FY19 CAPER - SEPTEMBER 23, 2019
FY19 COMPANION
to, and
CONSOLIDATED ANNUAL PERFORMANCE
AND EVALUATION REPORT
(CAPER)
CITY OF SALEM, MASSACHUSETTS
Fiscal Year 2019
July 1, 2018 to June 30, 2019
Kimberley Driscoll, Mayor
Tom Daniel, AICP, DPCD Director
Jane A. Guy, Assistant Community Development Director
i
For both the FY19 Companion and FY19 CAPER
FY19 COMPANION
INTRODUCTION ................................................................................................................................................. iii
EXECUTIVE SUMMARY ...................................................................................................................................... iv
Affordable Housing Programs ................................................................................................................ v
Public Services ......................................................................................................................................... vii
Economic Development ........................................................................................................................ xii
Neighborhood Improvements ............................................................................................................. xvi
Planning & Administration .................................................................................................................. xvii
FY19 CAPER
CAPER Narratives in IDIS
CR-05 - Goals & Outcomes .................................................................................................................... 1
CR-10 - Racial and Ethnic composition of families assisted .............................................................. 6
CR-15 - Resources and Investments ...................................................................................................... 7
CR-20 - Affordable Housing ................................................................................................................. 10
CR-25 - Homeless and Other Special Needs ...................................................................................... 12
CR-30 - Public Housing ......................................................................................................................... 16
CR-35 - Other Actions ........................................................................................................................... 18
CR-40 - Monitoring ................................................................................................................................. 25
CR-45 - CDBG ........................................................................................................................................ 27
Appendix
Financial Summary PR26
Please note: Voucher #6167753 should have indicated prior year funding (HUD 2017).
Voucher #6281967 - of the 8 items, only 3 indicated prior year funding (HUD 2018). The
rest erroneously indicate HUD 2019 funding. This resulted in adjusting Line 10, Line 14,
Line 20 and Line 40. Line 14 and 40 also include the reduction of $1118.25 in expenditures
due to having been drawn down twice. This funding has been returned to the line of credit
during FY20.
Maps
Low to Moderate Income Areas
Geographic Distribution of Entitlement Funds Expended FY19
Section 3 Report
CAPER finalization date – September 23, 2019
Cover photo: Courtesy of Salem Park & Recreation
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 homeless,
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 h omes
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 current 5-Year Consolidated Plan - Fiscal Years 2016-2020 (FY16-20) - began on July 1, 2015.
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 FY19 CAPER provides an analysis of the second fiscal year - July 1, 2018 through June 30,
20192 - 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
2015, HUD implemented a new online system for preparing the Consolidated Plan, Annual Action
Plans and CAPERs. In this report, we included the information from the online system 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 $1,053,238 and program income
received during FY19 was $93,950.32. Our HOME funding allocation was $162,234. We also used any
available carried over CDBG and HOME funds from prior years.
We expended a total of
$1,114,382.49 in CDBG
funds. We met all
timeliness requirements
and program
expenditures were
consistent with our 5-
Year Consolidated Plan
and FY19 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 $316,425.99 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.
During FY19, the DPCD continued to make significant progress toward meeting the goals and
objectives laid out in the 5-Year Consolidated Plan and FY19 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 FY19 and prior year carried over funds+/- any adjustments
made during the year. Status is as of June 30, 2019.
2 HUD refers to Salem’s FY19 as Program Year 2018 (the funding source year).
EXECUTIVE SUMMARY
Affordable
Housing
40%
Neighborhood
Improvements
18%
Economic
Development
14%
Planning &
Administration
15%
Public Services
13%
FY19 CDBG & HOME Expenditures by Category
Fig. 1 FY19 Spending by Category,
as a Percentage of Total CDBG & HOME Expenditures
iv
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 FY19, Salem spent
$577,954.16 in CDBG and HOME funds on affordable housing projects and programs. Of this
CDBG funds spent totaled $261,528.17.
Table 1: FY19 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.
$315,179.63
CDBG (FY19
& carried over)
$193,677 CDBG funds spent
7 units improved (6
properties)
First Time
Homebuyer
Program
Provides 0% interest deferred payment
loans to LMI families purchasing a home
in Salem.
$43,124.67
CDBG
$475 CDBG funds spent (to
pay for inspection of home
assisted in prior year)
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.
$206,055 FY19
and carried
over open
HOME
Contracts
$86,555.19 HOME funds
spent
39 households assisted
Harbor &
Lafayette
Homes
The North Shore CDC will rehabilitate 2
buildings on Harbor & Lafayette Streets to
create 26 affordable housing units.
$50,000
HOME
$50,000 HOME funds spent
26 affordable housing units
completed
Boston Street
Crossing
Harborlight Community Partners will
rehab 2 buildings on Boston St. (26 studio
units) for formerly homeless individuals,
along with providing supportive services.
$175,000
HOME
$175,000 HOME funds spent
26 affordable housing units
completed
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.
$77,992.61(FY
19 & carried
over)
$4,870 HOME
(FY18)
$67,376.17 in CDBG funds, &
$4,870 in HOME admin funds
spent for housing program
delivery & inspectional services
including lead inspection.
Housing Rehabilitation
on Dalton Parkway
Before After
v
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-
line reporting program. The Housing Coordinator and/or the Assistant Development Director attend
regular meetings of the North Shore HOME Consortium.
During FY19, the City of Salem spent $316,425.99 in HOME funds. $175,000 was spent to complete
Harborlight Community Partners’ Boston Street Crossing project, two properties that resulted in 26
units of affordable housing. The City also spent $50,000 toward North Shore CDC’s Harbor &
Lafayette Homes project, for 26 affordable housing units.
$30,170.01 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 7 individuals with temporary rental assistance (12 -24 months), along with
support services, as projected in the FY19 Action Plan.
In addition, $51,861.56 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
32 families through existing contracts with North Shore Community Action Program, Inc. and
Citizens, Inn.
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.
vi
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 FY19, 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 FY19 Action Plan.
Public service projects funded during FY19 were selected using a
Request for Proposals (RFP) process. The Citizen Advisory
Committee reviewed all applications received, using criteria that
included project eligibility and documented need for services. Recommendations on funding levels were
provided to the Mayor following this review. 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 FY19, we were able to expend $185,714.68 on 36 open public service contracts (25 new, 11 carried
over), which, in turn, assisted 9,158 people, including at least 1,018 youth and 397 seniors. All contracts
with funds remaining are carried over to FY20.
