imagine_salem_progress_reportProgress Report
ImagineSalem.org | 3
Imagine Salem | Imagine Salem
Executive Summary 4
Resumen Ejecutivo 8
Acknowledgements 12
Notes 12
Introduction 14
Salem in 2026 16
Process 20
Beyond the Traditional Public Process 21
Toward a
Collective Vision for Salem 24
Why ask for a vision for Salem? 25
What people love about Salem 26
What people would change about Salem 28
Core values for Salem’s future 30
Analysis and Recommendations 32
Community 35
Population Growth and Density 36
Race, Ethnicity, and
National Origins 38
Age and Household Structure 40
Educational Attainment 44
What we heard from the community 46
Summary of findings 49
Guiding Principles 50
Housing 53
Neighborhood Character, Housing Size,
and Housing Age 54
Housing Prices and Rents 58
Affordability and Cost Burdens 62
What we heard from the community 64
Summary of findings 67
Guiding Principles 68
Employment 71
Location and density of jobs 72
Employment and Earnings for Salem’s workforce 74
Employment and Earnings for Salem residents 76
Commuters and residents who work in Salem 78
What we heard from the community 80
Summary of findings 83
Guiding Principles 84
Transportation 87
Residents’ Transportation Choices 88
Transit access and equity 89
Active Transportation 92
Traffic and Roads 94
What we heard from the community 96
Summary of findings 99
Guiding Principles 100
Conclusion 102
Summary of Guiding Principles 103
Imagine Salem
| 3
4 |City of Salem
Imagine Salem | Imagine SalemExecutive Summary
The initial phase of Imagine Salem has been a process
to establish a vision for Salem’s future. Setting its sights
on 2026, the 400th anniversary of the city’s founding, the
process engaged the people of Salem to assess what they love
and how they would improve their city. Ultimately, Imagine
Salem aims to serve as a guide for future decisions.
In order for this vision to reflect the city’s many
communities, the City of Salem convened a working group,
held various on-the-ground activities across the city and
had a strong online presence. The process also included a
data-driven analysis of existing conditions in Salem, and
it considered policies and programs already undertaken
by the City to assess if the City’s efforts are in line with the
community’s vision. To focus the analysis, the community
was informed about the existing conditions of the following
core categories: population, housing, employment, and
transportation, and the interplay between these categories.
The analysis of the categories was framed around two
provisional values that served as the cornerstones for
Imagine Salem: equity and inclusivity. After providing
the people of Salem an overview of the data-driven
analysis, they were asked to reflect on their own lives and
experiences.
Throughout the Imagine Salem conversation, numerous
community members brought up the importance of
k-12 public education. The Imagine Salem conversation
purposefully directed comments regarding education to
the Salem Public School district (SPS) because the district
was in the midst of a community-engaged strategic planning
process to build a world-class school district for all Salem
students. Nevertheless, given the importance of this critical
topic, the guiding principles set forth in Imagine Salem
include an overview of the SPS community-developed
vision.
Based on the collective input from the community, Imagine
Salem proposes the following vision for the future:
IN 2026 WE ARE A SUSTAINABLE
AND LIVABLE CITY WHERE
WE CELEBRATE OUR DIVERSE
HISTORIES AND WHERE PEOPLE OF
ALL BACKGROUNDS AND MEANS
PARTICIPATE AND THRIVE.
While principles specifically related to the community,
housing, employment and transportation are listed, the
topics have numerous overlaps and connections among each
other and with other topics, such as sustainability. The City
recognizes that maximization of positive outcomes for any
topic area may negatively impact another. The interplay
between policies and programs relating to housing,
employment and transportation will be coordinated to
support the varied needs of Salem’s population with values
of equity and inclusivity being prioritized.
COMMUNITY GUIDING PRINCIPLES
Salem believes in growing and supporting a diverse
community, where people have equal opportunity and
access to social and economic resources. The people of
Salem should be able to participate in their community in
meaningful ways, including the direction and intentions
of their city government. Conversely, the wellbeing of
the public should be at the forefront of the City of Salem’s
governing objectives.
Diversity is a fundamental part of Salem’s history and is critical for its continued prosperity.
Salem recognizes the multitude of voices that shaped its
past and that its history cannot be adequately told without
addressing the lives and contributions of people of many
backgrounds. Today the city must create an inclusive
environment for people no matter their race, ethnicity,
income or wealth, class affiliation, gender identity, sexual
preference, religious or spiritual affiliation, household
or family structure, veteran status, nationality or
refugee status, and employment or student status. Salem
acknowledges that in the 21st century, the city will be neither
socially or economically prosperous without inclusivity.
Equity is a necessary component of any approach to planning.
Salem should embrace equity of opportunity and basic
social needs, such as housing or access to transportation.
Without equity, diversity and inclusivity are fleeting.
Equity moves beyond a simple equality of opportunity, but
takes steps to be affirmatively fair and to rectify historic
injustices and remove systemic barriers.
Guiding Principles
ImagineSalem.org | 5
Imagine Salem | Imagine Salem
Civic and political engagement within and between communities is key to inclusive governance.
Equity and inclusivity can only advance so far without
the robust engagement from everyone involved. Salem
should create opportunities for more people of varying
backgrounds to become involved in formal political and
informal community life, whether through get-out-the-
vote campaigns for municipal elections, the provision of
additional usable community spaces, or otherwise.
Diversity and inclusivity cannot be buzzwords, but must be enacted through legal, social, economic, and symbolic means.
Salem should continue to advance diversity and inclusivity
through ordinances, referenda, and legal interpretations.
It should also continue to foster social and economic
diversity through policies and programs, many of which are
discussed in later sections. Lastly, it should use monuments,
public art, festivals, and other means to affirm the historic
contributions and present cultures of its many communities.
HOUSING GUIDING PRINCIPLES
Salem recognizes the community’s right to safe, affordable,
and life-enriching housing. The City encourages the
production housing that meets the varied needs of its
population at all price points. Salem also recognizes that
quality housing can only exist where there is access to good
jobs, transportation choice, and necessary community
amenities.
Market rate housing should be affordable to people earning average wages.
Salem must meet the rising local and regional demand for
housing with increased supply, or else costs will continue
to rise beyond what is affordable for its diverse population.
Though Salem can’t act alone to change the regional housing
market, it can lead the region with a progressive approach to
housing production.
Housing for lower income households requires special accommodation to produce.
Even with broad market affordability, Salem would still
need safe and quality housing that is affordable to lower
income households. It is unrealistic to assume the market
will provide this, given the increased costs and barriers to
financing that affordable housing developers face. Salem
must help affordable housing developers lower their
costs (either through low cost land, as-of-right regulatory
processes, or otherwise).
Housing should be safe, healthy, and resilient.
Housing design, siting, and maintenance should ensure
that housing safe to inhabit. Housing should promote
healthy choices and healthy communities, and be able to
withstand environmental and social shocks, particularly
those associated with climate change.
Housing designs must meet the varied needs of diverse residents, and there should be real housing choices for all.
Salem residents and its future residents have different
wants and needs. Large families have different needs than
young singles. The aging and people with disabilities have
unique requirements for their housing and the surrounding
areas. Needs and wants vary, and Salem’s housing should
account for that variation. Furthermore, Salem’s housing
should not provide any group with only one choice.
Housing should be part of a complete neighborhood.
Housing doesn’t work if it is not integrated with other
uses like employers, retail, civic and open spaces, a robust
transportation system and community spaces like libraries.
EMPLOYMENT GUIDING PRINCIPLES
Salem’s economy should be a system that contributes to
opportunity, a high quality of life, and a sense of community
for the city’s residents, workforce, business owners,
entrepreneurs, students, and visitors. The city recognizes
its role in a regional labor market and business community,
while asserting the primary importance of homegrown
opportunities for the people of Salem.
Employment in Salem should provide living wages and opportunities for advancement.
No one should work full time and live in poverty. While
acknowledging that small businesses must sometimes start
with lean budgets and that some jobs are designed to begin
a career path, jobs that do not provide a reasonable living
wage are generally unacceptable. Furthermore, employment
should provide formal and informal opportunities for
training and advancement, either within that organization
or otherwise.
6 |City of Salem
Imagine Salem | Imagine Salem
Employment should be accessible for people of all education and skill levels.
Part of Salem’s charm is its diverse mix of people from a
variety of cultures and backgrounds, including education
level. Salem should maintain opportunities for work that
have low barriers to entry in terms of education, including
opportunities for those with technical and vocational
training.
Salem should bolster core industries, while increasing economic diversification and
entrepreneurship.
Salem should support its core industries like health care,
education, food, and retail. Building on these economic
clusters will ensure Salem plays a critical role in the regional
economy. That said, there should also be robust employment
opportunities for people who do not work in those fields,
and entrepreneurs should be supported. Economic
diversification and entrepreneurship will also mitigate the
risk of downturns.
Salem should maximize the opportunity to both live and work in the city.
Compared to the number of commuters coming into or
leaving Salem for work, there are relatively few people who
both work and live in Salem. Increasing the proportion
of people who live and work in the city would reduce
traffic congestion grow employee satisfaction, and grow
community ties.
Employers should complement and contribute to the wider community.
Though many organizations rightly focus on their own
internal needs and opportunities, Salem should encourage
employers to foster relationships with their neighbors,
either formally or informally. Reestablishing retail stores as
sites of informal community and bonding between business
owners, employees, and customers was a prominent part of
many Imagine Salem discussions.
TRANSPORTATION GUIDING PRINCIPLES
Salem believes in an accessible local and regional
transportation system that provides alternative modes of
transportation and choices. Salem aims to have a true multi-
modal transportation system that encourages active and
sustainable transportation choices for everyday trips and
empowers all travelers to safely use the streets. The City
recognizes the crucial role that a sustainable transportation
system plays in opening up opportunities for the Salem
community.
People should have options when choosing to get around the city regardless of their age and ability.
People have differing preferences and abilities, and
therefore choice should be embedded in all parts of
the transportation system. In many places, providing
choice entails rebalancing streets after nearly 80 years of
automobile-oriented investment. In other places, it means
designing streets and sidewalks to be ensure safety and
comfort for all users, particularly the elderly and people
with disabilities.
Elements of the transportation system should connect, so that the system becomes multi-modal.
It is unreasonable to expect all transportation modes to
work for all trips, and creating independent systems for all
transportation modes would be redundant in many places.
The transportation system should allow travelers to string
together different mode choices where appropriate.
Streets should be designed to enable active and sustainable transportation modes.
The transportation system will work best when people
who can reasonably walk, bike, or use transit can do so
safely, comfortably, and reliably. Making these modes
work is especially important for trips taken along existing
transit lines and for short trips within Salem and to adjacent
communities. By enabling these modes, valuable “real
estate” in the public right of way will become free. Allowing
people to not use their cars unnecessarily relieves traffic
congestion, increases retail foot traffic, fosters community,
and ameliorates public health.
The transportation system should be design for safety and a “Vision Zero” standard.
Major injuries and deaths from travelling are largely if
not entirely preventable. Improper street designs, including
those that incentivize fast travel speeds, can increase the
likelihood of casualties. When reconfiguring streets, Salem
should design for low speeds and low casualties in its
neighborhoods. Ultimately, Salem should aim to have zero
deaths and major injuries—a standard called “Vision Zero.”
ImagineSalem.org | 7
Imagine Salem | Imagine Salem
The transportation system should complement neighborhoods.
Quality of life in Salem’s neighborhoods should be
bolstered by the transportation system. Rather than
communities accommodating inflexible transportation
infrastructures, the transportation system should be
designed with the unique character of each neighborhood in
mind.
EDUCATION VISION
The Salem Public School strategic planning process began
in earnest with a multi-stage endeavor and resulted with the
following community-developed vision:
ALL STUDENTS WILL BE LOCALLY
ENGAGED, GLOBALLY CONNECTED,
AND FULLY PREPARED TO THRIVE IN A
DIVERSE AND CHANGING WORLD.
See the strategic plan at www.salemk12.org for more information.
8 |City of Salem
Imagine Salem | Imagine Salem
Principios Rectores
Mientras principios relacionados con populación,
alojamiento, empleo y transportación están listados, los
temas coinciden uno al otro y coinciden con temas como
la sostenibilidad. La cuidad reconoce que resultados
positivos de cualquier tema también pueda tener impactos
negativos. La relaccion entre la poliza y los programas
relacionado con alojamiento, empleo y transportación van
hacer coordinados para apoyar las varias necesidades de la
populación en Salem con valores de equidad e inclusión.
PRINCIPIOS RECTORES DE LA COMUNIDAD
Salem cree en la cultivación y apoya de la diversificación
de la comunidad, donde todas personas tendrán iguales
oportunidades y el mismo acceso a recursos sociales y
económicos. La gente de Salem debería poder participar
en su comunidad en formas significativas, incluyendo la
dirección e intenciones de su gobierno. Inversamente, el
buen estar del público debe de ser unas de las vanguardias
de los objetivos gobernar de Salem.
La diversificación es una parte fundamental de la historia de Salem y es crítico para su continua prosperidad.
Salem reconoce las multitudes de voces que han formado
su pasado y que su historia no puede ser contada sin abordar
cargo de las vidas y contribuciones de personas diversas.
Hoy la cuidad tiene que crear un ambiente inclusivo para
todos sin importar una personas raza, origen étnico,
ingresos o riqueza, afiliación de clase, identidad de género,
preferencias sexuales, afiliación religiosa o spiritual,
estructura familiar, estado de veterano, nacionalidad o
estado de refugiado y el estado de empleo o de estudiante
de su habitantes. Salem reconoce que en el siglo 21, la cuidad
nunca será socialmente o económicamente prospera si
excluye ciertos miembros de la comunidad.
La equidad es un componente necesario de cualquier esfuerzo de planificación.
Salem debe aprovechar la oportunidad que tiene para ser
equitativo y ofrecer necesidades básicas y sociales a todos,
como alojamiento o acceso a transportación. Sin la equidad,
la diversidad y la inclusión serán fugadas. La equidad se
mueve más allá de la simple oportunidad para la igualdad,
también incluye pasos para ser afirmativamente justo
con todos para rectificar injusticias en nuestra historia y
remover barreras sistemáticas.
Resumen Ejecutivo
La fase inicial de Imagine Salem ha sido un proceso para
establecer una visión del futuro de Salem. Usando el año
2026 come punto focal, el 400 aniversario de la fundación
de la cuidad, el proceso comprometió la gente de Salem para
evaluar que les gusta y como mejorarían la cuidad. En fin, la
meta de Imagine Salem es servir como guía para decisiones
en el futuro.
Para que la visión de Salem reflecte sus muchas
comunidades, la cuidad ha convocado un grupo, ha tenido
varias actividades a través de la cuidad y a teniendo una
presencia fuerte en las redes sociales y la página de web de
Imagine Salem. El proceso también incluye un análisis de
las condiciones existentes de Salem, considerando pólizas y
programas para evaluar si los esfuerzos de la cuidad están en
línea con la visión de la comunidad. Para enfocar el análisis,
el público fue informado sobre las condiciones existentes
en las siguientes categorías: populación, alojamiento,
transportación, y la interacción entre estas categorías. El
análisis de las categorías fue construido alrededor de dos
valores provisionales que sirven como base para Imagine
Salem: equidad e inclusión. Después de suministrar el
repaso del análisis, les preguntamos a los residentes que
reflecten sobre sus vidas y experiencias.
