CDBG FY10 CONSOLIDATED PLAN AND PERFORMANCE EVALUATION REPORTCONSOLIDATED ANNUAL PERFORMANCE
AND EVALUATION REPORT
CITY OF SALEM, MASSACHUSETTS
Fiscal Year 2010
July 1, 2009 to June 30, 2010
Kimberley Driscoll, Mayor
Lynn Goonin Duncan, AICP, DPCD Director
Jane A. Guy, Assistant Community Development Director
EXECUTIVE SUMMARY
Throughout the many years of the City of Salem’s Community Development Block Grant Program
(CDBG), significant improvements have been made to the City’s physical and social environment
for its low- and moderate-income residents. The CDBG program has made a strong impact in
Salem, as seen through the numerous homes rehabilitated, neighborhood facilities and infrastructure
improved, businesses strengthened, jobs created and families served through our public service
agencies.
During Fiscal Year 2010, we expended over 2 million dollars in CDBG funds to assist our low- and
moderate-income residents. The focus of the program continued to target affordable housing
programs, neighborhood improvements, public service programs, and economic development
initiatives. In addition to CDBG funds, we expended $115,508.28 in HOME funds and $265,205 in
American Dream Downpayment Initiative (ADDI) funds.
The FY10 Consolidated Annual Performance and Evaluation Report (CAPER) provides an analysis
of the fifth fiscal year - July 1, 2009 through June 30, 2010 - of the City’s 5-Year Consolidated Plan
completed in 2005. This report is an opportunity to demonstrate our progress and report our
successes over the past fiscal year and to inform the community of how federal and local programs
are making a difference in the lives of low- and moderate-income residents throughout Salem.
Overview
Overall, we made notable progress during the past fiscal year. As this report indicates, we made a
significant advancement in meeting the goals and objectives stated in the 5-Year Consolidated Plan
and FY10 Action Plan. We also continued to meet HUD required funding and expenditure caps
and timeliness requirements.
We use various indicators to measure our success. In our housing programs, we continue to attract
first time homebuyers in neighborhoods throughout the city, improve housing conditions, help
renters move into decent, affordable housing and work toward increasing our affordable housing
stock. Our economic development programs continue to attract new businesses that create jobs in
our city and to improve existing businesses that retain jobs and enhance economic vibrancy. Public
service agencies continue to reach our low- to moderate-income residents with their valuable
programs that work toward family self-sufficiency. Finally, our neighborhood improvement projects
made visible changes to areas in the City of greatest need and helped all residents gain access to both
public and private services. Perhaps the greatest indicator of our success is illustrated in the positive
feedback we receive from those affected by our programs.
Organization of the Report
In this report, we included data to fulfill HUD requirements, as well as information that may be of
interest to our residents. The CAPER is broken up into four sections—Assessment of Goals and
Objectives, Supplementary Narratives, Funds Leveraged, and Citizen Participation Summary—in
order to provide residents with an overview of our accomplishments and allow readers to track our
progress throughout the fiscal year.
Assessment of Goals and Objectives – Throughout this section we provide a summary of our
accomplishments over the past fiscal year, including a summary of our expenditures. It provides
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Supplementary Narratives – As part of our reporting requirements for HUD, we must answer
certain questions regarding our program expenditures and activities. In this section, we provide
supplementary narratives that provides answers to these questions.
Funds Leveraged – Another measure of the success of our program is the funds we leverage with
our federal grants. This section includes a table outlining the funds leveraged from CDBG,
HOME and ADDI.
Citizen Participation Summary – In this section, we outline how we solicit public comment on our
programs and list the comments heard, if any, during the Public Comment Period, along with
our response to those comments.
The Appendix includes maps, a Financial Summary and tables and spreadsheets to help illustrate
program expenditures and progress.
Contact Information
We are always open to feedback on our progress, as well as to answer questions regarding any of our
programs mentioned in this report. If you would like more information please contact the
Department of Planning and Community Development at 978-619-5685.
CAPER finalization date – September 27, 2010
TABLE OF CONTENTS
INTRODUCTION ..................................................................................................................................................1
Assessment of Goals and Objectives..............................................................................................................3
Affordable Housing Programs................................................................................................................4
Public Services.........................................................................................................................................11
Economic Development........................................................................................................................15
Neighborhood Improvements ..............................................................................................................18
Planning & Administration....................................................................................................................20
Other Actions..........................................................................................................................................21
Summary/Program Evaluation/Conclusions.....................................................................................25
Supplementary Narratives...............................................................................................................................27
Funds Leveraged..............................................................................................................................................30
Citizen Participation Summary ......................................................................................................................32
Appendix
Financial Summary
Progress of Consolidated Plan 5-Year Goals
IDIS PR03 Excerpts - Persons Served by Income
IDIS Report PR23 Excerpts
Total CDBG Beneficiaries by Racial/Ethnic Category
CDBG Beneficiaries by Income Category
Maps
Section 3 Report
Cover photo: Redesigned Congress, Peabody and Ward Streets intersection
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INTRODUCTION
The Consolidated Annual Performance and Evaluation Report (CAPER) is a summary of the annual
accomplishments produced by the City of Salem and its community partners, as the goals and
objectives of the Fiscal Years 2006-2010 (FY06-10) Consolidated Plan were implemented. The
FY06-10 Consolidated Plan began on July 1, 2005. The FY10 CAPER provides an analysis of the
fifth fiscal year of the 5-Year Consolidated Plan — July 1, 2009 through June 30, 2010.
Program Goals
One of the overarching goals of the City of Salem is to provide a healthy, affordable and accessible
community for its residents to live and work and for its businesses to thrive. To accomplish this
goal, the City uses grants from the U.S. Department of Housing and Urban Development (HUD)—
Community Development Block Grant (CDBG), Home Investment Partnership Program (HOME)
and American Dream Downpayment Initiative (ADDI)—which are administered through the
Department of Planning and Community Development (DPCD). The following describes each of
the grants and their program objectives.
CDBG is a formula-based program designed to develop viable urban communities by
providing decent housing, a suitable living environment, and expanding economic
opportunities for persons of low- and moderate-income 1 .
HOME is a formula-based program for expanding and improving the supply of decent, safe
and affordable housing for low- and moderate-income persons.
ADDI is a formula-based program aimed to increase the homeownership rate, especially
among lower income and minority households, and to revitalize and stabilize communities.
These resources fund a wide range of projects designed to develop and maintain affordable housing,
improve neighborhood public facilities, provide economic opportunities, improve access to public
facilities for people with disabilities, provide critical public services, assist people who are homeless,
and prevent homelessness.
Importance of the Consolidated Plan, Annual Action Plan, and CAPER
In a streamlining effort initiated in the mid-1990s, HUD consolidated the various planning efforts
required by the National Affordable Housing Act of 1990 and the Housing and Community
Development Act of 1992. A Consolidated Plan for Housing and Community Development
(Consolidated Plan) must be prepared every five years in order to receive CDBG and HOME funds
from HUD. Prior to the start of each fiscal year within the five-year Consolidated Plan period, an
Annual Action Plan must also be prepared which lists the specific projects that will be undertaken
with CDBG and HOME funds during that year.
In addition to streamlining planning efforts, HUD also streamlined reporting requirements through
the development of the Consolidated Annual Performance and Evaluation Report (CAPER). The
CAPER must be prepared annually and must describe how CDBG and HOME program activities
address goals and objectives identified in the Consolidated Plan.
1 Low- to moderate- income individuals equals less than 50 or 80 percent of the Boston area median income respectively.
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This approach to planning and reporting eliminates duplication in preparing separate applications
and reports that, in turn, require multiple planning, development and citizen participation meetings
throughout the year. More importantly, the Consolidated Plan, Annual Action Plan, and CAPER
provide a comprehensive analysis of community needs, identify goals, and lay out objectives that will
be undertaken to address those needs, as well as provide a mechanism for reporting
accomplishments.
The Consolidated Plan, Annual Action Plan, and the CAPER provide a means to evaluate each
community’s situation and determine the most effective ways to use funds received from HUD. The
Consolidated Plan establishes a vision for attaining a higher quality of life for low- and moderate-
income residents, the Annual Action Plan outlines specific activities that work toward accomplishing
that vision, and the CAPER measures the success in achieving that vision.
V.O.C.E.S. students attend GED
and/or Citizenship classes.
ASSESSMENT OF GOALS AND OBJECTIVES
During FY10, the DPCD continued to make significant progress toward meeting the goals and
objectives laid out in the 5-Year Consolidated Plan and FY10 Action Plan. The CDBG entitlement
funds from HUD for the fiscal year was $1,144,965 and program income received during the
program year was $157,343.81. Our HOME funding allocation was $209,773. Salem was also under
contract with the North Shore HOME Consortium to assist first time homebuyers utilizing ADDI
funds. The Financial Summary of our expenditures (Appendix 1) illustrates our compliance with
program expenditure caps as well as expenditures by category (also see Figure 1).
CDBG Expenditures
In FY10, we expended $2,132,921.32 in CDBG funds, the highest annual expenditure of the five year
period. Expenditures were divided into five program areas — Affordable Housing, Neighborhood
Improvements, Planning & Administration, Public Services and Economic Development. In FY10,
we met all timeliness requirements and program expenditures were consistent with our 5-Year
Consolidated Plan and FY10 Action Plan goals. Furthermore, Public Service programs were at 15
percent, the maximum allowable for such activities, and we did not exceed the 20 percent
Administration spending cap. In the Financial Summary tables found in each program area, “funding
available” indicates the total CDBG funds available during the fiscal year, including FY10 and prior
year carried over funds+/- any adjustments made during the year.
HOME & ADDI Expenditures
In addition to CDBG funds, the DPCD also spent $126,384.78 in HOME funds to undertake
affordable housing activities and $283,962.50 in ADDI funds for additional assistance to income-
eligible first-time homebuyers ($144,220 Salem, $120,985 non-Salem buyers and $18,757.50
administration costs). When added to the $559,081.17 spent in CDBG funds for affordable housing
programs, the total amount spent for housing programs is $969,428.45 (including all ADDI funds)
or $848,443.45 (including only ADDI funds for Salem buyers) – representing the highest level of
funding for any of our funding categories. The City of Salem is a member of the North Shore
HOME Consortium and the specific accomplishments of HOME and ADDI activities are reported
to HUD through the Consortium by the City of Peabody. However, a summary of our activities are
reported throughout this
document. Fig. 1 FY10 Spending by Category,
as a Percentage of Total CDBG, HOME & ADDI Expenditures
(does not include ADDI funds for non-Salem homebuyers)
Program Accomplishments
Overall, we were on target in
meeting our Consolidated Plan
goals and objectives. The
following sections provide a
summary of accomplishments
for each of our program areas
and evaluate our progress based
on the needs outlined in the 5
Year Consolidated Plan and
FY10 Action Plan. The final
section provides an overall
evaluation of our programs.
