FY20 CAPER EXECUTIVE SUMMARY- DECEMBER 2020
FY20 COMPANION
to, and
CONSOLIDATED ANNUAL PERFORMANCE
AND EVALUATION REPORT
(CAPER)
CITY OF SALEM, MASSACHUSETTS
Fiscal Year 2020
July 1, 2019 to June 30, 2020
Kimberley Driscoll, Mayor
Tom Daniel, AICP, DPCD Director
Jane A. Guy, Assistant Community Development Director
i
For both the FY20 Companion and FY20 CAPER
FY20 COMPANION
INTRODUCTION ................................................................................................................................................. iii
EXECUTIVE SUMMARY ...................................................................................................................................... iv
Affordable Housing Programs ................................................................................................................ v
Public Services ......................................................................................................................................... vii
Economic Development ........................................................................................................................ xii
Neighborhood Improvements ............................................................................................................. xvi
Planning & Administration .................................................................................................................. xvii
FY20 CAPER
CAPER Narratives in IDIS
CR-05 - Goals & Outcomes .................................................................................................................... 1
CR-10 - Racial and Ethnic composition of families assisted .............................................................. 7
CR-15 - Resources and Investments ...................................................................................................... 8
CR-20 - Affordable Housing ................................................................................................................. 12
CR-25 - Homeless and Other Special Needs ...................................................................................... 15
CR-30 - Public Housing ......................................................................................................................... 19
CR-35 - Other Actions ........................................................................................................................... 21
CR-40 - Monitoring ................................................................................................................................. 28
CR-45 - CDBG ........................................................................................................................................ 30
Appendix
Financial Summary PR26
Please note: In last year’s CAPER, Line 14 and 40 included the reduction of $1118.25 (Act.
ID # 1679) in expenditures due to having been drawn down twice. This funding has been
returned to the line of credit during FY20 (Line 6) and deducted in Line 14 and Line 40. In
addition, IDIS Act. ID #1533, 1673, 1674, 1676 and 1677 in voucher #6281967 should
have been under prior year. This adjustment was made in Line 14. 1673, 1677 and 1679
adjustments are also reflected in Line 40.
Maps
Low to Moderate Income Areas
Geographic Distribution of Entitlement Funds Expended FY20
Section 3 Report
CAPER finalization date – 12/16/20
Cover photo: Splaine Park Rope Climbing Structure
TABLE OF CONTENTS
ii
INTRODUCTION
The overarching goal of the City of Salem is to provide a healthy, affordable, accessible and welcoming
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) and Home Investment Partnership Program
(HOME)—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-income1.
HOME is a formula-based program for expanding and improving the supply of decent, safe
and affordable housing for low- and moderate-income persons.
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 homel ess,
and prevent homelessness.
Throughout the many years of the City of Salem’s CDBG program, 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 non-profit community partners.
Consolidated Plan, Annual Action Plan, and CAPER
A Consolidated Plan for Housing and Community Development (Consolidated Plan) must be
prepared every five years for a community to receive CDBG and HOME funds from HUD. The
Consolidated Plan is a comprehensive analysis and evaluation of a community’s needs which is used
to identify goals and objectives and to establish a vision for attaining a higher quality of life for low-
and moderate-income residents. Prior to the start of each fiscal year within the five-year Consolidated
Plan period, an Annual Action Plan must be prepared which lists the specific activities that will be
undertaken, utilizing CDBG and HOME funds, that will work toward accomplishing the 5-year vision.
The Consolidated Annual Performance and Evaluation Report (CAPER) must also be prepared
annually as a mechanism for reporting accomplishments of the funded activities and to measure the
success in achieving the vision, goals and objectives identified in the Consolidated Plan.
Salem’s 5-Year Consolidated Plan - Fiscal Years 2016-2020 (FY16-20) - began on July 1, 2015 and
ended on June 20, 2020.
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.
1 Low- to moderate- income individuals equals less than 50 or 80 percent of the Boston area median income respectively.
iii
Salem’s FY20 CAPER provides an analysis of the fifth fiscal year - July 1, 2019 through June 30, 20202
- of the City’s 5-Year Consolidated Plan completed in 2015. This report is an opportunity to
demonstrate our progress and the accomplishments produced by the City of Salem and its community
partners, to 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 its low- and moderate-income residents. In
this report, we included the information from HUD’s online Integrated Disbursement and
Information System (IDIS) to fulfill HUD requirements, as well as information that may be of interest
to our residents.
The CDBG entitlement funds from HUD for the fiscal year were $1,065,891 and program income
received during FY20 was $96,743.77. Our HOME funding allocation was $145,619. We also used any
available carried over CDBG and HOME funds from prior years.
We expended a total of
$1,070,708.27 in CDBG
funds. We met all
timeliness requirements
and program
expenditures were
consistent with our 5-
Year Consolidated Plan
and FY20 Action Plan
goals. Public Service
programs were just
below the 15 percent
maximum allowable for
such activities, and we
did not exceed the 20
percent administration
spending cap.
In addition to CDBG funds, the DPCD also spent $139,584.22 in HOME funds to undertake additional
affordable housing activities. The City of Salem is a member of the North Shore HOME Consortium
and the specific accomplishments of HOME activities are reported to HUD through the Consortium
by the City of Peabody. However, a summary of our activities is reported within this document. $4369
was expended for HOME administration.
During FY20, the DPCD continued to make significant progress toward meeting the goals and
objectives laid out in the 5-Year Consolidated Plan and FY20 Action Plan. The following is a summary
of accomplishments for each of our program areas – Affordable Housing, Public Services, Economic
Development, Neighborhood Improvements and Planning & Administration. In the Financial
Summary tables found in each program area, “funding available” indicates the total CDBG funds
available during the fiscal year, including FY20 and prior year carried over funds+/- any adjustments
made during the year. Status is as of June 30, 2020.
2 HUD refers to Salem’s FY20 as Program Year 2019 (the funding source year).
EXECUTIVE SUMMARY
Affordable
Housing
25%
Neighborhood
Improvements
24%
Economic
Development
24%
Planning &
Administration
14%
Public Services
13%
FY20 CDBG & HOME Expenditures by Category
Fig. 1 FY20 Spending by Category,
as a Percentage of Total CDBG & HOME Expenditures
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EXECUTIVE SUMMARY - AFFORDABLE HOUSING PROGRAMS
Salem has a number of services that
address affordable 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 FY20, Salem spent
$309,511.69 in CDBG and HOME
funds on affordable housing projects
and programs. Of this CDBG funds
spent totaled $165,558.47.
Table 1: FY20 Housing Financial Summary
Project Project Description Funding
Available Status
Housing
Rehabilitation
Loan
Program
Provides technical and financial assistance
to help LMI homeowners and landlords
make needed improvements to their
properties.
$194,581.19
CDBG (FY20
& carried over)
$89,880.50 CDBG funds
spent
5 units improved (5
properties)
1 public facility improved (10
units)
First Time
Homebuyer
Program
Provides 0% interest deferred payment
loans to LMI families purchasing a home
in Salem.
$14,855 CDBG $7,150 CDBG funds spent
1 unit assisted
Rental
Assistance
Programs
Funds are used to help low- and extremely
low-income Salem residents move into
decent, affordable rental units and for
high risk homeless persons to be placed
into housing with supports.
$208,858.57
FY20 and
carried over
open HOME
Contracts
$139,584.22 HOME funds
spent
37 households assisted
Affordable
Housing
Development
Funding pool for pre-development,
acquisition and/or projects with
rehabilitation of affordable housing units
(at or below 80% of AMI) by non-profit
housing developers and/or CHDO’s.
$50,000
CDBG $0 funds spent
Housing
Program
Delivery
Costs associated with providing
rehabilitation programs & inspectional
services.
$90,260.85
(FY20 &
carried over)
$4,369 HOME
$68,527.97 in CDBG funds &
$4,369 in HOME admin funds
spent for housing program
delivery & inspectional services
including lead inspection.
HOME Program
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,
including accomplishments in Integrated Disbursement and Information System (IDIS) – HUD’s on-
Before & after chair lift
installation in senior, disabled
household through the Housing
Rehabilitation Loan Program.
v
line reporting program. The Housing Coordinator and/or the Assistant Development Director attend
regular meetings of the North Shore HOME Consortium.
During FY20, the City of Salem spent $144,223.22 in HOME funds. $110,056.22 in HOME funds were
used to fund Tenant Based Rental Assistance Programs which targeted high risk homeless individuals,
through a housing first model. North Shore Community Action Programs provided 14 individuals
with temporary rental assistance (12-24 months), along with support services. In addition, $29,528 in
carried over funds was spent through the Rental Downpayment Assistance Program to assist low- and
extremely low-income Salem households to help pay first and last month’s rents and security deposits
to enable them to secure decent, affordable housing. The program is an important tool for helping
families with the costs of moving into a decent apartment. Assisted were 23 families through existing
contracts with North Shore Community Action Program, Inc.
Additional HOME funds have been committed to affordable housing projects with North Shore
CDC, which are still in early planning stages.
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. Housing
staff are also able to offer assistance to families threatened with the possibility of foreclosure.
Foreclosure can result in families being displaced from their home and can also result in increased
demand for affordable rental units by both the former homeowner and by any displaced tenants.
Salem continues to fund Rental Downpayment Assistance programs at NSCAP and Citizens for
Adequate Housing to provide first/last month’s rent and security which can be used by displaced
families.
Foreclosure can also result in vacant buildings, which can have a deteriorating effect on
neighborhoods. In an effort to re-occupy and repair foreclosed properties, 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
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. As part of the
Housing Rehabilitation Loan 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.
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EXECUTIVE SUMMARY - 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
FY20, 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 FY20
Action Plan. Public service projects funded
during FY20 were selected using a Request for Proposals (RFP) process. All awards are made to non-
profit agencies or city departments to carry out the programs.
According to HUD regulations, we are allowed to commit up to 15 percent of our CDBG allocation to
public service activities. We are fortunate to have an excellent network of public service providers that
utilize our funds to best meet community needs, which is why we continue to spend just under that
limit. These public service activities provide direct benefit to our low- and moderate-income residents;
therefore, it is important to continue funding at this level.
In FY20, we were able to expend $154,680.08 on 33 open public service contracts (27 new, 6carried
over), which, in turn, assisted 7,325 people, including at least 763 youth and 374 seniors. All contracts
with funds remaining are carried over to FY21.
Table2: FY20 Public Services Financial Summary
Agency
CDBG
Funding
Available
CDBG
Funds
Spent
Number
Assisted Program Impact
Aspire Developmental Services,
Inc.
Early Intervention Toddler Groups
$5,000.00 $5,000.00 72 youth
For children with physical and
developmental disabilities to attend
integrated developmental play
groups. Of the 72 assisted, 42
remain with Aspire, 16 went on to
pre-schoool, 11 transitioned to LEA
public school and 3 are unknown or
at home.
Boys & Girls Club Power Hour
Program $5,000.00 $5,000.00 265 youth
Provided daily one on one
homework help on weekdays for
four months at Collins Middle
School, Saltonstall School and
Tabernacle Church, where the Boys
and Girls Club has after-school
programs..
North Shore CDC English Language Class
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Agency
CDBG
Funding
Available
CDBG
Funds
Spent
Number
Assisted Program Impact
Catholic Charities
Homeless Prevention Program $9,750.00 $9,750.00 31 persons
Assisted 12 households with
avoiding eviction and homelessness
through payment of rental
arrearages to landlords. Each
household also received budget
counseling, information and referral
and advocacy when needed.