Table2: FY19 Public Services Financial Summary
Agency
CDBG
Funding
Available
CDBG
Funds
Spent
Number
Assisted Program Impact
1647, Inc. $570 $570.00 0 youth
Paid teacher stipends from the prior
year. Number assisted reported in
prior year.
Aspire Developmental Services,
Inc.
North Shore Infant & Toddler
Preschool Program
$4,875.70 $4,875.70 64 children
For children with physical and
developmental disabilities to attend
integrated developmental play
groups once per week. Toddler
groups included various themes,
songs, activities and snacks. 37
children will continue to attend,
while the children who have aged
out of the program have gone to
Futures (1), pre-school (6),
Integrated Preschool LEA (10),
Head Start (4) and 3 went home.
Guitar lessons at Palmer Cove Park
vii
Agency
CDBG
Funding
Available
CDBG
Funds
Spent
Number
Assisted Program Impact
Boys & Girls Club $5,000.00 $5,000.00 268 youth
Provided weekday homework help
September, 2018-January, 2019
(10,014 visits) for students age 5-12.
Catholic Charities
Homeless Prevention Program $9,000.00 $9,000.00 39 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 1011
persons
Provided food to 299 Salem
families, July, 2018-December,
2018, for a total of 4535 visits to the
food pantry (approximately 275,000
pounds of food).
Disability Resource Center $4,800.00 $4,800.00
39 disabled
persons/
households
Provided independent living and
housing services. They held 12
application assistance workshops. 86
universal applications and 74
Section 8 applications were
submitted to the Salem Housing
Authority. They held a forum on
Tenants Rights and one on
Accessible, Affordable & Available
Housing. 4 Salem residents were
assisted in gaining housing.
East Gate Fellowship: Joseph’s
Storehouse $9,000.00 $9,000.00 1590
persons
Provided a supplemental food
assistance to 574 unique Salem
households for 10 months with over
4,000 household visits.
H.A.W.C.
Legal Services $9,000.00 $9,000.00 193 persons
Helped survivors of domestic
violence exercise their rights under
the law. 534 hours of free legal
assistance was provided including
housing advocacy, parent child
trauma recovery, civil legal
advocacy, court accompaniment,
transportation, shelter screening,
trial preparation, victim impact
statement assistance, safety
planning, draft pleadings,
immigration, education advocacy,
child care, abuse prevention and
harassment orders, custody, divorce,
asset division, child support, and
employment and housing rights.
Inversant
Salem Families College Savings
Program
$7,000.00 $7,000.00 22 youth
Facilitated Learning Circle
workshops (English/Spanish) to
learn about financial aide vs
scholarships, and money
management. 7 students completed
the program requirements and saved
the minimum required and enrolled
in higher education.
viii
Agency
CDBG
Funding
Available
CDBG
Funds
Spent
Number
Assisted Program Impact
Lifebridge
Medical Support Services $9,000.00 $9,000.00 231 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. 681 health assessments
were completed by the Lifebridge
nurse between September, 2018 and
January, 2019.
NSCAP
Homeless Prevention Program $9,000.00 $9,000.00 28 persons
Assisted 12 households with rent
assistance to prevent eviction and
homelessness. One household
received utility assistance. The
agency also served an additional 49
Salem families utilizing other
funding.
North Shore CDC
Family Stability Program
Family Resource Center
$6,576.21 $6,576.21 184 persons
Provided English Language classes
and VITA tax client sessions from
1/1/19-5/31/19. From 7/1/18-
6/30/19, the agency provided
family stability, economic and
personal growth services to 184
income-eligible residents of Salem.
ESL classes (beginner, high
beginner, intermediate and
advanced) totaled 192 hours. They
also provided with 31 career
counseling appointments and 84
financial literacy appointments.
North Shore Community Health $9,908.67 $9,908.67
55
homeless
persons
Provided outreach to homeless
individuals for health care services.
These face to face encounters
resulted in 18 individuals enrolled in
behavioral health services or
depression screen, 10 individuals
enrolled in MAT treatment, 1
individual enrolled in prenatal care
and 44 individuals had
comprehensive health assessments
with 25 enrolled with primary care
services as reestablished of new
patients, along with several referrals.
One individual receives ongoing RN
care management monthly Vivitrol
treatment and 7 individuals were
referred to a health worker for
housing and food security.
ix
Agency
CDBG
Funding
Available
CDBG
Funds
Spent
Number
Assisted Program Impact
North Shore Moving Market $4,500.00 $4,500.00 117 persons
Provided monthly deliveries of food
to elderly, disabled and
disadvantaged households.
Approximately 337 deliveries were
made between July and December,
2018.
Salem Park & Recreation
Playground Program $8,706.40 $4,706.40 54 youth
Provided enrichment programs at
Palmer Cove and Memorial Park
during summer months, including
Saturday morning basketball, hip
hop, lacrosse, art workshop, yoga &
medication, volleyball, beginners
guitar class and fairy house class.
Salem Council on Aging
Exercise Program $2,643.40 $1,488.40 46 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.
Salem Council on Aging
Transportation Program $21,350 $19,722.10 327 seniors
Drivers provided rides to the
following: 6229 to the Council on
Aging, 4075 medical, 3807
shopping, 813 events, 358
barber/hairdresser, 250 library, 367
YMCA, 254 bank, 906
volunteer/employment, 837 other.
Salem Police Department
Bicycle and Walk/Ride Patrols $16,557.79 $7,557.79 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 $10,000.00 $10,000.00 174 youth
Conducted teacher home visits with
Bentley and New Liberty
Innovation Schools students'
families in order to build trusting
relationships.
Salem YMCA
School Age Child Care Program $9,000.00 $9,000.00 350 youth
Provided childcare with curriculum
based instruction, enrichment
activities, swimming & field trips.
Activities included dance, painting,
STEM, music production,
basketball, homework help, step
dance, murals, coding, music
fundamentals, soccer, academic
support, arts & crafts, robotics,
volleyball, swim, sketching,
instrumental music, and dodgeball.
Salvation Army
Homeless Prevention $7,759.68 $4,150.00 17 persons
Assisted 9 households with
homelessness prevention (rent
arrearage).
V.O.C.E.S.
Hispanic Education Program $5,000.00 $5,000.00 95 persons
Provided 164 classes in citizenship
and GED in Spanish. During the
program year, they reported 55 new
US citizens and 1 GED graduate.
x
Agency
CDBG
Funding
Available
CDBG
Funds
Spent
Number
Assisted Program Impact
Wellspring House
MediClerk Program $4,400.00 $4,400.00 8 persons
Provided a 13-week program where
students receive instruction in
Goals/Job Search Strategies,
Medical Terminology, Medical
Office Procedures, Business
Communication, Computer Skills &
Keyboarding, Professional Success
and an Applied Skills Laboratory.