FY10 CDBG, HOME & ADDI Expenditures by Category
Neighborhood
Improvements
31%
Affordable Housing
40%
Economic
Development
8%
Public Services
9%
Planning &
Administration
12%
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AFFORDABLE HOUSING PROGRAMS
Due to the high cost of housing in Massachusetts
and the high rate of foreclosures, we continue to
place the creation and preservation of affordable
housing as the highest priority of Salem’s CDBG,
HOME and ADDI Programs. The City of Salem
has a number of services that address housing
issues including rehabilitating and maintaining
current housing stock, developing new housing
opportunities, assisting families in acquiring
housing and enabling struggling families to
remain in their homes.
In FY10, the City of Salem spent $969,428.45 in
CDBG, HOME and ADDI funds on affordable housing projects and programs (includes $144,220
ADDI funds for Salem buyers and $120,985 for non-Salem buyers). The project accomplishments
attained with these funds during FY10 are described in the following table.
Rehabilitation Project Before and After
Table 1: FY10 Housing Financial Summary
Project Project Description Funding Available 2 Status
First Time
Homebuyer
Program
Provides 0% interest deferred
payment loans to low- to
moderate-income families that
wish to purchase a home in the
City of Salem. Note: ADDI
funds may also assist income-
eligible households purchasing a
home in any N. S. HOME
Consortium community.
$98,650 CDBG
$15,500 HOME
$289,509 ADDI
$98,650.00 CDBG funds
spent
$15,500 HOME funds spent
$265,205 ADDI funds spent
($144,220 Salem, $120,985
non-Salem)
15 Salem families assisted
with CDBG (all 15 also
receiving ADDI funds)
2 Salem families assisted with
HOME (1 also receiving
ADDI funds)
12 non-Salem families
assisted with only ADDI
funds
32 total units
Housing
Rehabilitation
Loan
Program
Provides a combination of
technical and financial assistance to
help Salem’s low- to moderate-
income homeowners and landlords
make much needed improvements
to their properties.
$437,255 CDBG
$66,132.62 HOME
(does not include
program income,
unprogrammed or
carried over funds)
$362,234.55 CDBG funds
spent
$19,220 HOME funds spent
14 units improved (9 owners)
7 additional units underway (
6 CDBG projects)
2 “Funding available” indicates the total funds available during the fiscal year, including FY10 and prior year carried over funds+/-
any adjustments made during the year.
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Project Project Description Funding Available Status
Rental
Assistance
Programs
Through the Rental Downpayment
Assistance Program funds are used to
help low- and extremely low-
income Salem residents move into
a decent, affordable rental unit.
Programs are administered through
NSCAP, HAWC and the Salvation
Army.
$160,969.65 in open
HOME Contracts
$80,788.28 in HOME funds
spent
77 families assisted thru
Rental Downpayment
Program Assistance
Housing
Program
Delivery
Costs associated with providing
rehabilitation programs &
inspectional services.
$131,164.12 CDBG
$10,876.50 HOME
$18,757.50 ADDI
$98,196.62 in CDBG funds
& $29,634 in HOME &
ADDI funds for housing
program delivery and
inspectional services,
including lead inspection
Other Priority Housing Strategies
In addition to the projects listed above that were undertaken with CDBG and HOME program
funds, we also worked on the development of our other priority housing strategies listed in the
Consolidated Plan and the FY10 Action Plan. The following discusses the status of these projects
and the steps taken to achieve these strategies.
Producing New Housing Units
Salem consistently provides support toward the creation of new affordable housing units
through the conversion of old, abandoned or underutilized buildings and parcels into new
residential housing units. For example, the City has also committed funding to develop
affordable housing units at the former St. Joseph’s Church site. The Boston Archdiocese’s
Planning Office for Urban Affairs (POUA) is the lead developer; project plans include
approximately 45 units of newly constructed affordable family housing (1, 2, and 3 bedroom
units), with 18,000 square feet of first floor commercial space in the same building. Another 20
units of elderly housing are planned at the former school building. The City has committed
$300,000 of CDBG/HOME funds towards the redevelopment project. In addition, $1 Million
in PWED funds have been allocated for traffic and infrastructure improvements to the adjacent
intersection. These funds were leveraged by and will benefit the St. Joseph’s Redevelopment.
Other funding sources for the project include funds from the North Shore HOME Consortium,
a grant plus permanent financing from Massachusetts Housing Partnership, funds from the
Federal Home Loan Bank, and Low Income Housing Tax Credits. An application for Section
202 Elderly Housing is pending at HUD for the elderly units.
An Affordable Housing Fund
In 2003, the City entered into a Memorandum of Agreement with a housing developer which
resulted in a $50,000 contribution in 2005 for affordable housing activities. The City Council
created an Affordable Housing Trust at the end of 2006 to create and preserve affordable
housing. The first meeting of the Trust took place in March, 2007, and the Trust continues to
meet as needed. The City continues to negotiate with developers on a case by case basis for
affordable units or a contribution to the Trust. The Trust has contributed $25,000 to Salem
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Lafayette Development as predevelopment funding for the St. Joseph’s Church redevelopment,
as well as $24,175 to a local shelter for ADA and safety repairs.
Preserving Existing Affordable Units
Salem has five private subsidized rental housing developments – Salem Heights, Loring Towers,
Pequot Highlands, Princeton Crossing, and Fairweather Apartments. Each of these properties
was built with the requirement that they remain affordable for a minimum of 40 years (or until
the mortgage was paid). Recently, the affordability of two of these developments was in
jeopardy. The city took the following actions:
o In February 2003, the city reached an agreement that will keep Salem Heights’ 283
apartments rented at affordable rates for 100 years.
o The City negotiated with the owners and tenants of Loring Towers, a HUD 236 property
that the owner had proposed to convert to a Low Income Housing Tax Credit (LIHTC)
project. In June 2007, in order to protect the long-term affordability, as well as the
affordability for existing tenants, the Mayor signed a 121A Agreement and entered into a
Memorandum of Understanding that will ensure that 90 percent of the 250 units will be
reserved for families and individuals at or below 60 percent AMI. Furthermore, 10 percent
will be reserved for those at or below 30 percent AMI for a period of forty years.
In addition, the Preservation of Affordable Housing (POAH) purchased Fairweather
Apartments. This purchase will ensure the continued affordability of these 127 units.
Foreclosure Prevention
Located at www.salem.com/pages/salemma_dpcd/additionalresources/other, the city’s website
contains a list of links to various resources for foreclosure prevention and legal assistance.
Additional links are added as they become known. Housing staff are contacting and offering
assistance to families threatened with the possibility of foreclosure and are maintaining a tracking
list of all pre-foreclosure, foreclosure and bank-owned properties in the city. In addition, we are
mailing information on tenant’s rights regarding displacement to renters in buildings that are on
the foreclosure tracking list.
The City encourages first-time homebuyers to complete a certified homebuyer education course,
such as the one funded with CDBG funds through Community Teamwork, Inc. Furthermore,
the City continues to fund homeless prevention programs through Catholic Charities, Salvation
Army, NSCAP and Healing Abuse Working for Change (HAWC). These programs provide
emergency financial assistance to prevent eviction.
Eliminating Vacancies as a Result of Foreclosure
Between July 1, 2009 and June 30, 2010, foreclosure deeds were filed for 36 Salem properties a
10% decrease over the number of foreclosure deeds in the prior year 3 ,. As of June 30, 2010, an
additional 49 properties were in pre-foreclosure, 25 were scheduled for auction and 78 were
currently bank-owned. Foreclosure often results in families being displaced from their home.
Foreclosures also result in an increased demand for affordable rental units by both the former
3 Source: The Warren Group in Salem Evening News Article dated 8/13/10.
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homeowner and by any displaced tenants. In addition, foreclosure can result in vacant buildings,
which can have a deteriorating effect on neighborhoods. The City continues to fund Rental
Downpayment Assistance programs at Salvation Army, NSCAP and HAWC to provide first/last
month’s rent and security which can be used by displaced families. The city monitors vacant,
abandoned and problem properties through collaborative efforts between the Health Inspector,
Fire chief, Building Inspector, City Solicitor and Housing Coordinator and has mapped those
properties in GIS. Abutters of bank-owned properties and those about to be auctioned are sent
letters asking them to be observant and report problems.
The City’s First-Time Homebuyer Downpayment Assistance Loan Program is available to first-
time buyers who hope to take advantage of the lower price that they may get by purchasing a
foreclosed upon home. The City’s Housing Rehabilitation Loan Program is available to investors
who purchase foreclosed properties so that they can bring the property up to code and turn
them into affordable rental units.
An important part of the City’s recovery and revitalization efforts is helping to re-occupy and
repair foreclosed properties. From August, 2007 through June, 2010, the City helped a total of
eleven homebuyers to purchase bank-owned properties, with approximately $113,000 in
downpayment assistance. In addition, the City has aided four homebuyers and investors who
have purchased foreclosed properties in making repairs through the Housing Rehabilitation
Loan Program. As part of the program, any renovated rental units are restricted to affordable
rents and must be occupied by low- to moderate-income households for a period of 15 years.
Improving Public Housing
The Salem Housing Authority continues to manage and maintain its 715 units of elderly, family,
and handicapped housing stock. Modernization work is progressing through funding of
applications made by the SHA to Massachusetts Department of Housing and Community
Development and to HUD. The following modernization work is underway or expected to
begin in FY10:
$136,000 site improvement plan for Rainbow Terrace family public housing development;
$500,000 project to construct an additional elevator at the Morency Manor elderly housing
development;
$1.7 million project to replace the stairs, stoops, and railings at the Rainbow Terrace family
public housing development; and,
$300,000 project to replace siding and other repairs to the Farrell Court family public
housing development.
Providing Expanded First Time Homebuyers Assistance
The City continues its goal to provide families with the opportunity to own their first home.
One of the most popular programs the City operates is the First-Time Homebuyer
Downpayment Assistance Loan Program (FTHB). In addition to basic downpayment assistance,
the program offers a $1,000 increase over the maximum loan amount for homeowners who
complete First-Time Homebuyer Counseling through a qualified training program.
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In addition to administering the City’s First-Time Homebuyer Downpayment Assistance Loan
Program, DPCD staff provides assistance to coordinate other resources for down payment
assistance, such as Massachusetts Housing Partnership (MHP) SoftSecond Loan program and a
variety of homeownership programs offered by MassHousing, as well as supporting first-time
homebuyer education workshops provided by the Community Teamwork, Inc.
