Immediate Threat

Appeal Brief Appeal Letter Appeal Analysis

Appeal Brief

Disaster4486
ApplicantTown of Lantana
Appeal TypeSecond
PA ID#099-39375-00
PW ID#GMP 185187
Date Signed2023-06-28T16:00:00

Summary Paragraph

The COVID-19 pandemic resulted in a major disaster declaration for the State of Florida on March 25, 2020, with an incident period of January 20, 2020, to May 11, 2023. The Town of Lantana (Applicant) requested FEMA Public Assistance (PA) funding for materials costs including purchase and installation of Ultraviolet Germicidal Irradiation (UVGI) bulbs in various Heating Ventilation Air Conditioning (HVAC) units throughout its facilities. FEMA issued a Determination Memorandum, denying $13,985.00 for the UVGI as it was not a measure approved for PA reimbursement under FEMA COVID-19 specific policies. The Applicant filed a first appeal for the $13,985.00 in costs denied for the UVGI installation. The Applicant stated the UVGI equipment installed in high-risk facilities was an eligible emergency protective measure. The Florida Division of Emergency Management (Recipient) forwarded the appeal in support of the Applicant. FEMA issued a Request for Information for documentation substantiating that: 1) the facilities were designated high-risk indoor settings; 2) how installation of UVGI was used to lower risks; 3) maintenance records showing the HVAC were inadequate for ventilation; and 4) how the facilities suffered from lack of natural ventilation. The Applicant responded that the HVAC units were compliant with local and state building codes but were limited based on their design to avoid natural ventilation. FEMA Region 4 Regional Administrator denied the first appeal, finding that the Applicant had not demonstrated that the purchase and installation of UVGI in multiple HVAC systems was necessary due to insufficient ventilation. The Applicant filed a second appeal reiterating first appeal statements. The Recipient forwarded the second appeal in support of the Applicant.

Authorities and Second Appeals

  • Stafford Act §§403, 502.
  • 44 C.F.R. §§206.223 (a)(1), 206.225(a)(3)(i).
  • PAPPG, at 19, 57. 
  • O&O Policy at 4-5, Air Disinfection Memorandum, at 1-2.

Headnotes

  • FEMA may only fund air disinfection, in cases where Applicants implemented a layered approach.
    • The Applicant substantiated through documentation that it implemented a layered approach with sanitation, disinfectants, and PPE for staff.
  • FEMA may approve UVGI specifically as an air disinfection method if it was installed based on CDC recommendations.
    • The Applicant purchased and installed UVGI bulbs in HVAC systems due to insufficient natural ventilation in its facilities which is based on CDC recommendations.

Conclusion

FEMA finds the Applicant has substantiated that the purchase and installation of UVGI bulbs is an eligible emergency protective measure in response to COVID-19. Therefore, the appeal is granted in the amount of $13,985.00.

Appeal Letter

SENT VIA EMAIL

Kevin Guthrie, Director 

Florida Division of Emergency Management 

2555 Shumard Oak Boulevard 

Tallahassee, Florida 32399-2100

 

Stephen Kaplan, Director, Finance Department

Town of Lantana

500 Greynolds Circle

Lantana, Florida 33462

 

Re: Second Appeal – Town of Lantana, PA ID: 099-39375-00, FEMA-4486-DR-FL, Grants Manager Project (GMP) 185187 – Immediate Threat

 

Dear Kevin Guthrie and Stephen Kaplan:

This is in response to Florida Division of Emergency Management (Recipient) letter dated March 23, 2023, which transmitted the referenced second appeal on behalf of Town of Lantana (Applicant). The Applicant is appealing the U.S. Department of Homeland Security’s Federal Emergency Management Agency’s (FEMA) denial of funding in the amount of $13,985.00 for purchase and installation of Ultraviolet Germicidal Irradiation (UVGI) bulbs in its Heating, Ventilation, and Air Conditioning (HVAC) units throughout its facilities. 

As explained in the enclosed analysis, I have determined that the Applicant has substantiated that the purchase and installation of UVGI bulbs is an eligible emergency protective measure in response to COVID-19. Therefore, the appeal is granted in the amount of $13,985.00. By copy of this letter, I am requesting the Regional Administrator to take appropriate action to implement this determination.

This determination is the final decision on this matter pursuant to 44 C.F.R. § 206.206, Appeals.