Job shadowing and internships were
conducted. Both students from the
1st session obtained jobs in the
administrative medical field. In the
2nd and 3rd sessions, 3 of the 4
graduates found full-time jobs in
North Shore Physician Group
offices or with similar employers.
The remaining graduate continues
to interview.
TOTAL PERSONS ASSISTED 9,158 persons,
including at least 1,018 youth & 397 seniors
xi
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 FY19, 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 continues to steadily improve. Salem’s
unemployment rate in June, 2019 was 3.2% down from 3.9% in June, 2018 and down from 4.0% in
June, 2017. 3
Table 3: FY19 Economic Development Financial Summary
Program Description
CDBG
Funding
Available
Status
Storefront Improvement
Program
Provides design assistance and/or
matching funding up to $5,000 to
business owners wishing to improve
the exterior façade of their business.
$5,000.00 $0 CDBG spent
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.
$77,561.91
$70,000 CDBG spent
1 business assisted with
moving to Salem
2 full-time LMI jobs
retained
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 3 new, 44
existing and 4
prospective businesses
(including 43 micro-
enterprises and 4
expanding businesses)
3 https://www.mass.gov/find-unemployment-rates
Landworks Studio
xii
Program Description
CDBG
Funding
Available
Status
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.
$50,000.00
$22,149.25 spent
2 new full-time jobs
documented
Assisted 5 new, 12
existing and 4
prospective
businesses (including
14 micro-enterprises
and 1 expanding
business)
Economic
Development
Program
Delivery
Costs associated with providing
Economic Development programs
and administration of the Salem
Redevelopment Authority.
$73,246.49
$73,246.49 CDBG
spent
(see description below)
In total, $200,395.74 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, in the downtown, Point Neighborhood and other commercial areas, and includes:
Working with businesses on business locations, business expansion;
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;
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 FY19, DPCD’s Economic Development Planner worked on several significant redevelopment
projects, including:
The approval of 35 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.
xiii
Coordination with the Public Art Planner on Mural Slam, held for a fourth year. The slam is a
two-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 are still
in place.
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 Association.
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, coordinating with the
City Council for the disposition of land at 252 Bridge Street, a.k.a. the ‘Crescent Lot’, drafting and
issuing a Request for Qualifications, and selecting qualified development teams. The next step in
the redevelopment process will be to issue a Request for Proposals and select the developer for
the properties.
Managed the City’s designation of Federal Opportunity Zones for two low to moderate income
census tracts. Wrote and received a grant from Smart Growth America, through LOCUS, for
Salem to be one of four communities to participate in the Massachusetts Opportunity Zone
Academy. The Academy kicked off at a two-day conference in Washington, DC, with technical
assistance provided by the Smart Growth America/LOCUS team to assist Salem in understanding
and marketing the development potential of its Opportunity Zones.
Managed the implementation of the Salem Downtown Retail Action Plan.
Facilitated the selection of a designated developer for the adaptive reuse of the Salem Senior
Center at 5 Broad Street.
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, 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
xiv
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.
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 FY19.
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 $257,609.93 including program delivery costs, toward meeting the goals in the FY19 Action
Plan and 5 Year Consolidated Plan.
Table 4: FY19 Neighborhood Improvement Financial Summary*
Activity CDBG Funds
Available
CDBG Funds
Spent Status
Downtown Pedestrian Mall
Improvements (street improvements) $145,554.43 $145,554.43 Complete
McGlew Park Improvements $26,673.41 $26,673.41 Complete
Lafayette Park Improvements $13,518.33 $13,518.33 Complete
Teen Center Furnace Purchase $6,373.00 $6,373.00 Complete
Mary Jane Lee Park Improvements $776.45 $776.45 Complete
Palmer Cove Park Survey & Testing $115,048.31 $43,546.31 Underway
Downtown Alley Lighting $22,195.65 $14,764.00 Underway
Splaine Park Climbing Structure $19,409.09 $1,463.81 Underway
Tree Planting Program $27,000.00 $3,864.57 Ongoing
annually
Street Improvements (i.e. sidewalks,
curbcuts, paving & crosswalks) $128,661.22 $0.00 Ongoing
annually
Congress Street Parklets $31,075.62 $1,075.62 Planning
South River Improvements $100,000.00 $0 Planning
Almy’s Clock Restoration $40,000.00 $0 Planning
Loring Avenue Fire Station Electrical $38,175.00 $0 Planning
Unprogrammed park, facilities &
infrastructure improvements $120,959.55 $0 Planning
*Funds available and spent represent only FY19 and may not reflect the actual entire project cost.
Lafayette Park
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 FY19, the City used CDBG funds to provide matching funds
for a Massachusetts Historical Commission Survey and Planning
grant to undertake a historic resource survey South Salem, as well as
to provide access to immigration legal services to Salem residents
who are foreign.
In FY19, we spent a total of $209,133.97 in Planning and
Administration for planning projects completed in the fiscal year and
administration expenses necessary to carry out our programs. As
stated previously, we were able to remain under the administrative
spending cap of 20 percent.
Table 5: FY19 Planning & Administration Financial Summary
Activity CDBG Funds
Available
CDBG Funds
Spent
South Salem Resource Survey (Survey & Planning
Grant match) $11,500.00 $11,500.00
Open Door Immigration Services $7,309.25 $7,309.25
General Administration - Non-salary $12,409.40 $12,409.40
General Administration - Benefits $32,087.75 $32,087.75
General Administration - Salary $145,827.57 $145,827.57
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)
Note: In prior years, Table 1 did not indicate Homeless Persons in Overnight Shelters, nor Homelessness
Prevention. Therefore, the numbers in this year’s table reflect only FY19.
Housing: For Affordable Housing Development, the 27 units proposed in the 2015 AAP was for the
Harbor/Lafayette project, which instead was funded with HOME funds. It is complete and to be reported
in IDIS through the Consortium, along with the Congress/Ward project. We did not meet our goal to
assist 5 households to purchase their first home through the First Time Homebuyer Program during
FY19, due to not having any qualified applicants ready to proceed with a purchase. For the Housing
Rehabilitation Loan Program, we exceeded our estimate of rehabilitating 3 housing units - having
improved 7 housing units (1 unit assisted twice - emergency and full rehab). The goal was met for 7
chronically homeless individuals to be provided with 12-24 months of rental assistance, along with
supportive services, through HOME funding provided to the NSCAP. In addition, 32 households were
assisted with Rental Downpayment Assistance Programs through contracts with the NSCAP and Citizens
Inn, Inc. Reporting on HOME funds in IDIS is accomplished by the North Shore HOME Consortium.