Providing Assistance to Renters
The city continues its commitment to assist families with Rental Downpayment Assistance (first
and last month’s rent and security deposit) in order to provide families with the funds necessary
to secure housing. The program is an important tool for helping families with the cost of
moving into a decent apartment.
Rehabilitation of Existing Housing
The majority of the housing stock in the city was built prior to 1949. While older homes are an
integral part of Salem's history and neighborhood fabric, they also require a great deal of
maintenance and may not meet current building codes. In response to this issue, the city
administers a Housing Rehabilitation Loan Program to provide low-interest loans to owners of
single and multi-family properties to address cost-prohibitive health and safety issues. Through
the rehabilitation of existing housing stock, more homeowners, as well as tenants residing in
rental units, can live in decent housing. We have expanded the program to investor-owners with
low- to moderate-income tenants, to address code compliance and health and safety issues and
to maintain affordable, quality rental properties and to discourage the conversion of affordable
rental units into market rate condominiums.
In addition, the City offers deleading assistance for homeowners through MassHousing’s Get the
Lead Out Program. This program can be combined with the City’s Housing Rehabilitation Loan
Program. As a Local Rehabilitation Agency (LRA) for the Get the Lead Out Program, the City
is responsible for intake of application information, technical assistance, working with the
applicant through the construction process and acting as the escrow agent for the loan funds.
Work Regionally to Increase the Supply of Housing
The housing market operates regionally and the impact of the market is not confined to city
boundaries. Salem has more affordable housing than many cities in the region. At 12.9 percent,
Salem has the second highest percentage of affordable housing of the 30 cities and towns in the
North Shore Home Consortium. However, multi-jurisdiction cooperation is needed to address
the region’s lack of affordable housing opportunities. No one city or town can, or should, bear
the responsibility of providing all of the region’s affordable units. Salem is committed to
working with its partners in the North Shore HOME Consortium and with the region’s mayors
to encourage the development of housing throughout the area in an effort to increase the supply
of housing for all.
Affirmatively Furthering Fair Housing
The North Shore HOME Consortium, of which Salem is a member, updated the Analysis of
Impediments (AI) to Fair Housing in 2007, of which the complete AI is included by reference. The
City of Salem’s Affordable Housing Trust Fund Board provided a letter, dated January 8, 2008,
commenting on the Draft Analysis to Impediments. The final AI did not identify any specific
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The City of Salem undertook the following Fair Housing
actions during FY09 and FY10:
In January, 2009, the City’s Assistant Community Development
Director, the Housing Coordinator and a board member of the
City’s Affordable Housing Trust Fund (AHTF) attended a Fair
Housing Training hosted by the North Shore Home Consortium
and conducted by The Fair Housing Center. Staff shared
information received at the training with the remainder of the
AHTF board members.
In January, 2009, the DPCD created a separate page on the city’s
website for Fair Housing and Housing Discrimination. The page
explains housing discrimination and fair housing laws and is
targeted to consumers, real estate professionals and lenders. The
page also lists resources available to victims of discrimination.
The City of Salem provides public service and housing assistance
funding to agencies whose activities assist specific populations with
improving their quality of life. Assistance includes locating
emergency, transitional or permanent housing (i.e. CDBG funding
is provided to the Independent Living Center to provide an
Accessible Housing Education Services Program). All sub-
recipient agreements between the City of Salem and social service
and housing service providers contain language requiring
compliance with the Fair Housing Act. Salem supports providers
by offering technical assistance. On March 5, 2009, the Assistant
Community Development Director issued a memorandum via e-
mail to providers which listed the protected classes pursuant to
Federal and State laws. Furthermore, these agencies advocate on
behalf of their clients to ensure fair housing.
In April, 2009, the City’s Affordable Housing Task Force
sponsored a Housing Summit. At the meeting, board members,
real estate professionals, directors of local non-profits, regional
planners and other housing advocates participated in a community
dialogue about the challenges in today’s housing climate and the
need to educate the public regarding fair housing practices.
The City’s housing staff regularly participate in homebuyer fairs
held by lending institutions and real estate professionals to provide
information and counseling regarding its first-time homebuyer,
rehabilitation and deleading programs and to increase awareness of
fair housing laws. The City disseminates information regarding the
law and the resources available to victims of discrimination. In
FY09, staff presented at workshops sponsored by Salem Five
Bank, Tache Real Estate, Seaport Credit Union and Eastern Bank.
The city provides financial assistance to Community Teamwork,
Inc., a nonprofit organization that conducts CHAPA-certified, first
time homebuyer educational courses. These courses are primarily
held in the Point Neighborhood, where Salem has its highest
concentration of racial and ethnic minorities. Trainings were
conducted in February, May and September, 2009 and in June,
2010. During these trainings, City housing staff distributed
information regarding the Fair Housing and Discrimination Act.
actions for Salem to undertake in order to overcome the effects of any impediments identified
through that analysis. It did
recommend that the Consortium
consider taking the following actions:
1. Assist in improving awareness of
fair housing law
2. Assist in improving
understanding of available fair
housing services
3. Assist in improving fair housing
delivery system
4. To counteract high denial rates,
consider implementing first-time
homebuyer training program
targeted at particular types of
consumers
5. Incorporate more formalized
elements of fair housing planning
in Consolidated Plan
6. To aid in expanding awareness
of inclusive land use policies, the
Consortium might wish to consider
extending fair housing training to
the area’s boards and commissions,
as well as public and elected
officials
7. Assist in alerting involved
agencies to the prospects of their
involvement in institutional
barriers that detract from
affirmatively furthering fair
housing or acting in the public
interest of furthering education of
fair housing and the fair housing
system.
On April, 1, 2009, HUD’s Office of
Fair Housing & Equal Opportunity
(FHEO) issued its evaluation report of
the City of Salem’s FY08 CAPER (July
1, 2007-June 30, 2008, submitted to
HUD in September, 2008) and
recommended that the City and/or N.
S. HOME Consortium revisit and
update the AI (completed in 2007) to
consider common fair housing
impediments, aside from affordability.
It was recommended that once the
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City and/or Consortium has identified existing impediments, it must then develop a strategy and
plan actions designed to address these impediments.
In a letter dated July 7, 2010, HUD’s Office of Community Planning and Development requested
that the City of Salem address the FHEO concerns and submit a response (in this CAPER or on or
before September 30, 2010), and also requested a copy of the City of Salem’s AI-related concerns to
be submitted to the Consortium for inclusion in its updated AI. A response to this letter will be
provided to HUD on or before September 30, 2010 in a separate document, with a copy provided to
the N. S. HOME Consortium.
Continuum of Care
During FY10, the city continued to support local agencies that provide direct assistance to homeless
families and individuals in Salem, such as Lifebridge (formerly the Salem Mission) and HAWC, and
to agencies that help households avoid homelessness. Agencies funded and their accomplishments
are provided in the Table 1 above, as well as in the Public Services Section of this report. It should
be noted that 193 persons avoided homelessness through city-funded Homeless Prevention and
Transitional Housing Programs (reported in Public Services). The city also continues to be a
member of the local Continuum of Care Alliance administered by the North Shore HOME
Consortium. An overview of the activities of the Alliance can be found in the CAPER submitted by
the North Shore HOME Consortium (through the City of Peabody).
Evaluation of Goals
This year, we exceeded out goal to assist 6 households to purchase their first home by assisting 17
Salem families. 16 were also able to take advantage of the ADDI program. For the 5-year
Consolidated Plan period, with a total of 70, we were just 5 short of meeting our total goal of
assisting 75 households.
The Housing Rehabilitation Loan Program continues to assist families in need and to exceed the
goals laid out in the Consolidated Plan. In FY10, we exceeded our Action Plan goal of rehabilitating
3 housing units with 14 units completed and 7 more underway. In total, we have exceeded our five
year goal to assist 55 housing units by assisting a total of 115 units (61 through Salem Harbor CDC
in Year 1 and 54 through the City’s Housing Rehabilitation Loan Program). Given the economy
and the housing market over the past two to three years, this is a significant accomplishment.
The Rental Downpayment Assistance Program, administered through local social service agencies to
provide grants to low- and extremely low-income Salem residents to help pay first and last month’s
rents and security deposits to enable them to obtain decent, affordable housing, has also been a
success. The Action Plan projected that up to 66 households would be assisted and we were able to
assist 88 during the program year. With a total of 327, the program has exceeded its goal of 215
households assisted.
Finally, we continue to place importance on the ongoing review and update of our program policies
and guidelines. All program materials are available on the city’s website.
PUBLIC SERVICES
The Consolidated Plan identified the need for various
social service programs that primarily benefit Salem’s
low- to moderate-income population and those with
special needs (such as physically or mentally disabled,
elderly or frail elderly, youth, non-English speaking
residents, persons living with HIV/AIDS, substance
abusers and homeless persons and families). In FY10,
our priority goals were to continue to support a broad
range of social service programs that are consistent with
the needs and goals identified in the Consolidated Plan
and the FY10 Action Plan.
According to HUD regulations, we are allowed to
commit up to 15 percent of our CDBG allocation to
public service activities. In FY10, as in past years, our agencies expended just under that limit. T
these public service activities provide direct benefit to our low- and moderate-income residents;
therefore it is important to continue funding at this level.
Public service projects funded during FY10 were selected using a Request for Proposals (RFP)
process. The Citizen Advisory Committee reviewed all applications received, using criteria that
included project eligibility and documented need for services. Recommendations on funding levels
were provided to the Mayor following this review.
In FY10, we were able to expend $190,325.61 on 37 open public service contracts, which, in turn,
assisted 11,865 people, including 1227 children/youth and 417 seniors (see Table 2 for Active
Projects).
Table2: FY10 Public Services Financial Summary
Agency
CDBG
Funding
Available
CDBG
Funds
Spent
Number
Assisted FY10 Program Impact
Bentley Elementary School
After School Program $4,695.52 $4,695.52 253 youth
Provided the following activities: Crafty
Kids, Yoga, Social Skills group through
Board Games, Social Skills Spanish Club,
Science Fun, AM MCAS Prep, Readers
Theater, Math games, Basketball and
Dance Group.
Salem Community Child Care
$10,000.00 $10,000.00 13 youth
Provided after school child care to
children enrolled in kindergarten in Salem
Public Schools. Teachers provided help
with homework and enrichment
activities. Transportation and snacks
were provided.
Haven From Hunger
Food Pantry $10,000.00 $10,000.00 495 persons Provided more than 878 visits to the food
pantry for 226 households.
Salem Harbor CDC
Community English Program $3,000 $3,000.00 46 persons Students completed a 12 week
Community English Program.
H.A.W.C.
