverty reduction. More relevant to our 

program, analysis of CARES Act payments and other pandemic stimulus payments show that, 

for low-income families, cash payments had faster effects than previous stimulus programs (in 

2001 and 2008), and resulted in large increases in spending on food, rent, and debt payments. 

Research by the Bureau of Labor Statistics and Opportunity Insights second this, finding that 

households making lower incomes, in lower-wage jobs, experiencing job loss, or sick/affected

by COVID-19, were especially likely to use their stimulus payments on basic household 

expenses rather than paying off debt or increasing savings. Research by Opportunity Insights 

also pointed out that traditional macroeconomic tools used to stimulate employment had little 

effect during the pandemic, making social insurance and hardship alleviation more effective 

channels of public spending. 

The full program spend ($30 million, plus $2.7 million in administrative and outreach costs, 

approved in the period, with an equivalent amount approved after the period) is allocated toward 

evidence-based interventions under Negative Economic Impacts (EC 2).

A brief summary of our evaluation design and approach is included here: 

• For the purposes of evaluation, there are 2 groups: grantees and non-grantees. Both 

groups will receive one follow-up survey 1 week after grants are distributed, and a 

second follow-up survey 3 months after grants are distributed. 

• Incentives will be provided to increase the probability of a high response rate; the 

incentive amount is tentatively set at $15 per survey after discussion with community 

partners and other evaluative organizations. We expect this should provide us with a 

relatively high (30-50%) response rate on our surveys, with at least 330 grantee 

respondents and 330 non-grantee respondents. We plan to distribute incentives and 

surveys via electronic giftcards and a reputable survey platform such as Qualtrics. 

• Follow-up surveys include a section that evaluate how effective the program was for 

grantees. They also include a section of questions that allow us to compare between 

grantees and non-grantees.

A draft of grantee-specific questions follows: 

Payment: Did you pay a fee to cash or deposit your payment? 

a. Yes b. No c. I don’t know / I don’t remember

Impact: What did you and your household mostly spend your Harris County Recovery 

Assistance payment on? Select all that apply. 

a. Food (groceries, eating out, take out) 

b. Clothing (clothing, accessories, shoes) 

c. Household supplies and personal care products

d. Household items (TV, electronics, furniture, appliances) 

e. Recreational goods (sports and fitness equipment, bicycles, toys, games) 

f. Rent 

g. Mortgage (scheduled or monthly) 

h. Utilities and telecommunications (natural gas, electricity, cabe, internet, cellphone) 

i. Vehicle payments (scheduled or monthly) 

j. Paying down credit cards, student loans, or other debts

k. Charitable donations or giving to family members
Harris County 2021 Recovery Plan Performance Report 21

l. Savings or investments

m. Other; if other, please describe. 

A draft of comparative questions sent to both grantees and non-grantees follows: 

Concerns: Thinking about the next 3 months, what are your top 3 concerns? 

a. Paying for food, clothing, and/or basic household supplies

b. Paying for utilities, vehicle payments, or other bills

c. Paying for rent or mortgage

d. Paying down credit card debt, student loans, or other debts

e. The physical health and well-being of myself and/or my family members

f. The mental health and well-being of myself and/or my family members

g. Finding a job

h. Finding care providers for my children or other family members

i. Sending my children back to school and/or concerns about my child’s education 

j. Other; if other, please describe

Employment: What best describes your current employment situation? 

a. Employed in a full-time job

b. Employed in a part-time job 

c. Unemployed

d. Furloughed or on a reduced work schedule due to the pandemic

e. Other; if other, please specify

Usual household expenses: In the last 7 days, how difficult has it been for your household to 

pay for usual household expenses, including but not limited to food, rent, or mortgage, car 

payments, medical expenses, student loans, and so on? Select only one answer. 

a. Not at all difficult

b. A little difficult

c. Somewhat difficult

d. Very difficult 

Mental health: Over the last 14 days, how often have you felt down, depressed, anxious, or 

unable to control worrying about something? Select only one answer. 

a. Not at all

b. Several days

c. More than half the days

d. Nearly every day 

Outlook: Thinking about the next 3 months, how hopeful do you feel about your and your 

family’s future? 

I feel very hopeful

I feel somewhat hopeful

I feel sometimes hopeful, sometimes worried

I feel somewhat worried

I feel very worried 

All grantees and non-grantees will also receive questions about their demographics, such as 

owner/renter status, household composition, race and ethnicity, and gender. Information 

collected on their original application about language preference will be retained, as well as their 

addresses, which can be used to map to neighborhood and local SVI. 
Harris County 2021 Recovery Plan Performance Report 22

PERFORMANCE REPORT

KPIs shown are for the project active during the reporting period.

Harris County Recovery Assistance

KPIs in reporting period:

• Applications received (7/28 go live through 7/31): 131,515

• Funds distributed to administrator: $10 million

• Amount pledged and paid (funds approved): Not started in period

• Applicants pledged and paid: Not started in period

KPIs at end of August 2021:

• Applications received: 203,998

• Funds distributed to administrator: $10 million

• Amount pledged and paid (funds approved): $6.6 million

• Applicants pledged and paid: 4,407