For Small Business Economic Development Activities, one new loan was issued. First year monitoring
resulted in retention of 2 LMI full-time jobs; monitoring will be completed in FY20. Two businesses were
assisted through the Storefront Improvement Program. For Business Technical Assistance, we exceeded
our goal of assisting 42 businesses. The Salem Main Streets Program provided technical assistance to 3
new, 44 existing and 4 potential businesses for a total of 51, including 43 micro-enterprise businesses
and 4 expanding businesses. North Shore CDC’s Small Business Engagement Program provided technical
assistance to 5 new, 12 existing and 4 potential businesses for a total of 21, including 14 micro-
enterprise businesses and 1 expanding business. Only new and existing businesses (64) are included in
Table 1. In addition, 7 new jobs were documented (6 FTE), less than our goal of 11 jobs.
For Community Support Services, our AAP goal was to provide approximately 26 new grants and serve
an estimated 8,200 persons. We were on par by executing agreements for 25 new grants and, through
these new grants and carried over open contracts, we assisted 9,185 persons. One program is in an LMI
census track of 4120 persons. There were two actual activities for this program due to carried over
funds, but for accomplishment purposes, the numbers were not duplicated.
Downtown Improvements accomplishment number (5055 expected) is based on the census tracks in the
Downtown Slum/Blight area, which may include several activities. In Table 2, each year, rather than
multiply 5055 times the number of activities completed, we use 5055 as the total actual, avoiding
inflated or duplicated numbers.
CAPER NARRATIVES IN IDIS
2
Neighborhood Improvement Activities' accomplishments (10,826) are the census track totals for the
projects completed during FY19: McGlew Park, Lafayette Park and Mary Jane Lee Park improvements,
Tree Planting and Teen Center Furnace Purchase (not duplicating any tracks). There are additional open
activities with expenditures. Projects underway include Palmer Cove Park Survey & Testing, Downtown
Alley Lighting, Splaine Park Climbing Structure and additional tree planting. Additional projects are in the
planning stage and these funds will be carried over to FY20. The City of Salem also completed its new
Community Life Center (formerly Council on Aging), which opened in September, 2018.
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 33
330.00% 11 7
63.64%
Business
Technical
Assistance
Non-Housing
Community
Development
CDBG:
$ Businesses assisted Businesses
Assisted 50 194
388.00% 42 64
152.38%
Community
Support Services
Homeless
Non-Homeless
Special Needs
CDBG:
$
Public service
activities other than
Low/Moderate
Income Housing
Benefit
Persons
Assisted 45000 34563
76.81% 8200 9185
112.01%
Community
Support Services
Homeless
Non-Homeless
Special Needs
CDBG:
$
Homeless Person
Overnight Shelter
Persons
Assisted 0 160 0 160
Community
Support Services
Homeless
Non-Homeless
Special Needs
CDBG:
$
Homelessness
Prevention
Persons
Assisted 0 84 0 84
CAPER NARRATIVES IN IDIS
4
Downtown
Improvements
Non-Housing
Community
Development
CDBG:
$
Public Facility or
Infrastructure
Activities other than
Low/Moderate
Income Housing
Benefit
Persons
Assisted 5055 5055
100.00% 5055 5055
100.00%
First Time
Homebuyer
Program
Affordable
Housing
CDBG:
$
Direct Financial
Assistance to
Homebuyers
Households
Assisted 25 13
52.00% 5 0 07%
Housing
Rehabilitation
Programs
Affordable
Housing
CDBG:
$
Homeowner Housing
Rehabilitated
Household
Housing
Unit
20 28
140.00%
3 7
233.33%
Neighborhood
Improvements
Activities
Non-Homeless
Special Needs
CDBG:
$
Public Facility or
Infrastructure
Activities other than
Low/Moderate
Income Housing
Benefit
Persons
Assisted 8265 10826
130.99% 8265 10826
130.99%
Small Business
Financial
Assistance
Programs
Non-Housing
Community
Development
CDBG:
$ Jobs created/retained Jobs 15 32
213.33%
Small Business
Financial
Assistance
Programs
Non-Housing
Community
Development
CDBG:
$ Businesses assisted Businesses
Assisted 5 7
140.00%
Table 1 - Accomplishments – Program Year & Strategic Plan to Date
CAPER NARRATIVES IN IDIS
5
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 FY19 Action Plans. Below is a summary of major activities accomplished in FY19:
7 housing units were renovated through the Housing Rehabilitation Loan Program (1 unit assisted
twice – emergency & full rehab.) ;
32 families received assistance with first/last month’s rent and/or security deposits (HOME funds);
7 high risk homeless individuals were placed into housing with supportive services;
52 units of housing in four buildings were rehabilitated into affordable units (HOME funds). Two
buildings are studio units for formerly homeless individuals, along with supportive services. For the
remaining two buildings, at least 13 units are for individuals at or below 50% AMI, with a preference
of young people 18-24 coming out of homelessness.
36 open social service contracts assisted 9,158 persons, including at least 1,018 youth and at least
397 seniors;
1 existing business relocating to Salem was provided with a small business loan (2 full-time LMI jobs
retained);
7 new jobs documented through the Salem Main Streets Program and the NSCDC Small Business
Engagement Program;
Salem Main Streets Program highlights: Assisted 3 new, 44 existing businesses and 4 prospective
businesses (including 43 micro-enterprises and 4 expanding businesses). One on one consultations
were conducted with Vamfangs, FreakyElegant and New England Dog Biscuit. Retail meetings were
held on 9/25/18, 11/14/18, 2/20/19 and 5/8/19 and topics included an overview of support
resources, upcoming retail promotions, sharing of business best practices, public safety best
practices, and other technical support (including interior/exterior design assistance). They also
worked with the City toward developing vending regulations. 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 Salem Film Fest Window Contest.
NSCDC Small Business Engagement Program highlights: Assisted 5 new, 12 existing and 4
prospective businesses. The agency held workshops targeted to beauty salons, as well as a Start
with a Structured Plan workshop and a SBA Presentation on SBA Loans.