Durante la conversación, muchos miembros de la
comunidad hablaron sobre la importancia de la educación
pública. La conversación intencionalmente directo todas
preguntas y comentarios, relacionados con la educación
pública a el distrito de las escuelas públicas de Salem como
ellos estaban en medio de un plan estratégico para crear
un distrito de clase mundial para todos los estudiantes de
Salem. Sin embargo, sabiendo la importancia del tema de
discusión, los principios rectores propuestos por Imagine
Salem incluye un resume del distrito de las escuelas públicas
de Salem y su visión para el desarrollo comunitario.
Basado en la participación colectiva de la comunidad,
Imagine Salem propone lo siguiente para la visión del
futuro:
EN 2026, LA CUIDAD DE SALEM
SERA UN LUGAR SOSTENIBLE Y
HABITABLE, DONSE SE CELEBRARA
LA DIVESIFICACION Y DONDE GENTE
DE DIFERENTES FONDOS PUEDAN
PARTICIPAR Y PROSPERAR.
ImagineSalem.org | 9
Imagine Salem | Imagine Salem
Compromiso civil y político, entre y con la comunidad, es clave para un gobierno inclusivo.
La equidad e inclusión solo puede avanzar Salem
tan lejos, sin el robusto apoyo y compromiso de todos
involucrados esta meta no será lograda. Salem debe de crear
oportunidades para más personas de varios fondos, dándole
más oportunidades para involucrarse en política formal e
vida comunitaria informal, sea través la campana get-out-
the-vote para elecciones municipales, provisión de especiaos
comunitarios, o de otro modo.
La diversidad e inclusión no pueden ser solo palabras usadas por todos en la cuidad, deben de ser promulgadas a través de modos legales, sociales, económicos, y simbólicos.
Salem debe de continuar el avanzo de la diversidad y la
inclusión usando ordenanzas, referendos, e interpretaciones
legales. Debe de continuar el fomento de la diversidad social
y económica a través de la poliza y sus programas, muchos
de ellos que serán discutidos en las secciones adelantes.
Últimamente, debe de usar monumentos, arte públicos,
festivales, u otras vías para afirmar la contribuciones
históricas y culturas presentes en la cuidad.
PRINCIPIOS RECTORES DE VIVIENDA
Salem reconoce que la comunidad tiene derecho a
alojamiento que es seguro y asequible. La cuidad anima la
producción de alojamiento que cumple con las necesidades
de su población en todos los puntos de precio. Salem también
reconoce que viviendas de calidad no pueden existir en un
lugar donde no hay acceso a buenos trabajos, opciones de
transporte, y servicios necesarios para la comunidad.
Vivienda de tasa de mercado debe de ser asequible para personas ganando salarios promedios.
Salem debe satisfacer la demanda creciente local y regional
de vivienda con el crecimiento en la oferta, o los precios van
a continuar a subir más a allá de lo que los habitantes de
Salem puedan pagar. Aunque Salem no puede actuar solo en
el esfuerzo para cambiar el mercado inmobiliario regional,
puede liderar con enfoque progresivo a la producción de
vivienda.
El alojamiento debe formar parte de un barrio completo.
Alojamiento o viviendas no funcionan sin la integración de
empleo, venta al por menos, espacios libre y civil, sistema
de transportación robusta y espacios comunitarios como
librerías.
Vivienda para esos que ganan bajo ingresos requiere acomodación especial.
Incluso con el amplio mercado de asequibilidad,
Salem todavía necesita viviendas que son seguras y de
buena calidad que son asequible para los habitantes de
bajos ingresos. No es realístico asumir que el mercado
proporcionara este problema, dado el aumento en costos
y barreras a de financia que enfrentan los desarrolladores
de vivienda. Salem tiene que ayudar a estos desarrolladores
bajar los costos (a través de la adquisición de tierra de bajo
costo, proceso regulatorio, o de otra manera).
Alojamiento debe de ser seguro, saludable y resistente.
Los diseños y mantenimiento de los alojamientos o
viviendas deben de garantizar la seguridad que personas
puedan habitar ahí. Viviendas deben promover elecciones
saludables y una comunidad saludable, y debe resistir
cualquier choque ambiental o social, particularmente esos
asociados con el cambio de clima.
Diseños de vivienda deben de satisfacer las necesidades diversas de todos residentes, y debe de ver opciones reales para todos
Los residentes de Salem y futuro residentes tienen
diferentes gustos y necesidades. Familias grandes tienen
diferente necesidades que jóvenes solteros. La comunidad
envejecida y personas con discapacidad tienen necesidades
únicas para sus viviendas y las áreas cercanas. Gustos y
necesidades varían, y los alojamientos en Salem deben
de cumplir con esta variación. Además, alojamientos o
viviendas en Salem no deben tener solo una opción para sus
habitantes.
PRINCIPIOS RECTORES DE EMPLEO
La economía de Salem debe tener un sistema que
contribuye a la oportunidad a una vida de calidad, y a un
sentido de comunidad y seguridad para sus residentes,
empleados, empresarios, dueños de negocios, estudiantes y
visitantes. La cuidad reconoce su rol en el mercado laboral
regional y los negocios en la comunidad, mientras afirmando
la importancia primaria de ofrecer más oportunidades para
personas que viven en Salem.
10 |City of Salem
Imagine Salem | Imagine Salem
El empleo en Salem debe proporcionar salarios dignos y oportunidades para el adelanto.
Nadie debe de trabajar de tiempo completo y vivir en
pobreza. Mientras reconociendo que negocios pequeños
tienen que comenzar con un presupuesto ajustado y
que algunos trabajos están diseñados a comenzar una
carrera, trabajos que no proporcionan ingresos adecuados
generalmente no son aceptables.
El empleo debe de ser asequible para personas de todos niveles de educación y habilidad.
Parte del encanto de Salem es su diversidad de personas
y culturas, incluyendo niveles de educación. Salem debe
mantener oportunidades de trabajo que tendrán mínima
barreras de entrada en términos de la educación, incluyendo
oportunidades para esos con entrenamiento técnico y
vocacional.
Salem debe maximizar las oportunidades de los que viven y trabajan en la cuidad.
Comparado a la cantidad de viajeros entrando y saliendo
de Salem por razones de empleo, hay poca gente viven y
trabajan en Salem. Aumentando la proporción de gente
que viven y trabajan en esta ciudad reduciría la congestión
de tráfico, resultara en la satisfacción del empleado, y
fortalecerá lazos comunitarios.
Empleadores deben complementar y contribuir el buen estar de la comunidad en general.
Aunque muchas organizaciones se centran en sus propias
necesidades y oportunidades internas, Salem debe alentar
a los empleadores a fomentar relaciones con sus vecinos,
sea formal o informalmente. El restablecimiento de las
tiendas minoristas como sitios de la comunidad informal
y la vinculación entre los propietarios de las empresas,
los empleados y los clientes fue una parte prominente de
muchas discusiones sobre la Imagen Salem.
Salem debe reforzar industrias centrales, mientras aumentar la diversificación económica y el emprendimiento.
Salem debe apoyar sus industrias centrales como cuidado
de salud, la educación, alimentos, y el sector minorista.
Construyendo sobre estos conglomerados económicos
garantizara el rol de Salem para cambiar la economía
regional. Con eso dicho, debe de ver más oportunidades
para empleo para esos que no trabajando en estas careras,
y empresarios deben de ser apoyados más a menudo. La
diversificación económica y el emprendimiento también
deben de mitigar los riesgos de la desaceleración.
PRINCIPIOS RECTORES DE TRANSPORTACION
Salem cree en un sistema de transportación que en
accesible localmente y regionalmente para darles a todos
más modos de transportación. Salem tiene como objetivo
tener un sistema de transportación que es multimodal y que
anima sostenible elecciones de transporte todos los días y
que empodera a todos viajeros para seguramente usar las
calles de Salem. La cuidad reconoce el rol critico que tiene
un sistema sostenible de transportación a las oportunidades
disponibles para la comunidad de Salem.
El sistema de transportación debe ser diseñado para la seguridad y un estándar de “Visión Cero”.
Heridas y muertes por razón de transportación son en gran
parte prevenible. Señales de calles inapropiadas, incluyendo
esas con incentivos para viajar a rápida velocidad,
puede aumentar la posibilidad de accidentes. Cuando
reconfigurando las calles de Salem, la cuidad debe de tener
diseños hechos para la reducción de velocidad y accidentes
en los barros. Por último, Salem debe de tener como objetivo
cero muertes y heridas—el estándar llamado “Visión Cero”.
La gente debe de tener opciones cuando escogiendo una manera de moverse entre y afuera de la cuidad independientemente de su edad o habilidad.
La gente tiene diferentes preferencias y habilidades, y
por eso es que el sistema de transportación de Salem debe
de garantizar muchas más opciones para todos. En muchos
lugares, dando más opciones implica el reequilibrio de calles
después de casi 80 años de inversión orientada a la industria
automóvil. En otros lugares, se significa diseñando calles y
aceras para garantizar la seguridad y comodidad de todos los
usuarios, particularmente la comunidad envejecida y gente
con discapacidades.
Elementos del sistema de transportación debe conectar, para que el sistema sea multimodal.
Es irrazonable esperar que todos modos de transportación
vaya funcionar para todos los viajes. Creando un sistema
independiente para todos modos de transportación seria
reacio en muchos lugares. El sistema de transportación
debería permitir que viajeros usen varios modos de
transportación cuando apropiado.
ImagineSalem.org | 11
Imagine Salem | Imagine Salem
Calles deben de ser diseñadas para permitir el transporte activo y sostenible.
El sistema de transportación trabajaría bien si personas
que puedan caminar, andar en bicicleta, o usar otra forma
de transitó pueda hacerlo con seguridad y comodidad.
Haciendo que estos modos funcionen es importante para
todo viaje tomado a lo largo de existente líneas de tránsito
y para viajes cortos dentro de Salem y sus comunidades
adyacentes. Habilitando estos modos de transportación
resultara en un valor gratis de los bienes raíces en vía
públicas. En no hacer el uso de caro necesario, congestión
de tráfico será relevado, habrá aumentos en ventas por el
tránsito de pies, fomentara la comunidad, y mejorara la
salud pública.
El sistema de transpiración debe de complementar los barrios de Salem.
Calidad de vida en los barrios de Salem debe ser reforzado
por el sistema de transportación. En lugar de poner la
responsabilidad de arreglar inflexible infraestructuras de
transportación a la comunidad, el sistema debe ser diseñado
con un personaje único para cada barrio en Salem.
EDUCACIÓN
El proceso de la planificación estratégica de las Escuelas
Públicas de Salem comenzó con esfuerzos de multe-etapa y
resultaron en las visiones comunitarias que siguen:
TODOS ESTUDIANTES SERÁN COMPROMETIDOS LOCALMENTE, CONECTADOS GLOBALMENTE, Y TOTALMENTE PREPARADO PARA PROSPERAR EN UN AMBIENTE DIVERSO Y UN MUNDO QUE SIEMPRE ESTÁ CAMBIANDO.
El plan estratégico también identificara los cuatro pilares central (muestreado en la figura a continuación) que el distrito de Escuelas Públicas de Salem trabajara duro para lograr.
Para más información sobre el plan estratégico visite la página www.salemk12.org.
12 |City of Salem
Imagine Salem | Imagine Salem
Acknowledgements
Working Group
Adam Walsh
Rinus Oosthoek*
Beth Debski*
Carrie Francis
Rosario Ubiera-Minaya
John Andrews*
Emily Udy
Patricia Zaido
Jeff Barz-Snell
Flora Tonthat
Bill Tinti
Stan Franzeen
Claudia Paraschiv
Patrick Shea
Jose Gonzalez
Kim Saltmarsh*
Dean Rubin
*Represents members of the
Imagine Salem Marketing
Subcommittee
Community Volunteers
Chris Patzke
Pam Kentley
Amy Job
Anne Sterling
Dennis Knight
Erica Thatcher Busa
Matt Bachand
Creative Salem
Figsburry Creative Group
Imagine Salem Conversation Hosts
Point Neighborhood Association
Friends of Furlong Park Association
Salvation Army
Ward 4 Neighborhood Association
Salem Common Neighborhood Association
Chamber of Commerce
Jolie Tea Company
Salem Rotary
Salem Partnership
Grace Church
Salem Youth Commission
Council on Aging
Bates Elementary School
Historic Salem
Salem Housing Authority Residents
Notes
This report was prepared by Utile, in conjunction with the City of Salem and the Imagine Salem Working
Group.
Some quotes from the engament process were lightly edited for clarity and/or brevity.
Analysis undertaken for Imagine Salem largely assesses summary statistics and other information
published by various governent agencies. This analysis did not evaluate the statistical significance of
patterns shown in that data.
City of Salem
Mayor Kimberley Driscoll
Tom Daniel, AICP, Director of Planning and Community Development
Amanda Chiancola, AICP, Staff Planner
“Did You Know Card” Distributors
Chamber of Commerce
Front Street Coffee
Derby Joe
Bagel World
Jaho
Gulu Gule Cafe
ImagineSalem.org | 13
Imagine Salem | Imagine Salem
This section first describes the motivations for Imagine Salem and outlines the
engagement and analysis process. It then summarizes discussions on the broad
questions which shaped the vision: what do people love about Salem, what would
they like to change, and what values should motivate the plan. The product of
those discussions is the vision statement that follows.
14 |City of Salem
Imagine Salem | Introduction
Introduction
In 2026, we are a sustainable and
livable city where we celebrate
our diverse histories and where
people of all backgrounds and
means participate and thrive.
Proposed Vision Statement:
ImagineSalem.org | 15
Imagine Salem | Introduction
16 |City of Salem
Imagine Salem | Salem in 2026
In 2026, the City of Salem, Massachusetts will turn 400 years old. What will this
city be like? Who will live here? What will we do with our time? What values will we
live by? What will we cherish, and what will we be working to overcome?
Salem in 2026 should be a place for all—a place where everyone can come to
pursue their dreams, raise their families, and enjoy a shared sense of place.
Less than a decade out from this important date, what will we do now to craft a
vision for the future and make that vision a reality? Given the existing conditions in
the city and the needs and desires of its people, which potential steps toward such
a vision are reasonable and actionable? Imagine Salem is the first step towards
answering these questions.
Salem in 2026
“Imagine Salem will help us shape the
important aspects of our community that
are within our control and help us set a
collective course forward…with a deadline
to achieve what we value.”
— Mayor Kim Drisoll
ImagineSalem.org | 17
Imagine Salem | Salem in 2026
In 1626, Europeans in the so-called New World settled at the
site of a Native American Village, a place we now call Salem.
In the nearly 400 years hence, the city has forged several
distinct roles in the world—both culturally and economically.