Citizens, Inc./Haven From Hunger
Food Pantry $9,000.00 $9,000.00 1059
persons
Provided food to 309 Salem
families, July, 2019-October, 2019,
for a total of 3542 visits to the food
pantry.
Disability Resource Center $4,800.00 $4,800.00
34 disabled
persons/
households
Provided independent living and
housing services, including a
housing forum on Accessible,
Affordable and Available Housing.
The also hosted 8 Housing Options
workshops and the agency assisted
with CHAMP, Section 8 and
Universal applications.
H.A.W.C.
Children’s Program $9,000.00 $9,000.00 62 persons
Provided a Creative Coping and a
Domestic Violence 101 Support
Groups for the adults and children
at the shelter.
Inversant
Salem Families College Savings
Program
$7,000.00 $0 12 youth
Through January, 2020 beneficiaries
participated in monthly learning
circles. Beginning February, 2020,
1:1 calls and virtual appointments
with families of seniors were held.
Due to COVID-19, 0 students
completed the program
requirements, saved the minimum
required and enrolled in higher
education. CDBG funds will be
rolled over to FY21.
LEAP for Education $9,000.00 $9,000.00 70 youth
Provided assistance to high school
students grades 9-12, including
meeting with students in college
success classes 3 hours per week for
32 weeks, as well students who
attended the Teen Center for
homework help, life skills and career
and community services. In March,
2020, staff adapted lessons and all
classes were held virtually. 13 high
school seniors submitted college and
financial aid applications and are
continuing their post-secondary
education in Fall, 2020.
viii
Agency
CDBG
Funding
Available
CDBG
Funds
Spent
Number
Assisted Program Impact
Lifebridge
Medical Support Services $9,000.00 $9,000.00 253 persons
Provided assessment and triage,
diabetic monitoring, basic first aid,
health education services,
understanding illness, symptom
management, medication, referrals
to medical, mental health, substance
abuse and social service providers,
communication with health and
social service providers to promote
continuity of care and provide
advocacy. 696 health assessments
were completed by the Lifebridge
nurse between September, 2019 and
January, 2020.
NSCAP
Homeless Prevention Program $9,750.00 $9,750.00 23 persons
Assisted 9 households with rent
assistance to prevent eviction and
homelessness.
North Shore CDC
Family Stability Program
$5,000.00 $5,000.00 313 persons
Provided 256 English Language
classes for 12 hours per week. In
April, classes were moved to virtual
and another 40 classes were held.
Free tax preparation services were
provided for 9 hours per 9 weeks.
56 career counseling appointments
and 327 financial literacy
appointments were provided,
including a financial workshop in
which 7 clients attended.
North Shore Community Health $9,900.00 $9,602.46
34
homeless
persons
Provided services to homeless
individuals. Individuals were
referred to in-house behavioral
health, were established with
primary care services, referred to
restart MAT treatment, RNCM
services for medication
management, referred to
community health worker for
assistance with food insecurity or
SDOH needs, housing assistance,
medication management, received
health assessments and/or enrolled
services/depression screening.
North Shore Moving Market $4,500.00 $4,500.00 118 persons
Provided monthly deliveries of food
to elderly, disabled and
disadvantaged households.
Approximately 334 deliveries were
made between July and November,
2019.
Open Door Immigration $5,000.00 $4,139.61 19 persons
Provided citizenship classes
(including class books and
citizenship/naturalization study
guides), consultations and legal
services.
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Agency
CDBG
Funding
Available
CDBG
Funds
Spent
Number
Assisted Program Impact
Salem Park & Recreation
Park Enrichment Programs $7,700.00 $3,700.00 63 youth
Provided free programming for
school age children at Charlotte
Forten, Memorial and Palmer Cove
parks during July and August, 2019.
Activities included art workshops,
girls basketball, boys lacrosse,
volleyball, hip hop, yoga &
meditation and beginners guitar.
Salem Community Child Care $9,000.00 $9,000.00 14 youth
Provided child care weekdays during
school hours, during school closures
and during summer vacations.
Salem Council on Aging
Art Program $2,710.37 $2,021.31 19 seniors
Provided art classes for seniors,
which included sketching, drawing
and watercolor and acrylic painting.
Salem Council on Aging
Exercise Program $2,355.00 $3,911.88 35 seniors
Held weekly classes with an average
of 15-20 senior citizens and disabled
residents. The class provides body
conditioning to enhance strength,
balance, coordination and
endurance. Beginning May, 2020,
classes were held virtually through
Zoom.
Salem Council on Aging
Transportation Program $14,966.90 $14,966.90 320 seniors
Drivers provided rides to the
following: 6517 to the Community
Life Center, 5025 medical, 1967
shopping, 71 events, 166
barber/hairdresser, 207 library, 192
bank, 167 volunteer/employment,
215 YMCA and 140 other rides.
Salem Police Department
Bicycle and Walk/Ride Patrols $18,000.00 $9,000.00 4,120
persons
Provided targeted teamed bike
patrols in the Point Neighborhood,
concentrating on community
policing, interacting with the public,
and addressing crime and disorder,
loiterers, drug interaction and other
quality of life issues.
Salem Public Schools Teacher
Home Visits $7,500.00 $0 75 youth
Conducted teacher home visits with
Bentley and New Liberty
Innovation Schools students'
families in order to build trusting
relationships. Funding to be carried
over to FY21.
Salem YMCA
School Age Child Care Program $9,000.00 $9,000.00 182 youth
Provided childcare with curriculum
based instruction, enrichment
activities, swimming & field trips.
Salvation Army
Homeless Prevention $4,667.92 $2,046.76 13 persons
Assisted 5 households with
homelessness prevention (rent
arrearage).
Salvation Army
Winter Cot Program $4,500.00 $346.16 12 persons
Overnight cots were provided in
January, 2020 for two nights of
emergency shelter from dangerously
cold weather.
x
Agency
CDBG
Funding
Available
CDBG
Funds
Spent
Number
Assisted Program Impact
V.O.C.E.S.
Hispanic Education Program $5,000.00 $5,000.00 98 persons
July, 2019 through March, 2020
provided GED and Citizenship
classes, averaging 17 classes per
month. Approximately 55 persons
will either test for citizenship or test
for GED.
Wellspring House
MediClerk Program $4,500.00 $4,500.00 9 persons
Provided 3 sessions of the
MediClerk program, which included
medical terminology, medical office
procedures, goal setting, computer
skills, business communication,
keyboarding and applied skills lab.
4 of the 9 graduates found full time
jobs in North Shore Physician
Group offices (part of North Shore
Medical Center) or with similar
employers. Of the remaining 5, one
is enrolled at North Shore
Community College as a radiation
tech and the other 4 are not yet
working due to COVID-19.
TOTAL PERSONS ASSISTED 7,325 people, including at least 763 youth and 374 seniors
Park & Recreation Art Workshop
at Charlotte Forten Park
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EXECUTIVE SUMMARY - ECONOMIC DEVELOPMENT
The City of Salem is dedicated to economic
development through efforts to stimulate our local
economy, revitalize the downtown and
neighborhood commercial districts, improve
exterior building façades, and assist local business
owners. This focus brings new employers and new
jobs to the city, while retaining jobs by helping
existing businesses improve their commercial
infrastructure or expand their operations. During
FY20, several new businesses opened, bringing new
goods and services locally. Salem has also seen a
surge of redevelopment in the past few years. The
increased development brings vitality to the
downtown and, in the process, improves and stabilizes neighborhood business districts. Improved
vitality in our neighborhood and downtown commercial districts also has the residual effect of
improving public safety.
Salem’s unemployment rate in June 2020 was 20.4%, a significant increase from the 3.1%
unemployment rate in March, 2020 or the 3.2% unemployment rate from the prior June (2019), which
was down from 3.9% in June, 2018 and down from 4.0% in June, 2017. The increase in
unemployment can be attributed to the COVID-19 pandemic and the resulting shut down of the
Commonwealth in March 2020.
In response to the COVID-19 pandemic, Salem reprogrammed unencumbered CDBG funds to
initiate a Microenterprise and Small Business Grant Program to provide relief grants of up
to $10,000 to be used to offset the negative business impacts of the COVID-19 pandemic. The
program was open to for-profit Salem businesses with a brick and mortar location. The program
provided short-term working capital assistance to support businesses and retain jobs during the severe
economic interruption caused by the COVID-19 pandemic.
Table 3: FY20 Economic Development Financial Summary
Program Description
CDBG
Funding
Available
Status
Microenterprise and Small
Business Grant Program
for COVID-19 relief.
Provides grant funding to be used to
offset payroll costs, rent and
mortgage payments, utilities, and loss
of inventory due to mandatory
closures for microenterprise and
small businesses.
$66,000.00
$61,000 spent
13 businesses assisted
6 microenterprises
7 jobs created or
retained (6 full-time
equivalent)
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.
$51,785.00
$51,785 CDBG spent
1 business assisted with
moving to Salem to
enable the expansion of
the business. 3 full-time
LMI jobs retained, 2
part-time LMI jobs
retained, and 4 part-
Salem’s historic court houses, primed for redevelopment
xii
time LMI jobs created
(total 6 FTE)
Monitoring completed
on an existing loan,
resulting in 2 new full-
time LMI jobs.
Program Description
CDBG
Funding
Available Status
Business
Technical
Assistance
Salem Main
Streets
Program
Provides commercial district
revitalization through organization,
promotion, economic restructuring
and design.
$35,000.00
$35,000 CDBG spent
5 new full/part-time
jobs documented (4
FTE)
Assisted 1 new, 24
existing and 7
prospective businesses
(including 15 micro-
enterprises and 3
expanding or
relocating businesses)
Business
Technical
Assistance
North Shore
CDC Small
Business
Engagement
Program
Serves minority entrepreneurs with
business workshops, mentoring
sessions, networking groups and
referrals to partner agencies. The
program will assist the development
and growth of immigrant-owned
businesses that provide products and
services to the Point Neighborhood.
$62,850.75
$46,658.90 spent
3 new full-time jobs
documented
Assisted 25 existing and
3 prospective
businesses (including 26
micro-enterprises and 2
expanding business)
Economic
Development
Program
Delivery
Costs associated with providing
Economic Development programs
and administration of the Salem
Redevelopment Authority.
$94,362.80
$94,362.80 CDBG
spent
(see description below)
In total, $288,806.70 in CDBG funds was spent during the program period for economic development
activities, including technical assistance provided by the City of Salem’s Economic Development (ED)
Planner, who administers the City’s financial assistance programs, undertakes numerous economic
development initiatives and provides administration to the Salem Redevelopment Authority, which
oversees the Urban Renewal Area.
Technical assistance is provided to potential, new and existing businesses including micro-
enterprises, located in the downtown, Point Neighborhood and other commercial areas, and
includes:
Working with businesses on business locations, business expansion;
Exploration and development of tax increment financing agreements;
Liaising with state economic development agencies to provide businesses with access to tax
credits and other incentives;
Coordinating the development of neighborhood and economic development plans;
Acting as a liaison between businesses and the Salem Redevelopment Authority, including
processing of applications and attending meetings;
Managing the North Shore CDC Small Business Initiative contract;
xiii
Managing the Salem Main Streets contract; and,
Managing Small Business Financial Assistance Programs
o Small Business Loan Program – Work with businesses to submit applications, underwriting,
loan documents, job monitoring
o Storefront Improvement Program (to undertake exterior improvements, building code
improvements and purchase of signage for businesses in the Urban Renewal Area and LMI
neighborhoods).