Street improvements completed on the downtown pedestrian mall;
McGlew Park improvements completed;
Lafayette Park improvements completed;
A furnace for the Teen Center in the Point neighborhood was purchased; and
13 trees planted on Cedar, Essex, Endicott, Fairfield, Linden, Washington and Prince Streets and
Jefferson Avenue.
Despite a 14.4% reduction in CDBG funding and a 30.2% reduction in HOME funding since 2011, we are
proud of the accomplishments made and that we continue to meet Salem needs and goals.
CAPER NARRATIVES IN IDIS
6
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 2,794
Black or African American 723
Asian 35
American Indian or American Native 33
Native Hawaiian or Other Pacific Islander 21
Total 3,606
Hispanic 1,232
Not Hispanic 2,374
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
7
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 1,053,238 1,114,382
Housing Trust Fund Public - federal
Other Public - federal
Other Public - local
Table 3 - Resources Made Available
Narrative
Financial Summary Report (PR26): Voucher #6167753 should have indicated prior year funding (HUD
2017). Voucher #6281967 - of the 8 items, only 3 indicated prior year funding (HUD 2018). The rest
erroneously indicate HUD 2019 funding. This resulted in adjusting Line 10, Line 14, Line 20 and Line 40.
Line 14 and 40 also include the reduction of $1118.25 in expenditures due to having been drawn down
twice. This funding has been returned to the line of credit during FY20.
CDBG funds available was $1,053,238 in FY19 entitlement funds (not including carried over funds, nor
program income). The actual amount of CDBG funds spent in FY19 was $1,114,382.49, 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 ($699,268.84).
City of Salem CIP - the amount budgeted in FY19 toward projects also being funded with CDBG and/or
CPA funds ($650,000).
CPA funds - the total of amount of surcharge funds collected ($661,700.97) less abatements ($4,888.24),
not including penalties or interest, and including the State match funds received ($117,388) for a total of
$774,200.73.
HOME funds - the actual amount spent in FY19 ($316,425.99).
CAPER NARRATIVES IN IDIS
8
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. Some programs and activities undertaken are available on a citywide basis to income eligible
households. Other programs and activities are targeted to particular neighborhoods with
concentrations of low- and moderate-income households or to programs that benefit specific
populations such as senior citizens, disabled persons and minorities.
When prioritizing activities, the City pays special attention to those low- and moderate-income (LMI)
neighborhoods where the greatest needs have been identified and whose public facilities and
infrastructure are in the worst condition. A map of the LMI neighborhoods (updated 4/1/19) is located
in the Appendix. 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”. 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
9
Leveraging
Explain how federal funds leveraged additional resources (private, state 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 FY19 that we were able to document.
The Salem Main Streets Program leveraged $104,135 from local business and donations
and from event fees and donations to cover costs.
The Small Business Engagement Program leveraged $10,000 in other Federal funds and
utilized $67,053 of its unrestricted revenue. Neighborhood Improvements (typically
conducted only on publically owned land or infrastructure):
McGlew Park funds are being leveraged with $79,383 in CPA funds, a $394,580 PARC
grant and $88,348 in Capital Improvement Plan (CIP) funds.
The Lafayette Park project is leveraging $100,000 in CPA funds and $25,000 in CIP funds.
The Splaine Park climbing feature leveraged $2,600 in local funds.
Palmer Cove testing leveraged $27,000 in local funds.
Planning and administration funds leveraged $603,703.19 in City funds plus $95,565.65
in benefit costs, along with and $5,341.73 in Massachusetts Historical Commission funds
and for all DPCD staff.
$11,500 was leveraged in Massachusetts Historical Commission Survey and Planning
Grant funds.
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 $4,652,372 in other federal, state, private
or other funds.
Note: Leveraged funds for multi-year projects may be repeated within more than one year’s
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
10
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 8 7
Number of Special-Needs households to be
provided affordable housing units 0 0
Total 8 7
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 7
Number of households supported through
Acquisition of Existing Units 5 0
Total 8 7
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 (goals of 3 under the Housing Rehabilitation Program and 5 under the
First Time Homebuyer Program), in FY19 we assisted 7 units/households (7 under the Housing
Rehabilitation Program and 0 under the First Time Homebuyer Program).
Rental assistance was provided to 39 families through the use of HOME funds, but these will be reported
through the North Shore HOME Consortium's CAPER.
CAPER NARRATIVES IN IDIS
11
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 1 0
Total 7 0
Table 7 – Number of Households Served
Narrative Information
These numbers reflect the 7 households (not persons) assisted by the Housing Rehabilitation Program
(57% extremely low income). However, 2 indicated as low income are the same household assisted
twice during the year.
These show that Salem's housing programs serve all income levels, but predominantly (85.7%) those
with low or 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. The Housing Coordinator and/or the Assistant Development Director attend regular meetings
of the North Shore HOME Consortium.
CAPER NARRATIVES IN IDIS
12
During FY19, the City of Salem spent $316,425.99 in HOME funds. $175,000 was spent to complete
Harborlight Community Partners’ Boston Street Crossing project, two properties that resulted in 26 units
of affordable housing. The City also spent $50,000 toward North Shore CDC’s Harbor & Lafayette Homes
project, for 26 affordable housing units.
$30,170.01 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 7 individuals with temporary rental assistance (12-24 months), along with support services, as
projected in the FY19 Action Plan.
In addition, $51,861.56 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 32
families through existing contracts with North Shore Community Action Program, Inc. and Citizens, Inn.
HOME numbers are reported through the North Shore HOME Consortium.
CAPER NARRATIVES IN IDIS
13
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
The Salem Police Department, both through its normal staff complement and its Community Impact
Unit, work directly with the homeless in Salem. It also coordinates with Lifebridge to provide outreach
to homeless, some of whom may be unsheltered. 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 - 231 persons received a total
of 681 health assessments from September, 2018 to January, 2019.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.
In July, 2017, Salem held a Public Dialogue to involve residents, business owners, community groups,
and homeless individuals in a conversation on how the community can collectively address
homelessness. A presentation introduced the Collaborative of Hope and outlined existing statistics and
practices, along with new strategies. Resulting efforts included:
Collaborate For Hope’s Homeless Task Force - Monthly meetings of organization representatives
(i.e. City of Salem, Salem Police Dept., North Shore Community Health Center, Lifebridge, NSCAP
and the North Shore Workforce Investment Board).
Added police patrols and training (i.e. the distribution of Homeless Solutions & Resources: A
Police Officer’s Guide to Policing the Community).