What began as a farming village for a religious minority
soon transformed into a center for fishing and trade. By the
19th century, as shipping declined in the city, Salem became
a manufacturing town. Then, in the 20th century, the city
grew into its place as a local urban center within a wider
metropolitan region. In each iteration, the design and shape
of Salem changed accordingly; the urban form was both a
byproduct and driver of each new take on Salem. How will
Salem transform in the future? What will we preserve, and
what will we want to improve upon?
Today, as the city approaches its quadricentenniel, Salem
must take stock of itself, the conditions in the city, and its role
in today’s world. The city’s people must have a conversation
about where their city is today, and how the city should
approach its future. Imagine Salem is that start of that
conversation. Mayor Kimberley Driscoll and the City’s
Department of Planning and Community Development
(DPCD) commissioned the Imagine Salem process in the
fall of 2016. In November and December of that year, DPCD,
in conjunction with urban planning consultants Utile
and a working group of residents, business owners, and
community leaders, began the process in earnest.
This process of “visioning” is a preliminary assessment
of the existing conditions in Salem, as well as a series of
conversations—informed by knowledge of those existing
conditions—about the shape of Salem’s future. The goal is
to articulate a set of values shared by the Salem community,
and to develop a shared vision for the city’s future.
Furthermore, the process is a goal in itself. Through these
conversations, the City will raise public awareness of the
issues facing Salem, engage more people in the process of
governance, and build social capital between participants of
varying backgrounds.
To focus this process toward positive outcomes, Imagine
Salem developed a framework for understanding the
existing social and economic conditions and the future
vision of the city. The process reads the existing conditions
through the lenses of equity and inclusivity—values that
also drive the form of the process itself. To further focus
the conversation, the analysis was limited to issues of
population, housing, jobs, and transportation (and the
interplay between them).
The Imagine Salem process is intended to have a number
of outcomes. The Salem community will have a greater
knowledge about what different members of that community
love and value about Salem. This knowledge, along with
the strong social ties forged through conversation, are the
groundwork for change. The community, in short, will
be better organized to advocate for itself. Beyond that
organization, the city will have a stronger understanding
of the “facts on the ground,” with which they can make
informed decisions. Ultimately, Imagine Salem aims to
reshape the city by its 400th birthday in 2026 to better
reflect the vision of its people.
Imagine Salem is the start of a new conversation.
Salem Common
Photo: Robert Linsdell / Wikimedia
18 |City of Salem
Imagine Salem | Salem in 2026
Derby Street Wharf
Photo: Robert Linsdell / Wikimedia
ImagineSalem.org | 19
Imagine Salem | Salem in 2026
20 |City of Salem
Imagine Salem | Process
Process
The Imagine Salem process
combines in-depth community
input with data-driven analysis.
ImagineSalem.org | 21
Imagine Salem | Process
Beyond the Traditional Public Process
The Imagine Salem process created
low-barrier opportunities for anyone
who lives, works and/or plays in Salem.
The community was invited to partake
in the conversation through a variety
of civic engagement opportunities.
The engagement opportunties were
designed to promote the inclusion
of members of the community who
might otherwise be excluded or
marginalized, as inclusivity and
equity are the cornerstones of Imagine
Salem.
"The people of Salem are what make
this city great. Our community’s
vision should reflect their lives
and experiences, and advance our
collective hopes and dreams.”
- Mayor Kim Driscoll
The process also created new
opportunities for deep conversation
and active listening for those who
could give more of their time. The
team actively sought input from a
diverse range of community members
from various racial and ethnic
identities, gender identities, ages, and
neighborhoods.
The process was successful due to the
dedication of a group of community
members. These volunteers leveraged
their networks to bring the Imagine
Salem conversation into their own
homes and social groups where they
engaged people who typically do
not get involved in City Planning
processes.
Working Group
The City of Salem organized a
working group of residents, business
owners, property owners, and
community leaders. The composition
of this group was intended to balance
demographics and voices to get
diverse input on the planning process.
The group held three meetings in
late 2016, early 2017, and late in the
summer of 2017. At the first meeting,
the group discussed what they love
about Salem, and the consultant team
presented their initial analysis on
existing conditions. The working
group responded to both the form and
substance of that analysis, and they
gave recommendations on how the
team should proceed. At the second
meeting, the consultants presented
updates to their analysis, as well as a
plan for the wider engagement process.
The working group gave input in
response to the strategies presented
and suggested additional strategies
the Imagine Salem team could employ.
In addition to these meetings, an
engagement subcommittee formed.
This subcommittee developed
outreach strategies, including the
on-the-ground engagement, its social
media feeds and produced the plan’s
logo. (See page 28 for more information.)
That group additionally helped craft
the bilingual “Did You Know” cards.
(See "Did You Know Cards" on page 28
for more information.) At the third
meeting the working group reviewed
the draft report and finalized the
draft vision statement and guiding
principles.
Citywide Forum
In March of 2017, Imagine Salem
held a citywide forum at Salem
High School. More than 70 people
attended the forum, which combined
a presentation on existing conditions,
small group discussions on the
issues presented, and an open house.
Attendees were asked what they love
about Salem, and how they would
improve Salem’s housing, employment,
and transportation. The open house
portion of the event allowed attendees
to view the existing conditions data
in depth, see responses to Imagine
Salem’s bilingual online survey (See
"Digital Campaign" on page 28), and talk
through the findings with the Imagine
Salem team. Participants could place
22 |City of Salem
Imagine Salem | Process
dots on a giant map showing where
they live and work, and they could
write what their top priority for Salem
was on sticky notes placed on a large
board.
The working group and citywide
forum are traditional public processes
in urban planning efforts. Imagine
Salem went beyond the traditional
process by deploying a number of on-
the-ground engagement strategies.
Activities
Imagine Salem produced a number
of activities that were played in
schools, cafés, community meetings,
and other locations around the city.
These included “circle cards,” on
which participants recorded what
they love about Salem on paper
circles that could be combined and
displayed. With a different activity,
participants marked places they
love and places they would like to
improve, stated words that come to
mind when thinking of Salem, and
shared their thoughts on housing, jobs,
transportation, and more. Nearly 400
participant responses were recorded.
Coffee klatches
Community members, participants
in the working group, and City staff led
a series of “coffee klatches”—in-depth
conversations with individuals and
small groups. The coffee klatch was
an easy to administer and versatile
activity that was facilitated by a few
dozen community volunteers. The
conversations took place in a variety of
settings. For example, conversations
took place with a YMCA group, a
church group, in private homes over
wine, by Historic Salem Inc., and at
Bates Elementary School etc. In these
conversations, community members
discussed what they love about Salem
and how they want to improve the city
in the future. The conversations were
semi-structured and flexible enough
to dig deep. Because of the community
members involved, this unique
and inclusive engagement activity
gathered input from many people who
typically would not be involved in a
planning process.
Did You Know Cards
Imagine Salem produced a series
of bilingual post cards. These cards
contained illuminating facts about
Salem’s housing, employment, and
transportation. The cards served dual
purposes, it was a marketing tool to
get the work about Imagine Salem
out on the street. The cards included
the online information (website,
Facebook, Instagram and Twitter).
They also provided the community
an opportunity to provide written
feedback directly on the card which
could then be returned to a box at
several locations.
Did You Know cards were
distributed at the train station, Salem
State University, Salem Public Housing
and at several different businesses
including Planet Fitness, Laundromat
at Boston/Bridge, Bagel World, Jaho,
Derby Joe, Front Street, Gulu Gulu,
and IHOP.
Digital Campaign
Imagine Salem also included a digital
outreach campaign. ImagineSalem.
org became a hub connecting the
various parts of the planning process,
as well as a repository for the analysis
conducted for the plan. The Imagine
Salem team also used social media—
Facebook, Instagram, and Twitter—to
reach online audiences where they are,
give updates on the plan, and collect
feedback informally.
The website included links to a
bilingual online survey and an
interactive place-based, spatial survey.
The bilingual survey asked a series
of questions on the respondents’
feelings about Salem; their housing,
employment, and transportation
situation; how they would like to
improve those aspects of the city;
and other thoughts about the city.
The survey generated nearly 1,200
responses. The place-based survey
asked respondents to mark a place on
the map that they love or a place they
would like to see improved.
Conclusion
Through all outreach methods,
Imagine Salem obtained input from
more than 1,900 interactions with
people.
ImagineSalem.org | 23
Imagine Salem | Process
24 |City of Salem
Imagine Salem | Toward a Collective Vision
Toward aCollective Vision for Salem
What does the community love
about Salem, what would like they
like to change, and what values
should shape Salem as it evolves?
ImagineSalem.org | 25
Imagine Salem | Toward a Collective Vision
| 25
Why ask for a vision for Salem?
Cities change over time. People
and organizations pursing their
own interests will alter the city to
meet their needs, and this is healthy.
Local governments will often review
individual projects, such as a new
building proposal, one-by-one.
Similarly, local governments pursue
their own projects to accomplish
narrow (albeit worthy) goals, such as
the installation of a bike lane. This
approach works, but it may fail to
produce the overall social outcomes
that a city’s people hope to achieve.
A vision establishes what people value
about their community and sets forth a
set of overarching goals and priorities
to promote those values.
At the 2017 State of the City Address,
Mayor Kim Driscoll explained Imagine
Salem as:
“A community visioning process
that will bring together people,
organizations, and businesses from
across our community to have a
conversation together about what we
want our community to look like in
2026. What kind of city do we want
Salem to be by then? What legacy
will we pass on to the next generation
of Salem workers, entrepreneurs,
parents, and leaders? In what state will
we hand off our schools, not just to our
children, but to their children?
Can we make it easier to access
services or get around Salem? How will
we preserve our character while being
open to new industry? How do we make
sure that prosperity has a wide impact?
We will answer these questions,
together, through the Imagine Salem
Visioning Process.”
With a vision, future projects can
be reviewed in light of their wider
impact on the community, and Salem
will be able to advance projects that
work holistically. Thus, the purpose
of Imagine Salem is to ensure future
decisions are grounded in the values of
the community. Creating an inclusive
process of including people who might
otherwise be excluded or marginalized
is particularly important to ensure
that the vision is reflective of the
wider community in order to achieve a
resilient future for the city.
The LifestyleTransportation
Diversity& Inclusivity
History
SpecificPlaces
Architecture
SpecificActivities
Small city feel
Art
People
Food
Spirit
What do you love about Salem?
Figure 1
Source: Imagine Salem activity cards. Imagine
Salem generated these general categories
based on written responses, and coded each
response into one or more categories.
26 |City of Salem
Imagine Salem | Toward a Collective Vision
What people love about Salem
The people of Salem love a range of
things about their city, from broad
facets of social life to small but
important details.
As shown on Figure 1, many
Salemites explained that they love the
people, particularly the diversity and
community bonds found in Salem.
(See page 46 for further community
input regarding diversity.) Others
discussed their love the history of the
city, and the fact that its history feels
present in everyday life. Relatively
small groups of people noted the
architecture or some aspect of
transportation as what they love. Yet
more people loved some more general
part of the Salem ‘lifestyle.’ This
includes the ease of walking to shops
and cafés, the small city feel, the city’s
celebrations for Halloween, or that
the city feels simultaneously close-
knit and vibrant. Overall, engagement
on what people love about Salem
shows many distinct pieces coming
together. It’s not simply that there
are nice parks or distinctive shops,
it’s that these pieces are connected
through a pleasant and functional
cityscape.
In thinking about specific places that
people love in Salem, community members
often began the conversation speaking of a
memory tied to a place, such as the Common
and Forest River Park, while other noted that
the neighborhood they live is their favorite
place. Institutions also played a role—schools,
Salem State University, and the Peabody
Essex Museum among them. The amenities
at the Willows, including its pizza, popcorn
and the arcade was a common theme among
the second-grade and fourth-grade students
at Bates Elementary school.
ImagineSalem.org | 27
Imagine Salem | Toward a Collective Vision
Perfect blend of
urban and
suburban life.
All of the water front
green spaces and
the McIntire District!
Although I commute to
Boston for work, I love
coming home to Salem and not having to leave
to do everything I need.
It’s a destination for
outsiders with opportuni-
ties to experience food,
events, and arts. There’s
always something to do.
The culture and heritage coupled with small town friendliness.
It’s a great
place to raise
a family!
Salem is an intersection
of history and contem-
porary lifestyle.
It’s a beautiful town full of interesting architecture and
activity, history
bus, and Halloween enthusiasts.
Diversity, rich to
poor—it’s a true mirror of America.
“What do you love about Salem?”
Figure 2
Example responses from activity cards.
What people would change about Salem
The Salem community has many
suggestions on how to make the
city better. These range from broad
statements like “Involve all residents
in the same activities” to specific policy
prescriptions like the introduction of
accessory dwelling units and place-
based ideas such as “Improve Highland
Avenue.” When asked their top
priority, participants in Imagine Salem
activities were split on what was most
important. Many responses were in
regards to the city’s land use, including
the use of specific sites and broader
actions like the introduction of urban
agriculture or public art. (Suggestions
related to these topic areas are explored
in more detail in later sections:
“Community” on page 35, “Housing” on
page 53, “Employment” on page 71, and
“Transportation” on page 87.) There
were also many suggestions related
to education—a topic not explored in
depth in the Imagine Salem process
because the Salem Public School
District was concurrently undertaking
a strategic planning process. For more
information on that process, visit that
plan’s page on the district’s website.1
1 http://salemk12.org
Source: Imagine Salem activity cards. Imagine Salem generated
these general categories based on written responses, and coded
each response into one or more categories.
Land Use
Transportation
Diversity & Inclusivity
Economy
History
Housing Education
What is your #1 p rio r i t y for Salem?
22%
20%18%
9%
3%
12%16%
Figure 3
28 |City of Salem
Imagine Salem | Toward a Collective Vision
ImagineSalem.org | 29
Imagine Salem | Toward a Collective Vision
Increase the
amount of aord -
able housing.
Maintain Salem’s
history of inclusion
for future generations.An expanded bus system and an
expanded retail
district downtown and on Highland Ave.
Acccessible, usable green space of appropriate proportion to the number of people.
Reliable
Transportation at low cost.
I think we need to
use more of the
waterfront of Salem.
It is our best asset.
Triple the number of
people who both work
and live in Salem!
Improved public
education, that will
lead to a more
educated workforce.
Amenities and
mixed uses that
support families.
“What is your #1 priority for Salem?”
Figure 4
Example responses from activity cards.
Core values when planning for Salem’s future
When asked to imagine the Salem
of the 2026, participants in Imagine
Salem activities responded with a
mix of sentiments, many of which
work well when grouped together. A
number of clear themes emerged as
popular. Responses commonly used
words such as “diverse,” “inclusive,”
and “welcoming.” These sentiments
were the most popular, in fact. This
is a view of Salem’s future as a city of
people with many backgrounds. Some
participants called for continued
inclusion of specific groups, such as
lower income people, people of color,
and families. Some saw the city’s
witch-themed businesses and events
as hindering diversity, and others saw
the openness to the wiccan community
as a mark of inclusion. No matter
the definition, however, diversity
and inclusion were primary in the
collective imagination of the Salem
community. Equity—a sentiment
o� en paired with inclusion—was not a
word commonly used by respondents.