During FY20, DPCD’s Economic Development Planner worked on several significant redevelopment
projects, including:
The approval of 37 projects including, but not limited to, installation of signs, public art
installations, and façade/building renovations proposed within Salem’s Urban Renewal Area. The
ED Planner worked with applicants on all required information needed for Board submissions
and ultimate approvals.
Coordination with the Public Art Planner on Mural Slam, held for a fifth year. The slam is a three-
day event where selected artists paint work on plywood boards mounted on the back of stalls at
Salem’s Artists’ Row. The event was held during the Salem Arts Festival and the pieces remain in
place until the following year’s Mural Slam.
Coordination with Salem Main Streets on storefront improvement initiatives and technical
assistance to downtown businesses.
Served as the City’s point-of-contact for business inquiries: assisted new businesses in finding
locations, provided information on financing and options for raising capital, and served as a
referral to other business development agencies like Salem Main Streets, the Salem Chamber of
Commerce, the Enterprise Center, MassDevelopment, and the Small Business Development
Center.
Coordination of all processes related to planning for the redevelopment of the former Superior
Court and County Commissioners Building. In addition to being a point of contact for the public
and interested parties, this includes collaborating with the Massachusetts Division of Capital Asset
Management, managing private consultants on pre-development initiatives, drafting and issuing a
Request for Proposals to four pre-qualified development teams. The next step is reviewing the
submitted proposals, interviewing the teams, and selecting a preferred developer for the
properties.
Managed the City’s submissions to Smart Growth America’s Opportunity Zones Marketplace,
which includes submitting and tracking activity for various parcels within Salem’s designated
Opportunity Zones that are ripe for redevelopment. Met with developers and other parties
interested in utilizing the Opportunity Zone tax incentives to spur smart, socially conscious
development.
Managed the implementation of the Salem Downtown Retail Action Plan.
Coordinated the development of a new economic development website,
www.salemforbusiness.com, to both attract new businesses and provide assistance to existing
xiv
ones. Long-term management of the site will be incorporated into the Economic Development
Planner’s daily workload.
Managed the logistics and participated in weekly meetings of the Economic Development
Recovery and Revitalization Task Force (EDRR). The EDRR was established in March 2020 with
the goal to support Salem’s business community during the COVID-19 pandemic. The Economic
Development Planner created and managed the City’s Small Business Grant program that assisted
businesses that experienced losses due to the pandemic, set weekly agendas for EDRR meetings,
organized industry-specific focus groups to learn how the pandemic was impacting their business;
and created and managed surveys to determine business needs so that the EDRR could focus its
assistance efforts.
The Economic Development Planner continues to work with the North Shore Community
Development Coalition and other local stakeholder partners on the implementation of the “Salem
Point Neighborhood Vision and Action Plan.” Action items call for quality of life improvements to
the Point Neighborhood, which is Salem’s foremost environmental justice neighborhood. Examples
of the type of projects being implemented include sidewalk repairs, park improvements, community
programming, commercial space, i.e. ‘pop-up shops’ for entrepreneurs, and public art.
The Economic Development Planner continues to collaborate with the Salem Chamber of Commerce
on several economic development topics including downtown transportation, business recruitment
and retention, and the development of policy suggestions for the City to consider that will streamline
permitting for small businesses.
The Economic Development Planner continues to work with the Massachusetts Office of Business
Development to help current businesses grow and to recruit new businesses to Salem. This includes
coordinating the State’s Economic Development Incentive Program (EDIP) applications and local
Tax Increment Financing (TIF) program for local businesses.
The Economic Development Planner has also been the City’s representative board member on the
North Shore Workforce Board, which serves as the oversight and policy-making body for federally
funded employment and training services in the 19 community North Shore Region. The board also
has the broader role of addressing critical labor market issues and developing strategic partnerships
with local leaders in economic development, the K-12 and higher education system, government
agencies, and chambers of commerce, as well as community-based and labor organizations. The
board charters and oversees a one-stop career center, MassHire North Shore Career Center, located
in Salem, with satellite offices throughout the North Shore.
In addition, the Economic Development Planner conducts all job creation/retention monitoring.
xv
EXECUTIVE SUMMARY - NEIGHBORHOOD IMPROVEMENTS
The City of Salem is committed to
undertaking the infrastructure and
public facility improvements needed
to make our city a livable
community. 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 FY20. 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.
During the program period, we continued to work on important neighborhood projects, and spent a
total of $287,937.52 including program delivery costs, toward meeting the goals in the FY20 Action
Plan and 5 Year Consolidated Plan.
Table 4: FY20 Neighborhood Improvement Financial Summary*
Activity CDBG Funds
Available
CDBG Funds
Spent Status
Congress Street Parklets $31,746.72 $31,746.72 Complete
Splaine Park Climbing Structure $16,914.21 $16,914.21 Complete
Downtown Alley Lighting $9,915.50 $7,623.20 Complete
Street Improvements (i.e. sidewalks,
curbcuts, paving & crosswalks) –
Artists Row $251,710.45 $165,487.51 Complete
Prince Street Improvements $18,352.03 $0 Planning
Tree Planting Program $23,135.43 $21,600.00 Ongoing
annually
Loring Avenue Fire Station Electrical $38,175.00 $20,128.00 Underway
Gallows Hill Park Improvements $161,529.50 $18,656.61 Underway
Palmer Cove Park Survey & Testing $132,321.46 $5,781.27 Underway
Teen Center Building Improvements $54,200.00 $0 Procurement
Almy’s Clock Restoration $40,000.00 $0 Procurement
Peabody Street Park Improvements $135,037.19 $0 Planning
Fire station #1 paving $39,500.00 $0 Planning
Teen Center Patio $19,500.00 $0 Planning
South River Improvements $0 $0 Planning
*Funds available and spent represent only FY20 and may not reflect the actual entire project cost.
Before and After: Sidewalks at Artist Row
xvi
EXECUTIVE SUMMARY - PLANNING & ADMINISTRATION
In the Consolidated Plan, our priority
administrative 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 FY20, no CDBG funds were used
for planning documents. In FY20, we
spent a total of $173,725.50 in Planning
and Administration for 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 5: FY20 Planning & Administration Financial Summary
Activity CDBG Funds
Available
CDBG Funds
Spent
General Administration - Non-salary $8,160.76 $8,160.76
General Administration - Benefits $29,851.58 $29,851.58
General Administration - Salary $135,713.16 $135,713.16
South Salem Survey Boundary
CAPER NARRATIVES IN IDIS
1
CR-05 - Goals and Outcomes
Progress the jurisdiction has made in carrying out its strategic plan and its action plan.
91.520(a)
For Affordable Housing Development, 27 units proposed in the 2015 AAP were instead funded with
HOME funds and were be reported in IDIS through the NS HOME Consortium (Consortium). For the First
Time Homebuyer Program, during FY20, one household was assisted to purchase their first home,
bringing our 5 year total to 14, 11 less than proposed. For the Housing Rehabilitation Loan Program, we
improved 5 housing units, exceeding our estimate of 3 and surpassing our 5-year estimate of 20 units by
13 units. A shelter facility was improved, assisting 10 units. Through contracts with the North Shore
CAP, 14 chronically homeless individuals were provided with 12-24 months of rental assistance and 23
households were assisted with Rental Downpayment Assistance (reporting in IDIS is by the Consortium).
For Small Business Economic Development, one new loan was issued, as proposed, and one existing loan
provided job documentation. Documented were 3 full-time and 2 part-time LMI jobs retained, and 2 full-
time and 4 part-time LMI jobs created, exceeding the goal of 2 jobs. The business grant program for
COVID-19 relief resulted in assistance to 7 microenterprises and the documentation of 6 jobs (6 FTE)
created or retained.
For Business Technical Assistance, we met our goal of assisting 50 businesses. The Salem Main Streets
Program provided technical assistance to 1 new, 24 existing and 7 prospective businesses. North Shore
CDC’s Small Business Engagement Program provided technical assistance to 25 existing and 3
prospective businesses. Only new and existing businesses (53) are included in Table 1. In addition, 9 new
jobs were documented (7 FTE) for these programs, exceeding our goal of 4 jobs.
In total, FY20 documented 23 FTE jobs created/retained due to CDBG assistance. Our 5-year total of 81
FTE jobs exceeded our goal of 31 jobs. We almost met our 5-year goal of 5 businesses assisted through
Small Business Financial Assistance programs (4 businesses were assisted, but 6 were monitored).
When adding the emergency grant program for COVID-19 impacted businesses, the total assisted is
increased by 13. In addition, 4 storefronts were improved.
For Community Support Services, our AAP goal was to provide approximately 29 new grants and serve
an estimated 8,800 persons. We were just under par by executing agreements for 27 new grants and,
through these new grants and carried over open contracts, we assisted 7,325 persons.
Downtown Improvements accomplishment number (5,055) is based on the census block groups that
comprise the Downtown Slum/Blight area, which may include several activities (i.e. Artist Row,
Downtown Lighting). The block groups are, 2045003 – population 915, 2045002 – population 1320,
2042002 – population 905, 2042003 – population 900 and 2043001 – population 1015. In Table 1, rather
than multiply 5,055 times the number of activities completed, we use 5,055 as the total actual, avoiding
inflated or duplicated numbers.
CAPER NARRATIVES IN IDIS
2
Neighborhood Improvement Activities' accomplishments (15,893) are the census track totals for the
projects completed (or with phases completed) during FY20 (not duplicating any tracks): Congress Street
Parklets, Tree Planting, Loring Avenue Fire Station Electrical and Splaine Park Climbing Structure. There
are further open activities with expenditures, including additional Loring Avenue Fire Station Electrical,
Gallows Hill Park Improvements, Palmer Cove Park Survey and Testing, and additional tree planting.
Additional projects are in the planning stage and these funds will be carried over to FY21. Note: The 5-
year accomplishments in Table 1 may have duplicated tracks.
Note: In prior years, Table 1 did not indicate Homeless Persons in Overnight Shelters, nor Homelessness
Prevention. Therefore, the Strategic Plan numbers in this year’s table reflect only FY19 and FY20.
CAPER NARRATIVES IN IDIS
3
Comparison of the proposed versus actual outcomes for each outcome measure submitted with the consolidated plan and explain, if
applicable, why progress was not made toward meeting goals and objectives. 91.520(g)
Categories, priority levels, funding sources and amounts, outcomes/objectives, goal outcome indicators, units of measure, targets, actual
outcomes/outputs, and percentage completed for each of the grantee’s program year goals.