 

                                                                                         Sincerely, 

                                                                                                /S/

                                                                                         Tod Wells

                                                                                         Deputy Director for Policy

                                                                                         Public Assistance Division

 

Enclosure

cc:  Gracia B. Szczech

Regional Administrator 

FEMA Region 4

Appeal Analysis

Background

The coronavirus (COVID-19) pandemic resulted in a major disaster declaration for the State of Florida on March 25, 2020, with an incident period of January 20, 2020, to May 11, 2023. The Town of Lantana (Applicant) requested FEMA Public Assistance (PA) funding for costs related to sanitation, disinfectant services, personal protective equipment (PPE) for staff at its Town Hall, Police Station, Vehicle Maintenance and Public Works buildings and Public Library (facilities), and for the purchase and installation of Ultraviolet Germicidal Irradiation (UVGI) bulbs in various existing Heating, Ventilation, and Air Conditioning (HVAC) units throughout its facilities.[1] FEMA captured the Applicant’s costs in Grants Manager Project 185187 for a total of $20,124.01. 

FEMA issued a Determination Memorandum on February 16, 2022, denying $13,985.00 for the purchase and installation of UVGI bulbs.[2] FEMA found that UVGI was not a measure approved for PA reimbursement under FEMA’s Coronavirus (COVID-19) Pandemic: Safe Opening and Operation Work Eligible for Public Assistance Policy (O&O Policy).[3]

First Appeal 

The Applicant filed a first appeal to the Florida Division of Emergency Management (Recipient) dated March 28, 2022, for the $13,985.00 in UVGI costs. The Applicant stated the disinfection of eligible facilities was eligible for reimbursement, and the UVGI equipment installed in high-risk facilities, where an anticipated high volume of persons would be entering these facilities to perform essential services, duties etc., was an eligible emergency protective measure. The Recipient forwarded the Applicant’s first appeal to FEMA in support of the Applicant on May 20, 2022.

FEMA issued a Request for Information to the Applicant in a letter dated October 6, 2022, seeking documentation substantiating: 1) that the facilities were designated high-risk indoor settings; 2) how installation of UVGI was used to lower risks; 3) maintenance records showing the HVAC systems were inadequate for ventilation; and 4) how the facilities suffered from lack of natural ventilation.

The Applicant responded on October 25, 2022, explaining that the facilities had equipped HVAC units which were compliant with local and state building codes, but the design did not allow for natural ventilation.[4] Additionally, the Applicant stated that any attempt to use natural ventilation was infeasible due to the humidity and temperatures where the facilities are located in south Florida. 

The FEMA Region 4 Regional Administrator, in a letter dated November 30, 2022, denied the Applicant’s first appeal. FEMA found that the Applicant had not demonstrated that the purchase and installation of UVGI in multiple HVAC systems was necessary due to insufficient ventilation.

Second Appeal

The Applicant files a second appeal dated January 23, 2023, reiterating that the facilities’ design limitations do not allow for natural ventilation. The Applicant notes the Centers for Disease Control and Prevention (CDC) does not recommend natural ventilation in extremely humid environments such as south Florida. The Applicant states it positioned the UVGI equipment in a strategic manner to locations and facilities with known or anticipated high volumes of persons with indeterminate infectiousness. The Applicant provided photographs of the facilities where UVGI was installed noting the location of non-functional windows. The Applicant also cites to a recent FEMA second appeal decision which granted funding for UVGI.[5] The Recipient forwarded the Applicant’s second appeal on March 23, 2023, in support of its position.

 

Discussion

FEMA is authorized to provide emergency protective measures to save lives and protect public health and safety.[6] For emergency protective measures to be eligible, the Applicant is responsible for showing the work is required due to an immediate threat resulting from the declared incident.[7] Eligible work includes cleaning and disinfection done in accordance with applicable FEMA policy, and guidance of the CDC or appropriate public health official available at the time the work was completed.[8] Air disinfection may be eligible in limited circumstances in accordance with FEMA’s O&O Policy.[9] FEMA may only fund air disinfection in cases where applicants implemented a layered approach.[10] Such approaches may include the following types of preventive measures: (1) use of masks in a consistent and correct manner; (2) physical distancing of at least 6 feet; (3) frequently cleaning and disinfecting surfaces; (4) hand hygiene with regular hand washing with soap and water or using alcohol-based hand sanitizer; or (5) vaccination.[11] The measure must also be consistent with guidance applicable at the time from appropriate public health officials or the CDC as it relates to disinfection.[12]  