However, themes of equity were o� en
discussed in coff ee klatches and other
settings.
Other sentiments (history, green
spaces, the arts, transportation,
vibrancy, beauty, community, and
affordability) were also popular
amongst Imagine Salem activity
participants. These ideas point
to a quality of life that the Salem
community fi nds both comforting and
compelling.
With this input in mind, Imagine
Salem proposes a vision for the city,
shown on the opposite page.
How do you imagine Salem in 2026? (Key words)
Source: Imagine Salem activity cards.
Figure 5
30 |City of Salem
Imagine Salem | Toward a Collective Vision
In 2026, we are a
sustainable and livable city
where we celebrate our
diverse histories and where
people of all backgrounds
and means participate and
thrive.
Vision Statement
ImagineSalem.org | 31
Imagine Salem | Toward a Collective Vision
Salem Harbor Walk
Photo: MassDEP via Flickr
32 |City of Salem
Imagine Salem | Analysis and Recommendations
Analysis and
Recommendations
This section reports findings from analysis on four broad topics: population,
housing, employment, and transportation. For each topic, the data is reviewed
with an emphasis on equity and inclusivity. Data-driven findings are paired with
targeted feedback from the community collected engagement, as well as a non-
exhaustive sample of current policies and programs relevant to this topic. Finally,
guiding principles are proposed for the City to use in future targeted planning
efforts.
ImagineSalem.org | 33
Imagine Salem | Analysis and Recommendations
Analysis and
Recommendations
34 |City of Salem
Imagine Salem | Analysis and RecommendationsPopulation
A performance in Salem Willows Park
Photo: Flickr user MassMatt
Salem has an uncommonly diverse population for
a city of its size, including people of many racial
and ethnic backgrounds, a range of incomes, and a
spectrum of ages, educational attainments, spiritual
affiliations, and family structures. This diversity makes
Salem a dynamic place to live, and many in the city
see it as key to the city’s success. To celebrate its
varied population and ensure continued diversity,
Salem should embrace equity and inclusivity of both
opportunities and outcomes—particularly as the
population is expected to grow.
ImagineSalem.org | 35
Imagine Salem | Community
Community
36 |City of Salem
Imagine Salem | Community
Population Growth and Density
1 US Census, 1790–1910
2 US Census, 1920–1990
3 US Census, 1990–2010; Census Bureau Population Estimate, 2016
4 MAPC, Population Growth projections, 2014
5 American Community Survey, 2010–2014 5-year estimates
6 Ibid.
While Salem and its environs had
long been inhabited by the native
Naumkaeg people, Salem’s first
European settlement began as a small
village of 30 people in 1626. By the
end of the Revolutionary War the
population had grown to nearly 8,000
people, and grew rapidly through
1910, when the population had reached
almost 43,700 people.1 The population
then trended down until 1990, when
it stood at about 38,000.2 Since then,
the population has begun to increase
again. As shown in Figure 6, the US
Census Bureau estimates the total
population to be greater than 43,000
in 2016, retaking its historic peak.3
That estimate puts Salem ahead of the
city’s 2020 population count projected
by MAPC, the public planning
organization for Greater Boston,
under its high growth “Stronger
Region” scenario. 4
• Salem’s residential population
density varies across the city.
Figure 7 illustrates that the Point
Neighborhood is the city’s densest
neighborhood. Census block groups
there have as many as 95 people per
acre.5
• Other neighborhoods in Salem’s
historic core are also relatively
dense—including Downtown, the
McIntire District, Broad Street,
North River, Gallows Hill, Salem
Common, Derby Street, and Mack
Park, as well as parts of Bridge
Street Neck, North Salem, and
South Salem.6
• Neighborhoods settled more
recently, such as Witchcraft
Heights and Highland Avenue, are
less dense.
Importantly, any consideration of
population density should also include
a city’s daytime population, or the
density of people who work in the city
or otherwise are in the city during
typical working hours. At these times,
jobs centers Downtown and the areas
near North Shore Medical Center and
Salem State University are likely the
most dense areas of the city.
Population Growth, Actual and Projected, 2000–2030
City of Salem
Source: US Census, 2000–2010; American Community
Survey, 2010–2014 5-year estimates; MAPC population
Figure 6
ImagineSalem.org | 37
Imagine Salem | Community
Source: American Community Survey, 2010–2014 5-year estimates. Dots do not represent exact home locations, but rather were
placed randomly within the resdients’ census block group.
Salem residents by home location, 2014 (1 dot = 5 people)
Salem’s most residentailly dense neighborhood is the Point.
Figure 7
38 |City of Salem
Imagine Salem | Community
Race, Ethnicity, and
National Origins
7 American Community Survey, 2010–2014 5-year estimates. Racial and ethnic identities are based on self-identifi cation. The US Census Bureau’s racial
categories include white or Caucasian, black or African-American, Asian, Native American (American Indian or Native Alaskan), Native Hawaiian or Pacifi c
Islander, Other, and identifi cation with two or more races. Survey respondents of any race can identify as Hispanic or Latino, which is treated as a non-racial
ethnic identity. For the purposes of this report, Latina/o includes people of any race who identify as Hispanic or Latino regardless of race, while all other
(racial) categories do not include those who identify as Hispanic or Latino.
8 Ibid.
9 Ibid.
10 Ibid.
11 Ibid.
12 Ibid.
Salem’s population is relatively
diverse compared to nearby
municipalities, though the city is still
largely white and non-Latina/o.
• The city’s residents are 74% white,
16% Latina/o, 5% black, 2% Asian,
and 3% of any other racial identity
or of more than one race.7
• Of the cities and towns adjacent
to Salem, only Lynn has a larger
population of color.8
• Figure 9 illustrates that Salem’s
people of color are not concentrated
in any one part of the city, but
rather live dispersed across the
city.9 Nonetheless, the Point has a
uniquely high proportion of people
of color, and the neighborhood
remains a culturally important
area, particularly for the city’s
black and Latina/o communities.10
• Approximately 15% of Salem’s
population was born outside the
United States.11
• Of the population 5 years and
older, 23% speak a language other
than (or in addition to) English at
home. Over half (54%) of those non-
English speakers speak Spanish at
home.12
Source: American Community Survey, 2010–2014 5-year estimates
Salem residents by racial and ethnic identity, 2014
Figure 8
ImagineSalem.org | 39
Imagine Salem | Community
Salem’s people of color live across the city, though many still live in the Point,
the historic center of Salem’s communities of color.
Source: American Community Survey, 2010–2014 5-year estimates. Dots do not represent exact home locations, but rather were
placed randomly within the resdients’ census block gorup.
Salem residents by racial or ethnic identity, 2014 (1 dot = 5 people)
Figure 9
40 |City of Salem
Imagine Salem | Community
Age and Household Structure
13 American Community Survey, 2010–2014 5-year estimates. Unless otherwise noted, all analysis on this page references this survey.
14 According to Census Bureau policies, university students should be counted at their university residences. In practice, while they are usually counted at
their university residences, they are sometimes counted at their parents’ residences, and other times counted at both.
15 MAPC, Population Projections, 2014.
People of all ages live in Salem in a
variety of household structures.
Age Distribution
• The city has proportionally
fewer children and seniors than
Massachusetts generally, while
having a larger share of people age
15–40 than the Commonwealth.13
• The largest share of the population
is age 20 to 29, partly due to the
presence of Salem State, access to
the commuter rail, and amenities
that enable a lifestyle attractive to
this cohort.14
• Though all age groups live
throughout Salem, certain age
groups are relatively more
concentrated in some areas more
than others.
• The city’s youth (ages 0–17) are
concentrated in the Point and
relatively underrepresented in
Salem Willows and Bridge Street
Neck.
• Millennials (ages 18–34) are
concentrated in and around Salem
State University in South Salem, in
the Point, and in Downtown.
• People aged 35–64 years are
spread out across the city,
roughly in proportion to the
general population’s geographic
distribution.
• Seniors (people of age 65 and older)
are underrepresented in the Point,
near Salem State and Downtown.
• One out of every five Salem
residents is over the age of 60
today. That figure is expected
to climb to one in four by 2030,
increasing from around 8,000
individuals today to as many as
12,000 people.15 This age group
has similar preferences in housing
and neighborhood amenities as
the Millennial age cohort, though
Millennials’ preferences may
change as their families grow.
Household Structure
• Over half (53%) of all households
(people who occupy a single
housing unit) are families (a
group of people related by
marriage, birth, or adoption). (See
“Neighborhood Character, Housing
Size, and Housing Age” on page 54
for more information on housing
options for families.)
• One in four households (25%) have
one or more children living in
them.
• Over one in three Salem households
(38%) are a single person living
alone, and 30% of those people
living alone are seniors.
ImagineSalem.org | 41
Imagine Salem | Community
Population by Age
Figure 10
Change in Age Structure, 2010–2030
Figure 11
Source: American Community Survey, 2010–2014 5-year estimates
Source: US Census, 2010; MAPC Poulation Projections, Stronger Region
Scenario 2020–2030, published 2014. (These age groups do not align with age
groups reported elsewhere in this report.)
42 |City of Salem
DRAFT FOR REVIEW - June 30, 2017 Residents age 0–17
Residents age 18–34
Salem residents by
age, 2014
(1 dot = 5 people)
Source: American Community Survey, 2010–
2014 5-year estimates. Dots do not represent
exact home locations, but rather were placed
randomly within the resdients’ census block
gorup.
Figure 12
Figure 13
ImagineSalem.org | 43
Residents age 35–64
Residents age 65 and older
Figure 14
Figure 15
44 |City of Salem
Imagine Salem | Community
Educational Attainment
• Over 90% of Salem residents aged 25
and older are high school graduates,
including the 24% of residents who
are high school graduates with no
college credits.
• Roughly 38% of residents have a
bachelor’s or advanced degree.
• Younger people are much more
likely to have a bachelor’s or
advanced degree than older people,
with the rates of college-educated
25- to 34-year-olds nearly double
that of people aged 65 or older.
• High concentrations of Salem
residents with a bachelor’s or
advanced degree are found
Downtown and in neighborhoods
like Salem Common, Salem
Willows, the McIntire District, and
South Salem near the university.
• Low concentrations of college-
educated residents are found in the
Point, Castle Hill, Gallows Hill, and
North River.
• Earnings for Salem residents with
a graduate or professional degree
are double that of residents with no
higher education. (See “Employment
and Earnings for Salem residents” on
page 76 for more information on the
city’s income distribution.)
Overlooking Salem State University
Photo: Salem State University
ImagineSalem.org | 45
Imagine Salem | Community
Salem’s population with higher education degrees are concentrated in the city’s core, near
Salem State University, and in Salem Willows.
Figure 16
Source: American Community Survey, 2010–2014 5-year estimates. Dots do not represent exact home locations, but rather were
placed randomly within the resdients’ census block gorup.
Percent of residents with a bachelors or advanced degree, 2014
46 |City of Salem
Imagine Salem | Community
What we heard from the community
For some in Salem, the diversity
found in the city is its greatest
strength. When asked what they
love about Salem, 18% of people
participating in Imagine Salem’s
small group activities mentioned
diversity, inclusivity, civic activity,
or community pride. In the online
survey, 9% of all respondents used
the word “diversity” in answering the
same question. That so many people of
different backgrounds (varying by age,
ancestry, color, ability, family status,
gender identity or expression, marital
status, military status, national
origin, race, relition, sex or sexual
orientation) can call Salem home and
feel they are part of a wider citizenry
is crucial to the future success of the
city.
When asked to finish the sentence
“By 2026 Salem should be…”, a majority
of survey respondents (53%) chose
the phrase “…a city that welcomes
all.” The meaning of diversity also
varied by respondent. Some prized
racial, ethnic, and religious diversity.
Sexual and gender identity diversity
was important to some respondents,
while others saw the openness to
both families and unpartnered young
people as important. Openness to
the wiccan community is a category
of diversity uniquely prominent in
Salem.
The practical impacts of this
sentiment on policy do not have
consensus, however. For some, it
meant the provision of housing units
that would be both affordable and
suitable for families. One respondent
who wanted Salem to be “a city that
welcomes all” also felt there was too
much low-income housing in the city.
As another example, the Imagine
Salem engagement activities were
conducted during the debate on an
ordinance to establish Salem as a
sanctuary city. Many respondents had
strong feelings on this ordinance, but
there was no clear agreement on which
direction the City should take.
In order to address the differences
of opinion regarding diversity
and inclusivity in policymaking,
the City should continue to foster
opportunities to discuss what these
values mean in practice, including
governance bodies like the No Place
for Hate Committee and initiatives like
the Salem for All Ages action plan.
I love the diversity. All are
welcomed and accepted.
Salem is a great walking city that feels
small enough that one's participation
in civic life isn't lost in the crowd.
I love the multi-age diversity in cultures
and economic standing. There’s lots to
do, with something for everyone.
Maintain the welcoming
environment.
–Activity card
respondent
–Activity card
respondent
–Activity card
respondent
–Online survey
respondent
ImagineSalem.org | 47
Imagine Salem | Community
I love the diversity. All are
welcomed and accepted.
Salem is a great walking city that feels
small enough that one's participation
in civic life isn't lost in the crowd.
I love the multi-age diversity in cultures
and economic standing. There’s lots to
do, with something for everyone.
Maintain the welcoming
environment.
–Activity card
respondent
–Activity card
respondent
–Activity card
respondent
–Online survey
respondent
48 |City of Salem
Imagine Salem | Community
Ongoing programs supporting equity and inclusivity
The City of Salem has taken a number of steps to promote equity and inclusivity in the community.
These steps include passing laws to ensure fair and equal treatment, creating governance structures
and processes that empower historically disadvantaged populations, and setting up plans and
programs to affirmatively advance quality of life for all in Salem.
Examples
• Salem’s City Council is passed the Sanctuary for
Peace ordinance in April 2017, which ensures
the City will provide services to all Salem
residents regardless of immigration status. The
ordinance was on the November 2017 election
ballot and approved.
• The City of Salem has a number of boards
and commissions which empower various
communities in the process of governance.
These include the Commission on Disabilities,
which works to make the city more accessible
to all; the Council on Aging, which serves more
than 2,000 seniors annual with a variety of
services such as exercise classes and daily
hot lunches; the Youth Commission, a board
of young people who offer recommendations
to the City and help craft new programs;
the No Place for Hate Committee, an anti-
discrimination committee which offers
diversity education and helps residents with
discrimination claims; the Neighborhood
Improvement Advisory Council, an umbrella
group for the presidents of each of the
city’s neighborhood organizations; and the
Inclusionary Advisory Committee, a new group
that will provide education on the civil rights
to disadvantaged communities, including
immigrants.
• Salem For All Ages is a wide-ranging initiative
created to help Salem residents remain in the
community as they grow older and to make
the city safe, comfortable, and enjoyable for
all residents regardless of their age. The plan
includes a needs assessment for Salem’s senior
population and a detailed action plan to make
the city an age friendly community.