Funded with CDBG, outreach workers on call out of the Salem Police Department in partnership
with North Shore Community Health, to connect homeless with health and other services. In
FY19, outreach workers connected with 55 homeless persons resulting in 18 individuals enrolled
in behavioral health services or depression screen, 10 individuals enrolled in MAT treatment, 1
individual enrolled in prenatal care and 44 individuals had comprehensive health assessments
with 25 enrolled with primary care services as reestablished of new patients, along with several
referrals. One individual receives ongoing RN care management monthly Vivitrol treatment and
7 individuals were referred to a health worker for housing and food security.
Establishing hope@salem.com to report non-emergency transient or homeless issues.
High Risk Homeless Task Force, where service providers meet monthly to review the cases of
high-risk individuals and work to address individual needs.
CAPER NARRATIVES IN IDIS
14
Launching the ChangeIt campaign, an alternative giving option for people to “text to
give”. Donors text Salem to 50555 to make a $5 donation, with the dual goal to raise donations
for programs and decrease panhandling, which often goes to feed addictions or other unhealthy
behavior.
Another public meeting was held in April, 2018. Included were updated calls for service statistics (that
resulted in adjusted patrol schedules), information regarding housing being made available to homeless
persons, outreach caseworker's summary of the types of assistance provided to approximately 70
homeless individuals, discussion of potential day programs.
On April 1, 2019, Lifebridge quietly opened a day center on its campus 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.
Addressing the emergency shelter and transitional housing needs of ho meless 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.
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.
This year, HOME funding was also provided to NSCAP for a Housing First model program to place high
risk homeless individuals into housing with supportive services.
Although not funded with CDBG, HAWC provides childcare and therapeutic intervention for the mothers
and children at the shelter for abused women and their children. HAWC provides services to victims of
domestic abuse and their children.
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 health care
facilities, mental health facilities, foster care and other youth facilities, and corrections
programs and institutions); and, receiving assistance from public or private agencies th at
address housing, health, social services, employment, education, 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
CAPER NARRATIVES IN IDIS
15
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 an increasing majority of 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 education, ESOL, job readiness and skills training, financial education and
budgeting, and individual counseling and support groups.
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
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. The project is complete and a lottery drawing for the units
was held in October, 2018.
The City provide $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. The project is now complete and the units are occupied.
The City has executed 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 total, 32 families were provided with this tenant based
rental assistance. The City also amended an existing HOME agreement to target the funds to chronically
homeless to be used toward a Housing First model, which provided housing with supportive services to
7 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,
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16
assist with housing search, housing counseling, and provide emergency housing assistance (e.g.,
delinquent rent and utility payments). Specifically, in FY19, new agreements were executed with
Catholic Charities and NSCAP for homeless prevention through emergency assistance of rental payments
in order to avoid eviction or utility payments to avoid shut-off. Along with carried over contracts with
Salvation Army, in FY19, these programs resulted in 33 households (84 persons) avoiding homelessness
through CDBG-funded Homeless Prevention Programs.
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,
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 East Gate Fellowship (Joseph's Storehouse), 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 Independent Living Center of the North
Shore and Cape Ann, Inc. 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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17
CR-30 - Public Housing 91.220(h); 91.320(j)
Actions taken to address the needs of public housing
As cited in the Strategic Plan and evidenced by consistently excellent SEMAP and PHAS scores, the Salem
Housing Authority is a well-managed public housing authority designated as a “high performer”. In its
most recent PHAS evaluation, the SHA scored 90 out of a possible 100 points and its most recent SEMAP
score was 100 out of 100.
The Salem Housing Authority continues its ongoing modernization program to make capital
improvements to its state and federal public housing units. These improvements are funded by the
United States Department of Housing and Urban Development (HUD) for its federally-funded units and
the Massachusetts Department of Housing and Community Development (DHCD) for its state-funded
housing units.
In addition to ongoing routine maintenance and repair work, the following capital fund 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.;
• $602,548 Carpet replacement, painting, and related work at various elderly and handicapped
developments;
• $100,000 Lock replacement at 27 Charter St.; and
• $480,000 Concrete balcony repair work at Bates and Norton Terraces
Federal Properties:
• $70,000 Sprinkler Cradle Pump System Replacement;
• $276,600 Window replacement, skylight and related work at the Zisson Building; and
• $73,083 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
resident of public housing and one member must be a member who represents organized labor.
The SHA has a Resident Advisory Board (RAB) that is actively engaged with the planning and submission
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18
of the Public Housing Agency annual plan. There is also an active tenants’ association at the 27 Charter
Street elderly housing development. All SHA residents of state-funded public housing are included in
the annual planning and submission of the state-funded Capital Improvement Plan.
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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19
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. Subsidized and affordable housing is located citywide and is
not disproportionately concentrated. Foreclosures and loan denials have also occurred proportionally in
all areas. However, some factors continue to contribute to the difficulty of increasing the availability of
affordable housing, including a shortage of land and regulatory and environmental constraints. In order
to help facilitate housing options for low to moderate income households, Salem drafted three zoning
ordinances over the past year: 1. a municipal and religious adaptive reuse ordinance, 2. an inclusionary
zoning ordinance and 3. an accessory dwelling unit ordinance.
Municipal and Religious Adaptive Reuse Ordinance: There are underutilized, historic buildings in the City
that have potential to be adaptively reused into multi-family housing, including the City’s former senior
center as well as former religious school buildings that are no longer needed by the Archdiocese. The
City has a buyer ready to purchase the old senior center, and renovate it into housing, 10% of which will
be affordable. The North Shore CDC has been selected to redevelop two Archdiocese former school
buildings, primarily for affordable housing and they are hoping to move forward with re-use of these
buildings this year. However, the City’s current zoning ordinance does not permit municipal or religious
buildings to be converted into multi-family housing. The City has taken action to ameliorate this barrier
by drafting a municipal and religious adaptive reuse ordinance that will be voted on by the City Council
during fiscal year 2020.
Inclusionary Zoning: In the Fall of 2018, the City hired the Metropolitan Area Planning Council (MAPC) to
develop a financial feasibility model and to use said model to develop a draft inclusionary zoning
ordinance. The model was created based on a pro-forma analysis that is typically used by a developer to
understand whether a real estate project is financially feasible. The variable assumptions are based on
housing market data from the Warren Group and the US Census Bureau and through qualitative data
collected via three community meetings; four advisory committee meetings in addition to focus groups
and interviews with Salem residents, local housing experts which lenders, developers, and land use board
members. The proposed inclusionary zoning ordinance will be submitted to the City Council in the fall of
2019.