Children’s Program $10,000.00 $10,000.00 75 persons
(36 families)
36 parents attended the domestic violence
group and 30 children participated in the
creative art therapy class.
Mayor Kimberley Driscoll tours
the St. Joseph Food Pantry
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Agency
CDBG
Funding
Available
CDBG
Funds
Spent
Number
Assisted FY10 Program Impact
Community Teamwork, Inc.
First Time Homebuyer Training
Program
$210.00
FY09;
$1,050
$210.00
7
households
(minimum 7
persons)
Certified training program courses were
held in September and June. Completion
of the course makes the certificate holder
eligible for certain low-income mortgage
products from commercial banks and
lending institutions.
Salem Mission
Outreach Street Advocate
$1,460.40
(FY09)
$7,200.00
(FY10)
$8,253.40 49 persons
3 secured a shelter bed, 2 were admitted
to a medical hospital, 2 were admitted to
a mental health facility, 1 accepted detox.,
2 were placed under arrest or protective
custody and 1 was convicted and
admitted to a correctional facility. At least
13 use basic services (i.e. food program)
provided by the shelter.
Salem Police Department
Bicycle and Walk/Ride Patrols
$7,354.56
FY09;
$12,000
$6,959.48 3,918
persons
156 police patrol hours completed.
Overall the calls for service in the Point
Neighborhood area are up 5.5% from last
year. Reductions have been realized with
incidents of public drinking (down 50%)
and drug related offenses (down 16%).
However increases occurred in assaults
(up 15%), loitering (up 35%),
disturbances (up 55%) and loud music
(up 37%).
Morgan Memorial Goodwill
Industries
Career Planning Program
$4,300.00 $4,073.40 5 disabled
youth
Students completed skills assessment,
individual training on interviewing,
resume writing and dressing for the
workplace, prepared job applications,
cash out money management,
relationships at work, problem solving,
career exploration, utilizing job ads and
on line job search. One student is
undertaking a summer internship at
Morgan Memorial Goodwill.
Salem Access Television
Youth in Action $3,000.00 $3,000.00 14 youth
30 hour training course. Students learned
television and field production, scripting
and storyboarding and produced a DVD.
Cerebral Palsy Association
North Shore Infant & Toddler
Preschool Program
$5,000.00 $5,000.00 58 children
For children with physical and
developmental disabilities to attend
integrated developmental play groups
once per week. At the end of the
program 20 remain with the agency, 5
moved out of state, 13 transitioned to
Salem public schools special needs
program, 8 transitioned to private day
care, 6 transitioned to Headstart, and 3
receive services from Salem Public
Schools but attend private day care.
Salvation Army
Prescription Program
$2,065.86
FY09 $418.72 6 persons 11 prescriptions filled.
V.O.C.E.S.
Hispanic Education Program $5,599.19 $5,599.19 101 persons
Provided approximately 182 classes.
During the year, 81 current and former
students obtained US citizenship and 3
obtained their GED.
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Agency
CDBG
Funding
Available
CDBG
Funds
Spent
Number
Assisted FY10 Program Impact
Independent Living Center
Accessible Housing Education
Services Program
$5,000.00 $5,000.00 35 disabled
persons
7 subsidized housing applications and 4
Section 8 applications to the Salem
Housing Authority completed,
completion of 2 UHA housing
workshops and 1 AAA housing
workshop, placement of 4 homeless
individuals into a housing unit, relocation
of 4 non-homeless households into AAA
housing, submission of 9 non-housing
authority and/or Section 8 pre-
applications and completion of 12 Salem
Housing Authority emergency and
standard universal housing applications.
Catholic Charities
Little Lambs Program $2,500.00 $2,500.00 226 youth
53 Salem households received diapers and
wipes. Referral services provided
included education (GED/Education and
Employment Training), health, child care
and other services (housing, basic needs,
counseling).
North Shore Community Action
Program
Salem Cyberspace Cyberyouth
$5,000.00 $5,000.00 39 youth
Students completed 10 digital design
projects (i.e. websites) and college prep
students submitted 6 applications to 4-
year colleges. All 10 seniors who took
advantage of the College Success
Program in some way were accepted to a
college or university. 12 participated in
the 6 week Career Exploration Course.
Salem Y.M.C.A.
Teen Initiative $5,000.00 $5,000.00 143 youth
Teens participated in one or more of the
following programs: homework, gym,
games, basketball, dinner, pool parties,
etc.
Catholic Charities
Homeless Prevention Program
$1,175 Carry-
over;
$8,799.90
$9,974.90 59 persons 21 families avoided homelessness
Boys & Girls Club
Gang Prevention (Athletics) $3,369.60 $3,3369.60 117 Youth Athletic programming including traveling
floor hockey, basketball and/or football.
Boys & Girls Club
Gang Prevention (Mentoring) $3,800.00 $3,800.00 181 Youth
Provide mentoring through programs
such as teen cooking, teen study,
keystone, dance and PEM.
Boys & Girls Club
Gang Prevention $473.27 FY09 $473.27 Reported in FY09
Salem YMCA
School Age Child Care Program $10,000.00 $10,000.00
178 youth
(150
families)
150 families received child care assistance
which included educational and
enrichment activities.
Salvation Army
Transitional Housing
$2,657.34
FY09 $1,163.58 8 persons
(5 families)
Assisted 5 families with transitional
housing while waiting for their apartment
to be ready to move into.
Salem Council on Aging
Transportation Program
$1,739.60
FY09;
$17,971.10
$19,710.07 417 seniors
Provided 6801 rides to the senior center,
5158 to medical appointments, 1704 to
shopping, 1114 to events and activities,
560 to the hairdresser, 109 to the
downtown and 72 other rides.
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Agency
CDBG
Funding
Available
CDBG
Funds
Spent
Number
Assisted FY10 Program Impact
Family Self-Sufficiency Center
English Literacy Skills Project
$4,476.12
FY09;
$1,143.04
$5,619.16
14 persons
(FY09
funds), 5
persons
(FY10
funds)
Of the 14 FY09 program participants,
English literacy skills improved an
average of 71% from pre- to post-
curriculum unit tests. Of the 5 FY10
program participants, English literacy
scores improved an average of 58% from
pre- to post-curriculum unit tests.
NSCAP
Homeless Prevention Program $10,000.00 $10,000.00 64 persons
24 families avoided homelessness (rent
arrearage assistance to 16 families and
utility arrearage assistance to 8 families)
Salvation Army
Homeless Prevention
$355.50
FY09;
$7,500
$7,855.50 59 persons 22 families avoided homelessness
H.A.W.C.
Homeless Prevention Program
$2,112.39
FY09; $8,000 $2,815.83 11 persons 4 families avoided homelessness
St. Joseph’s Food Pantry $14,000.00 $14,000.00 4,464
persons
Average of 920 families served monthly
and 120 deliveries to elderly and disabled
residents.
St. Joseph’s Harvest of Hope $10,000.00 $10,000.00 800 persons Served an average of 300 families per
month on weekends.
Wellspring House
MediClerk Program
$333.36
FY09;
$4,500
$2.833.36 5 persons
Trained students for entry-level medical-
clerical positions. Each 13 week course
included classroom training. Along with
training, they did job shadowing,
internships and interviews. They were
treated to interview clothing at Dress for
Success in Boston. Students are either
continuing education, working full or part
time permanent positions and/or
actively interviewing for a full time
positions.
TOTAL PERSONS ASSISTED 11,865 persons,
including 1,227 children/youth & 417 seniors
Evaluation of Goals
As stated before, Public Service activities allow us to provide direct services to our low- and
moderate-income residents. Our FY10 Action Plan goal was to provide 30 new grants, of which we
executed agreements for 28 and to assist 10,390
persons during FY10, of which we assisted 11,865 with
all open contracts. During the five years of the current
Consolidated Plan, we have exceeded our goal of
assisting 42,000 persons (8,400 per year) by assisting a
total of 55,613 persons. This reflects the strong
commitment among our staff and public service
providers to supply needed services and stretch dollars.
We are fortunate to have an excellent network of public
service providers that utilize our funds to best meet
community needs, which is why continue to spend just
short of the HUD funding cap of 15 percent. Students of Salem Harbor CDC’s
Community English Program
ECONOMIC DEVELOPMENT
The City of Salem is committed to continuing efforts to
stimulate our local economy and, as a result, has seen a
surge of redevelopment in the past few years. This new
development has lead to a revitalization of our business
districts and to increases in the number of businesses
providing needed services to our residents.
During FY10, seventeen new businesses opened in the
Urban Renewal Area. Six of the new businesses are
restaurants or cafés and have helped to create the identity
of Salem as the North Shore’s dining destination.
Despite these promising gains, Salem has not been
immune from the current economic crisis and the
resulting job losses. The Salem unemployment rate as of
June 2010 is 8.5 percent.
Ribbon Cutting for Glass and Etc.
Salem continues to focus on economic development in order to bring new employers and new jobs
to the city, while retaining jobs by helping existing businesses improve their commercial
infrastructure or expand their operations. The increased development is bringing vitality to the
downtown, providing goods and services locally, and improving and stabilizing neighborhood
business districts in the process. Improved vitality in our neighborhood and downtown commercial
districts also has the residual effect of improving public safety.
The City of Salem is dedicated to economic development through efforts to revitalize the downtown
and neighborhood commercial districts, improve exterior building façades, and assist local business
owners. Our economic development funds are used to fund the Business Loan Program, Storefront
Improvement Program and Technical Assistance Programs.
Business Loan Program
The Business Loan Program is designed to encourage all types of entrepreneurs to locate in the City,
create jobs, and revitalize the area through rehabilitation to their buildings. There are three types of
loans:
Microenterprise Assistance – provides loans to low- to moderate-income entrepreneurs to assist
with their microenterprise business (5 or fewer full-time employees, including the owner);
Commercial Revitalization – provides loans to business owners in the downtown and eligible
neighborhood districts to assist with the exterior rehabilitation of their building and/or to
correct code violations; and
Special Economic Development – provides loans to business owners throughout the city in exchange
for job creation for low- and moderate-income people.
Storefront Improvement Program
The Storefront Improvement Program is designed to encourage private investment and
reinvestment by new and existing property/business owners in the eligible neighborhood and
downtown commercial districts. The program provides design assistance and offers a one-to-one
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financial match for façade improvements of up to $5,000 per storefront and funding for
professional design assistance.
Technical Assistance Programs
Often small business owners need some degree of technical assistance to help them with managing
or growing their business. The needs of local entrepreneurs range from business planning, drawing
up financial statements, or navigating the city permitting process. The city works in collaboration
with several agencies to improve economic opportunity in Salem by providing technical assistance to
businesses.