ImagineSalem.org | 49
Imagine Salem | Community
Summary of findings
Salem is a home to a diverse range of
people, and its population is growing.
The City’s policies and initiatives
already place value on issues related
to equity and inclusivity—such as its
nondiscrimination ordinance and
its aging in place initiative. Salem’s
population is relatively integrated in
terms of race and ethnicity, though
the city remains largely white. The
population is less integrated by other
measures of diversity, such as age. In
certain cases, such concentrations
may be preferable to all involved.
In other cases, the results may be
unwanted. As the city’s residents and
their government adjust to Salem’s
growing and changing population,
Salem should create plans and
programs that address change at the
citywide and neighborhood scales, in
addition to plans targeted at specific
populations or topics, such as the
Salem for All Ages Action Plan. This
approach will address shared issues,
as well as the unique needs of each
neighborhood. All such plans should
note equity and inclusivity for all
Salem’s communities.
Community Guiding Principles
Salem believes in growing and supporting
a diverse community, where people have
equal opportunity and access to social
and economic resources. The people of
Salem should be able to participate in their
community in meaningful ways, including
the direction and intentions of their city
government. Conversely, the wellbeing of
the public should be at the forefront of the
City of Salem’s governing objectives.
50 |City of Salem
Imagine Salem | Community
ImagineSalem.org | 51
Imagine Salem | Community
Diversity is a fundamental
part of Salem’s history
and is critical for its
continued prosperity.
Salem recognizes the multitude of
voices that shaped its past and that
its history cannot be adequately told
without addressing the lives and
contributions of people of many
backgrounds. Today the city must
create an inclusive environment for
people no matter their race, ethnicity,
income or wealth, class affiliation,
gender identity, sexual preference,
religious or spiritual affiliation,
household or family structure, veteran
status, nationality or refugee status,
and employment or student status.
Salem acknowledges that in the 21st
century, the city will be neither
socially or economically prosperous
without inclusivity.
Equity is a necessary
component of any
approach to planning.
Salem should embrace equity
of opportunity and basic social
needs, such as housing or access
to transportation. Without equity,
diversity and inclusivity are fleeting.
Equity moves beyond a simple
equality of opportunity, but takes
steps to be affirmatively fair and to
rectify historic injustices and remove
systemic barriers.
Civic and political
engagement within and
between communities
is key to inclusive
governance.
Equity and inclusivity can only
advance so far without the robust
engagement from everyone involved.
Salem should create opportunities for
more people of varying backgrounds
to become involved in formal political
and informal community life, whether
through get-out-the-vote campaigns
for municipal elections, the provision
of additional usable community
spaces, or otherwise.
Diversity and inclusivity
cannot be buzzwords, but
must be enacted through
legal, social, economic,
and symbolic means.
Salem should continue to advance
diversity and inclusivity through
ordinances, referenda, and legal
interpretations. It should also
continue to foster social and
economic diversity through policies
and programs, many of which are
discussed in later sections. Lastly, it
should use monuments, public art,
festivals, and other means to affirm
the historic contributions and present
cultures of its many communities.
52 |City of Salem
Imagine Salem |
| 52
12 Broad Street
Photo: StreetsOfSalem.com
ImagineSalem.org | 53
Imagine Salem | Housing
| 52
Housing
Salem’s housing stock includes a diversity of styles,
sizes, and arrangements. This variety of housing
supports a wide range of people who are seeking
different living arrangements. Not all groups feel
there is enough housing to meet their needs, however,
and families in particular feel there is a shortage
of quality options. The city’s housing is becoming
more expensive, and high housing costs threaten the
diversity that Salem’s housing fosters. Salem should
endeavor to make the housing market affordable for
the average household, incentivize housing production
for lower income households, encourage diversity
in the housing supply, and ensure new housing
complements existing neighborhoods while creating
access and opportunities for residents.
54 |City of Salem
Imagine Salem | Housing
Neighborhood Character, Housing
Size, and Housing Age
1 American Community Survey, 2010–2014 5-year estimates
2 Ibid.
3 American Community Survey, 2010–2014 5-year estimates; Housing Needs and Demand Analysis,
2015
4 American Community Survey, 2010–2014 5-year estimates
Character
Homes in Salem come in a wide variety
of sizes, densities, and styles—giving
each neighborhood its own unique
character.
• Downtown is full of historic
apartments—often walk-ups—
which are sometimes situated above
retail stores.
• The Point has a dense array of brick
or clapboard apartment buildings
that create a shared sense of
community.
• Areas like Salem Common and the
McIntire District boast historic
federal-style homes in a mix of
single-family and converted
multifamily buildings.
• Neighborhoods such as Witchcraft
Heights are more suburban
in character, with Cape Cod or
Colonial style houses and on
quarter-acre lots.
• Furthermore, there are also a
number of large, contemporary
multi-family developments
in neighborhoods far from
Downtown, such as Highland
Avenue or Vinnin Square.
Size
Neighborhoods close to Salem’s
historic center tend to have more
multifamily buildings that are more
“urban” in character.
Overall, Salem’s is mostly
multifamily with a range of units. 1
• Roughly 25% of Salem’s homes are
detached single-family homes,
and an additional 8% are attached
single-family homes (townhouses).2
• Roughly 67% of Salem’s housing is
in multifamily buildings. Salem
has the largest share of multifamily
housing in the sub-region.3
According to the 2015 Housing
Needs Assessment, the City should
continue to maintain its high
proportion of multifamily housing
in order to retain and attract more
workers to fill labor gaps left by
retiring baby boomers.
• Duplexes account for 19% of the
housing, and 21% of homes are
in buildings with only 3 or 4
apartments.4
• Approximately 20% of homes are in
large apartment buildings with 10
ImagineSalem.org | 55
Imagine Salem | Housing
or more units.5
• Housing size both reflects and
influences household size. As
household sizes shrink due to
national socioeconomic trends,
Salem will need to have more
housing units to adequality house
the population, even before
accounting for population growth.
According to the Housing Needs
Assessment, “the number of
housing units produced over time
may need to be built at a rate faster
than the growth in households.”6
Salem’s housing also varies by
bedroom.
• Over 1 in 3 housing units (34%) have
3 or more bedrooms—large enough
to accommodate a family of four
comfortably.7
• The plurality of homes (41%) have 2
bedrooms, which are better suited
5 American Community Survey, 2010–2014 5-year estimates
6 Housing Needs and Demand Analysis, 2015
7 American Community Survey, 2010–2014 5-year estimates
8 Ibid.
9 Ibid.
10 Ibid.
11 Ibid.
to new families and roommates.8
• 1-bedroom homes and studios
account for the remaining 24% of
housing in the city.9 The majority
of these units are in older, historic
neighborhoods, particularly on
either side of Washington/Canal
Street, where they can make up
over half the housing stock in some
census blocks.10
Age
Salem’s housing stock is also
overwhelmingly old. Over half (54%)
of all homes were built before 1940.
An additional 27% was built between
1940 and 1980.11 Salem’s older housing
stock is vulnerable to conversion into
condominiums, which reduces the
city’s rental options.
34% of Salem’s
housing units have 3
or more bedrooms
56 |City of Salem
Imagine Salem | Housing
Multifamily housing tends to be located in the historic core of Salem along main streets, and in new
large developments. Roughly 67% of Salem’s housing is in multifamily buildings.
Figure 17
Source: American Community Survey, 2010–2014 5-year estimates
Housing by number of units in each building, 2014
ImagineSalem.org | 57
Imagine Salem | Housing
Studios and 1-bedroom apartments are concentrated in Salem’s historic core,
especially in areas close to the commuter rail station.
Figure 18
Source: American Community Survey, 2010–2014 5-year estimates
Percent of housing units that are studios and 1-bedrooms, 2014
58 |City of Salem
Imagine Salem | Housing
Housing Prices and Rents
12 Zillow Home Value Index, 1996–2005
13 Ibid.
14 Ibid.
15 Zillow, Listings for sale, 27 November 2016
16 American Community Survey, 2010–2014 5-year estimates
17 American Community Survey, 2010–2014 5-year estimates
18 Padmapper, Listings for rent, 27 November 2016. Asking rents adjusted to account for the number of bedrooms.
19 Padmapper, Listings for rent, 27 November 2016. Asking rents adjusted to account for the number of bedrooms.
20 Ibid.
Housing costs are near their all-time
highs. Since the Great Recession, costs
have steadily risen, especially near
the commuter rail, an area rich with
amenities and which provides workers
with reliable access to the regional
labor market.
Prices
• In the decade between 1996
and 2005, the housing market’s
prerecession peak, home values
in Salem rose by 150% to a peak
average value of approximately
$332,000.12
• Home values fell in the housing
crash and ensuing Great Recession,
dropping to the post recession low
of virtually $252,000.13
• Since then, home values have
steadily risen, surpassing the
precession peak in November 2016
and continuing to trend higher.14
• A 2016 point-in-time online sample
of homes for sale showed asking
prices per square foot highest
Downtown and Derby Street,
with other pockets high prices in
the McIntire District, Mack Park,
and the far north end of Salem
Willows.15
Rents
• Tenant-reported rents in Salem
ranged between $800 and $1600 per
month in Salem between 2010 and
2014.16
• The highest rents in parts of
Downtown, Salem Common, and
Derby Street.17
• A 2016 point-in-time online
sample of asking rents showed
a narrower range from $1400 to
$1875 per month, after adjusting
for the number of bedrooms in each
listing.18
• The point-in-time sample showed
the highest asking rents near the
train station, with rents decreasing
sharply at the Point, Broad Street,
and Gallows Hill.19
• Relatively high rents were also
found in neighborhoods with
relatively few homes for rent, such
as Witchcraft Heights.20
Home values
surpassed their
prerecession peak
in November 2016.
ImagineSalem.org | 59
Imagine Salem | Housing
Home Values, 1996–2016
Figure 19
I do not want Salem to become a
place where moderate income
earners cannot aord to live.Housing
We need more low-cost
housing or reductions in
the cost of living.
–Online survey respondent
–Activity card
respondent
60 |City of Salem
Imagine Salem | Housing
Rents tend to be greatest near the MBTA commuter rail station and are generally lower in the Point,
Castle Hill, and South Salem.
Figure 20
Source: American Community Survey, 2010–2014 5-year estimates.
Median Gross Rent (Rent and Utilities), 2014
ImagineSalem.org | 61
Imagine Salem | Housing
Home prices are greatest in and around downtown Salem.
Figure 21
Source: Zillow listings, 27 November 2016. Black dots represent listing sites. The price gradient is
then estimated by averaging the prices in the space between individual listings.
Asking price per square foot for homes for sale, November 2016
62 |City of Salem
Imagine Salem | Housing
Aff ordability and Cost Burdens
21 American Community Survey, 2010–2014 5-year estimates
22 Ibid.
23 Ibid.
24 Ibid.
25 Ibid.
26 Padmapper, Listings for rent, 27 November 2016. Asking rents adjusted to account for
the number of bedrooms. This calculation is based on asking rents and does not include
the cost of utilities. After accounting for these variables, the actual income required to
aff ordably rent the average market-rate 1-bedroom apartment would likely be greater.
27 Zillow, Listings for sale, 27 November 2016. These calculations assume a 30-year fi xed
rate mortgage at 4.00% with 20% down and do not include HOA fees, taxes, or utilities. The actual
income needed to aff ordably purchase a home is likely higher after factoring in HOA fees and utilities,
as well as a larger loan principle and mortgage insurance when paying less than 20% for the down
payment.
Home values and their effects on
residents are even more relevant
when considering residents’ income. A
housing unit is considered aff ordable
when its residents pay less than 30%
of their income toward housing costs.
Residents paying more are considered
“housing cost-burdened” under
federal standards.
• Between 2010 and 2014, 42% of
Salem households—over 7,600
households—paid more than 30%
of their income in housing costs,
meeting the definition of housing
cost-burdened.21
• Nearly half (49%) of all renters were
housing cost burdened.22
• Housing cost-burdened households
tended to have lower household
incomes. The majority of housing
cost-burdened households (62%)
had household incomes of less than
$50,000.23 If rates of housing cost
burden continue to rise, Salem
risks losing racial, ethnic, and
income diversity.
• For households with incomes
between $50,000 and $75,000, those
that owned their home were much
more likely to be housing cost-
burdened.24
• Only 11% of households with
incomes of $75,000 or greater
were housing cost-burdened.25
As shown on Figure 23, which is
based on a point-in-time sample of the
housing market in November 2016, a
household would need to earn at least
$63,000 in order to affordably rent
the average market-rate 1-bedroom
apartment in Salem.26 A household
would need to earn nearly $80,000
to affordably purchase the average
market-rate 3-bedroom Salem home.27
Households that are Housing
Cost-Burdened (Paying 30% or
more of their income in housing
costs)
Figure 22
ImagineSalem.org | 63
Imagine Salem | Housing
Household Income and Incomes needed to rent or own housing aff ordably
Figure 23
Source: American Community Survey, 5-year estimates, 2010-2014; Padmapper 1-bedroom listings, November 27, 2016; Zillow 3-bedroom
listings, November 27, 2016; Aff ordability thresholds are incomes where housing costs (averaged from Padmapper and Zillow samples) are
equal to 30% of income. Aff ordability threshold for renters does not include utilities. Aff ordability threshold for homeowners assumes a 30-
year 4% mortgage with a 20% downpayment.
Number of housing cost-burdened households by annual income (in thousands)
Figure 24
Source: American Community Survey 2010-2014 5-year estimates
64 |City of Salem
Imagine Salem | Housing
What we heard from the community
In general, the Salem community
seeks more affordable housing of
varied sizes and types to meet the
needs of diverse housing consumers,
and they want that housing to be
situated in neighborhoods with strong
community ties. While this broad goal
resonated throughout the Imagine
Salem process, there is not agreement
within the community on how to
achieve it. Some propose emphasis on
student housing, while others would
like to focus on housing for empty
nesters. Many find family housing to
be the city’s greatest housing need.
Some residents excitedly propose
experimentation with micro-housing
units at high densities. Others would
like a moratorium on condominiums
in favor of maintaining rental
opportunities. Some residents point
to very specific problems that create
unique constraints on the housing
market, such as lead paint risks
constricting the housing market for
families.
While there is no immediate
consensus on housing policy, there
may be more overlap in solutions
than some might imagine. A lack of
student housing, for example, pushes
some students (living as roommates)
into housing that might otherwise
be a family home—exacerbating the
perceived shortage of family housing
units. A focus on either student or
family housing supply would ease
this competition for space. However,
a focus on single-family housing— at
the expense of other housing types—
would likely only increase competition
for housing and continue to increase
in housing costs. This is because
people who would otherwise live in
more dense housing developments
would then be competing for those
single-family homes.
Space Usage
Housing Options
Aordability
NeighborhoodAssets
City ProgramsWhat hou s in g i s sues would yo
u a
d
dr
ess?38%
13%
18%
12%
18%
Source: Imagine Salem activity cards. Imagine Salem generated
these general categories based on written responses, and coded
each response into one or more categories.
To keep the population both diverse
and thriving, we need community
housing for those with needs.
