State and Local Fiscal Recovery 

Funds 2021 Recovery Plan 

Davis County, Utah

Approved by the Davis County Commission August 26, 2021
Davis County, UT

2021 Recovery Plan Performance Report 1

Davis County Utah

2022 Recovery Plan

Table of Contents

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

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

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

Promoting Equitable Outcomes ...............................................................................................3

Community Engagement .........................................................................................................4

Labor Practices .......................................................................................................................4

Use of Evidence ......................................................................................................................4

Table of Expenses by Expenditure Category...........................................................................4

PROJECT INVENTORY .............................................................................................................5

Davis County Health Dept. (DCHD) Vaccination Clinic and Parking .......................................5

Davis County Health Dept. (DCHD) Drive-through Mass Vaccination Clinic ............................7

Additional Legal Counsel and Support Services to Mitigate Justice System Backlog...............8

Additional Legal Defenders and Support Services to Mitigate Justice System Backlog ...........9

Enhanced Pre-Trial Support Services to mitigate Justice System Backlog ...........................10

Davis County Jail Medical Unit Expansion ............................................................................11

POTENTIAL PROJECTS .........................................................................................................13

PERFORMANCE REPORTING................................................................................................14
Davis County, UT

2021 Recovery Plan Performance Report 2

GENERAL OVERVIEW

Executive Summary 

The American Rescue Plan Act (ARPA) includes $69,048,017 in State Local Fiscal Recovery 

Funds (SLFRF) in direct local recovery assistance to Davis County Government. The first half 

of the County’s award was received on July 26, 2021. The second half is expected to be 

received one year after the first payment. In order to provide equitable, sustainable and 

generational benefits to the citizens of Davis County, the County Commission has 

adopted the following set of guiding principles as they allocate and spend SLFRF. 

These guiding principles include:

 Projects must meet federal guidelines for SLFRF eligible uses

 Projects should addresses a long-term challenge of the County

 Consideration should be given for the full cost of ownership over the useful life of the 

project

 The project does not create an unsustainable or unfunded future cost to the County

 The project is of a sizable nature to justify the associated required Federal reporting

 Community organizations requesting funds must show an ability to sustain programmatic 

costs after SLFRF funding ceases

 Preference may be given for projects where there is an opportunity to coordinate funding 

with other entities to create regional benefits in overlapping jurisdictions

 Intended outcomes should be clearly identified and reportable by programming/project 

department, division, or entity

Key outcome goals will be measured and reported on an individual basis as appropriate once 

projects are approved and funds are allocated. 

As Davis County continues to respond to the unprecedented COVID-19 pandemic, it reserves 

the right to move forward with timely and appropriate responses that may or not have been 

considered or addressed in this annual report. This flexibility is not only necessary, but critical 

as the County continues to navigate the changing COVID-19 landscape. Any such projects 

shall be reported in subsequent annual reports. 

Uses of Funds

As of August 31, 2021, Davis County has developed a tentative SLFRF Recovery Plan for 

allocating funds to specific allowable use categories as defined in the Interim Final Rule (IFR) 

and US Treasury guidance. The County recognizes that the tentative Recovery Plan does not

propose funding allocations in all eligible expense categories. This decision was made 

strategically after considering the long-term needs of the County as well as the sustainability of 

social services programming. It should not be construed that the County has ignored the

categories not addressed in the plan. Rather, in order to provide the most efficient and effective

use of funds, the County has chosen to provide capital improvement funding to community 

partners that have a proven record of administering social programs to underserved 

populations. These partners must show that programs supported by the SLFRF capital funds 

are sustainable beyond the ARPA timeframe. When applicable, the County will document 

capital projects supporting community partners that administer evidence-based programs, but 

will not report on specific program outcomes as SLFRF funds will not be used to support 

operational costs of the programs.
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In the coming months, (September 2021 through December of 2021), the County will use a 

variety of methods to seek feedback from citizens regarding the Annual Recovery Plan. It is 

anticipated that once community input has been received and considered, the County will make 

formal allocations of funding for additional projects in January 2022. These awards will take 

place through state, local, and federally designated processes, including budgeting, contracting, 

and procurement. As future annual recovery plans are considered, the County will submit them 

to the public for comment and feedback prior to adoption, recognizing that some projects may 

require immediate action without public input in order to combat the immediate challenges 

posed by the COVID-19 pandemic. Approval of such allocations may be made by the Davis 

County Commission without extensive community engagement, public comment and/or the 

issuance of an updated Annual Recovery Plan. When time sensitive allocations are necessary, 

public notice and comment will be provided through the provisions of Utah State Code 17-36-26: 

Increase in Budgetary Fund or County General Fund – Public Hearing. 