Goal Category Source /
Amount
Indicator Unit of
Measure
Expected
–
Strategic
Plan
Actual –
Strategic
Plan
Percent
Complete
Expected
–
Program
Year
Actual –
Program
Year
Percent
Complete
Affordable
Housing
Affordable
Housing
CDBG:
$
Rental units
constructed
Household
Housing
Unit
56 34
60.71%
Business
Technical
Assistance
Non-Housing
Community
Development
CDBG:
$
Jobs
created/retained Jobs 10 32
320.00%
4 7
175%
Business
Technical
Assistance
Non-Housing
Community
Development
CDBG:
$ Businesses assisted Businesses
Assisted 50 253
506.00%
50 53
106.00%
Community
Support
Services
Homeless
Non-Homeless
Special Needs
CDBG:
$
Public service
activities other than
Low/Moderate
Income Housing
Benefit
Persons
Assisted
45000 41861
93.02%
8800 7325
83.24%
Community
Support
Services
Homeless
Non-Homeless
Special Needs
CDBG:
$
Homeless Person
Overnight Shelter
Persons
Assisted 0 352 0 192
Community
Support
Services
Homeless
Non-Homeless
Special Needs
CDBG:
$
Homelessness
Prevention
Persons
Assisted 0 138 0 54
CAPER NARRATIVES IN IDIS
4
Goal Category Source /
Amount
Indicator Unit of
Measure
Expected
–
Strategic
Plan
Actual –
Strategic
Plan
Percent
Complete
Expected
–
Program
Year
Actual –
Program
Year
Percent
Complete
First Time
Homebuyer
Program
Affordable
Housing
CDBG:
$
Direct Financial
Assistance to
Homebuyers
Households
Assisted 25 14
56.00%
Housing
Rehabilitation
Programs
Affordable
Housing
CDBG:
$
Public Facility or
Infrastructure
Activities other than
Low/Moderate
Income Housing
Benefit
Persons
Assisted 0 10 0 10
Housing
Rehabilitation
Programs
Affordable
Housing
CDBG:
$
Homeowner
Housing
Rehabilitated
Household
Housing
Unit
20 33 165.00% 3 5 166.67%
Neighborhood
Improvements
Activities
Non-Homeless
Special Needs
CDBG:
$
Public Facility or
Infrastructure
Activities other than
Low/Moderate
Income Housing
Benefit
Persons
Assisted 8265 27776 336.07% 12180 15893 130.48%
Small Business
Financial
Assistance
Programs
Non-Housing
Community
Development
CDBG:
$
Jobs
created/retained Jobs 15 49 326.67% 3 14 466.67
CAPER NARRATIVES IN IDIS
5
Goal Category Source /
Amount
Indicator Unit of
Measure
Expected –
Strategic
Plan
Actual –
Strategic
Plan
Percent
Complete
Expected –
Program
Year
Actual –
Program
Year
Percent
Complete
Small Business
Financial
Assistance
Programs
Non-Housing
Community
Development
CDBG: $ Businesses
assisted
Businesses
Assisted 5 17 340.22% 2 14 700.00%
Table 1 - Accomplishments – Program Year & Strategic Plan to Date
CAPER NARRATIVES IN IDIS
6
Assess how the jurisdiction’s use of funds, particularly CDBG, addresses the priorities and
specific objectives identified in the plan, giving special attention to the highest priority
activities identified.
Overall, we made significant progress toward meeting the priorities and objectives of our 5-year
Consolidated and FY20 Action Plans. Below is a summary of major activities accomplished in FY20:
5 housing units were renovated through the Housing Rehabilitation Loan Program;
23 families received assistance with first/last month’s rent and/or security deposits (HOME funds);
14 high risk homeless individuals were placed into housing with supportive services;
33 open social service contracts assisted 7,325 persons, including at least 763 youth and at least 374
seniors;
1 existing business relocating/expanding was provided with a small business loan (6 FTE LMI jobs
created/retained);
13 businesses provided with emergency grants to provide relief of COVID-19 negative business
impacts.
7 new jobs (6 FTE) documented through the Salem Main Streets Program and the NSCDC Small
Business Engagement Program;
Salem Main Streets Program highlights: Assisted 1 new, 24 existing businesses and 7 prospective
businesses (including 15 micro-enterprises and 3 expanding/relocating businesses) with
technical assistance. One on one consultations included 10 businesses, including two businesses
located in the Artist Row incubator about the potential for storefront operations. A retail
meeting for businesses was in November to review the prior October season and to discuss age-
friendly business certification, small business Saturday and developing a seasonal employee
workforce. Events included the Farmers’ Market and Salem Winter Market, the Ice Scream Bowl,
Holiday Tree and Santa's Arrival, Holiday Window Contest, New Year's Eve LAUNCH!, Salem So
Sweet and Small Business Saturday.
NSCDC Small Business Engagement Program highlights: Assisted 2 new, 25 existing and 3
prospective businesses with technical assistance.
Congress Street parklets were installed;
Splaine Park climbing structure was installed;
32 trees planted on Palmer, Perkins, Salem, Bridge, Essex, Margin, Summer, Boston, Gardner,
Washington, Lafayette, Laurel and Fairfield Streets, Elm and Maple Avenue, and Francis Road.
CAPER NARRATIVES IN IDIS
7
CR-10 - Racial and Ethnic composition of families assisted
Describe the families assisted (including the racial and ethnic status of families assisted).
91.520(a)
CDBG
White 1,655
Black or African American 292
Asian 39
American Indian or American Native 16
Native Hawaiian or Other Pacific Islander 42
Total 2,044
Hispanic 459
Not Hispanic 1,585
Table 2 – Table of assistance to racial and ethnic populations by source of funds
Narrative
The table numbers are generated by IDIS based on accomplishment data entered.
CAPER NARRATIVES IN IDIS
8
CR-15 - Resources and Investments 91.520(a)
Identify the resources made available
Source of Funds Source Resources Made
Available
Amount Expended
During Program Year
CDBG Public - federal 1,165,891 1,070,708
Housing Trust Fund Public - federal
Other Public - federal
Other Public - local
Table 3 - Resources Made Available
Narrative
Financial Summary Report (PR26): In last year’s CAPER, Line 14 and 40 included the reduction of
$1118.25 (Act. ID # 1679) in expenditures due to having been drawn down twice. This funding has been
returned to the line of credit during FY20 (Line 6) and deducted in Line 14 and Line 40. In addition, IDIS
Act. ID #1533, 1673, 1674, 1676 and 1677 in voucher #6281967 should have been under prior year. This
adjustment was made in Line 14. 1673, 1677 and 1679 adjustments are also reflected in Line 40.
CDBG funds available was $1,065,891 in FY20 entitlement funds (not including carried over funds, nor
program income). The actual amount of CDBG funds spent in FY20 was $1,070,708.27, including prior
year carried over funds and current year program income.
In addition to CDBG funds, other funds expended during the program year include:
City of Salem - the actual amount of City of Salem funds spent on salaries and benefits ($734,399.26).
CPA funds – in FY20, the total of amount of surcharge funds collected ws $718,142), and including the
State match funds received of $159,267 totals $877,409, not including uncollected surcharge write-offs
or penalties/interest. The CPA account is also receiving a boost of $75,000 annually for 10 years from
the Footprint Community Benefits Agreement.
HOME funds - the actual amount spent in FY20 ($144,223.22).
The City of Salem also uses its Capital Improvement Program funds to complete projects that are
partially funded with CDBG and/or CPA funds.
CAPER NARRATIVES IN IDIS
9
Identify the geographic distribution and location of investments
Target Area Planned Percentage of
Allocation
Actual Percentage of
Allocation
Narrative Description
Table 4 – Identify the geographic distribution and location of investments
Narrative
Salem does not allocate a specific amount of dollars to a specific geographic area. Rather we identify a
need, develop a program or activity to meet the need and assign the dollars that will be used to address
the need. The City of Salem typically supports programs that benefit low- and moderate-income
households or specific populations such as senior citizens, disabled persons and minorities. Often these
programs and activities undertaken are available on a citywide basis to income eligible households.
Other programs and activities are targeted to neighborhoods with concentrations of low- and moderate-
income households. A map of the LMI neighborhoods (updated 4/1/19) is located in the
Appendix. When prioritizing activities, the City pays special attention to those low- and moderate-
income (LMI) neighborhoods where the greatest needs have been identified and whose public facilities
and infrastructure are in the worst condition. In accordance with CDBG regulations, the City can
undertake specific activities, such as street, sidewalk and playground improvements in the low- and
moderate-income neighborhoods or in neighborhoods meeting the definition of “slums and blight”,
such as the Downtown Renewal Area, which was established as a Slum/Blight Area (November, 2013).
With the change to 52.7% LMI city-wide, the City has an opportunity for expansion of CDBG programs
and improvements to places that may not be located within LMI areas, but may still serve LMI
populations. Some projects are undertaken on other publically owned land, such as park improvements.
Recognizing that needs are not solely located in distressed neighborhoods, the City also offers 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.
CAPER NARRATIVES IN IDIS
10
Leveraging
Explain how federal funds leveraged additional resources (private, st ate and local funds),
including a description of how matching requirements were satisfied, as well as how any
publicly owned land or property located within the jurisdiction that were used to address the
needs identified in the plan.
In order to maximize accomplishments and make projects feasible, CDBG funds often must be
combined with other funding sources. The following summarizes the amount of funds
leveraged in FY20 that we were able to document.
The Salem Main Streets Program leveraged $68,732 from local business and donations
and from event fees and corporate contributions to cover costs.
The NSCDC Small Business Engagement Program leveraged $50,000 in other State/local
funds, $50,959 in private funds and utilized $67,053 of its unrestricted revenue.
Three businesses assisted with emergency COVID-19 funds also received federal funding
($14,700 total).
The lone First Time Homebuyer participant leveraged $12,200 in MassHousing funds,
$171,000 mortgage and $28,700 in private funds.
One Housing Rehabilation Program participant underway will leverage $50,000 in State
Home Modification Loan Program funds.
Planning and administration funds leveraged $640,761.86 in City funds plus $115,160.28
in benefit costs for all DPCD staff.
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 $4,105,267.86 in other federal, state,
private or other funds.
Neighborhood Improvements (typically conducted only on publically owned land or
infrastructure):
Gallows Hill Park is leveraging $1,493,476.50 in state/local funds including $307,750 in
CPA funds, a $400,000 PARC grant, $5000 T. Hawk donation, a $66,262.04 State
Municipal Vulnerability Action Grant and $577,259 in Capital Improvement Plan (CIP)
funds.
The Splaine Park climbing feature leveraged $2,600 in local funds.
Palmer Cove survey and testing leveraged $27,000 in local funds. Construction funds for
the project is underway and will be from non -CDBG funds.
Note: Leveraged funds for multi-year projects may be repeated within more than one year’s
CAPER NARRATIVES IN IDIS
11
CAPER. Above, leveraged funds are only included for projects for which CDBG funds were
expended during the fiscal year. The above does not include funds leveraged for HOME funded
projects.
CAPER NARRATIVES IN IDIS
12
CR-20 - Affordable Housing 91.520(b)
Evaluation of the jurisdiction's progress in providing affordable housing, including the
number and types of families served, the number of extremely low-income, low-income,
moderate-income, and middle-income persons served.
One-Year Goal Actual
Number of Homeless households to be
provided affordable housing units 0 0
Number of Non-Homeless households to be
provided affordable housing units 3 16
Number of Special-Needs households to be
provided affordable housing units 0 0
Total 3 16
Table 5 – Number of Households
One-Year Goal Actual
Number of households supported through
Rental Assistance 0 0
Number of households supported through
The Production of New Units 0 0
Number of households supported through
Rehab of Existing Units 3 15
Number of households supported through
Acquisition of Existing Units 0 1
Total 3 16
Table 6 – Number of Households Supported
Discuss the difference between goals and outcomes and problems encountered in meeting
these goals.
For the non-homeless households (goal of 3 under the Housing Rehabilitation Program), in FY20 we
assisted 16 units/households (5 under the Housing Rehabilitation Program, 10 through rehabilitation
assistance for a public facility (shelter) and 1 under the First Time Homebuyer Program).