Address the lead issue
that limits famlies
with young children.
Keep historic homes
maintained and add modern
condos on the harbor.
–Online survey respondent
–Online survey
respondent
–Activity card
respondent
Figure 25
Figure 26
ImagineSalem.org | 65
Imagine Salem | Housing
0
50
100
150
200
250
300
350
35%40%39%51%13%Studio and 1-bed multifamily2- and 3-bed multifamilyTownhomesSingle–family homesOther0 100 200 300 400 500
38%
45%
50%
8%
More aordable and accessible housing options
More diverse housing types and sizes
Proximity to neighborhood destinations and amenities
Housing that promotes a shared sense of community
Housing for all stages of life
Other
60%
55%
Online Survey: What are the most important factors for the future of housing in Salem?
Figure 27
Online Survey: What type of housing would you like
to see more of in Salem?
Figure 28
For both charts, numbers do not add to 100%, as respondents could choose multiple answers.
66 |City of Salem
Imagine Salem | Housing
Ongoing housing programs
The City of Salem supports a number of housing initiatives promoting housing affordability, safety, and
sustainability. These include financial assistance programs for homebuyers and renters, contributions
to affordable housing development in the city, and partnerships with other public agencies and private
organizations promoting housing services.
Examples
• The City receives annual federal funding
through the Community Development Block
Grant (CDBG) program. Salem is also a
member of the North Shore HOME Consortium,
for which it receives an allocation of Home
Investment Partnership Funds. Through these
funds:
• The City offers grants and loans for
low- to moderate-income residents to
support affordable and safe housing.
These include the First-Time Homebuyer
Downpayment Assistance Loan Program
and the Housing Rehabilitation Loan
Program.
• The City provides funding to various
social service agencies, including
several that provide housing
assistance to persons with disabilities,
homelessness prevention emergency
funding, and downpayment assistance.
• The City also uses CDBG, as well Community
Preservation Act funding, to support affordable
housing development through agencies such
as the North Shore Community Development
Coalition and Harborlight Community Partners.
Both organizations develop and manage
income-restricted affordable housing.
• The City maintains partnerships with many
organizations. These include North Shore
Community Action Programs, which provides
housing weatherization and other services, and
the Salem Housing Authority, a public housing
agency.
• The City maintains webpages that help
residents learn about foreclosure prevention,
predatory lending, and legal resources.
Links to resources include MassSave Energy
programs, MassHousing loan programs,
and the Commonwealth’s Get the Lead Out
program.
• The Salem Point Neighborhood Vision
and Action Plan includes broad housing
recommendations, such as one item
advocating new affordable units outside
the Point neighborhood, including on-site
affordable units in market-rate developments.
ImagineSalem.org | 67
Imagine Salem | Housing
Summary of findings
According to Salem’s 2015 Housing
Needs Assessment, there is a projected
demand for roughly 1,200 multifamily
units and 210 single family units by
2020. While some of this demand is
already being met by projects that
have been permitted and built in
Salem, there is still significant demand
for additional housing in the City. If
local and regional housing demand are
not met, prices will simply continue to
rise.
Salem has a diverse range of housing
options, in terms of housing style,
type of building, number of bedrooms,
and housing price-point. Such varied
housing helps to support a range of
people wishing to live in Salem—from
large families to young professionals
to the aging. Salem residents
expressed particular anxiety about the
availability and affordability of quality
family housing.
As the regional housing market has
recovered from the Great Recession,
home values are now at record
highs. These highs could be positive
for some homeowners, but can put
pressure on renters, potential first-
time homebuyers, and homeowners
seeking new housing to adapt to
changing life circumstances. This is
especially concerning, since 52% of
housing units in Salem are rented.
A significant minority of the city’s
residents (renters and homeowners)
pay more than is affordable for
housing, given their income.
Salem should explore ways to
increase the supply of housing,
particularly near the city’s historic
core and major jobs centers. It should
explore increases in density on
underutilized parcels within a short
distance to jobs centers, especially
along corridors leading out from the
historic core, where some areas can
feel out of character with the rest of
the city.
Furthermore, the City should
study the impact of dimensional
requirements and parking regulations
on the cost and feasibility of housing
development. The City should
also consider policies that would
encourage the preservation and
upgrading of existing housing stock
(such as a preservation loan fund),
as well as regulatory changes that
encourage housing development in
line with the historic urban fabric.
Additionally, the City should look for
opportunities to decrease costs for
affordable housing developers, such
as the disposition of publicly owned
land or systems to expedite their
regulatory approvals.
68 |City of Salem
Imagine Salem | Housing
Housing Guiding Principles
Salem recognizes the community’s right to
safe, affordable, and life-enriching housing.
The City encourages the production housing
that meets the varied needs of its population
at all price points. Salem also recognizes that
quality housing can only exist where there is
access to good jobs, transportation choice,
and necessary community amenities.
ImagineSalem.org | 69
Imagine Salem | Housing
Market rate housing
should be affordable to
people earning average
wages.
Salem must meet the rising local
and regional demand for housing
with increased supply, or else costs
will continue to rise beyond what is
affordable for its diverse population.
Though Salem can’t act alone to change
the regional housing market, it can
lead the region with a progressive
approach to housing production.
Housing for lower income
households requires
special accommodation
to produce.
Even with broad market affordability,
Salem would still need safe and quality
housing that is affordable to lower
income households. It is unrealistic to
assume the market will provide this,
given the increased costs and barriers
to financing that affordable housing
developers face. Salem must help
affordable housing developers lower
their costs (either through low cost
land, as-of-right regulatory processes,
or otherwise).
Housing should be safe,
healthy, and resilient.
Housing design, siting, and
maintenance should ensure that
housing safe to inhabit. Housing
should promote healthy choices and
healthy communities, and be able to
withstand environmental and social
shocks, particularly those associated
with climate change.
Housing designs must
meet the varied needs
of diverse residents,
and there should be real
housing choices for all.
Salem residents and its future
residents have different wants and
needs. Large families have different
needs than young singles. The aging
and people with disabilities have
unique requirements for their housing
and the surrounding areas. Needs
and wants vary, and Salem’s housing
should account for that variation.
Furthermore, Salem’s housing should
not provide any group with only one
choice.
Housing should be part of
a complete neighborhood.
Housing doesn’t work if it is not
integrated with other uses like
employers, retail, civic and open
spaces, a robust transportation system
and community spaces like libraries.
70 |City of Salem
Imagine Salem |
Red’s Sandwich Shop
Photo: Wikimedia user Fletcher6
ImagineSalem.org | 71
Imagine Salem | Employment
Employment
Salem has a full-fledged urban economy. The city is not
a bedroom community. Instead, there are a roughly
equal number of people who commute into Salem
as there are residents who commute to elsewhere.
Employment in the city and for Salem residents is
concentrated in education, healthcare, retail, and
foodservice—industries that pay low- and middle-
incomes on average. Salem should work to create
ladders of opportunity from low-barrier-to-entry jobs to
higher wages, in part to ensure its community can keep
up with rising costs of living.
Washington Street
Photo: Flickr user MassMike
72 |City of Salem
Imagine Salem | Employment
Location and density of jobs
1 Mass. Executive Office of Labor and Workforce Development, 2015
2 Ibid.
3 Ibid.
4 Census Bureau, Longitudinal Employer-Household Dynamics program, 2015
Many of the jobs in Salem are found
in a mix of large institutions, small
consumer-facing businesses, and a few
large national employers. These jobs
tend to be found within nodes around
the city–either as clusters of many
organizations and businesseses or
large single-institution nodes.
• Salem’s largest employers (as
measured by the number of
employees) are major institutions,
including North Shore Medical
Center, state government, and
Salem State University.1
• The city’s largest 100 employers are
located across the city; the largest
concentration of those employers is
in and around Downtown, though
several of the largest employers
(the institutions) are located
outside of Salem’s historic core.2
• The Hawthorne Square Shopping
Center—a typical strip shopping
center on Highland Avenue—is
another node of large employers.3
Importantly, the city has a diverse
collection of small businesses
beyond its largest employers. These
businesses include the city’s large
retail and foodservice sectors that
are concentrated Downtown.4 This
concentration supports the everyday
needs of Salem’s residents and
workers, undergirds the city’s tourist
industry, and creates a fun, active city
center.
ImagineSalem.org | 73
Imagine Salem | Employment
Salem’s top employers are mostly concentrated in Salem’s historic core and on
large institutional campuses.
Figure 29
Source: Massachusetts Executive Offi ce of Labor and Workforce Development, 2015
Location of Salem’s top 100 employers, 2015
74 |City of Salem
Imagine Salem | Employment
Employment and Earnings for Salem’s workforce
5 Massachusetts Executive Office of Labor and Workforce Development, 2015. These sectors of the economy are defined by the federal government and
are based (in most cases) on the primary product or service of the business or nonprofit organization.
6 Ibid.
7 Ibid.
8 Ibid.This subsection discusses wages, as defined by the Executive Office of Labor and Workforce Development. Wages are the money paid to a worker for
a given job. This is roughly analogous to “earnings,” as defined by the Census Bureau. Earnings are the money one person makes from their work, whether
from one or multiple jobs. For data availability reasons, this report can only discuss wages for Salem’s workforce, but the subsection is called earnings to
suggest a comparison with the earnings of residents (see “Employment and Earnings for Salem residents” on page 76).
9 Ibid.
Salem’s economy is partly composed
of residents and partly composed of
people who live elsewhere but work
in Salem, hereafter called Salem’s
workforce. See “Employment and
Earnings for Salem residents” on page
76 for economic data on Salem residents,
and see “Commuters and residents who
work in Salem” on page 78 for the
overlap between residents
and the workforce. This
section describes economic
conditions facing Salem’s
workforce.
Jobs
• More than 5,000 people work in
Salem’s Health Care and Social
Assistance sector, representing
more than 1 in 4 of Salem’s
workforce (28%).5
• Nearly 4,500 workers (23% of
Salem’s workforce) work in
Accommodations and Food Service
or in Retail.
• Nearly 3,000 workers (15%) work in
Education Services, which includes
K-12 schools and higher education
institutions, e.g. Salem State
University.6
• All other economic sectors employ
fewer than 10% of the people
working within Salem.7
Earnings
• The average annual wage of Salem’s
work force is roughly $46,700,
compared to the average annual
wage in Massachusetts of about
$64,200.8
• The sectors noted above with
the most employees tend to have
average wages that are on the
bottom or middle of the wage scale.
For instance, Health Care and
Social Assistance workers have
an average wage of $53,700, and
Accommodation and Food Service
workers have an average wage of
$19,600.9
• The health and
education sectors have
middle-range wages
in part because they
employ a broad range
of workers—from low-
skill, low-wage laborers
to high-skill, high wage doctors
and professors. The retail and
restaurant sectors, on the other
hand, mostly employ low-wage
workers.
The average annual wage for
workers in Salem is $46,700.
ImagineSalem.org | 75
Imagine Salem | Employment
Number of workers in Salem’s Workforce by sector, 2015
Average annual wages for workers in Salem’s workforce, 2015
Source: Massachusetts Executive Offi ce of Labor and Workforce Development, 2015
Sectors that employ the most people in Salem pay wages at the middle or
the bottom of the wage scale.
Figure 30
Figure 31
76 |City of Salem
Imagine Salem | Employment
Employment and Earnings for Salem residents
10 American Community Survey, 2010–2014 5-year estimates. These sectors of the economy are defined by the federal government and are based (in most
cases) on the primary product or service of the business or nonprofit organization. These sectors of the economy are defined by the federal government and
are based (in most cases) on the primary product or service of the business or nonprofit organization. Due to reporting standards at the US Census Bureau,
multiple sectors are aggregated when looking at residents, making this analysis less fine-grained.
11 Ibid.
12 Ibid.
13 Ibid. This point discusses earnings, which are roughly comparable to wages. Earnings are the money one person makes from their work, whether from
one or multiple jobs, while wages are the money paid to a worker for a given job. Wages for Salem’s workforce are discussed “Employment and Earnings for
Salem’s workforce” on page 74. Note: this earning figure only includes people who have earned money from a job in the last year. It does not include
retirees or people who live off of investment income.
14 Ibid. Incomes are similar to earnings and wages discussed earlier, but include all streams of potential income (not just money earned for work), and
combines all those incomes for each member of a household.
15 Ibid.
Salem residents hold jobs in
Salem, but also throughout
the region. (See “Commuters
and residents who work in
Salem” on page 78 for more
information on the overlap
of these two groups.) This
section describes economic
conditions for Salem residents,
regardless of where they work.
Jobs
Jobs for Salem residents tend to be in
industries also found in Salem.
• Regardless of where they work, 29%
of Salem residents are employed in
Health Care and Social Assistance
or Education Services.10
• Approximately 13% of residents
work in Accommodation and Food
Service or Arts and Entertainment,
and an additional 12% are in retail.11
• Roughly 11% of Salem residents
work in fields that include legal
practice, engineering, scientific
research, architecture, and other
fields requiring advanced technical
training or administrative skill.12
Following federal reporting
standards, these fields fall under
the formal sectors “Professional
and Technical Services” and
“Administrative Services.”
Earnings
Incomes for Salem residents tend to
be less than the regional average, but
Salem has residents of all incomes.
• Median earnings for Salem
residents 25 years and older are
approximately $42,000 annually—
compared to approximately
$46,000 for Salem’s workforce.13
• The median income for Salem
households (including earnings
for all members of
the household) is over
$59,000, compared to the
Boston region’s median
household income of
nearly $75,000.14
• Notably, households
in Salem have a wide range of
incomes. The largest percentage of
households have incomes ranging
from $50,000–$75,000, but the
city has significant numbers of
households with incomes less than
$35,000 or more than $150,000.15
Salem’s neighborhoods with the
greatest median incomes were parts of
Derby Street, Salem Willows, and the
McIntire District. Neighborhoods with
the lowest median incomes include
parts of the Point, Broad Street, and
Castle Hill. While these highs and lows
do exist, there is no clear pattern of
income segregation in the city, though
a finer grain analysis could reveal
different patterns.
More than 1 in 4 Salem residents
work in health care or education.
ImagineSalem.org | 77
Imagine Salem | Employment
Number of households by annual household
income (in thousands)
Employed Salem residents by employment sector
Source: American Community Survey, 2010–2014 5-year estimates (both charts)
Salem’s residents have a diverse range of incomes, with more households of lower
and middle incomes than with higher incomes.
Figure 32
Figure 33
78 |City of Salem
Imagine Salem | Employment
Commuters and residents who work in Salem
16 US Census Bureau, Longitudinal Employer-Household Dynamics program, 2015. Note that this section counts jobs, not employees. Each person may hold
multiple jobs, and thus can count the same individual employee multiple times.
17 Ibid.
18 Ibid. This fi gure does not include students at Salem State University who commute to school, but they are included if they live elsewhere and work a job
at school or elsewhere in Salem.
19 Ibid.
20 Ibid.
Salem is not a bedroom community
within the wider Boston region.
Rather, the city is fully participating
in the regional economy, with people
workers commuting to and from Salem
each day. This section describes these
commuting patterns, as well as the
overlap between Salem’s residents and
its workforce.