Promoting Equitable Outcomes 

As of the reporting date, Davis County has only allocated funds for broad-reaching programs 

that are critical to the immediate pandemic response and serve all citizens in the County. 

Allocations were only made after public notice and a public hearing occurred. Moving forward, 

additional outreach will occur with the assistance of a consulting firm that has experience in 

public outreach processes that promote equity. 

Community Engagement 

As of the reporting date, Davis County has only allocated funds for broad reaching programs 

that were critical to the pandemic response and served all citizens in the County. Allocations 

were only made after a public notice and hearing occurred. Moving forward, additional 
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2021 Recovery Plan Performance Report 4

outreach will occur with the assistance of a consulting firm that has experience in public 

outreach processes that promote equity. 

Labor Practices 

For all infrastructure and capital projects that exceed $10 million, the inter-local 

agreement or project request for proposal will include the requirement that all workforce 

practices outlined in the Coronavirus State and Local Fiscal Recovery Funds 

Compliance and Reporting Guidance, Section 3.h. be complied with. When

appropriate, sub-grantees or contractors shall be required to maintain sufficient records 

to substantiate the required information.

Use of Evidence 

Currently, Davis County has no projects under consideration that would merit or require the 

reporting of evidence-based interventions. Davis County intends to support community 

organizations that provide evidence-base programs through funding capital project rather than 

programing costs. 

Table of Expenses by Expenditure Category

Expenditures as of July 31, 2021: 

Category Cumulative

expenditures to 

date ($)

Amount spent 

since last

Recovery Plan

1 Expenditure Category: Public Health

1.1 COVID-19 Vaccination $7,458 $7,458
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2021 Recovery Plan Performance Report 5

PROJECT INVENTORY

PROJECT NAME: Davis County Health Dept. (DCHD) Vaccination Clinic and Parking

PROJECT #: 311SLFRF-EC1.1-CLINIC CAP

FUNDING AMOUNT: $1,000,000

RESPONSIBLE DEPARTMENT, DIVISION, OR ENTITY: Davis County Health Department

FUNDING SPENT AS OF 7/31/2021: $7,458

FUNDING STATUS: Allocated on July 20, 2021 

EXPENSE CATEGORY: 1.1, COVID-19 Vaccination

Project Overview

Prior to the COVID-19 pandemic, the DCHD maintained and utilized a small clinical room in 

their administration building to conduct public vaccinations. At the time, the room was functional 

to serve the limited number of individuals who had no other immediate access to routine 

vaccinations, flu shots, etc. As the impacts of COVID-19 progressed and testing became more 

widely available in the fall of 2020, the room was transitioned into a testing center. 

In late December of 2020, as vaccines became available, it was apparent that there would be 

no way for the clinical room to be utilized efficiently for large-scale vaccinations. As more 

specifically described below, Project #311SLFRF-EC1.1-Mass Vac 1, a drive-through clinic was 

developed and implemented to manage the significant demand for vaccination in the early 

months of 2021.

By early summer of 2021, demand waned for the vaccine and running the mass clinic was no 

longer practical for such a large facility. However, the pandemic has highlighted the need for 

DCHD to have a permanent, dedicated vaccination and testing clinic that can operate 

throughout the remainder of the COVID-19 pandemic. In addition to creating the clinic space, 

parking has become limited as additional staff has been hired to help manage the public health 

crisis. Increased public use of the vaccination clinic in conjunction with staff hired to combat 

COVID-19 requires the construction of additional parking at the DCHD Administration Building. 

Recognizing this need, as well as the 

anticipated on-going demand for booster 

vaccinations, the County allocated $1,000,000 

of SLFRF to renovate existing space in the 

DCHD Administration Building, acquire 

property adjacent to the DCHD Administration

Building and construct additional parking.

It is anticipated that the clinic remodel portion 

of this project will be completed in December 

of 2021 with the parking portion completing in 

early Fall 2022.

While this project is not targeted to a Qualified 

Census Tract (QCT), it should be noted that it 

is located on the boarder of the only QCT in 

the County. This location will provide easy 

access to the most concentrated population of 
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economically disadvantaged individuals in the County. 