Table 3: FY10 Economic Development Financial Summary
Program Description
CDBG
Funding
Available
Status
Storefront Improvement
Program
Provides design assistance and/or
matching funding up to $5,000 to
business owners wishing to improve the
exterior façade of their business.
$73,888.65
$26,364.36
CDBG spent
4 storefronts
improved
Business Loan Program
Provides three types of loans that fund
commercial rehabilitation, job creation or
retention and/or micro-enterprise
assistance to make our commercial areas
vibrant.
$65,945.00
$65,945.00
CDBG spent
2 businesses
assisted
7 new jobs
Salem Main
Streets
Program
Provides commercial district revitalization
through organization, promotion,
economic restructuring and design.
$20,000.00
$20,000 CDBG
spent
50 micro-
enterprise
businesses
assisted
Business
Technical
Assistance Economic
Development
Program
Delivery
Costs associated with providing
Economic Development programs and
administration of the Salem
Redevelopment Authority.
$55,766.35 $52,766.35
CDBG spent
Evaluation of Goals
In FY10, with our Small Business Financial Assistance Programs, we exceed our FY10 Action Plan
goal to provide one loan by providing two business loans totaling $65,945. One loan created 7 new
jobs and the other will be monitored in FY11. In addition, we provided assistance for the
improvement of 4 storefronts, one short of our FY10 Action Plan goal.
The Salem Main Streets Program had contact with 45 new and 5 existing micro-enterprise
businesses, exceeding our FY10 Action Plan goal of assisting 20 microenterprises. 1st quarter
activities included a Farmers Market, Mayor's Night Out, Ice Scream Bowl, 200th birthday of Sophia
Peabody Hawthorne, Ash Urn Program and Ribbon Cuttings for A Sacred Place Wellness Center
and Brothers 99 Cents. 2nd quarter activities included managing an information booth during
Haunted Happenings, coordinating Santa's arrival, hanging 80 live wreaths and decorating a 30-foot
tree during holidays and organized a window decorating contest, organized holiday caroling and
produced a holiday pamphlet. 3rd quarter activities included organization of Salem's So Sweet
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Festival including recruitment of sponsors for 16 ice sculptures, implementation of Chocolate and
Wine Tasting event, and organized business support workshop "Your New Year's Resolutions". 4th
quarter activities included Organizing the Salem Arts Festival, coordinating the first Salem Health
and Wellness Week highlighting related downtown businesses, launching the second season of the
Salem Farmers’ Market, promoting 87 business who open late on market night, organizing a
business support workshop on using social media for marketing and assisting new businesses Café
Valverde, Coven, Mud Puddle Toys and Mighty Aphrodite.
The DPCD also provides technical assistance through our Economic Development Manager, who
administers the City’s financial assistance programs and provides administration to the Salem
Redevelopment Authority, which oversees the Urban Renewal Area. The most significant
redevelopment project within the Urban Renewal Area during FY10 was the completion of the Old
Salem Jail redevelopment which added 23 new housing units to downtown. Build-out of a 3,000
square foot restaurant that is included in the redevelopment project will be completed in FY11.
During FY10, the DPCD collaborated with the Enterprise Center at Salem State College and the
Small Business Development Center to provide technical assistance to entrepreneurs with a focus on
those located within low/mod areas and the Urban Renewal Area.
The DPCD collaborated with the Salem Chamber of Commerce on a study focused on assessing
Salem’s economic development status. The DPCD and Chamber have worked together to
implement recommendations in the report. In addition, the two parties continue to collaborate on
the local Creative Economy Initiative which is focused on growing creative economy businesses.
Lastly, because parking is a key resource for business growth and downtown vitality, during FY10
the DPCD conducted a comprehensive parking study to determine how the parking system could be
managed more effectively. It is anticipated that recommendations from the study will be
implemented during FY11.
In total, $165,071.71 was spent during the program period for economic development activities.
Table 4: Active Economic Development Loans in FY10
Type of Loan Project Amount of
Loan
Required
LMI Jobs
Creation
Total Jobs Created
Microenterprise
Assistance
Mud Puddle Toys $30,945 1 To be monitored in
FY11 Special Economic
Development River Wharf Realty
Trust/Bioengineering Group $35,000 1 7 Total Jobs,
(1 LMI)
Totals 2 $65,945 2 7 Total Jobs Created
(1 LMI Job)
Note: LMI is low- and moderate-income
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NEIGHBORHOOD IMPROVEMENTS
The City of Salem is committed to undertaking the
infrastructure and public facility improvements we all
depend on to make our city the livable community that it
is. By continually investing in neighborhoods, Salem
aspires to be the best place it can be for people to live
and work.
Due to the size and scope of these types of activities,
some require multi-year funding, as well as a few years to
plan, permit and complete the project. To that end,
some of our Neighborhood Improvement Projects are
still in the planning, permitting or bidding stages. The
following table outlines the current neighborhood
improvement projects and their status at the close of FY10. Neighborhood Improvement Projects
can only take place in those areas eligible for CDBG funding (see Appendix for map); therefore all
the projects listed are designated for these target neighborhoods.
Table 5: FY10 Neighborhood Improvement Financial Summary
Activity CDBG Funds
Available
CDBG Funds
Spent Status
Old Town Hall Fire Safety Upgrades $5,396.32 $5,396.32 Complete
Street Improvements (i.e. sidewalks,
curbcuts, paving & crosswalks) $46,910.13 $46,282.16 Complete
Essex Street Pedestrian Mall
Improvements (i.e. tables, chairs) $2,286.00 $2,286.00 Complete
Witch House Accessibility
Improvements (interior) $2,267.13 $2,267.13 Complete
Congress/Peabody/Ward Intersection $195,862.59 $195,862.59 Complete
High Street Play Structure & Fence $58.801.85 $58,801.55 Complete
Tree Planting Program $9,200.00 $1,155.00 Underway
Peabody Street Park $48,375.35 $44,981.09 Underway
South River Harbor Walk $269,699.09 $210,277.68 Underway
Palmer Cove Park Improvements $4,993.00 $2,863.00 Underway
City Hall Elevator $248,967.79 (CDBG)
$305,977 (CDBG-R)$$347,903.68 Underway
Maryjane Lee Playground $1,495.00 $195.00 Underway
Congress/Derby Pedestrian Lights $150,000 $0.00 Bidding
Section 108 Loan Payments – South
Harbor Garage $44,362.50 $44,362.50 Ongoing
Harbor and Lafayette Streets
Pedestrian Improvements (PWED) $100,301.61 $301.610 Planning
Lafayette Park Redesign $50,000.00 $0.00 Planning
Downtown Signage Improvement $45,000 $0.00 Awaiting grant
notification
View of the new High Street Playground equipment
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19
Evaluation of Goals
During the program period, we continued to work on important neighborhood projects, and spent a
total of $962,935.61 (includes $305,977 in CDBG-R funds), including program delivery costs,
toward meeting the goals in the FY10 Action Plan and 5 year Consolidated Plan.
6 trees were planted. Although not meeting the FY10 Action Plan goal of 27, with a 5 year total of
237, we have exceeded the Consolidated Plan goal of 175 trees.
In addition, 2 sidewalk improvements were undertaken, including curbcut replacement at Church
and Washington Street and the installation of handicapped curb cuts in various locations in the
downtown. With a four year total of 34 improvements, we have exceeded the Consolidated Plan
goal of 20.
The redesign of the Congress/Peabody/Ward intersection was completed this year, as was the
Witch House handicapped accessibility improvements and fire safety improvements at Old Town
Hall. A new play structure was constructed with volunteer labor at High Street Playground. Tables
and chairs were purchased and placed in East India Square.
The South River Harborwalk and the Peabody Street Park construction is nearing completion with a
grand opening scheduled for July, 2010. The City Hall Elevator project will also be completed in
summer, 2010.
Several other projects are in the planning/bidding stages including Harbor/Lafayette
Improvements and Derby/Congress Pedestrian Improvements.
PLANNING & ADMINISTRATION
In the Consolidated Plan, our priority goals are to
provide for the administrative costs associated with the
management of the Salem Community Development
Block Grant program and to develop the planning
resources and documents necessary to undertake
program activities.
During FY10, we completed an Economic Outlook
Study, as well as a new 5-year Consolidate Plan for the
period of July 1, 2010 through June 30, 2015.
In FY10, we spent a total of $255,503.22 in Planning and
Administration for planning studies completed in the
fiscal year and administration expenses necessary to carry
out our programs. As stated previously, we were able to
remain under the administrative spending cap of 20
percent.
Table 7: FY10 Planning & Administration Financial Summary
Activity CDBG Funds
Available
CDBG Funds
Spent
5 Year Consolidated Plan $29,600.00 $29,600.00
Economic Outlook Study $2,000.00 $2,000.00
General Administration - Salary $155,407.48 $155,407.48
General Administration - Benefits $58,513.60 $58,513.60
General Administration - Non-salary $9,982.14 $9,982.14
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OTHER ACTIONS
Barriers to Affordable Housing
The Five Year Consolidated Plan outlines several barriers to housing affordability in Salem: a
shortage of land, the lack of regulatory tools to require or encourage affordable housing in new
developments, the lack of resources to preserve existing affordable units, an economy imbalanced by
lower-wage jobs, and local government’s dependence on the property tax to finance City services.
Like other communities, Salem is not in control of all of these barriers and as a result, its ability to
solve them is constrained by financial resources and legal requirements. However, through its efforts
to preserve and increase the supply of affordable housing through its Housing Rehabilitation Loan
Program, First-Time Homebuyer Downpayment Assistance Loan Program and Affordable
Development Programs the City is able to address some of these barriers. And although Salem is
above the threshold of 10 percent affordable housing, the City entertained and approved a friendly
Chapter 40B Comprehensive Permit for the redevelopment of the former St. Joseph's church site.
The existing zoning was a barrier to affordable housing. The City then rezoned the parcel to Central
Development District, allowing mixed use development, as well as increased density and height, thus
eliminating zoning as a barrier, paving the way for the upcoming development of new affordable
rental housing in the Point Neighborhood. In addition, the City Council, with the support of the
DPCD has approved the waiver of permitting fees for at least one affordable housing development
project.
Despite our efforts to help renters become homeowners, there has been a decline in the number of
participants in the First-Time Homebuyer Downpayment Assistance Loan Program. We attribute
this to the number of new homebuyers who, although eligible for our programs, are being denied
loans as a result of tighter standards instituted by lending institutions in response to recently passed
legislation. In addition, the recent foreclosure crisis has created new obstacles to developing and
purchasing affordable housing.