Accessory Dwelling Units: The City of Salem allows accessory dwelling units; however, only family
members or caretakers of the owner of a home may live in an accessory unit. The City has taken action
to amend the ordinance as a means of increasing the supply of moderately priced rental units in Salem.
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20
The amended ordinance is being reviewed by the City Council and will be voted on by the City Council in
the fall of 2019.
Actions taken to address obstacles to meeting underserved needs. 91.220(k); 91.320(j)
The primary obstacle to addressing underserved needs is the lack of adequate funding. Since 2011,
Salem’s CDBG funding has been reduced by 14.4%, while HOME funding has been reduced by more than
30.2%. In addition to CDBG and HOME funds, Salem uses CPA funds to assist with the development of
affordable housing and is active in identifying and applying for grant funds applicable to our needs.
In order to meet underserved needs the City garnered support and advocacy around affordable housing
through a public engagement campaign. Several documents were created as part of the public
engagement campaign; including a “myth buster” flipbook that addresses common concerns regarding
housing, an informational tri-fold and postcard of with Salem specific housing data, a small card on how
to support affordable housing and a four-part video series that features Salem residents. The video
series explains the importance of creating affordable housing policies in Salem. All of the documents
and the videos created have been made available on the Imagine Salem website and have been used to
demonstrate the need for the previously mentioned zoning amendments.
The project will support Salem’s efforts to meet new housing demand, estimated by the Metropolitan
Area Planning Council, of 2,700 new housing units by the year 2030.
The City will continue to support the creation of new affordable housing units, neighborhood
improvement projects, and anti-poverty strategies 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 ($50,000 in HOME funds, $100,000 in CPA funds) to create 26
affordable units, with 50% for formerly homeless youth, as well as for Boston Street Residences
($185,000 in HOME funds) to create 26 studio units primarily for formerly homeless individuals (along
with supportive services) 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.
Actions taken to reduce lead-based paint hazards. 91.220(k); 91.320(j)
The Salem Board of Health disseminates information regarding the proper disclosure of lead hazards
upon selling or renting a housing unit and inspects rental units for lead paint hazards. In Salem, a
landlord is required to obtain a Certificate of Fitness inspection when an apartment becomes vacant.
Board of Health personnel conduct this inspection and enforce the State Sanitary Code for Housing.
When the information is sent to the landlord prior to this inspection, a letter describing the Federal law
is included, as is a copy of the Tenant Notification Form in English and Spanish. Also, the Board of Health
periodically sends notification of regulations regarding lead-based paint to area realtors.
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21
In addition, Board of Health personnel are trained Lead Determinators. Should the Board receive a call
from a tenant who is concerned that there may be lead-based paint in his/her apartment, potentially
affecting their children under six years of age, the Board is able to send out a Sanitarian to conduct a
Lead Determination. If lead paint is detected, an order is sent to the landlord requiring compliance with
the State Lead Law. The Board ensures compliance with the order. The Massachusetts Childhood Lead-
Paint Poisoning Prevention Program is notified of the results of all Lead Determinations.
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 with a lead poisoned child. In FY18, one unit was made lead free through the
City's Housing Rehabilitation Loan Program. There were no projects undertaken in FY19.
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)
The strategy consists of four components: education, job training, affordable housing and social
services.
Education - The City has used state funding to renovate and improve its educational facilities and
provide school-age children with an environment conducive to learning. The Salem Public Schools
support bilingual classroom settings and technology-based training that will enable those with lower
incomes to improve their job opportunities. 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 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, and programs administered by
non-profit agencies such as teacher home visits, Aspire Developmental Services, LEAP for Education, the
Boys and Girls Club, North Shore Community Development Coalition, Inversant College Savings Program
and VOCES (all funded in FY18). Child care services (Salem Community Child Care, Salem YMCA) also
include an educational component.
Job Training - Salem collaborates with numerous job training, and workforce development programs in
the region such as the MassHire North Shore Career Center and the North Shore Workforce Board. The
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22
City continues to use CDBG funds to support job training and employment assistance programs such as
the Wellspring House MediClerk Program (funded in FY19).
Affordable Housing - City agencies such as the Salem Housing Authority and the DPCD are committed to
providing safe, appropriate, and affordable housing opportunities to very-low, and low- and moderate-
income family, elderly, and disabled households. In addition, many housing providers and social service
agencies work in concert to combat poverty in Salem. The City’s established partnerships with agencies
such as the NSCAP, the North Shore HOME Consortium and the North Shore Community Development
Coalition increase its success at bringing services to lower income residents and encouraging them to
participate in revitalizing their community.
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. 9,185 persons were served
by CDBG funded social service programs in FY19.
Actions taken to develop institutional structure. 91.220(k); 91.320(j)
Under the direction of the DPCD Director, the Assistant Community Development Director (ACDD)
oversees Salem’s community development programs. Housing programs are administered by the
Housing Coordinator and sometimes non-profit agencies, CHDOs and CDCs. Each year, the DPCD issues a
Request for Proposals and awards CDBG funds to non-profit agencies for social service, housing and
economic development programs. The ACDD coordinates the management of the public service and
housing subcontracts and the Economic Development Planner manages the economic development
subcontracts. City departments may undertake CDBG-funded activities (i.e. tree planting, street
improvements). The departments may subcontract work through public bidding procedures and provide
the DPCD with reimbursement requests and required documentation (i.e. prevailing wage). In general,
DPCD staff carry out the remaining activities, including the hiring of consultants or other private
businesses through established municipal purchasing procedures.
The City’s auditing firm audits the CDBG program delivery system annually. In addition, HUD staff
conduct periodic monitorings. The City promptly implements any recommendations as a result of these
reviews. Salem received an on-site monitoring by HUD’s Office of FHEO in March, 2015 and there were
no findings or concerns issued.