Performance Measures

 Initial vaccination rate for the eligible population of Davis County

 Booster vaccination rate for the eligible population of Davis County

 Vaccine delivery time (appointment timeliness and availability)

Outcome Measures

 Increased first time and booster vaccination rates in Davis County

Use of Evidence

SLFRF funds on this project are not being used for evidence based interventions and is not 

required under expense category 1.1.
Davis County, UT

2021 Recovery Plan Performance Report 7

PROJECT NAME: Davis County Health Dept. (DCHD) Drive-through Mass Vaccination Clinic

PROJECT #: 311SLFRF-EC1.1-MASS VAC 1

FUNDING AMOUNT: $403,516

RESPONSIBLE DEPARTMENT, DIVISION, OR ENTITY: Davis County Health Department

FUNDING SPENT AS OF 7/31/2021: Retroactive expenses back to March 3, 2021 to be 

reported in next reporting cycle. 

FUNDING STATUS: Funds allocated in August 2021

EXPENSE CATEGORY: 1.1 - COVID-19 Vaccination

Project Overview

In the first quarter of 2021, DCHD 

was tasked with the distribution of 

the vaccine to the general 

population of Davis County. The 

Department developed and 

implemented a drive-through 

vaccination clinic beginning on 

December 28, 2020, at the Legacy 

Event Center in Farmington, UT. 

The facility is located in the 

geographic center of Davis County 

and located at the convergence of 

all major highways and interstate 

roads in the County. In addition to 

the ease of access by automobile, 

a bus/commuter rail station is 

located within a half mile of the facility. The Legacy Event Center allowed citizens to receive 

vaccination in a traditional mass clinic setting or by remaining in their car and utilizing a drivethrough option. When the DCHD vacated the facility on July 2, 2021, 222,171 doses of vaccine 

had been administered to the citizens of Davis County. The County will be utilizing SLFRF to 

pay the Legacy Event Center for rental fees from March 3, 2021, through July 2, 2021. The 

total rental fee for that period is $403,516 and classified utilizing expense category 1.1 COVID19 Vaccination. These funds were not targeted to serve disadvantaged communities primarily; 

rather, they were targeted to the countywide population that required vaccination. 

Performance Measures

 Vaccination rate for the general population of Davis County

Outcome Measures

 Increased vaccination rates in Davis County

Use of Evidence

SLFRF funds on this project are not being used for evidence based interventions and is not 

required under expense category 1.1.
Davis County, UT

2021 Recovery Plan Performance Report 8

PROJECT NAME: Davis County Jail Medical Unit Expansion

PROJECT #: 862SLFRF-EC1.7-JMW

FUNDING AMOUNT: $7,878,529

RESPONSIBLE DEPARTMENT, DIVISION, OR ENTITY: Davis County Corrections, Buildings 

and Grounds West Division

FUNDING SPENT AS OF 7/31/2021: Retroactive expenses back to March 3, 2021 to be 

determined and reported in next reporting cycle. 

FUNDING STATUS: Funds allocated in August 2021

EXPENSE CATEGORY: 1.7 – Capital Investments or Physical Plan Changes to Public 

Facilities That Respond to the COVID-19 Public Health Emergency

Project Overview

The first phase of the current Davis County Jail was built in 1991 with a housing population 

capacity of 376 persons and a medical unit of 6 cells. Through the subsequent expansion of the 

Jail and an addition of a Work Release Center, an additional 470 beds have been added to the 

facility for a total housing capacity of 846. No additional medical units have been added since 

1991. 

On December 17, 2019, the Davis County Commission approved the 2020 Davis County 

Annual Budget, including the approved construction of the Davis County Jail Medical Wing. In 

late December 2019 the County

issued direct placement bonds of 

$9,000,000 with a 10 year term in 

order to finance the project. The 

direct placement method 

contained a call provision that 

allowed the County to pay off the 

debt at any time without any 

additional fees or penalties. In 

February of 2020, the COVID-19 

pandemic began. Progress on 

the Jail Medical Wing was 

significantly impacted and the 

groundbreaking of the project did 

not take place until February 5, 2021. On August 1, 2021, Davis County paid off all debt 

associated with the project. At that time, the project had an estimated $7,878,529 of pending

expenses to completion. 

The timing of the circumstances is such that Davis County has a significant portion of an eligible 

SLFRF shovel-ready project. As such, Davis County intends to use SLFRF funds utilizing a 

pay-go approach for the remaining expenses associated with the Jail Medical Wing. The 

County will in no instance utilize SLFRF to pay interest or principal on outstanding debt. SLFRF

funds will only be used when contractors issue requests for payment on goods or services 

rendered after March 3, 2021. 