Lead-Based Paint Hazard Reduction
The Salem Board of Health disseminates information regarding the proper disclosure of lead
hazards upon selling or renting a housing unit and inspects rental units for lead paint hazards. In
Salem, a landlord is required to obtain a Certificate of Fitness inspection when an apartment
becomes vacant. Board of Health personnel conduct this inspection enforcing the State Sanitary
Code for Housing. When the information is sent to the landlord prior to this inspection, a letter
describing the Federal law is included, as is a copy of the Tenant Notification Form in English and
Spanish. Also, the Board of Health periodically sends notification of regulations regarding lead-
based paint to area realtors. In addition, Board of Health personnel are trained Lead Determinators.
Should the Board receive a call from a tenant who is concerned that there may be lead-based paint
in his/her apartment, potentially affecting their children under six years of age, the Board is able to
send out a Sanitarian to conduct a Lead Determination. If lead paint is detected, an order is sent to
the landlord requiring compliance with the State Lead Law. The Board ensures compliance with the
order. The State Lead Program is notified of the results of all Lead Determinations.
In cooperation with the State of Massachusetts and other municipal departments, the City of Salem,
through its DPCD, works to decrease the number of housing units containing lead-based paint
hazards. The City, through the DPCD, actively works to reduce lead-paint hazards in pre-1978
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housing occupied by lower-income households through the City of Salem’s Housing Rehabilitation
Loan Program. Through the Salem Housing Rehabilitation Loan and Get the Lead Out Programs,
the City provides loan funds for qualified applicants for lead testing, hazard reduction and
abatement activities, and temporary relocation reimbursements. Lead-based paint hazard control
measures are consistent with the federal Title X requirements and State lead based paint regulations.
MassHousing’s Get the Lead Out Program is also available to homeowners with a lead poisoned
child.
Finally, all participants in the First-Time Homebuyer Downpayment Assistance Loan Program are
given a copy of the EPA brochure Protecting your Family from Lead in Your Home.
Anti-Poverty Strategy
This Anti-Poverty Strategy describes programs and policies the City is supporting in its efforts to
reduce the number of households living below the poverty level. Some public service agency
representatives state that Salem residents in poverty stay in poverty because they lack adequate skills
for better employment opportunities. As a result, they work multiple jobs to pay for housing,
utilities, transportation expenses, and childcare. Providing adequate job training and educational
opportunities will enable them to enter the workforce at a more competitive level.
Salem uses CDBG and other funds to pursue an anti-poverty strategy carried out by the City and a
variety of social service subrecipients. The City’s anti-poverty strategy is comprehensive and it
consists of four components: education, job training, affordable housing and social services. Each of
these components are described at length in the recently completed 5-Year Consolidated Plan.
Managing the Process and Institutional Structure
The DPCD administers the City of Salem’s Community Development Program as well as the
formula funding received by the North Shore HOME Consortium for which the City of Peabody is
the lead agency. Under the direction of the Director of Planning and Community Development, the
Assistant Community Development Director manages and monitors Salem’s community
development programs.
Salem’s housing programs are administered by the DPCD Housing Coordinator under the direction
of the Director of Planning and Community Development. In addition, local non-profit agencies,
CHDOs and CDCs administer certain housing activities. Many housing activities leverage funds
through private lender financing.
City departments undertake certain CDBG-funded activities, such as the tree planting program,
sidewalk replacement, park improvements, street paving and curbcut installation. These departments
may subcontract work under public bidding procedures and provide requests for reimbursement and
any required documentation (i.e. prevailing wage documentation) to the DPCD.
Each year the City of Salem issues a Request for Proposals to nonprofit organizations that offer
social service, housing or economic development programs. CDBG funds are awarded to
organizations that demonstrate programmatic needs and the capacity to administer the proposed
program. The city’s Assistant Community Development Director coordinates the management of
the public service and housing subcontracts and the Economic Development Planner coordinates
the management of the economic development subcontracts.
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In general, DPCD staff carries out the remaining activities, including the hiring of consultants or
other private businesses through established municipal purchasing procedures.
The city’s auditing firm audits Salem’s CDBG program delivery system annually. In addition, HUD
staff conducts periodic reviews and monitorings. The City promptly implements recommendations
arising as a result of these reviews. The DPCD continuously works to improve upon its methods
and procedures for the administration of its programs.
Coordination with Other Organizations
Salem Housing Authority: Although, the city does not currently use its CDBG funds to assist the
Salem Housing Authority, the DPCD coordinates with the Salem Housing Authority to address the
housing needs of Salem’s lower-income residents. While developing its Consolidated Plan, the city
consulted with the SHA to determine the agency’s most pressing needs. In addition, SHA’s
Comprehensive Plan must take into account the findings of the Consolidated Plan and the City of
Salem must certify that the documents are consistent.
The Mayor appoints four of the five Salem Housing Authority (SHA) board members, one of whom
must be a public housing tenant and one of whom must be a member of organized labor. Proposed
development sites or demolition or disposition of existing public housing developments must follow
established regulatory procedures administered by the Building Department, Board of Appeal,
Planning Board, etc.
The Salem Housing Authority serves over 900 participants. The Authority receives over $9 million
in federal funding for its Section 8 Housing Choice Voucher Program and its Federal Public
Housing Program, as well as earns state subsidies. The Salem Housing Authority continues its
mission of preserving and maintaining its stock of decent, safe and sanitary public housing for the
residents of Salem.
Other Organizations: In addition to the SHA, the City of Salem works cooperatively with private
housing providers and private and governmental health, mental health, and service agencies and
other interested parties to implement its Consolidated Plan. To this end, the city administers Salem
H.O.P.E. (Human Organization Partnership Effort), a networking group of human service agencies
that serve Salem residents. It is a free forum for agencies to learn about the services being provided
by other agencies in order to fill in gaps, coordinate efforts and avoid the duplication of services. All
human service agency representatives are invited to attend the quarterly Steering Committee
breakfast meetings held at rotating agency locations. Through this program, agency representatives
are introduced to each other and exchange information, announcements and updates. The strength
in the delivery system of nonprofit services is in the networking, collaboration and coordination
among the agencies. DPCD is responsible for the organization and administration of this effort.
The city also works with nonprofit agencies to administer social service activities. Agencies are urged
to apply to the city for CDBG public services funding to undertake priority programs outlined in the
Consolidated Plan. Additionally, the City of Salem cooperates and coordinates with other public
agencies (and funding sources) to undertake specific activities. Examples include MHFA’s Get the
Lead Out Program and Mass Housing Partnership’s Soft Second Mortgage Program.
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The City of Salem works with the City of Peabody, the lead community for the North Shore HOME
Consortium, to coordinate the implementation of its HOME-funded programs and the ADDI
program. Salem also works with local CHDOs and CDCs to carry out priority activities.
The City of Salem will continue its efforts to coordinate and communicate with other municipal
departments, local and regional agencies, and public and private housing organizations over the next
year. The DPCD will maintain responsibility for coordinating the Salem H.O.P.E. effort and will
communicate regularly with subcontracted agencies delivering social services and subrecipients of
federal funds. We will continue to work with the Salem Housing Authority (SHA), nonprofit
organizations, and housing developers to produce affordable housing in the City. The strength of
these relationships is beneficial in streamlining housing development and leveraging additional funds
for projects.
Monitoring
An overarching goal with all activities undertaken with CDBG and HOME funds is to ensure that
they meet our program objectives. The DPCD monitors all projects to ensure compliance with
applicable Federal, State and local regulations and program requirements. As part of ongoing
monitoring, public service subrecipients submit monthly reports that include income, race and
ethnic information on clients served and programmatic accomplishments. In addition, public
service subrecipients are monitored on-site each year (exceptions are noted in the Monitoring
Plan, which is located in Five Year Consolidated Plan). Affordable housing and economic
development projects undertaken with CDBG or HOME funds are monitored annually for
compliance with affordability requirements, job creation, and/or other programmatic
requirements. All First-Time Homebuyer Downpayment Assistance Loan Program properties
and Housing Rehabilitation Loan Program properties receive on-site inspections. Rehabilitation
projects must meet HQS and current housing codes. All tenant based rental assistance provided
with HOME funds requires an inspection with a HQS report.
The DPCD also annually reviews its performance in meeting its goals and objectives set for in
the Consolidated Plan during the development of the annual CAPER.
Payments to public service agencies are made on a reimbursement basis to ensure compliance with
expenditure requirements. Agencies submitting reimbursement requests must include proof of
expenditure of funds, as well as documentation that the pre-determined benchmark or goal was
attained. The Assistant Community Development Director encourages timely submission of
reimbursement requests by subrecipients and reviews timeliness status weekly until the annual 1.5
draw ratio is met.
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SUMMARY/PROGRAM EVALUATION/CONCLUSIONS
Overall, we made significant progress toward meeting the goals of our 5-year Consolidated Plan and
FY10 Action Plan. We also continued to meet HUD required funding and expenditure caps and
timeliness requirements. The following is a summary of major activities accomplished in FY10:
17 families assisted to purchase their first home in Salem of which 16 were also assisted with
ADDI funds (an additional 12 non-Salem families were assisted with ADDI funds);
14 housing units were renovated, with an additional 7 units underway;
77 households received assistance with first/last month’s rent and/or security deposits;
31 social service programs assisted 11,865 persons, including 1,227 youth and 417 seniors;
4 commercial storefronts improved;
2 businesses provided economic development loans, creating a minimum of 7 new jobs;
17 new businesses opened in the downtown;
Salem Main Streets Program:
o Assisted 5 new and 45 existing micro-enterprises;
o Organized business support workshop entitled "Your New Year’s Resolutions” and
another on using social media for marketing;
o Managed Ice Scream Bowl and 200th birthday of Sophia Peabody Hawthorne events;
o Coordinated Mayor's Night Out;
o Coordinated ribbon cuttings at A Sacred Place Wellness Center, Brothers 99 Cents,
and Glass and Etc.;
o Conducted the Ash Urn Program;
o Produced a holiday window decorating contest, held a Santa's arrival event,
organized holiday caroling, produced a holiday pamphlet, hung 80 live wreaths and
decorated a 30’ tree;
o Managed in information booth during Haunted Happenings;
o Organized Salem So Sweet Chocolate and Ice Sculpture Festival, including
recruitment of sponsors for 16 ice sculptures;
o Implementation of Chocolate and Wine Tasting event;
o Organized Salem Arts Festival;
o Coordinated the first Salem Health and Wellness Week highlighting related
downtown businesses; and,
o Coordinated and expanded upon the highly successful weekly farmers market and
promoted 87 businesses who open late on market night.