Rental assistance was provided to 37 families through the use of HOME funds, but these will be reported
through the North Shore HOME Consortium's CAPER.
CAPER NARRATIVES IN IDIS
13
Discuss how these outcomes will impact future annual action plans.
We will continue to estimate proposed outcomes for future plans based on actual outcomes of current
and past plans. It should be noted that our one year goals are based on CDBG funding budgeted using
current fiscal year funds and do not include carried over, prior year funds.
Also of note, in July, 2015, the Metropolitan Area Planning Council provided an overview of their
analysis of local demographic data and housing stock and the key characteristics and trends in Salem
that help explain housing need and demand for the next 15 years. Their findings are located on the
Studies and Reports page of www.salem.com. These numbers reiterate the ongoing need for affordable
housing in Salem.
Include the number of extremely low-income, low-income, and moderate-income persons
served by each activity where information on income by family size is required to determine
the eligibility of the activity.
Number of Households Served CDBG Actual HOME Actual
Extremely Low-income 4 0
Low-income 2 0
Moderate-income 0 0
Total 6 0
Table 7 – Number of Households Served
Narrative Information
These numbers reflect the 5 households (not persons) assisted by the Housing Rehabilitation Program
and 1 household servied by the First Time Homebuyer Program (100% low or extremely low
income). These show that Salem's housing programs serve predominantly (67%) those with extremely
low incomes.
Salem has a number of services that address affordable 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.
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, including
accomplishments in Integrated Disbursement and Information System (IDIS) – HUD’s on-line reporting
program.
During FY20, the City of Salem spent $144,223.22 in HOME funds. $110,056.22 in HOME funds were
used to fund Tenant Based Rental Assistance Programs which targeted high risk homeless individuals,
through a housing first model. North Shore Community Action Programs provided 14 individuals with
temporary rental assistance (12-24 months), along with support services. In addition, $29,528 in carried
CAPER NARRATIVES IN IDIS
14
over funds was spent through the Rental Downpayment Assistance Program to assist low- and
extremely low-income Salem households to help pay first and last month’s rents and security deposits to
enable them to secure decent, affordable housing. The program is an important tool for helping families
with the costs of moving into a decent apartment. Assisted were 23 families through existing contracts
with North Shore Community Action Program, Inc.
HOME numbers are reported through the North Shore HOME Consortium.
CAPER NARRATIVES IN IDIS
15
CR-25 - Homeless and Other Special Needs 91.220(d, e); 91.320(d, e); 91.520(c)
Evaluate the jurisdiction’s progress in meeting its specific objectives for reducing and ending
homelessness through:
Reaching out to homeless persons (especially unsheltered persons) and assessing their
individual needs
CDBG provides funding via sub-grants to local and regional organizations that provide direct services and
outreach. Through Lifebridge, a 34-bed shelter for men and women, the City partially funds a licensed
nurse through their Medical Support Services Program which provides on-site and community-based
health assessments to the homeless population, including wound care, general health assessments,
symptom management, diabetic monitoring, nutrition and general health education - 253 persons
received a total of 696 health assessments from September, 2019 to January, 2020.They also conducted
street outreach services to connect homeless individuals with shelter services and provided referrals to
medical, mental health, substance abuse and social service providers. Lifebridge’s day center, begun in
April, 2019, continues to operate three days per week, to help reduce loitering by homeless individuals,
while providing a comfortable space for access to services. The day center offers supportive programs
and a place to sit, read or watch television. The success of the program has warranted expansion of the
facility to five days in the upcoming fiscal year.
The Mayor’s Office continues to convene bi-monthly meetings of the Homeless Task Force that include
representatives of the City of Salem’s Planning & Community Development, Police, School and Health
Departments, North Shore Community Health Center, Lifebridge, NSCAP, Salem Housing Authority,
Salvation Army and the North Shore Workforce Investment Board. Discussion and actions regarding
homeless needs and concerns include day programming, homeless related calls for police services,
outreach workers’ findings, housing first progress, day employment, homeless students and, most
recently, COVID-19 issues related to homeless person (social distancing, quarantine, testing, etc.).
The Salem Police Department, both through its normal staff complement and its Community Impact
Unit, work directly with the homeless individuals in Salem, as well as work closely with Lifebridge in its
outreach to homeless individuals, especially those on the street and unsheltered. Outreach workers on
call out of the Salem Police Department work to connect homeless with health and other services. The
High Risk Homeless Task Force, has met monthly at the Salem Police Department, to provide case
management and to pursue permanent housing, as well as medical, behavioral and substance abuse
treatment for individuals living on the streets. Represented on the High Risk Homeless Task Force is
NSCAP, which with Salem’s HOME funds, provides a Housing First program, assisting homeless
individuals to find apartments and maintaining their rent for one year, while providing case
management toward self-sufficiency. 14 chronicaly homeless individuals were assisted with rent during
FY20.
CAPER NARRATIVES IN IDIS
16
In FY20, an outreach workers out of North Shore Community Health and funded with CDBG, connected
with 34 homeless persons to provide services. Individuals were referred to in-house behavioral health,
were established with primary care services, referred to restart MAT treatment, RNCM services for
medication management, referred to community health worker for assistance with food insecurity or
SDOH needs, housing assistance, medication management, received health assessments and/or enrolled
services/depression screening.
Addressing the emergency shelter and transitional housing needs of homeless persons
Each year the City issues a Request for Proposals for agencies to submit funding proposals, including
proposals for emergency shelter and transitional housing needs. This year, new contracts were
executed contracts with Lifebridge for which the City partially funds a licensed nurse who provides on-
site and community-based health assessments to the homeless population, including wound care, blood
pressure monitoring, nutrition and general health education. Also funded with CDBG, HAWC provides
therapeutic intervention and support for the mothers and children at the shelter for abused women and
their children.
Salem also funds Rental Downpayment Assistance to Citizens for Adequate Housing and NSCAP with
HOME funds to pay for first, last and security for eligible households moving into affordable housing.
HOME funding is also provided to NSCAP for a Housing First model program to place high risk homeless
individuals into housing with supportive services.
Helping low-income individuals and families avoid becoming homeless, especially extremely
low-income individuals and families and those who are: likely to become homeless after
being discharged from publicly funded institutions and systems of care (such as he alth care
facilities, mental health facilities, foster care and other youth facilities, and corrections
programs and institutions); and, receiving assistance from public or private agencies that
address housing, health, social services, employment, educa tion, or youth needs
As stated in the Action Plan, Salem awards CDBG-funded public social service sub-grants to provider
agencies and to housing and service organizations, including those whose core mission is to prevent
homelessness and to foster individual and family self-sufficiency. Each year the City allocates up to the
maximum allowed of its CDBG funding to public social services. All of these sub-grants benefit low- to
moderate-income individuals and families, many of whom are extremely low income. While the grants
made to organizations providing homeless or homelessness prevention services were not specifically
targeted to dischargees of publicly-funded institutions or care systems, these community partners
address a range of housing, health, and other social service needs. For example, North Shore CAP
provides a range of housing and social services to households, in addition to assisting families who are
experiencing homelessness, while Lifebridge reports that clients are being discharged to the shelter
from health care systems or are referred by other health care or service agencies. Other types of
services and programs that the City has funded include food pantries, child care, health screening and
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17
education, ESOL, job readiness and skills training, financial education and budgeting, and individual
counseling and support groups.
In FY20, Salem’s CDBG funds provided grants to NSCAP and Catholic Charities to provide Homeless
Prevention Programs. 54 persons (21 households) were assisted with rent and/or utility assistance to
prevent eviction and homelessness.
Helping homeless persons (especially chronically homeless individuals and families, families
with children, veterans and their families, and unaccompanied youth) make the transition to
permanent housing and independent living, including shortening the period of time that
individuals and families experience homelessness, facilitating access for homeless individuals
and families to affordable housing units, and preventing individuals and families who were
recently homeless from becoming homeless again
In the prior fiscal year, the City assisted with funding for North Shore CDC’s project at 15-17 Harbor
Street for 26 single room occupancy units for which 16 units will be primarily set aside for formally-
homeless, low-income youth aging out of the foster care system. Salem provided $100,000 in CPA funds
and $50,000 from HOME funds and the project is under construction. A lottery drawing for the units was
held in October, 2018. The City also provided $185,000 in HOME funds to Harborlight Community
Partners to rehabilitate two buildings on Boston St. (26 studio units) in order to house formerly
homeless individuals, along with providing supportive services. These units are fully occupied.
The City has carried over HOME agreements with NSCAP and Citizens Inn, Inc. to provide for rental
downpayment assistance to help extremely low- and low-income households (including homeless) to
move into decent, affordable rental units. In FY20, NSCAP assisted 23 families with this tenant based
rental assistance. NSCAP also used Salem’s HOME funds to target chronically homeless for a Housing
First model, which provided housing with supportive services to 14 high risk individuals.
The City's community partner, Lifebridge, offers a suite of essential services that target the needs of
homeless and disadvantaged adults, designed to promote education, employment, and self-
sufficiency. They offer 22 congregate units of permanent supportive housing for homeless persons to
make the transition. In addition to supporting Lifebridge efforts, the City awards CDBG social services
sub-grants to provider agencies to address goals of ending homelessness. These organizations may
provide transitional and permanent supportive housing to homeless and formerly homeless persons,
assist with housing search, housing counseling, and provide emergency housing assistance (e.g.,
delinquent rent and utility payments). Specifically, in FY20, new agreements were executed with
Catholic Charities, Salvation Army and NSCAP for homeless prevention through emergency assistance of
rental payments in order to avoid eviction or utility payments to avoid shut-off. In FY20, these programs
resulted in 26 households (67 persons) avoiding homelessness.
The City also awards sub-grants to other agencies that serve specific sub-populations, such as at-risk
youth, seniors, persons with disabilities, or to residents who need ESOL, job readiness and skills training,
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18
or other anti-poverty initiatives, including assistance with food, child care or other needs. Although
funding to these organizations does not target homelessness per se, the funding aids in stabilizing
individuals and families, thereby reducing the risk of homelessness or its recurrence. Programs were
provided by Citizens Inn’s Haven From Hunger, North Shore CDC, North Shore Moving Market, Salem
Community Child Care, Salem YMCA (child care), VOCES and Wellspring House (MediClerk). Funding was
also provided to the Disability Resource Center to provide housing assistance to persons with
disabilities.
Finally, the City used CDBG funds for North Shore Community Health to provide a nurse to engage
chronically homeless individuals to encourage comprehensive health assessments, including behavioral
health, substance abuse and depression.
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CR-30 - Public Housing 91.220(h); 91.320(j)
Actions taken to address the needs of public housing
As evidenced by consistently excellent SEMAP and PHAS scores, the Salem Housing Authority is a well-
managed public housing authority designated as a “high performer”.
The Salem Housing Authority continues regular ongoing modernization programs to make capital
improvements to state and federal public housing units. These improvements are funded by the United
States Department of Housing and Urban Development (HUD) for federally-funded units and the
Massachusetts Department of Housing and Community Development (DHCD) for state-funded housing
units.
In addition to ongoing routine maintenance, preventative maintenance, inspections and repair work, the
following modernization projects are either currently underway or in the planning stage:
State Properties:
$271,336 Window replacement, venting, tub surround replacement, and related work at 117
Congress St.;
$398,479 Sidewalks, parking and concrete repairs at Pioneer Terrace
$171,000 Waterproofing and brick repointing at Phillips
$207,000 Kitchen and bath work at turnover at Charter Street
$84,500 Health and Safety Initiatives at various sites to include dead/dangerous tree removal,
concrete repair, railing repair, paving
$100,000 Lock replacement at 27 Charter St.