The projected completion of the Jail Medical Wing is March 2022, and will include 33 new 

medical beds, five negative pressure cells, as well as an improved layout for monitoring of 

incarcerated persons. While it is anticipated that this facility will assist with the mitigation of 
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2021 Recovery Plan Performance Report 9

COVID-19, it will also provide a generational benefit to a historically at-risk and medically 

underserved population, including those suffering from substance misuse and/or mental health 

crisis. 

It should be noted that prior to the pandemic, a significant funding source for debt service would 

have been the Commissary Services enterprise fund that provides assistance to individuals 

incarcerated in the facility. In 2019, the facility held on average per day 678 persons. The daily 

average dropped to 391 persons in 2020 and 436 in 2021. For this reason, the County could 

have used Expense Category 6 - Revenue Replacement to classify the expenses, but it felt that 

Expense Category 1.7 – Capital Investments or Physical Plan Changes to Public Facilities That 

Respond to the COVID-19 Public Health Emergency better described the intent of the project.

Performance Measures

 Number of incarcerated persons receiving individualized medical services while in the 

Davis County Jail

Outcome Measures

 Increase in number of incarcerated persons receiving individualized medical service

 Fewer outbreaks of communicable diseases

 Fewer transfers for medical care to outside facilities

Use of Measures

SLFRF funds on this project are not being used for evidence-based interventions and is not 

required under expense category 1.7.
Davis County, UT

2021 Recovery Plan Performance Report 10

PROJECT NAME: Increased Legal Counsel and Support Services to Mitigate Justice System 

Backlog

PROJECT #: 145SLFRF-EC1.9-JUSTICEBL

FUNDING AMOUNT: $291,917

RESPONSIBLE DEPARTMENT, DIVISION, OR ENTITY: Davis County Attorney’s Office

FUNDING STATUS: Funds allocated in August 2021

EXPENSE CATEGORY: 1.9 - Payroll Costs for Other Public Sector Staff Responding to 

COVID-19

Project Overview

In March of 2020, Utah Supreme Court Chief Justice, Honorable Matthew Durant, issued 

multiple Administrative Orders activating the Utah State Courts Pandemic Response Plan in 

order to protect the public, court staff and members of the judiciary from potential COVID-19 

exposure. As a result, district court and justice court judges were ordered to suspend all 

criminal trials, including civil jury trials. In subsequent months as the orders were extended, 

steps were taken to conduct proceedings through remote transmissions, such as by telephone 

or video conferencing. That being stated, a significant backlog of court proceedings occurred as 

a result of the pandemic. It is widely anticipated that working through the backlog of court 

proceedings will take two to three years. 

Davis County intends to utilize SLFRF to fund three new attorneys and associated support staff

to manage the new caseload. The funding referenced above is expected to provide for wages, 

benefits, and equipment for the new positions through the remainder of 2021. 

Some key indicators that provide evidence of the backlog include: 

 Davis County Attorney’s Office (DCAO) currently has 936 more open cases than they 

did at the beginning of 2018

 DCAO has on average 62.4 more open cases per prosecutor than they did in 2018

 In 2018 the average time for resolution of a case from filing to trial verdict and 

sentencing was 250.3 days. As of today in 2021 it is 349.6 days

 From January - August of 2018 DCAO had on average 46.8 cases per judicial calendar. 

From January - August of 2021 DCAO had on average 66.26 cases per judicial 

calendar.

Moving forward, the County will conduct an annual review of justice system caseload to 

determine appropriate funding for future SLFRF allocations. 

Performance Measures

 Caseload of Justice System services

Outcome Measures

 Reduction in time required to process individuals in the Justice System

Use of Evidence

SLFRF funds on this project are not being used for evidence based interventions and is not 

required under expense category 1.9.
Davis County, UT

2021 Recovery Plan Performance Report 11

PROJECT NAME: Additional Legal Defenders and Support Services to Mitigate Justice 

System Backlog

PROJECT#: 126SLFRF-EC1.9-JUSTICEBL

FUNDING AMOUNT: $158,667

RESPONSIBLE DEPARTMENT, DIVISION, OR ENTITY: Davis County Human Resources 

Office

FUNDING STATUS: Funds allocated in August 2021

EXPENSE CATEGORY: 1.9 - Payroll Costs for Other Public Sector Staff Responding to 

COVID-19

Project Overview

As mentioned above, the closure of the courts in March of 2020 resulted in a significant backlog 

of cases waiting to be addressed by the justice system. This backlog has created an immediate 

and expanded need for additional legal defender services assigned to the district court.