FEMA may approve UVGI specifically as an air disinfection method if it was installed based on CDC recommendations.[13] These CDC recommendations are generally limited to installation in certain areas that include: (1) where indoor spaces have insufficient or no mechanical HVAC systems or where adequate natural ventilation cannot be maintained year-round; and (2) crowded spaces, particularly when the health status of occupants is unknown (for example, courtrooms, lobbies, homeless shelter sleeping areas).[14]

Based on receipts contained in the record, the Applicant has demonstrated that it utilized a layered approach, providing disinfectants, sanitizers, and providing PPE to staff at its facilities.[15] Additionally, the Applicant has substantiated, through photographs and written explanations, that the facilities in which UVGI bulbs were installed cannot maintain natural ventilation year-round.[16] Furthermore, the facilities in which the Applicant installed UVGI bulbs are in locations with an increased likelihood of crowded spaces, where the health status of occupants is unknown, e.g., the police station and town council buildings.[17] Accordingly, FEMA finds that the Applicant’s purchase and installation of UVGI bulbs in its HVAC systems is an eligible emergency protective measure in accordance with FEMA’s Air Disinfection Policy. 

 

Conclusion

The Applicant has substantiated that the purchase and installation of UVGI bulbs is an eligible emergency protective measure in response to COVID-19. Therefore, the appeal is granted in the amount of $13,985.00.


 

[1] These related to seven (7) buildings, all having Ultraviolet Germicidal Irradiation (UVGI) bulbs installed in the Heating, Ventilation and Air Conditioning (HVAC) systems. See 21214B(support).pdf in Grants Manager. 

[2] FEMA approved the remaining $6,139.01 in requested costs.

[3] Determination Memorandum, Town of Lantana, at 3 (Feb. 16, 2022) (citing Coronavirus (COVID-19) Pandemic: Safe Opening and Operation Work Eligible for Public Assistance (Interim) FP 104-21-0003, Version 2, at 5 (Sept. 8, 2021)) [hereinafter O&O Policy].

[4] Letter from Town of Lantana, to Appeals Section Chief, FEMA Region 4, at 2 (Oct. 25, 2022). 

[5] See FEMA Second Appeal Analysis, Seneca Falls Central School Dist., 4480-DR-NY (Sept. 22, 2022). 

[6] Robert T. Stafford Disaster Relief and Emergency Assistance Act §§ 403, 502, Title 42, United States Code

 §§ 5170b, 5192 (2018); Title 44 Code of Federal Regulations (44 C.F.R.) § 206.225(a) (2019).

[7]  44 C.F.R. §§ 206.223 (a)(1), 206.225(a)(3)(i); Public Assistance Program and Policy Guide, FP 104-009-2, at 19, 57 (Apr. 1, 2018).

[8] O&O Policy, at 4-5.

[9] FEMA Memorandum from Assistant Adm’r, FEMA Recovery Directorate, to Reg’l Adm’rs, FEMA Regions 1-10, Air Disinfection Eligibility Under FEMA’s Coronavirus (COVID-19) Pandemic: Safe Opening and Operation Work Eligible for Public Assistance (Interim) Policy, at 1 (June 13, 2022) [hereinafter Air Disinfection Memorandum].

[10] Id. at 2.

[11] Air Disinfection Memorandum, at 2.

[12] O&O Policy, at 4-5.

[13] Air Disinfection Memorandum, at 2.

[14] Id.

[15] See 211214B (support).pdf in Grants Portal/Manager, the Applicant provided receipts of glove purchases, hand sanitizers, face masks and disinfecting wipes providing a layered approach in responding to COVID-19.

[16] See Letter from Finance Dir., Town of Lantana, to Reg’l Adm’r, FEMA Region 4, at 2, Exhibit 4 (Jan. 23, 2023). The Applicant explains that the buildings were developed with windows that are not built to open. Photographs provided in Exhibit 4 show the locations where the windows either will not open or are not functionally designed to be opened in the first-place, i.e., the Public Library has large windows that are not designed to be opened.

[17] Id. at 3. Here, the Applicant explains that the locations were areas where anticipate high volumes of persons would be entering and exiting to perform essential governmental services, duties and obligations. 

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