$480,000 Concrete balcony repair work at Bates and Norton Terraces
$70,000 Sprinkler Cradle Pump System Replacement at Charter Street
$500,000 Site Improvements/walkways Rainbow Terrace
$500,000 Site Improvements harbor walk at Rainbow Terrace
$225,000 Feasibility Study of Leefort Terrac redevelopment
$45,00 Retaining wall replacement Bertram Terrace
Federal Properties:
• $276,600 Window replacement, skylight and related work at the Zisson Building
• $70,000 Restore and paint window trim at the Zisson Building
• $78,594 is the anticipated award from HUD’s Capital Improvement Fund Program for use for
maintenance and administrative operation costs associated with the SHA’s 39 units of federal
elderly and family housing.
Actions taken to encourage public housing residents to become more involved in
management and participate in homeownership
The Salem Housing Authority (SHA) is governed by a Board comprised of five members. The Mayor of
Salem appoints four of the five board members and the fifth board member is appointed by the
Governor of the Commonwealth of Massachusetts. One member of the board is required to be a
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20
resident of public housing and one member must be a member who represents organized labor. The
SHA Board plays a large role in encouraging Tenant engagement and openly reserves opportunity for
Tenant and Public engagement every month during the public Board meetings. SHA Board members are
also available by email for more direct comments and communication from residents as is the Housing
Authority Executive Director. The SHA Board of Commissioners strongly supports the mission of
engaging residents to participate in the ongoing operation of the Housing Authority and attributes much
success to the involvement and participation from our populations.
The SHA has a Resident Advisory Board (RAB) that is actively engaged with the planning and submission
of the Federal Public Housing Agency Annual Plan and Federal Policies. There are also three active
tenants’ associations in the SHA state housing portfolio including: Charter Street Tenant Association,
Morency Tenant Association, and Pioneer Tenant Association. The active Tenant Associations play a key
role in the development of the Authority’s State Annual Plan, State Housing Policies and the State
Capital Improvement Plan. The Tenant Associations work together with the Authority to encourage
resident participation through community meetings, activities and surveys. All SHA residents are
included and invited to participate in the annual planning and submission of both state and federal
funded Capital Improvement Plans.
Copies of the Consolidated Plan, Annual Action Plans and CAPER are provided to the Salem Housing
Authority for residents to peruse. Copies of all CDBG-related notices (i.e. Consolidated Plan, Action Plan
and CAPER) are posted with the SHA in English and Spanish.
Actions taken to provide assistance to troubled PHAs
Not Applicable; the Salem Housing Authority is not designated as a troubled PHA.
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CR-35 - Other Actions 91.220(j)-(k); 91.320(i)-(j)
Actions taken to remove or ameliorate the negative effects of public policies that serve as
barriers to affordable housing such as land use controls, tax policies affecting land, zoning
ordinances, building codes, fees and charges, growth limitations, and policies affecting the
return on residential investment. 91.220 (j); 91.320 (i)
Throughout the public participation process, the City of Salem has not found indication that housing
policies have created impediments to fair housing. In comparison with other regional towns, Salem
offers a greater diversity of housing, and a higher proportion of affordable housing overall, exceeding
the state's 10% affordable housing goal. However, some factors continue to contribute to the difficulty
of increasing the availability of affordable housing, including the cost of construction, a shortage of land
and regulatory and environmental constraints. Salem has taken several actions to ameliorate these
barriers.
In order to help facilitate affordable housing options Salem adopted a Municipal and Religious Adaptive
Reuse Ordinance that allows underutilized, historic buildings to be adaptively reused into multi-family
housing. The ordinance requires a minimum of 10 percent of the housing units be affordable to low to
moderate income households. Salem also held numerous public meetings to review an inclusionary
housing ordinance and an accessory dwelling unit ordinance. Both oridinances were reviewed and
discussed as potential to create affordable homes,
Salem designated the entire city as a housing development zone under the state’s housing development
incentive program (HDIP). The HDIP is a development tool used to expand the diversity of housing stock
and promote neighborhood stabilization by way of a local tax exemption and state tax credits. This
action increases the feasibility of residential development by providing an additional financing tool to
overcome development challenges.
To defray the high cost of developing affordable homes, Salem has begun the process of exploring
leveraging publicly owned land by ordering a title review of vacant city owned land. Feasibilty studies of
the publicly owned land will take place in 2021.
Actions taken to address obstacles to meeting underserved needs. 91.220(k); 91.320(j)
The Five Year Consolidated Plan outlines several barriers to housing affordability and reducing the
impacts of poverty in Salem: the cost of permitting and developing land with environmental constraints,
the lack of regulatory tools to require or encourage affordable housing in new developments, the lack of
resources to finance affordable housing development, a mismatch between local wages and housing
costs, limited availability of public transit, 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. The
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following are some of the strategies and recent steps taken to overcome these obstacles:
The Affordable Housing Trust Fund Board has identified a few City-owned properties that may
be feasible for new affordable housing.
In 2019, the City passed zoning to allow the adaptive reuse of municipal and religious buildings
to create affordable housing.
In 2019, the City adopted an expansion of a zone that incentivizes housing development. The
Housing Development Incentive Program (HDIP) provides Gateway municipalities (like Salem)
with a tool to increase residential growth, expand the diversity of housing stock, support
economic development, and promote neighborhood stabilization in designated areas through
tax incentives to encourage the substantial rehabilitation of multifamily properties.
The City developed a Vision Update Study for the Bridge Street Neck. The study specifically
recommends a zoning amendment to address the current zoning barriers, which will be
considered in 2020.
In 2019, the City collaborated with Salem State University and the state Division of Capital Asset
Management and Maintenance, on a community visioning process to develop reuse concepts of
the University’s South Campus property, approximately 22 acres of land and buildings.
Opportunities to remove the zoning barriers are identified in the visioning report.
In addition to CDBG and HOME funds, Salem uses Community Preservation Act funds to assist
with the development of affordable housing.
The City will continue to support the creation of new affordable housing units through
partnership with non-profit entities, supplementing state and federal subsidies with local
funding, and case-by-case negotiation with private developers. The Harbor-Lafayette Homes
(HOME and CPA funds) to create 26 affordable units, with 50% for formerly homeless youth, as
well as for Boston Street Residences (HOME funds) to create 26 studio units primarily for
formerly homeless individuals projects are now complete and the units occupied.
The City will continue to utilize tools such as the Chapter 40B Comprehensive Permit program to
exempt developments which create affordable housing from local land use regulations.
The lack of new vouchers or an increase in funding for subsidized housing has also made it difficult for
agencies to assist many households in need of housing assistance. The Salem Housing Authority
continues to struggle with long waiting lists for extremely to low income households. In order to meet
underserved needs, the Salem Housing Authority is seeking innovative cost effective grant opportunities
to increase its subsized housing portfolio. The Salem Housing Authority has applied for a grant from the
Department of Housing and Community Development to support the renovation and expansion of an
existing public housing development.
Actions taken to reduce lead-based paint hazards. 91.220(k); 91.320(j)
The Salem Board of Health provides information regarding the proper disclosure of lead paint and lead
hazards to property owners renting residential housing units. As necessary, the Board of Health will also
notify area realtors of new or amended regulations regarding lead-based paint. In Salem, a property
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23
owner is required to obtain a Certificate of Fitness inspection when an apartment becomes vacant.
These inspections are conducted to ensure compliance with the State Sanitary Code for Housing. Board
of Health personnel are licenses Lead Paint Determinators. Should the Board receive a call from an
occupant who is concerned that there may be lead-based paint in their apartment, potentially affecting
their child(ren) under the age of six(6), a Board of Health Sanitarian is able to conduct a Lead
Determination. If a lead paint hazard(s) is detected during the determination, an order to correct that
hazard(s) is sent to the property owner. The order requires the property owner to bring the property
into compliance with the State Lead Law. The Board ensures compliance with the order and, if
necessary, will begin legal proceedings against the property owner to gain compliance. The results of all
lead determinations are reported to the MA Childhood Lead Poisoning Prevention Program. Residents
who have questions about lead-based paint and the MA Lead Law can contact the Salem Board of
Health.
In cooperation with the Commonwealth 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 actively works to reduce lead-paint hazards in pre-1978 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 of 1-4 family properties, as well as for non-profits and for investor-owners
that rent to income-eligible households. As a Local Rehabilitation Agency (LRA) for the Get the Lead Out
Program, Salem 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.
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.
Actions taken to reduce the number of poverty-level families. 91.220(k); 91.320(j)
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 strategy consists of four components: education, job training,
affordable housing and social services.
Education
An adequate school system is crucial to reducing poverty in future generations. The City has used state
funding to renovate and improve its educational facilities and provide school-age children with an
environment conducive to learning. A Strategic Plan completed in 2017 outlines a framework for
ensuring access to high quality education for all students. The school choice program gives residents
more choices about the school they want their children to attend, and offers education focused specific
skills, such as science and technology and communication and community service. Salem’s Parent
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Information Center coordinates the school choice program designed to improve racial balance within
the school systems, and provides information about adult education programs designed to help low-
income families.
The City will continue to support various educational programs for youth, adults, and the Spanish-
speaking population with CDBG funds, including Salem Public Schools (for student home visits by
teachers and after-school enrichment programs), and programs administered by non-profit agencies
such as the Aspire Developmental Services, Inc., LEAP for Education, the Boys and Girls Club, North
Shore Community Development Coalition, and VOCES.
Job Training and Employment Resources
Salem collaborates with numerous job training, and workforce development programs in the region
such as The North Shore Career Center, the North Shore Workforce Board, and the North Shore CDC.
The City will continue to use CDBG funds to support ELL, GED and citizenship classes, job training and
employment assistance programs and to support small business with technical assistance and loan
programs.
Affordable Housing
Providing adequate, affordable housing for low- and moderate-income residents is critical to the success
of an anti-poverty strategy. The City, and its partner agencies such as the Salem Housing Authority, are
committed to providing safe, appropriate, and affordable housing opportunities to very-low, and low-
and moderate-income family, elderly, and disabled households. Salem will continue to use its CDBG and
HOME funds to provide FTHB and housing rehabilitation programs, rental assistance, homeless
prevention, and to provide assistance to housing development organizations to create additional
affordable housing units. The City’s established partnerships with agencies such as the NSCAP, the North
Shore HOME Consortium and the North Shore Community Development Coalition also increase its
success at bringing affordable housing and related services to lower income residents.
Social Services
Through a competitive funding round, the City of Salem uses CDBG funds to support 20-25 non-profit
social service programs annually. These organizations provide services to help families meet the costs of
living, promote family self-sufficiency, serve special populations and/or provide crisis intervention
assistance – programs seeking to break the cycle of poverty. CDBG funds support several programs
which indirectly assist with housing in many ways such as increased pay (i.e. job training, ESL programs)
and decreased monthly expenditures (i.e. child care, food programs) so households can better afford
rent or mortgages. There are also many non-CDBG funded programs available to Salem residents to help
households overcome various obstacles to self-sufficiency.