Davis County intends to utilize SLFRF to fund three new contract legal defenders and 

associated support staff to manage the expanded caseload. The funding listed above is 

expected to fund contracts, wages and benefits through the remainder of 2021. 

Some key indicators that provide evidence of the backlog in just the district court alone include: 

 Davis County Indigent Legal Defender program now has 740 more cases in District 

Court than at the beginning of 2018.

 Each Defender has approximately 99 more open cases than they did in 2018.

 Weekly judicial calendars have grown equating to an average of 8 additional cases for 

each Defender for each 4-hour weekly judicial calendar.

Moving forward, the County will conduct an annual review of justice system caseload to 

determine appropriate funding for future SLFRF allocations.

Performance Measures

 Case load of Justice System services

Outcome Measures

 Reduction in time required to process individuals in the Justice System

Use of Evidence

SLFRF funds on this project are not being used for evidence based interventions and is not 

required under expense category 1.9.
Davis County, UT

2021 Recovery Plan Performance Report 12

PROJECT NAME: Enhanced Pre-Trial Support Services to mitigate Justice System Backlog

PROJECT#: 128SLFRF-EC1.9-JUSTICEBL

FUNDING AMOUNT: $74,833

RESPONSIBLE DEPARTMENT, DIVISION, OR ENTITY: Davis County Human Resources 

Department

FUNDING STATUS: Funds allocated in August 2021

EXPENSE CATEGORY: 1.9 - Payroll Costs for Other Public Sector Staff Responding to 

COVID-19

Project Overview

In addition to the increased workload due to the court case backlog referenced above, pre-trial 

services is experiencing increased demand for services with limited staff/resources.

Davis County intends to utilize SLFRF to fund two new case manager positions. The funding

referenced above is expected to fund wages, benefits, and equipment for these positions 

through the remainder of 2021. Some key indicators that provide evidence of the backlog 

include: 

 Davis County Pre-trial Services served 319 clients in 2020. Currently, they have 722

clients. 

Moving forward, the County will conduct an annual review of justice system caseload to 

determine appropriate funding for future SLFRF allocations. 

Performance Measures

 Caseload of Justice System services

Outcome Measures

 Reduction in time required to process individuals in the Justice System

Use of Evidence

SLFRF funds on this project are not being used for evidence based interventions and is not 

required under expense category 1.9.
Davis County, UT

2021 Recovery Plan Performance Report 13

POTENTIAL PROJECTS

The following table outlines several potential projects that may be placed before the public for 

consideration in Fall 2021.

Total SLFRF Allocated to Davis County $ 69,048,017 

Planned and/or Allocated Projects $ 9,830,417 

Potential Projects $ 50,320,083 

Remaining Funds $ 8,897,517 

Expense Category/Project Name

Estimated 

Project 

Amount SLFRF Code Justification

1: Public Health Total: $ 20,320,083

Health Department Ongoing 2021-2024 COVID 

Response (Reserve)

$ 2,000,000 1.12 Other Public Health Services

Emergency Operations Building & 911 Dispatch 

Center 

$ 12,000,000 1.7 Capital Investments or Physical Plant Changes to 

Public Facilities that respond to the COVID-19 public 

health emergency 1

Mental Health Services - Domestic Violence 

COVID Remediation

$ 2,000,000 1.7 Capital Investments or Physical Plant Changes to 

Public Facilities that respond to the COVID-19 public 

health emergency 1

2022-2024 Increased Legal Counsel for Justice 

System Backlog

$ 4,320,083 1.9 Payroll Costs for Public Health, Safety, and Other 

Public Sector Staff Responding to COVID-19 

7: Administrative Total: $ 30,000,000 SLFRF Code Justification 

Countywide Sewer Projects $ 28,000,000 7.3 Transfer to Other Units of Government

Consultant for SLFRF Reporting/Administration $ 500,000 7.1 Administrative Expenses

School District Vulnerable & Homeless Youth 

Capital Improvement

$ 1,500,000 7.3 Transfer to Other Units of Government
Davis County, UT

2021 Recovery Plan Performance Report 14

PERFORMANCE REPORTING

As of July 31, 2021, Davis County has not funded any programs that require program specific

performance reporting in the following expense categories:

a. Household Assistance (EC 2.2 & 2.5) and Housing Support (EC 3.10-3.12) 

b. Negative Economic Impacts (EC 2)

c. Education Assistance (EC 3.1-3.5)

d. Healthy Childhood Environments (EC 3.6-3.9)

If in future annual reports the County commits funds to programmatic expense categories that 

require performance reporting the appropriate measures, indicators and data will be provided.