Old Town Hall fire safety upgrades completed;
Curbcut replacement undertaken at Church/Washington Streets and installation of
handicapped curb cuts completed in various downtown locations;
Redesign of Congress/Peabody/Ward intersection completed;
Witch House interior handicapped accessibility improvements completed;
New play structure constructed at High Street Playground;
6 trees planted in low-mod neighborhoods;
Tables and chairs purchased for East India Square;
Economic Outlook Study completed; and
5 Year Consolidated Plan completed.
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In summary, we are proud of the accomplishments made in FY10. In addition to completed
projects, several larger projects are well underway and nearing completion. The City met or
exceeded the majority of the goals and objectives laid out in the 5-Year Consolidated Plan and FY10
Action Plan.
We encourage feedback from our citizens in order to improve our efforts to provide decent, safe
and sanitary housing, improved community facilities and infrastructure, needed human services and
expanded economic opportunities, that all work toward revitalizing our neighborhoods and
improving our living environment.
IDIS/CPMP Reporting
All HUD required reporting is up to date and complete.
The DPCD makes minimal use of HUD’s CPMP Tool, submitting with the Action Plan the Needs
and Projects tables only. The activities in Pojects.xls are entered into IDIS and are included in the
Action Plan. These same activities are listed in the CAPER tables found on pages 4, 11 16, 18 and
20, including funds available and funds expended. These activities may included funding from one
or more plan years.
The Financial Summary Grantee Performance Report (Form #4949.3) or the PR26 in IDIS is
recreated in the CAPER in the Appendix.
SUPPLEMENTARY NARRATIVES
In this section, as part of our reporting requirements for HUD, we provide a supplementary
narrative that answers specific questions regarding our program expenditures and activities.
Use of CDBG Funds
In FY10, CDBG expenditures fully complied with the goals and objectives outlined in the FY10
Action Plan and 5-Year Consolidated Plan. More detailed information on the use of these funds can
be found in the Assessment of Five Year Goals and Objectives section of this report.
Changes to Program Objectives
During the program period it may be beneficial to revise the Annual Action Plan in order to reflect
changes in priority needs and goals. There were no revisions undertaken for the FY10 Action Plan.
Each year, during the program period it may be necessary to adjust funds committed to specific
activities. This may include activities that require additional funds, activities that came under budget
and have extra funds or activities that are not longer necessary or feasible whose funds need
reprogramming. Often this is done within the same general category. Adjustments to FY10
funding (over $50,000) include:
Deductions:
Lafayette Park Redesign $ 50,000.00
City Hall Elevator & Handicapped Access $ 109,455.21
Increases:
Housing Rehabilitation Loan Program $106,284.93
Derby/Congress Pedestrian Improvements $ 50,000.00
Geographic Distribution and Location of Investments
Some programs and activities undertaken are available on a citywide basis to income eligible
households. Others are targeted to particular neighborhoods with concentrations of low- and
moderate-income households or to programs that benefit specific populations such as senior
citizens, disabled persons and minorities.
When prioritizing activities, the City pays special attention to those low- and moderate-income
neighborhoods where the greatest needs have been identified and whose public facilities and
infrastructure are in the worst condition. In accordance with CDBG regulations, specific activities,
such as street, sidewalk and playground improvements can only be undertaken in the low- to
moderate-income neighborhoods or the Urban Renewal Districts, with the exception of handicap
access improvements which can be undertaken city-wide.
Recognizing that needs are not solely located in distressed neighborhoods, we also offer programs
that may be accessed by people living outside these areas. For example, the Housing Rehabilitation
Loan Program, First Time Homebuyer Downpayment Assistance Program, and the Small Business
Loan Program are offered citywide to allow any low to moderate-income individual or household to
take advantage of their availability. A geographic distribution map is located in the Appendix.
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Compliance with Planned Actions
In FY10, the City of Salem pursued all resources indicated in its FY10 Action Plan.
Compliance with National Objectives
All CDBG funds budgeted and spent were exclusively focused on furthering the three National
Objectives of the CDBG program. The City also fully complied with overall benefit certification.
Relocation
In FY10, no CDBG funds were spent on projects that required the permanent displacement and/or
relocation of people, businesses, or organizations from occupied property. The program did
provide temporary location assistance through the Housing Rehabilitation Loan Program, per the
DPCD’s current Relocation Policy.
Economic Development Activities
Economic development activities are discussed in the Assessment of Five-Year Goals and
Objectives, Economic Development section of this report.
Limited Clientele Activities
In FY10, the City of Salem funded several activities that served limited clienteles. For example,
funds were expended on 37 public service contracts that primarily served low- and moderate-income
persons. Through the use of family-size/proof of income documentation, it was determined that
more than 51 percent of the people served by these projects met applicable criteria for low- or
moderate-income status. Those activities that were not Limited Clientele Activities were undertaken
in low- to moderate-income designated areas or in one of the designated Urban Renewal Areas.
Program Income
The Financial Summary section of this report documents total program income for the Salem
CDBG Program in FY10. The total program income was $157,343.81.
Rehabilitation Activities
The City of Salem sought to preserve affordable housing in the city by assisting low- and moderate-
income homeowners in rehabilitating their homes through the Housing Rehabilitation Loan
Program. The activities carried out during FY10 are described in the Assessment of Goals and
Objectives, Affordable Housing section of this report.
HUD Neighborhood Revitalization Strategies
Salem had no HUD approved Neighborhood Revitalization Strategies in place during FY10.
Performance Measurement
The DPCD uses several strategies for performance measurement and continues to review and
enhance its performance measurement system. Specifically, Salem has implemented a performance
measurement system in the following program areas:
Public Services - Public service contracts include performance measurement indicators. The annual
CAPERs outline the effectiveness of those measurements. Specifically, the City requires
subcontracted social service agencies to report on the impact of their programs as measured by the
performance indicators. Internally, a spreadsheet is maintained which tracks the receipt of monthly
reports and the status of on-site monitorings. Public service agencies are required to submit
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reimbursement requests that are tied to pre-determined benchmarks or performance outcomes, as
well as proof of expenditure of funds.
Housing Programs - Housing rehabilitation program staff track each project in a formal system that
details project status and loan details. In addition, staff maintain a comprehensive written manual
detailing program procedures and policies. There is also a master loan spreadsheet that tracks all
loan details for the First-Time Homebuyer Downpayment Assistance Loan Program and the
Housing Rehabilitation Program, including period of affordability, discharge dates, rent restrictions
and monitorings. The City monitors HOME-funded rehabilitation projects with rental affordability
restrictions annually for the duration of the affordability period. Housing files contain statutory
checklists, as well as documentation on flood management, wetlands protection, and historic
resources, as applicable.
Economic Development – A quarterly report is provided to the City’s Finance Department on new
loans issued, loan status and loan discharges. Monitoring of job creation is determined by the time
period in the funding Agreement. Monitoring consists of verification that the goals for
low/moderate income jobs to be created and/or retained have been met. A standard monitoring
form is used. The Economic Development Planner follows the Loan Management Policy for review
of existing loans and process to address delinquent, default or uncollectable loans.
Additionally, the City ensures long-term compliance with program requirements, including minority
business outreach and comprehensive planning requirements, in several ways. In particular, the
DPCD has a Monitoring Plan in place that allows the City to track whether long-term goals are
being met, including minority business outreach. As detailed in the Managing the Process and
Institutional Structure section of this document, the City manages its programs to ensure
compliance with identified goals and federal, state and local regulations. The Environmental Review
Record contains statutory checklists, documentation on flood management, wetlands protection,
and prevailing wage documentation, as applicable.
HOME & ADDI Program
As stated previously, the City of Salem is a member of the North Shore HOME Consortium. The
City of Peabody administers the Consortium and maintains all documentation regarding Salem’s
participation.
During FY10, the City of Salem spent $126,384.78 in HOME funds and $308,266.50 in ADDI
funds. HOME Funds were used to help fund the Rental Downpayment Assistance Programs
administered by the North Shore Community Action Program, HAWC and the Salvation Army.
ADDI funds were used to assist eligible first time homebuyers to purchase a home in Salem or other
North Shore HOME Consortium community. The accomplishments of these projects can be found
in the reports submitted by the City of Peabody on behalf of the Consortium.
In June, 2007, the Consortium voted to adopt the federal Energy Star Standards. The
implementation of this new policy for the use of HOME funds began on October 1, 2007. All
new HOME-assisted units are required to be certified as Energy Star compliant whenever either
new construction is involved or where the rehabilitation of an existing structure involves the
gutting of the structure to the bare walls.
FUNDS LEVERAGED
In order to maximize the benefits achieved by Salem’s community development programs and in
order to make projects feasible, CDBG, HOME and ADDI funds often must be combined with
other funding sources. The following chart summarizes the amount of federal dollars spent during
FY10 and the funds leveraged through these expenditures.
Table 8: FY10 Funds Leveraged
Program CDBG
Expenditures
HOME & ADDI
Expenditures
Funds from Other
Sources
Housing Programs (includes non-
Salem ADDI assisted homebuyers) $559,081 $410,347 $5,117,255
Public Services $190,326 -$3,278,287
Economic Development $165,076 -$899,239
Neighborhood Improvements 4 $656,958 -$2,511,087
Planning & Administration $255,503 -$301,764
TOTAL FY10 $1,826,944 $410,347 $12,107,632
TOTAL FUNDS LEVERAGED PER HUD DOLLAR IN FY10: $5.41
Listed below is a summary of the funds leveraged and reported in the table above:
Housing
For the First Time Homebuyer Program (includes CDBG, HOME and Salem and non-Salem
homebuyers assisted with ADDI), homebuyers provided $628,106.82 in matching funds as well
as obtained $4,488,048 in financing from a primary lender, which amounted to a total leveraged
of $5,116,154.82.
The rehabilitation program leveraged $1,100 in homeowner funds.
Economic Development:
The Salem Main Streets Program leveraged $22,500 in corporate contributions, a $1,500 Salem
cultural Council Grant, a $2,500 DTA grant for SNAP program at the Farmer’s Market, $700 in
charitable donations and $24,000 in income (Farmer’s Market vendor fees and fundraiser, Salem
So Sweet Festival, Salem Arts Festival, Ice Scream Bowl and the sale of reusable tote bags.
This year’s Business Loan Program leveraged $165,000 in local loan funds, $9,000 in private
funds and $653,500 in other financing.
The Storefront Improvement Program leveraged $20,538.60 in private dollars.
4 Includes Section 108 loan payment as a CDBG expense and includes CDBG-R as leveraged funds.
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Neighborhood Improvements:
CDBG funds for the South River Harbor Park project are used as a match toward $1,336,000 in
design and construction grant funds from the State Seaport Advisory Council.
The City Hall Handicapped Access project leveraged $305,977 in American Recovery and
Reinvestment Act funds (or CDBG-R).
The Peabody Street Park is leveraging $200,000 from the Environmental Protection Agency and
$469,110 in Urban Self Help grant funds.