Actions taken to develop institutional structure. 91.220(k); 91.320(j)
The Department of Planning and Community Development (DPCD) administers the City’s Community
Development Program. Under the direction of the department Director, the Assistant Community
Development Director manages and monitors Salem’s CDBG and HOME programs. Salem’s housing loan
programs are administered by the DPCD Housing Coordinator. Salem’s affordable housing policy efforts
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25
is overseen by a Senior Planner. In addition, local non-profit agencies, CHDOs and CDCs administer
certain housing activities.
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 Assistant
Community Development Director manages the public service and housing subcontracts and the
Economic Development Planner manages the economic development subcontracts.
City departments, including the DPCD, undertake construction and other CDBG-funded activities. These
staff may subcontract work under public bidding procedures, adhere to CDBG regulations and maintain
any required documentation (i.e., prevailing wages). The City’s auditing firm audits Salem’s CDBG
program delivery system annually.
Staff periodically attend trainings – FY20 examples:
Use of CDBG Funds for Code Enforcement Webinar – HUD – 8/20/19
The Missing Middle and Missing Little: Creating Housing Diversity for All Incomes and Stages of
Life webinar – AARP – September 13, 2019
Planning for Housing: Using the APA Policy Guide on Housing – December 22, 2019
Spanish Class for City of Salem employees – January 28th through March 12th, 2020
IDIS CDBG: Introduction to Low Mod Jobs Activities – HUD 2/10/20
Building HOME: Overview of the HOME Program & Home Program Requirements – HUD -
2/20/20
NCDA CARES Act CDBG Webinar #1 – NCDA – 4/22/20
Establishing a Local Emergency Rental Assistance Program – CHAPA – 4/22/20
Coronavirus Response: The Historic Tax Credit as an Economic Recover Tool Webinar -
Preservation Leadership Forum - April 24, 2020
How Members Plan to Use CDBG-CV webinar – NCDA - 4/29/20
Designing and Implementing an Emergency HOME TBRA Program Part 1 & 2 – HUD - 6/10/20 &
6/17/20
Actions taken to enhance coordination between public and private housing and social service
agencies. 91.220(k); 91.320(j)
The City 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.
The DPCD leads Salem H.O.P.E. (Human Organization Partnership Effort), a networking group of human
service agencies that serves Salem residents. Salem H.O.P.E. provides an opportunity for agencies to
learn about the services being provided by other agencies in order to fill in gaps, coordinate efforts and
avoid duplication of services. All human service agencies are invited to attend the quarterly Salem
H.O.P.E. breakfast meetings held at rotating agency locations. Through this program, agency
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26
representatives are (re-)introduced to each other and exchange information, announcements and
updates.
Although the City has not recently used its CDBG funds to assist the Salem Housing Authority (SHA), the
DPCD coordinates with the SHA to address the housing needs of Salem’s lower-income residents.
Proposed development sites or demolition or disposition of existing public housing developments must
follow established regulatory procedures administered by City agencies. Some of these, such as the
Board of Appeals and Planning Board, have staff support from the DPCD.
The City also works with nonprofit agencies to administer social service activities. The City issues an
annual Request for Proposals (RFP) for CDBG public services funding to undertake priority programs
outlined in the Consolidated Plan. Additionally, the City cooperates and coordinates with other agencies
and funding sources to support specific activities, such as MassHousing’s “Get the Lead Out” and
Massachusetts Housing Partnership’s “One Mortgage” program.
The City of Peabody is the lead community for the North Shore HOME Consortium. Salem works with
the consortium to coordinate the implementation of its HOME-funded programs. Salem also works with
local CHDOs and CDCs to carry out priority activities.
Identify actions taken to overcome the effects of any impediments identified in the
jurisdictions analysis of impediments to fair housing choice. 91.520(a)
Salem examined issues pertaining to fair housing during consolidated planning processes in 2005, 2010,
2015 and 2020, through a series of public meetings and interviews with neighborhood groups, service
providers, business associations and housing professionals. Participants were asked to comment on fair
housing and discrimination in the city.
Salem continues to work to overcome impediments through the following activities:
The Housing Coordinator attended Know Your Rights fair housing training in Boston in January,
2016 to further understand the Fair Housing Law and to educate others.
The City maintains a page on its website for Fair Housing and Housing Discrimination that
explains housing discrimination and fair housing laws, designed to assist consumers, real estate
professionals and lenders. It also lists resources available to victims of discrimination.
The City provides public service and housing assistance funding to agencies whose activities
assist specific populations with improving their quality of life. Provider assistance may include
locating appropriate and, if needed, accessible housing, as well as a range of human services.
Providers regularly interact with minority, disabled and low-income populations. These
interactions present opportunities for providers to understand their clients’ housing concerns
and to assist them in cases of discrimination. So that providers understand the fair housing laws
and available resources for addressing fair housing issues, the City’s community development
staff provide technical assistance and guidance to local housing and service providers. The City
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27
also directs CDBG funding to programs that promote fair housing through the provision of their
services, such as the Disability Resource Center’s program that provides independent living and
housing services, which held a housing forum on Accessible, Affordable and Available Houisng.
They also hosted 8 Housing Options workshops. The City requires all sub-recipients to comply
with the Fair Housing Act.
The City encourages people, organizations and agencies to work together to address housing
issues. CHAPA’s Spring Regional 2018 meetings was held in Salem in March, 2018, to which staff
attended. Salem administers Salem HOPE, a networking group of social service providers that
meets quarterly at rotating public service agency locations. It is a forum to share insights and
concerns, to work toward filling gaps in services and to coordinate efforts.
The City’s housing staff participate, upon invite, in housing fairs held by lending institutions and
real estate professionals. There, staff provide information regarding its first-time homebuyer,
rehabilitation and deleading programs. Staff disseminate information regarding the fair housing
law, including protected classes, typical violations and resources available to victims of
discrimination. This is an opportunity for staff to talk one-on-one with residents who may be
victims of discrimination in lending and/or victims of steering, and to learn about the fair
housing climate in the city and identify fair housing issues.
The City provides financial assistance to North Shore CDC, a nonprofit organization that runs a
Family Resource Center, which periodically conducts CHAPA-certified, first time homebuyer
educational courses (held in the Point Neighborhood, where Salem has its highest concentration
of racial and ethnic minorities). Among other things, courses inform participants about their
rights when working with real estate agents and lenders. The program covers fair housing issues
and what to do if someone is a victim of discrimination. In addition, the program covers the
responsibilities of landlords under fair housing laws.
All CDBG agreements include a section on fair housing, affirmative action and conduct.
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CR-40 - Monitoring 91.220 and 91.230
Describe the standards and procedures used to monitor activities carried out in furtherance
of the plan and used to ensure long-term compliance with requirements of the programs
involved, including minority business outreach and the comprehensive planning
requirements
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 sub-recipients submit monthly reports that include
income, race and ethnic information on clients served and programmatic accomplishments. In addition,
public service sub-recipients are monitored on-site regularly. Agencies submitting reimbursement
requests must include proof of expenditure of funds, as well as documentation that the pre-determined
benchmark or goal was attained.
All First-Time Homebuyer Downpayment Assistance Loan Program properties and Housing Rehabilitation
Loan Program properties receive on-site inspections. Rehabilitation projects must meet current housing
codes and non-emergency projects must meet Housing Quality Standards (HQS). All tenant based rental
assistance provided with HOME funds requires an inspection with a HQS report. Housing staff maintain a
comprehensive written manual detailing program procedures and policies, as well as a master
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 rehabilitation projects with rental affordability
restrictions annually for the duration of the affordability period.
A quarterly report is provided to the City’s Finance Department on new loans issued, loan status and
loan discharges. There is also a Loan Management Policy for dealing with delinquent or in default
housing or economic development loans. The DPCD reconciles its general ledger to IDIS monthly.
Economic Development and Neighborhood Improvement projects use a checklist developed by the
DPCD to ensure that floodplain management, environmental review, Section 3, minority outreach,
procurement and debarment regulations are identified for applicability and documented.
Monitoring of job creation is determined by the time period in the funding Agreement.
The DPCD also annually reviews its performance in meeting its goals and objectives set forth in the
Consolidated Plan during the development of the annual CAPER.
Payments to agencies are made on a reimbursement basis to ensure compliance with expenditure
requirements. 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.
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, Section 3 Plan and Minority Outreach Procedures in place that allows the City to
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track whether long-term goals are being met.
Citizen Participation Plan 91.105(d); 91.115(d)
Describe the efforts to provide citizens with reasonable notice and an opportunity to
comment on performance reports.
The Citizen Participation Plan included in the 5-Year Consolidated Plan is the framework we use to solicit
public comment, as well as to provide guidance on our response to citizens’ comments on our programs
throughout the year. 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. 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.
The CAPER is made available to the public throughout the 15-day comment period and efforts to solicit
citizens’ comments include posting bilingual (English/Spanish) notices on the availability of the report in
the Salem Evening News, the City of Salem Official Bulletin Board at City Hall through the Clerk’s Office,
Salem Public Library, Salem Housing Authority and on the City’s website. The notice is distributed via
email to the Salem HOPE distribution list which reaches non-profit social service agencies that serve
various populations including minorities, non-English speaking persons, persons with disabilities and
Point Neighborhood residents. Due to the COVID-19 pandemic, copies were only available through the
City’s website or via email. The prior year CAPER wass made available at the first of our two annual
public hearings held this year (the second public hearing was held virtually).
The FY20 CAPER's 15 day comment period was November 30, 2020 through December 15, 2020.
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CR-45 - CDBG 91.520(c)
Specify the nature of, and reasons for, any changes in the jurisdiction’s program objectives
and indications of how the jurisdiction would change its programs as a result of its
experiences.
In general, there are no anticipated changes in Salem's program objectives, the exception being the
reprogramming of unencumbered funds to create an emergency Microenterprise and Small Business
Grant Program for businesses negatively affected by COVID-19.
As noted in FY17's CAPER, for one project, Affordable Housing Development, the funding source was
changed from CDBG to HOME. Because HOME activities are reported through the lead community,
Peabody, this will result in IDIS showing Salem not completing one of its CDBG goals of 27 units, even
though the units will still be created. This activity is now complete.
Does this Jurisdiction have any open Brownfields Economic Development Initiative (BEDI)
grants?
No
APPENDIX
Financial Summary Report (PR26) for FY20 (HUD’s Program Year 2019)
Please note: In last year’s CAPER, Line 14 and 40 included the reduction of $1118.25 (Act. ID # 1679)
in expenditures due to having been drawn down twice. This funding has been returned to the line of
credit during FY20 (Line 6) and deducted in Line 14 and Line 40. In addition, IDIS Act. ID #1533,
1673, 1674, 1676 and 1677 in voucher #6281967 should have been under prior year. This adjustment
was made in Line 14. 1673, 1677 and 1679 adjustments are also reflected in Line 40.