• 19% of Salem’s workforce also lives
in Salem.16
• 19% of Salem residents also work in
Salem.17
• Approximately the same number
of people commute into Salem as
those who commute out of the city—
roughly 17,000.18
• The most signifi cant home locations
for people working in Salem
are nearby on the North Shore,
particularly the communities
of Swampscott, Lynn, Danvers,
Peabody, and Gloucester.19
• However, people working in Salem
come from around the region and
state.20
Source: US Census Bureau, Longitudinal Employer-Household Dynamics program, 2015
Jobs in Salem by employee’s commute status
About 19% of
Salem residents
work in the city.
Figure 34
ImagineSalem.org | 79
Imagine Salem | Employment
Source: US Census Bureau, Longitudinal Employer-Household Dynamics program, 2015. The Census Bureau alters this data to
protect anonymity, so this map should be treated as an inexact model of the true distribution of people working in Salem.
Heatmap showing density of Salem workers by residence, 2015
Workers in Salem come from across the region and state, but Salem workers are most
concentrated in Salem and nearby communities.
Figure 35
Which employm en t is s u e s would you a
d
d
r
e
s
s
?Wages
Local Employment
Serivce Industry
Health and Sciences
Student Related
Tourism
Job Diversity Creative,Tech, &Entrepreneurship
31%14%
9%11%15%7%
5%
7%
80 |City of Salem
Imagine Salem | Employment
0 100 200 300 400 500
Diverse job options
67%
38%
Jobs with opportunities
for growth
Jobs for all education levels
Jobs within Salem
Jobs that are easy to get to
Jobs in resilient industries
Other
60%
43%
22%
49%
6%
What we heard from the community
When asked how they would
improve jobs in Salem, nearly 1 in 3
Imagine Salem activity particpants
wrote on their activity cards that there
should be more local jobs. “Salem just
doesn’t have many opportunities,”
one participant wrote. This sentiment
was sometimes related to a need for
jobs diversity—that large nonprofits
and small retail and foodservice
businesses inappropriately dominate
local employment. Some people called
for other professional service or
manufacturing businesses to locate in
the city. Large groups of participants
called for growth in the high tech and
health science industries in order for
Salem to participate in the sectoral
boom seen in some parts of the region.
This feeling was not universal.
Some participants wrote there was
already too much focus on the tech and
science industries, while others called
for continued growth of small retail
businesses. On the online survey,
the majority of respondents focused
instead on jobs with opportunities
for growth and jobs for people of all
education levels.
Several participants discussed small
businesses and their employees as
important parts of the community.
They wanted to know the employees
at their local businesses and sought
greater integration of businesses into
community life.
Source: Imagine Salem activity cards.
Imagine Salem generated these general
categories based on written responses,
and coded each response into one or
more categories.
Online Survey: What
are the most important
factors for the future of
employment in Salem?
Figure 37
Figure 36
ImagineSalem.org | 81
Imagine Salem | Employment
We need additional access to
opportunities to sector of the population
that is hard to reach. Increase access to
training and education.
Fiscally support growing an
arts community.
Utilize coastal resources for
employment opportunities.
–Activity card
respondent
–Activity card
respondent
It is important that there are
jobs of all types. I would love
to work in Salem.
–Online survey
respondent
–Activity card
respondent
82 |City of Salem
Imagine Salem | Employment
Ongoing economic development programs
The City of Salem supports a variety of economic development programs that encourage a diverse
economic base, a strong business environment Downtown and in certain neighborhoods, and economic
opportunity for the people of Salem.
Examples
• The Small Business Loan Program provides
low-cost financing to qualified entrepreneurs,
small business owners, and commercial
property owners. The City offers three types of
assistance: microenterprise loans to certain
businesses with 5 or fewer employees, loans
for business exterior improvements, and loans
to business owners enabling the creation or
retention of jobs for people with low- and
moderate-incomes.
• The Storefront Improvement Program
encourages private investment by business and
commercial property owners through a dollar-
for-dollar match for storefront exterior and/
or facade improvements, with matches up to
$5,000. The City also offers design assistance
for qualified businesses at no cost.
• The City is a partner in InnoNorth, an
initiative promoting the innovation economy
in Downtown Salem and the North Shore
generally. The partnership offers a free job
board for the technology and design industries,
networking mixers for entrepreneurs, business
technical assistance, and more.
• The North Shore Workforce Investment Board
(WIB) is a body of 19 business and community
leaders representing 19 cities and towns in the
region. The board is appointed by the mayor
of Salem to address labor market issues, build
partnerships between area employers and
other organizations, advise on policy, and to
oversee federally funded employment and
training services. The WIB runs the North Shore
Career Center in Salem and its satellite offices
throughout the region.
ImagineSalem.org | 83
Imagine Salem | Employment
Summary of findings
Employers in Salem provide
low- and middle-wage jobs that
are concentrated in a limited set of
industries: healthcare, education,
retail, and foodservice. These
industries often have low barriers to
entry, but do not always offer paths to
higher wages. Salem should explore
options to grow industries across the
wage spectrum, particularly those
with defined ladders of opportunity.
Though many Salem residents work in
the industries currently represented
in Salem, the suggested diversification
may help Salem residents working
in other industries stay in the city
for their employment. Salem should
encourage any new employment to
locate near transit access to increase
the accessibility of that employment
for all. Furthermore, the City
should explore mutually beneficial
partnerships with small businesses
to forge informal community ties
and to establish formal ladders
of opportunity for current and
future employees. In supporting
entrepreneurs, Salem should focus
efforts on fostering entrepreneurs
working in industries where Salem
may already have an edge, including
established economic sectors, or
Salem’s uncommonly prominent
place in both history and the public
imagination.
Businesses in Salem Willows
Photo: Flickr user MassMatt
84 |City of Salem
Imagine Salem | Employment
Employment Guiding Principles
Salem’s economy should be a system that
contributes to opportunity, a high quality
of life, and a sense of community for
the city’s residents, workforce, business
owners, entrepreneurs, students, and
visitors. The city recognizes its role in
a regional labor market and business
community, while asserting the primary
importance of homegrown opportunites
for the people of Salem.
ImagineSalem.org | 85
Imagine Salem | Employment
Employment in Salem
should provide living
wages and opportunities
for advancement.
No one should work full time and
live in poverty. While acknowledging
that small businesses must sometimes
start with lean budgets and that
some jobs are designed to begin
a career path, jobs that do not
provide a reasonable living wage are
generally unacceptable. Furthermore,
employment should provide formal
and informal opportunities for
training and advancement, either
within that organization or otherwise.
Employment should be
accessible for people of
all education and skill
levels.
Part of Salem’s charm is its diverse
mix of people from a variety of
cultures and backgrounds, including
education level. Salem should
maintain opportunities for work that
have low barriers to entry in terms of
education, including opportunities
for those with technical and vocational
training.
Salem should bolster
core industries, while
increasing economic
diversification and
entrepreneurship.
Salem should support its core
industries like health care, education,
food, and retail. Building on these
economic clusters will ensure Salem
plays a critical role in the regional
economy. That said, there should also
be robust employment opportunities
for people who do not work in those
fields, and entrepreneurs should be
supported. Economic diversification
and entrepreneurship will also
mitigate the risk of downturns.
Salem should maximize
the opportunity to both
live and work in the city.
Compared to the number of
commuters coming into or leaving
Salem for work, there are relatively
few people who both work and live
in Salem. Increasing the proportion
of people who live and work in the
city would reduce traffic congestion
grow employee satisfaction, and grow
community ties.
Employers should
complement and
contribute to the wider
community.
Though many organizations rightly
focus on their own internal needs
and opportunities, Salem should
encourage employers to foster
relationships with their neighbors,
either formally or informally.
Reestablishing retail stores as sites
of informal community and bonding
between business owners, employees,
and customers was a prominent part
of many Imagine Salem discussions.
86 |City of Salem
Imagine Salem | Transportation
MBTA Commuter Rail Station
Photo: WIkimedia User Pi.1415926535
ImagineSalem.org | 87
Imagine Salem | Transportation
Transportation
Salem residents make a variety of transportation choices,
and the city has a solid foundation on which to build
a truly multimodal system. However, there is uneven
access to mobility options that promote sustainability,
personal health, and collective wellbeing. Salem
continues to work to improve non-automobile options
that make these choices easier for everyone, and to
relieve the strain of traffic congestion that upsets many
residents.
88 |City of Salem
Imagine Salem | Transportation
Residents’ Transportation Choices
1 American Community Survey, 2010–2014 5-year estimates. The Boston region is defi ned here as the Boston Metropolitan Statistical Area, as specifi ed by
the US Census Bureau.
2 Ibid.
3 Ibid.
4 Ibid.
5 Ibid.
Residents of Salem have a diverse
set of transportation options. Data
for commute trips is the most readily
available transportation data, and will
therefore be described here, though
commutes represent a minority of
all trips. Salem residents’ commute
choices are virtually identical to
the Boston region’s choices overall.1
However, not all Salem residents have
a diversity of transportation options
to choose from, depending on where
they live and where they work. Their
“choice” may in fact be the only reliable
option available, as is o� en the case for
automobile users.
• Of the approximately 22,000
Salem residents age 16 or over who
worked, 67% drive alone to work.2
An additional 7% drove with others.
• Pedestrians make up 7% of Salem’s
commuters, while less than 1% bike
to work.3
• More than 12% take public
transportation to work (most of
whom use the commuter rail), and
almost 5% of Salem residents work
from home.4
• While Salem residents’ commute
choices are almost proportionally
identical to the Boston regions,
their commuting patterns stand
in contrast to some North Shore
communities. Residents of nearby
Peabody, for instance, are 15% more
likely than Salem residents to drive
alone to work.5
• Furthermore, given the relative
accessibility of retail, food service,
and entertainment options in
Salem’s historic core, it is likely
that non-commute transportation
choices in Salem skew further
in favor of walking, cycling,
and public transit than nearby
communities.
The majority of Salem residents drive to work,
though a sizable portion use public transit.
Source: American Community Survey, 2010–2014 5 year-estimates
Salem residents transportation choice for their commute, 2014.
Figure 38
ImagineSalem.org | 89
Imagine Salem | Transportation
Transit access and equity
6 MassGIS, Imagine Salem analysis
7 Ibid.
8 City of Salem, South Salem Commuter Rail Station Feasibility Analysis, 2016
9 MBTA, 2017
10 Ibid.
11 MBTA Dashboard Data, 2017
Salem is served by the regional
MBTA system through its stop on the
Newburyport-Rockport commuter
rail line and by the bus system. The
commuter rail provides access for
Salem residents to the jobs center of
Boston, while the bus system aims to
connect people with jobs at a finer
scale.
• The city’s neighborhoods with the
most residential and employment
density have strong physical access
to this system, defined as half-mile
walk along the street network,
which takes about 10 minutes for
the average person.
• Physical access is particularly
strong in Salem’s historic core,
where the commuter rail and many
bus lines converge.6 (See “Half-
mile walkshed to MBTA service in
Salem, 2016” on page 90 for a
representation of physical access to
transit.)
• The Point, South Salem, and Vinnin
Square neighborhoods, as well
as areas immediately adjacent to
Highland Avenue, have physical
access to bus lines running north
to Downtown as well as points
south.7 These routes connect dense
residential districts with jobs
centers like Salem State University,
North Shore Medical Center, and
Downtown. (See “Bus routes in Salem
and Salem’s top 100 employers, 2015”
on page 91 for a representation to
transit access to jobs.)
• In 2016, the City conducted a study
to assess the feasibility of an
additional commuter rail station in
South Salem.8
• While there is robust physical
access to transit running north-
south, there are few east-west
routes running through Salem.
• The 465 bus connects Salem with
Peabody and Danvers to the west,
but the route varies considerably
depending on the bus’s direction.
• Some residential neighborhoods,
such as Witchcraft Heights lack
physical access to public transit.
Even for those living within
walking distance of a bus line,
traveling either east or west
requires an often unwanted trip
into Downtown Salem before
transferring to a bus that goes in
the desired direction.
• Transit trip frequency remains
an issue. The commuter rail runs
roughly twice per hour during rush
hours, as do some of the higher
ridership buses, such as the 450.
• During off-peak times, bus
frequencies in particular drop
remarkably.9 The 450, for instance,
runs only once per 80 minutes
during midday.10
• Reliability is also a concern:
the 450 bus only adhered to its
schedule 58% of the time.11 That
transit adhere to its schedule is
particularly important when its
schedule is so infrequent.
• One uncommon transit amenity
is the Salem–Boston ferry, which
runs from late May through
Halloween. The ferry offers direct
service between Salem and Boston,
with discounts for commuters and
Salem residents. While the ferry
is a powerful addition to Salem’s
transportation choices, and it
provides access to the relatively
underserved Derby Street and
Salem Willows neighborhoods, the
ferry is not fully integrated with
Salem’s transportation system.
• The Salem Harbor Shuttle, which
makes several stops around
Salem’s waterfront, increases the
connectivity from Derby Street to
other parts of the city, but runs on a
similarly constrained schedule.
90 |City of Salem
Imagine Salem | Transportation
Most of Salem’s historic core, South Salem, and the areas along Highland Avenue are within a half-mile
walk of transit. Many people choose these modes even beyond the half-mile walkshed.
Figure 39
Source: MassGIS, Imagine Salem analysis
Half-mile walkshed to MBTA service in Salem, 2016
ImagineSalem.org | 91
Imagine Salem | Transportation
MBTA bus routes connect Salem’s historic core to large institutional employers to the south.
Figure 40
Source: MassGIS, Massachusetts Offi ce of Labor and Workforce Development, 2015
Bus routes in Salem and Salem’s top 100 employers, 2015
The Salem Bike Path
Photo: LizBee
92 |City of Salem
Imagine Salem | Transportation
Active Transportation
Walking and biking are perhaps
the two transportation choices with
the most health and sustainability
benefits. Both are “active”
transportation choices—they require
physical activity from the traveler. As
such, they are healthy choices, do not
produce greenhouse gasses, reduce
traffic congestion, create value for
retail along the route, and more. The
street layout in and around Salem’s
historic core enables residents,
students, workers, and visitors to walk
the city in order to reach numerous
amenities. The City has also capitalized
on this pattern by prioritizing walking
in some areas, such as the Essex Street
pedestrian mall.
Not all of the city’s pedestrian
infrastructure in the historic core is
up-to-date, however, and sidewalks
may prove crowded during peak
hours. Furthermore, outside the
historic core, the pattern of streets
provides fewer intersections and
connections, disincentivizing walking.
The Boston metropolitan region’s
transportation planning organization,
the Central Transportation Planning
Staff (CTPS), also noted in 2014 that
Salem was the site of bicycle and
pedestrian crash clusters. In part, that
finding led CTPS to designate several
infrastructure priorities in Salem that
are currently under construction by
the City.
Salem has existing off-street bicycle
and multiuse paths running through
parts of Salem Willows, Bridge
Street Neck, and the North River, as
well as a bike lane running through
part of South Salem to Marblehead.