The Congress/Peabody/Ward intersection improvements leveraged $200,000 from the
Environmental Protection Agency.
Planning & Administration:
Planning and administration funds leveraged $245,078.48 in City funds and $56,685.47 in State
Seaport Advisory Council funds.
Public Services:
Most of the public service agencies funded use CDBG funds as a portion of their overall activity
budgets. Based on leveraged funds reports provided by each agency at the end of the program
year, the amount leveraged is $3,278,286.68.
Note: Leveraged funds for multi-year projects may be repeated within more than one year’s
CAPERs. Leveraged funds are only included for projects of which CDBG funds were expended
during the fiscal year
Salem Access Television Youth In Action Program
where youth learn video production.
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CITIZEN PARTICIPATION SUMMARY
The goals and purpose of the Citizen Participation Plan is to encourage residents, agencies, and
other interested parties to participate in the development of our 5-Year Consolidated Plan and
Annual Action Plans and to comment on our accomplishments. The strength of our programs
comes from the high number of volunteers that inform our decisions.
The Citizen Participation Plan included in the 5-Year Consolidated Plan is the framework we used
to solicit public comment, as well as to provide guidance on our response to citizens’ comments on
our programs throughout the year.
Public Comment Period
Copies of the FY10 CAPER were made available to the public throughout the 15-day comment
period and every effort was made to solicit citizens’ comments including posting the availability of
the report in the Salem Evening News, the City Clerk’s Office, Public Library, Salem Housing
Authority, the City Hall Annex and on the City’s website. Copies were available for review at the
DPCD, Salem Public Library and Salem Housing Authority and on the City’s website (a copy of
which was available for download).
One letter from the public was received, which included three comments:
A concern over the number of double telephone poles in the Endicott Street neighborhood;
o Massachusetts has legislation pending that would require distribution or telephone
companies to remove existing poles, when installing new poles, within 180 days from
the date of installation or be subject to specific fines based on the number of days of
failure to remove (Senate, No. 2546, new draft of Senate, No. 1482).
A comment that paving of neighborhood streets is important to quality of life; and
o The City of Salem concurs that street paving is important. Street paving is
undertaken annually, both with CDBG and non-CDBG funds, and streets to be
paved are given priority as determined by the Department of Public Works based on
those that are in worse condition.
A thank you to the city for its leadership in improving High Street Playground and a desire
to add a permanent recycling container within the playground, as well as having a permanent
motion detector/photographer device in the playground rather than the current part-time record
device.
o The DPCD is working with the Department of Public Works to determine feasibility
of adding a permanent recycling container at the playground
o The motion-activated photographic device is a mobile unit which can be located in
priority areas as determined by the Salem Police Department. An inquiry with the
SPD has determined that there are no plans to move it from the playground location
at this time.
APPENDIX
Financial Summary
Progress of Consolidated Plan 5-Year Goals
IDIS PR03 Excerpts - Persons Served by Income
(This table is not included in the digital PDF. Please contact the DPCD for copies)
IDIS Report PR23 Excerpts
Total CDBG Beneficiaries by Racial/Ethnic Category
CDBG Beneficiaries by Income Category
Maps
Section 3 Reports
(These reports are not included in the digital PDF. Please contact the DPCD for copies)
CITY OF SALEM – FINANCIAL SUMMARY
FY10 Consolidated Annual Performance and Evaluation Report
1 Summary of CDBG Resources
2 FY09 End of Year LOC Balance $ 1,338,980.60
3 FY10 CDBG Entitlement $ 1,144,965.00
4 Program Income, FY10 $ 157,343.81*
5 Total CDBG funds available for use in FY10 $ 2,641,289.41
6 Summary of CDBG Expenditures
7 Affordable Housing $ 559,081.17
8 Public Services $ 190,325.61
9 Neighborhood Improvements (not including CDBG-R) $ 612,596.11
10 Economic Development $ 165,075.71
11 Program Administration $ 255,503.22
12 Section 108 Repayment (in CAPER narratives under neighborhood improvements) $ 44,362.50
13 Total Expenditures $ 1,826,944.32
14 Year-End CDBG Resources
15 Total CDBG funds available for use in FY10 $ 2,641,289.41
16 Total Expenditures in FY10 $ 1,826,944.32
17 Unexpended Balance (CDBG Budget) $ 814,345.09
18 *LOC = Balance of Funds in City’s Letter of Credit with U.S. Treasury
19 Low/Mod Credit
20 Total FY10 CDBG Expenditures $ 1,826,944.32
21 Total for Program Administration $ 255,503.22
22 Total for Section 108 Repayments $ 44,362.50
23 Total subject to Low/Mod Benefit Calculation $ 1,527,078.60
24 L/M Credit for multi-unit housing $ 277,130.05
25 L/M Credit for other activities $ 985,624.19
26 Percent of benefit to low/mod persons 82.69%
27 Public Services Cap Calculation
28 Net obligations for FY10 Public Services Act. $ 193,008.26
29 FY10 Entitlement + FY09 Program Income $ 1,287,058.50
30 Percent obligated for FY08 PS Activities 14.996%
FINANCIAL SUMMARY
31 Planning and Program Administration Cap Calculation
32 FY10 Entitlement + FY10 Program Income $ 1,300,403.72
33 Net Obligations for Planning/Admin. Activities $ 255,503.22
34 Percent of funds expended 19.49%
35 HOME Summary
36 HOME Project Expenditures $ 115,508.28
37 Salem HOME Administration $ 10,876.00
38 Total HOME Expenditures $ 126,384.78
39 ADDI Summary
40 ADDI Project Expenditures (includes non-Salem households assisted) $ 265,205.00
41 ADDI Administration $ 18,757.50
42 Total ADDI Expenditures $ 283,962.50
43 CDBG-R Summary
44 CDBG-R Expenditures $ 305,977.00
45 Total CDBG-R Expenditures $ 305,977.00
*Note: Program income of -$6,042.64 entered into IDIS in FY10 was reported in the FY09 CAPER. Program
income of +$7,947.73 entered into IDIS in FY11 is being reported in this CAPER (FY10). Therefore the net
adjustment to compute total program income is +$1,905.09.
PROGRESS OF CONSOLIDATED PLAN 5-YEAR GOALS CDBG funds unless otherwise noted Category 5 Year Goals 5 Year ProposedYear 1 FY05/06Year 2 FY06/07Year 3 FY07/08Year 4 FY08/09Year 5 FY09/10TOTAL Housing 15 Housing Development Units - 50 Palmer (9 renter, 6 owner) 15 0 0 15 0 0 15 21 Units Permanent Supportive Housing - Salem Mission (HOME)21 0 0 22 0 0 22 55 Units Housing Rehabilitation (CDBG/HOME) Salem Harbor CDC renovation project61 0 0 0 0 55 10 19 7 9 115 Housing Rehabilitation Loan Program (housing units)9 75 Direct homeownership assistance 75 17 20 7 9 17 70 215 Rental Housing subsidies (HOME) 215 99 45 39 56 88 327 Acquisition for rehabilitation - (18 Crombie St., 1 Harrison) 1 1 0 0 1 0 2 10 Commercial building acquisition, construction, rehabilitation 10 2 13 5 4 4 28 Economic Development 30 Direct Financial Assistance for For-Profits 30 2 1 1 3 2 9 1 Technical Assistance 1 1 1 1 1 1 5 70 Micro-enterprise assistance 70 22 27 9 15 50 123 1 Public Facility and Improvements General (Peabody St. Wall, Pioneer Terrace Guardrail, Old Town Hall, Congress/Peabody/Ward) 1 0 2 0 0 2 4 Public Facilities & Improvements 2 parks/playgrounds - High St.(2) & Palmer Cove Playgrounds 2 0 0 0 2 1 3 175 Trees planted 175 66 109 26 30 6 237 1 Senior Center 1 0 0 0 0 0 0 1 Parking Facility 1 0 0 0 0 0 0 20 Street/sidewalk improvements 20 5 12 12 3 2 34 1 Flood drain improvements 1 0 0 0 0 0 0 1 Water/sewer improvement 1 0 0 0 0 0 0 1 Fire Stations improved (Loring Ave.) 1 0 0 1 0 0 1 1 Clean up of contaminated sites (Flynntan, Szetela Lane) 1 2 0 0 0 0 2 1 Urban Renewal Completion (pedestrian mall improvements) 1 1 0 0 1 1 3 1 Removal of architectural barriers – Pioneer Village, Witch House (interior & exterior) 1 0 1 0 1 1 3 1 non-residential historic preservation 1 0 0 0 0 0 0 Public Services 42,000 persons assisted 42000 11839 6869 14238 10802 11865 55613
PR23 Excerpt - CDBG Beneficiaries by Racial / Ethnic Category Housing-Non Housing Race Metrics Total PersonsTotal Hispanic PersonsTotal HouseholdsTotal Hispanic HouseholdsWhite 00403 Black/African American 0030Housing Total 00433 White 35,0431,98100 Black/African American 2,9171,58700 Asian 7211600 American Indian/Alaskan Native 1034800 Native Hawaiian/Other Pacific Islander 24800 American Indian/Alaskan Native & White 92600 Asian & White 91900 Black/African American & White 2653700 Amer. Indian/Alaskan Native & Black/African Amer. 392800 Other multi-racial 3,1012,62500Non Housing Total 42,3966,34500 White 35,0431,981403 Black/African American 2,9171,58730 Asian 7211600 American Indian/Alaskan Native 1034800 Native Hawaiian/Other Pacific Islander 24800 American Indian/Alaskan Native & White 92600 Asian & White 91900 Black/African American & White 2653700 Amer. Indian/Alaskan Native & Black/African Amer. 392800 Other multi-racial 3,1012,62500Total Total 42,3966,345433
PR23 Excerpt - CDBG Beneficiaries by Income Category Income Levels Metrics Owner OccupiedRenter Occupied Persons Extremely Low (<=30%) 73 0 Low (>30% and <=50%) 66 0 Mod (>50% and <=80%) 201 0 Total Low-Mod 3310 0 Non Low-Mod (>80%) 00 0 Housing Total Beneficiaries 3310 0 Extremely Low (<=30%) 00 6,973 Low (>30% and <=50%) 00 34,343 Mod (>50% and <=80%) 00 990 Total Low-Mod 00 42,306 Non Low-Mod (>80%) 00 90 Non Housing Total Beneficiaries 00 42,396
MAPS
Low to Moderate Income Areas with Urban Renewal (SRA) boundaries and Ward boundaries. For a digital
version of the map go to http://salem.com/Pages/SalemMA_WebDocs/lma.pdf.
Geographic Distribution of Entitlement Funds Expended FY10