Maps
Low to Moderate Income Areas
Geographic Distribution of Entitlement Funds Expended FY20
Section 3 Report
PR26 - CDBG Financial Summary Report
Program Year 2019
SALEM , MA
Office of Community Planning and Development
DATE 10-29-20
U.S. Department of Housing and Urban Development
TIME 11:23
Integrated Disbursement and Information System
PAGE 1
02 ENTITLEMENT GRANT 1,065,891.00
03 SURPLUS URBAN RENEWAL 0.00
04 SECTION 108 GUARANTEED LOAN FUNDS 0.00
PART I: SUMMARY OF CDBG RESOURCES
01 UNEXPENDED CDBG FUNDS AT END OF PREVIOUS PROGRAM YEAR 864,094.48
06a FUNDS RETURNED TO THE LOCAL CDBG ACCOUNT 0.00
07 ADJUSTMENT TO COMPUTE TOTAL AVAILABLE 0.00
08 TOTAL AVAILABLE (SUM, LINES 01-07)2,027,847.50
05 CURRENT YEAR PROGRAM INCOME 96,743.77
05a CURRENT YEAR SECTION 108 PROGRAM INCOME (FOR SI TYPE)0.00
06 FUNDS RETURNED TO THE LINE-OF-CREDIT 1,118.25
11 AMOUNT SUBJECT TO LOW/MOD BENEFIT (LINE 09 + LINE 10)900,904.25
12 DISBURSED IN IDIS FOR PLANNING/ADMINISTRATION 212,732.09
13 DISBURSED IN IDIS FOR SECTION 108 REPAYMENTS 0.00
PART II: SUMMARY OF CDBG EXPENDITURES
09 DISBURSEMENTS OTHER THAN SECTION 108 REPAYMENTS AND PLANNING/ADMINISTRATION 900,904.25
10 ADJUSTMENT TO COMPUTE TOTAL AMOUNT SUBJECT TO LOW/MOD BENEFIT 0.00
PART III: LOWMOD BENEFIT THIS REPORTING PERIOD
17 EXPENDED FOR LOW/MOD HOUSING IN SPECIAL AREAS 0.00
18 EXPENDED FOR LOW/MOD MULTI-UNIT HOUSING 0.00
14 ADJUSTMENT TO COMPUTE TOTAL EXPENDITURES (42,928.07)
15 TOTAL EXPENDITURES (SUM, LINES 11-14)1,070,708.27
16 UNEXPENDED BALANCE (LINE 08 - LINE 15)957,139.23
22 PERCENT LOW/MOD CREDIT (LINE 21/LINE 11)74.01%
LOW/MOD BENEFIT FOR MULTI-YEAR CERTIFICATIONS
23 PROGRAM YEARS(PY) COVERED IN CERTIFICATION PY: PY: PY:
19 DISBURSED FOR OTHER LOW/MOD ACTIVITIES 666,793.54
20 ADJUSTMENT TO COMPUTE TOTAL LOW/MOD CREDIT 0.00
21 TOTAL LOW/MOD CREDIT (SUM, LINES 17-20)666,793.54
PART IV: PUBLIC SERVICE (PS) CAP CALCULATIONS
27 DISBURSED IN IDIS FOR PUBLIC SERVICES 154,680.08
28 PS UNLIQUIDATED OBLIGATIONS AT END OF CURRENT PROGRAM YEAR 40,361.87
24 CUMULATIVE NET EXPENDITURES SUBJECT TO LOW/MOD BENEFIT CALCULATION 0.00
25 CUMULATIVE EXPENDITURES BENEFITING LOW/MOD PERSONS 0.00
26 PERCENT BENEFIT TO LOW/MOD PERSONS (LINE 25/LINE 24)0.00%
32 ENTITLEMENT GRANT 1,065,891.00
33 PRIOR YEAR PROGRAM INCOME 93,950.32
34 ADJUSTMENT TO COMPUTE TOTAL SUBJECT TO PS CAP 0.00
29 PS UNLIQUIDATED OBLIGATIONS AT END OF PREVIOUS PROGRAM YEAR 21,102.95
30 ADJUSTMENT TO COMPUTE TOTAL PS OBLIGATIONS 0.00
31 TOTAL PS OBLIGATIONS (LINE 27 + LINE 28 - LINE 29 + LINE 30)173,939.00
37 DISBURSED IN IDIS FOR PLANNING/ADMINISTRATION 212,732.09
38 PA UNLIQUIDATED OBLIGATIONS AT END OF CURRENT PROGRAM YEAR 0.00
39 PA UNLIQUIDATED OBLIGATIONS AT END OF PREVIOUS PROGRAM YEAR 7,459.25
35 TOTAL SUBJECT TO PS CAP (SUM, LINES 32-34)1,159,841.32
36 PERCENT FUNDS OBLIGATED FOR PS ACTIVITIES (LINE 31/LINE 35)15.00%
PART V: PLANNING AND ADMINISTRATION (PA) CAP
43 CURRENT YEAR PROGRAM INCOME 96,743.77
44 ADJUSTMENT TO COMPUTE TOTAL SUBJECT TO PA CAP 0.00
45 TOTAL SUBJECT TO PA CAP (SUM, LINES 42-44)1,162,634.77
40 ADJUSTMENT TO COMPUTE TOTAL PA OBLIGATIONS (39,006.59)
41 TOTAL PA OBLIGATIONS (LINE 37 + LINE 38 - LINE 39 +LINE 40)166,266.25
42 ENTITLEMENT GRANT 1,065,891.00
46 PERCENT FUNDS OBLIGATED FOR PA ACTIVITIES (LINE 41/LINE 45)14.30%
Section 3 Summary Report
Economic Opportunities for Low- and Very Low-Income Persons
U.S. Department of Housing and Urban Development
Office of Fair Housing and Equal Opportunity
OMB Approval No. 2529-0043
(exp. 11/30/2018)
Disbursement Agency
City of Salem, MA
120 Washington Street, Salem, MA 01970
04-6001413
Reporting Entity
City of Salem, MA
98 Washington Street, Salem, MA 01970
Dollar Amount $841,051.33
Contact Person Jane Guy
Date Report Submitted 12/15/2020
Reporting Period
Program Area Code Program Area Name
From To
7/1/19 6/30/20 CDB1 Community Devel Block Grants
Part I: Employment and Training
Job
Category
Number
of New
Hires
Number of New
Hires that Are Sec.
3 Residents
Aggregate
Number of Staff
Hours Worked
Total Staff
Hours for
Section 3
Employees
Number of
Section 3
Trainees
Administrative 1 1 0 0 0
Youthbuild
Laborer 10 10 0 0 0
Total New Hires 11
Section 3 New Hires 11
Percent Section 3 New Hires 100%
Total Section 3 Trainees 0
The minimum numerical goal for Section 3 new hires is 30%.
Part II: Contracts Awarded
Construction Contracts
Total dollar amount of construction contracts awarded $235,655.39
Total dollar amount of contracts awarded to Section 3 businesses $0.00
Percentage of the total dollar amount that was awarded to Section 3 businesses 0%
Total number of Section 3 businesses receiving construction contracts 0
The minimum numerical goal for Section 3 construction opportunities is 10%.
Non-Construction Contracts
Total dollar amount of all non-construction contracts awarded $6,006.00
Total dollar amount of non-construction contracts awarded to Section 3 businesses $0.00
Percentage of the total dollar amount that was awarded to Section 3 businesses 0%
Total number of Section 3 businesses receiving non-construction contracts 0
The minimum numerical goal for Section 3 non-construction opportunities is 3%.
Part III: Summary
Indicate the efforts made to direct the employment and other economic opportunities generated by
HUD financial assistance for housing and community development programs, to the greatest extent
feasible, toward low- and very low-income persons, particularly those who are recipients of
government assistance for housing.
No
Attempted to recruit low-income residents through: local advertising media, signs
prominently displayed at the project site, contacts with community organizations and public
or private agencies operating within the metropolitan area (or nonmetropolitan county) in
which the Section 3 covered program or project is located, or similar methods.
No Participated in a HUD program or other program which promotes the training or
employment of Section 3 residents.
No Participated in a HUD program or other program which promotes the award of contracts to
business concerns which meet the definition of Section 3 business concerns.
Yes Coordinated with Youthbuild Programs administered in the metropolitan area in which the
Section 3 covered project is located.
No Other; describe below.
New Hires:
The City of Salem Department of Planning and Community Development (DPCD) filled one position
that is primarily funded with CDBG, and the employee certified that they were a Section 3 resident.
Job notices for positions available in the DPCD are posted at the Salem Housing Authority, North
Shore CDC and the North Shore Career Center, as well as the Citys website and internally to
current city employees. As appropriate, notices are sent to Salem State University, UMass Amherst,
Umass Boston, Harvard School of Design, Harvard Kennedy School, Boston College, Boston
University, Boston University School of Public Health, Cornell University, University of
Pennsylvania, Columbia University, University at Buffalo, Carnegie Melon, Rutgers, University of
California Berkeley, University of North Carolina Chapel Hill, University of California Irvine,
University of California Los Angeles, University of Illinois at Urbana-Champaign, Westfield State
University, University of California Davis, MIT, Endicott College, Gordon College, Michigan State
University, MassAPA, NCDA (website, email and LinkedIn), Tufts, MassDevelopment,
Massplanners listserv, to representatives of HOME Consortium communities and the Salem HOPE
distribution list. The Citys Section 3 Resident Certification Application is located on the Citys
website, on the Human Resources webpage at https://www.salem.com/sites/g/files/vyhlif3756/f
./uploads/section_3_resident_certification070120.pdf
Contracting with bidding/quoting:
Congress Street Parklets (two CDBG contracts $30,000 and $512.39) The work was undertaken
through the non-profit North Shore CDC that runs a Youthbuild program. There were ten Youthbuild
participants in the Congress Street Parklets project.
Gallows Hill Park Improvements ($626,400, of which CDBG is $15,015) The contract for the project
was awarded during the reporting time period. The invitation for bids and legal notice indicated that
the project was subject to Section 3. The Section 3 clause was included in the bid documents and
bidders were required to sign a certification that they would comply. The Section 3 requirements
were reviewed with the contractor at the start-up meeting on 9/25/19, where they were provided
with a list of Massachusetts Section 3 businesses from the HUD registry. They submitted their
Section 3 report indicating that they had no new hires. They reported one subcontract which was
not a Section 3 business.
On Call or State Contract Vendors:
There was one street improvement project (Artist Row) conducted using an existing on-call
contractor (Tasco $170,000). They submitted their Section 3 report indicating that they had no new
hires.
Loring Avenue Fire Station Generator ($20,128 CDBG) - The contract was awarded during this
reporting period and the vendor was selected from the registered vendor list on COMMBUYS, the
States online procurement platform (aka, the list of Massachusetts State Contracts). They
submitted their Section 3 report indicating that they had no new hires.
Other Efforts:
The Citys Section 3 Business Affidavit is located on the Citys website, on the Purchasing
Department webpage at https://www.salem.com/sites/g/files/vyhlif3756/f/uploads
./section3_business_0.pdf
YouthBuild North Shore CDC is the only YouthBuild in the region. YouthBuild North Shore
YouthBuild is a community workforce development program designed to serve the needs of young
adults aged between 16 and 24. Through YouthBuild, participants work towards their High School
Equivalency Diploma, learn job skills, become certified pre-apprentice level construction workers
where they serve their communities by building affordable housing or become certified nursing
assistants. The program model integrates education, leadership development, counseling,
construction or health care, and other training skills areas, along with resources for graduates. The
City of Salem utilizes Youthbuild for components of our park projects funded with CDBG, as well as
other non-CDBG projects, when feasible.
The Section 3 clause is and has always been included in CDBG contracts generated by the
Department of Planning & Community Development, regardless of the contract amount. In addition,
for more than 20 years, social service agencies receiving CDBG public services funding have been
required to provide copies of their agencys hiring and purchasing policies and these policies have
been reviewed to ensure outreach efforts are made to lower income, as well as minority Salem
residents. Public service agencies funded programs are monitored on an annual basis to ensure
that the policies are followed.