There have been infrastructure
improvements for drivers, cyclists,
and pedestrians at Canal Street, and
there are upcoming improvements
along Boston Street.
These routes are intended to be
connected by the Salem Bicycle
Circulation Master Plan’s pilot
route, running from South Salem,
through the Point, Derby Street,
Salem Common, Salem Willows, up
to Winter Island Park. The plan also
proposes a network of additional
biking infrastructure, particularly a
system of east-west connections.
Salem also provides a bike share
program, in partnership with area
businesses and institutions.
ImagineSalem.org | 93
Imagine Salem | Transportation
Since the adoption of the Bicycle Circulation Master Plan, many of the reccommendations have been completed or are
underway. For instance, Lafayette Street now contains bicycle lanes running from the City line in the south to Washington
Street on th edge of downtown. The City is working with Toole Design Group to update the plan, which will likely recommend
additional on-road bicycle facilities, especially throughout Salem’s historic core.
City of Salem Bicycle Circulation Master Plan, 2010
Figure 41
94 |City of Salem
Imagine Salem | Transportation
Traffic and Roads
12 MassDOT Traffic Volume Counts, 2004–2016
13 Ibid.
14 Ibid.
15 Central Transportation Planning Staff, Charting Progress to 2040, 2014
16 Ibid.
Driving remains the most common
form of transportation for commute
trips and is the most typical
connection to many communities
outside of Salem.
• Key routes into and out of Salem to
other jobs centers include routes
114 (North Street/Summer Street),
107 (Highland Avenue/Washington
Street), and 1A (Bridge Street/
Lafayette Street), as well as Boston
Street.
• Key routes within the city
include Washington Street/
Canal Street, Bridge Street,
School Street/Orne Street, Essex
Street, and Lafayette Street.12
• Average daily traffic counts above
25,000 vehicles have been recorded
in Salem along Summer Street in
2004, Highland Avenue in 2016, and
Loring Avenue in 2004 and 2010.13
These counts demonstrate the high
volumes on regional arterial roads.
• These roads are supplemented
by numerous other streets with
average daily traffic counts above
5,000 vehicles, which circulate
local traffic and collect traffic into
regional roads.14
• Routes 1A and 114 are both
considered congested regional
arterial corridors by the
metropolitan region’s planning
organization for transportation,
the Central Transportation
Planning Staff (CTPS).15
• CTPS recommends Routes
1A and 114 be prioritized for
improvements for both passenger
and freight travel, including travel
by transit, walking, and cycling.16
Given the regional importance
of these corridors, Salem cannot
decrease congestion on its own. It
must advocate for smart land use and
transportation policy by adjacent
communities, as well as regional
governing bodies. It can make some
impact locally by encouraging more
trips within Salem for work, everyday
needs, and entertainment, and by
incentivizing non-automobile mode
choices for those trips.
Congestion coming in and
out of town is an issue.
We need alternate routes
in October during high
trac times.
–Activity card
respondent
–Activity card
respondent
ImagineSalem.org | 95
Imagine Salem | Transportation
Several regional routes converge in downtown Salem.
Figure 41
Major regional routes in and through Salem
Source: MassGIS
96 |City of Salem
Imagine Salem | Transportation
What we heard from the community
The Salem community has strong
feelings on transportation in their
city. Overall, many feel that some core
aspects of Salem’s transportation
system are working—or at least give
the city an unique draw over other
places. These include the walkability
of Salem’s historic core, its regional
transit connections, and the potential
waterfront transit options. However,
there is also a notion that Salem’s
transportation system isn’t working,
particularly the traffic congestion
and the reliability of transit options.
Fortunately, these responses point
to integrated policy solutions. For
instance, if public transit options were
improved to be more reliable, more
people would be able to use public
transit, making automobile traffic less
congested.
0 30 60 90 120 150
Trac
Parking
Accessibility
Public Transit
Biking & Walking
Street Improvements
5%
12%
21%
36%
5%
11%
Source: Imagine Salem activity cards. Imagine Salem generated these general categories
based on written responses, and coded each response into one or more categories.
Which transportation issues would you address?
Figure 42
0 50 100 150 200 250 300 350
Walk to where I need to get to in Salem 26.2%
52.4%Drive in Salem
Use transit in Salem
Ride a bicycle for commuting or fun in Salem
Other
29.2%
37.7%
16.4%
Online Survey: Complete the sentence “I wish it were easier to...”
Figure 43
It is dicult to get around in
Salem because of trac.
We need reliable regional trans-
portation to reduce dependence
on cars.
We live in the Willows and I wish there
were better options for getting downtown
with a baby/young children.
I love that Salem is walkable! I need to
be able to safely walk or ride my bike
to public transportation!
–Online survey respondent
–Online survey
respondent
–Online survey respondent
–Online survey
respondent
ImagineSalem.org | 97
Imagine Salem | Transportation
It is dicult to get around in
Salem because of trac.
We need reliable regional trans-
portation to reduce dependence
on cars.
We live in the Willows and I wish there
were better options for getting downtown
with a baby/young children.
I love that Salem is walkable! I need to
be able to safely walk or ride my bike
to public transportation!
–Online survey respondent
–Online survey
respondent
–Online survey respondent
–Online survey
respondent
98 |City of Salem
Imagine Salem | Transportation
Ongoing transportation programs
The City of Salem works to create a transportation system based on true choice and the recognition
of diverse needs. The City promotes transportation choices that are healthy, sustainable, safe, and
comfortable for all, and it tries to connect people with everyday amenities and sources of opportunity.
Examples
• Mass in Motion (MIM) Salem is the City’s local
version of a statewide initiative to encourage
active transportation choices (like walking and
biking), as well as increase access to health
foods. As part of MIM, Salem is implementing
a Safe Routes to School and Parks program,
which creates better opportunities for walking
and biking among school-aged children.
• Salem’s Complete Streets policy commits the
City to design a street network that serves all
users, including pedestrians, cyclists, transit
and school bus riders, motorists, freight
haulers, and emergency responders, among
others. The policy aims to rebuild the city’s
street system for all transportation modes, and
for all people regardless of age, ability, and
income.
• MassWorks awarded the City $3.5 million to
provide Complete Streets upgrades to Boston,
Bridge, and Goodhue streets.
• The City of Salem and the Friends of Salem
Council on Aging received a grant to study the
feasibility of an intra-city shuttle for people of
all ages and abilities, in line with the Salem for
All Ages Action Plan.
• Salem’s Bicycle Advisory Committee charged
the City with establishing a broad vision for a
better citywide environment for cyclists and
pedestrians. The Bicycle Circulation Master
Plan—a response to that charge—looked at
the existing network of cycling infrastructure
and proposed a series of updates to complete
the network, as well as program improvements
like an expanded bikeshare program. The
masterplan is being updated in 2017-2018.
• In 2017, the City of Salem launched Zagster, a
bikeshare program, which is funded partially
through sponsorships from Blue Cross Blue
Shield of Massachusetts and Salem State
University.
ImagineSalem.org | 99
Imagine Salem | Transportation
Salem Old Town Hall at Derby Square
Photo: Flickr user MassMatt
Summary of findings
Salem offers an uncommonly diverse
set of transportation options, with an
especially good foundation of transit
access and active transportation
options. The City fortunately does not
need to build an entire system from
scratch. It rather needs to build upon
this system to improve and connect
these diverse transportation options.
The City must “connect the dots.”
Nonetheless, that task isn’t simple.
Salem must address the lack of
physical and temporal transit access,
especially in parts of the city with a
low- and moderate-income residents,
and for populations of all ages and
abilities. It must address traffic
congestion and its impact on people’s
wellbeing. These goals will require
investment of resources and robust
regional partnerships. As initial steps,
the City should advance the policies set
forth in its Complete Streets policy and
its Bicycle Circulation Master Plan.
It should also investigate low-cost
and even temporary measures that
can demonstrate the viability of these
connections. Salem should also be a
strong regional advocate for smarter
transportation and land use policies,
in order to mitigate the regional traffic
and transit issues which the City
cannot address on its own.
100 |City of Salem
Imagine Salem | Transportation
Transportation Guiding Principles
Salem believes in an accessible local
and regional transportation system that
provides alternative modes of transportation
and choices. Salem aims to have a true
multi-modal transportation system
that encourages active and sustainable
transportation choices for everyday trips
and empowers all travelers to safely use the
streets. The City recognizes the crucial role
that a sustainable transportation system
plays in opening up opportunities for the
Salem community.
86 |City of Salem
Imagine Salem | Transportation
People should have
options when choosing
to get around the city
regardless of their age
and ability.
People have differing preferences
and abilities, and therefore choice
should be embedded in all parts of the
transportation system. In many places,
providing choice entails rebalancing
streets after nearly 80 years of
automobile-oriented investment.
In other places, it means designing
streets and sidewalks to be ensure
safety and comfort for all users,
particularly the elderly and people
with disabilities.
Elements of the
transportation system
should connect, so that
the system becomes
multi-modal.
It is unreasonable to expect all
transportation modes to work for
all trips, and creating independent
systems for all transportation modes
would be redundant in many places.
The transportation system should
allow travelers to string together
different mode choices where
appropriate.
Streets should be
designed to enable
active and sustainable
transportation modes.
The transportation system will
work best when people who can
reasonably walk, bike, or use transit
can do so safely, comfortably, and
reliably. Making these modes work
is especially important for trips
taken along existing transit lines and
for short trips within Salem and to
adjacent communities. By enabling
these modes, valuable “real estate” in
the public right of way will become
free. Allowing people to not use their
cars unnecessarily relieves traffic
congestion, increases retail foot traffic,
fosters community, and ameliorates
public health.
The transportation
system should be
designed for safety and a
“Vision Zero” standard.
Major injuries and deaths from
travelling are largely if not entirely
preventable. Improper street designs,
including those that incentivize
fast travel speeds, can increase
the likelihood of casualties. When
reconfiguring streets, Salem should
design for low speeds and low
casualties in its neighborhoods.
Ultimately, Salem should aim to have
zero deaths and major injuries—a
standard called “Vision Zero.”
The transportation
system should
complement
neighborhoods.
Quality of life in Salem’s
neighborhoods should be bolstered
by the transportation system. Rather
than communities accommodating
inflexible transportation
infrastructures, the transportation
system should be designed with
the unique character of each
neighborhood in mind.
102 |City of Salem
Imagine Salem | Conclusion
This report draws together ideas from the community,
samples of existing policy, and insights from analysis in
order to point Salem toward its future. Ultimately, Imagine
Salem articulates a vision for 2026 and proposes a set of
guiding principles. Using these guiding principles to set
the course, Salem must now study and set specific plans
in order to enact Imagine Salem’s vision. To conclude, this
report collects those guiding principles and offers final
thoughts on the Imagine Salem process and potential next
steps.
Conclusion
ImagineSalem.org | 103
Imagine Salem | Conclusion
Summary of Guiding Principles
These principles are discussed in more detail in their respective chapters.
Community
• Diversity is a fundamental part of
Salem’s history and is critical for its
continued prosperity.
• Equity is a necessary component of
any approach to planning.
• Diversity and inclusivity cannot
be buzzwords, but must be enacted
through legal, social, economic, and
symbolic means.
• Civic and political engagement
within and between communities is
key to inclusive governance.
Housing
• Market rate housing should be
affordable to people earning
average wages.
• Housing for lower income
households requires special
accommodation to produce.
• Housing should be safe, healthy, and
resilient.
• Housing designs must meet the
varied needs of diverse residents,
and there should be real housing
choices for all.
• Housing should be part of a
complete neighborhood.
Employment
• Employment in Salem should
provide living wages and
opportunities for advancement.
• Employment should be accessible
for people of all education and skill
levels.
• Salem should bolster core
industries, while increasing
economic diversification and
entrepreneurship.
• Salem should maximize the
opportunity to both live and work
in the city.
• Employers should complement and
contribute to the wider community.
Transportation
• People should have options when
choosing to get around the city
regardless of their age and ability.
• Streets should be designed to
enable active and sustainable
transportation modes.
• Elements of the transportation
system should connect, so that the
system becomes multi-modal.
• The transportation system should
be designed to eliminate deaths and
injuries.
• The transportation system should
complement neighborhoods.
Education
The strategic plan identified the
following four core pillars which
the Salem Public School District is
organizing its work to achieve the
vision:
• Create a vibrant K-12 teaching and
learning eco-system.
• Reimagine the high school
experience.
• Nurture Staff Leadership and
Empowerment.
• Strengthen Family and Community
Engagement.
For more information see the strategic
plan at www.salemk12.org
104 |City of Salem
Imagine Salem | Conclusion
Final Thoughts
This report arrayed the existing conditions in Salem in
broad topical categories. Necessarily, these topics overlap
with one another, and various connections are clear. For
instance, affordability is not only dependent on the cost of
housing, but a household’s income. As another example, the
everyday viability of the city’s transportation system for any
individual depends on the location of their home and their
job. Additionally, that transportation system can enable or
constrain one’s employment.
Any future planning that follows this visioning process
must take into account the connections between these broad
topics, and work to address several topics simultaneously.
Maximization of positive outcomes for any one topic area
may often seem to negatively impact other topic areas. For
instance, increasing transit access and reliability could raise
the cost of rental housing in the city. In order to address such
concerns, future efforts should not focus on maximization
of outcomes for their own sake, but rather to the ends of
bolstering equity and inclusivity. If equity and inclusivity
are prioritized, some acceptable balance of outcomes across
topic areas might be found.
Imagine Salem has begun the process of planning the
Salem of tomorrow. It has brought people together in
conversation in order to decide together how to reshape
the city. To some degree, change is always inevitable, due to
forces beyond any city’s control. Imagine Salem offers this
city the chance to direct that change to advance a collective
vision for the community. Planning can only begin with
a vision. Beyond this process, there must be planning to
address specific issues as they exist “on the ground.” Then,
of course, these plans must be implemented. All these steps
take work from officials and ordinary citizens acting to
make change happen. In a practical way, the connections
made through this process will make the next steps easier.
People have come together in this conversation, and they
are more likely to re-engage as the City makes concrete steps
toward progress.
This document proposes some potential directions Salem’s
planning can take. The City should study how to create
access to affordable housing options that meet the needs of
the diverse community, it must find new ways to connect
people to well-paying jobs and economic opportunity, and
it should encourage transportation choices that promote
health and sustainability for all. These are just a few ways
Salem can advance equity and inclusivity. The community
will certainly generate even more ideas over time.
Importantly, some future efforts should address equity
and inclusivity in topics beyond housing, employment, and
transportation. Members of the working group and the
public at large noted climate change and environmental
health as two important topics. The City has a recent Climate
Change Vulnerability Assessment and Action Plan and
other related planning efforts that should be integrated into
any work that proceeds from the Imagine Salem visioning
process.
Imagine Salem has ultimately tried to find and articulate
what people love about Salem and to bring people together
to share that love. As the city heads toward its 400th year, it
will ideally plan with that love in mind.
ImagineSalem.org | 105
Imagine Salem | Conclusion
106 |City of Salem
Imagine Salem | Conclusion