Staff periodically attend trainings - FY19 examples:
2018 Building HOME Webinar – September-October, 2018
Mass Ecosystem Climate Adaptation Network Conference – Mass ECAN – October 30, 2018
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Fundamentals of Wetlands Enforcement -- MACC – December 1, 2018
Wetlands Protection Act: Fundamentals, Process and Procedures – MACC – Webinar –
December 5, 2019
MA Association of Conservation Commissions Annual Environmental Conference – MACC --
March 2, 2019
South Shore Climate Change Symposium – Mass Audubon – May 9, 2019
Fundamentals Unit 104: Wetland Functions and Values – MACC – Webinar – May 15, 2019
Opportunities Zone webinar, National Trust for Historic Preservation, January 2019
Affordable Homeownership Options in MA – Keller Williams Realty – January 20, 2019
Impact Essex County Launch Event – Essex County Community Foundation – February 26, 2019
Salem Housing Forum – Salem Planning and MAPC – March 5, 2019
2019 Citizen Planner Training Collaborative Conference – CPTC – March 16, 2019
Making Sense of Congressional Appropriations webinar, National Trust for Historic Preservation,
March 2019
Webinar – HUD – 5 Year Consolidated Plan – May 1, 2019
Historic Districts 101 Workshop – co-hosted by Salem Historical Commission and Historic Salem,
Inc. - May 16, 2019
Windows and Historic Homes: Repair, Replace and New Additions webinar - Traditional Building
Conference, June 2019
Webinar – Native American Tribes, Law, and Planning – APA New Mexico Chapter - June 4, 2019
Salem Community Resilience Building Workshop – City of Salem and Salem Sound Coastwatch –
June 6, 2019
Webinar – Let’s Talk About Privilege – LGBTQ and Planning Division of APA – June 12, 2019
DIF Workshop – MassDevelopment – June 19, 2019
OZ Academy Kick-off/Conference – LOCUS/Smart Growth America – June 23-24, 2019
MAPC Webinar on Climate Zoning – MAPC – June 25, 2019
Wolters Kluwer/Legal Pro webinar (online access to Bobrowski land use handbook) – Wolters
Kluwer – June 25, 2019
Salem Bike Summit: Connecting Bicycle Advocacy and Public Health – Mass in Motion /
MassBike – June 26, 2019
Actions taken to enhance coordination between public and private housing and social service
agencies. 91.220(k); 91.320(j)
DPCD continues to administer Salem H.O.P.E. (Human Organization Partnership Effort), a networking
group of human service agencies that serve Salem residents, offering a forum for agencies to learn
about the services being provided by other agencies in order to fill in gaps, coordinate efforts and avoid
the duplication of services. All human service agency representatives are invited to attend the quarterly
Steering Committee breakfast meetings held at rotating agency locations. Through this program, agency
representatives are introduced to each other and exchange information, announcements and updates.
The City also works with nonprofit agencies to administer social service activities. Agencies are
encouraged to apply to the City for CDBG public services funding to undertake priority programs
outlined in the Consolidated Plan. Additionally, the City of Salem cooperates and coordinates with other
public agencies (and funding sources) to undertake specific activities. Examples include MHFA’s Get the
Lead Out Program and Mass Housing Partnership’s Soft Second Mortgage Program.
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24
The City of Salem works with the City of Peabody, the lead community for the North Shore HOME
Consortium, to coordinate the implementation of its HOME-funded program. 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
and 2015, 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. The page
explains housing discrimination and fair housing laws and is designed to assist consumers, real
estate professionals and lenders. The page 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
also directs its CDBG funding to programs that promote fair housing through the provision of
their services, such as the Independent Living Center’s Accessible Housing Education Services
Program. Furthermore, 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. One of CHAPA’s Spring Regional 2018 meetings was held in Salem in March, 2018, to
which staff attended. Salem also 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 regularly participate in housing fairs held by lending institutions and real
estate professionals. At these fairs, the City provides information regarding its first-time
homebuyer, rehabilitation and deleading programs. In addition, 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. By
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25
speaking with people first-hand, staff are able 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.
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26
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. A Monitoring Guide is included in the Appendix of the Consolidated Plan.
Public service contracts include performance measurement indicators. As part of ongoing monitoring,
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 periodically. 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 HOME-funded
rehabilitation projects with rental affordability restrictions annually for the duration of the affordability
period.
Monitoring of job creation is determined by the time period in the funding Agreement.
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.
The DPCD also annually reviews its performance in meeting its goals and objectives set for in the
Consolidated Plan during the development of the annual CAPER.
Payments to agencies are made on a reimbursement basis to ensure compliance with expenditure
requirements. The Assistant Community Development Director encourages timely submission of
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27
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
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 and at the City Hall Annex
through the Clerk’s Office, Salem Public Library, Salem Housing Authority and on the City’s
website. Copies are available for review at the DPCD, Salem Public Library and Salem Housing Authority
and on the City’s website (a copy of which is available for download). 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. In addition, the most recent CAPER is made available during our two annual
public hearings.
The FY19 CAPER's 15 day comment period was September 6, 2019 through September 20, 2019. There
were no comments received.
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28
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. 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 FY19 (HUD’s Program Year 2017)
Please note: Voucher #6167753 should have indicated prior year funding (HUD 2017). Voucher
#6281967 - of the 8 items, only 3 indicated prior year funding (HUD 2018). The rest erroneously
indicate HUD 2019 funding. This resulted in adjusting Line 10, Line 14, Line 20 and Line 40. Line 14
and 40 also include the reduction of $1118.25 in expenditures due to having been drawn down
twice. This funding has been returned to the line of credit during FY20.
Maps
Low to Moderate Income Areas
Geographic Distribution of Entitlement Funds Expended FY19
Section 3 Report
PART I: SUMMARY OF CDBG RESOURCES
01 UNEXPENDED CDBG FUNDS AT END OF PREVIOUS PROGRAM YEAR 831,288.65
PR26 - CDBG Financial Summary Report
Program Year 2018
SALEM , MA
Office of Community Planning and Development DATE:09-16-19
U.S. Department of Housing and Urban Development TIME:11:09
Integrated Disbursement and Information System PAGE:1
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)1,978,476.97
05 CURRENT YEAR PROGRAM INCOME 93,950.32
05a CURRENT YEAR SECTION 108 PROGRAM INCOME (FOR SI TYPE)0.00
06 FUNDS RETURNED TO THE LINE-OF-CREDIT 0.00
02 ENTITLEMENT GRANT 1,053,238.00
03 SURPLUS URBAN RENEWAL 0.00
04 SECTION 108 GUARANTEED LOAN FUNDS 0.00
14 ADJUSTMENT TO COMPUTE TOTAL EXPENDITURES 31,016.30
15 TOTAL EXPENDITURES (SUM, LINES 11-14)1,114,382.49
16 UNEXPENDED BALANCE (LINE 08 - LINE 15)864,094.48
11 AMOUNT SUBJECT TO LOW/MOD BENEFIT (LINE 09 + LINE 10)905,248.52
12 DISBURSED IN IDIS FOR PLANNING/ADMINISTRATION 178,117.67
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 906,553.75
10 ADJUSTMENT TO COMPUTE TOTAL AMOUNT SUBJECT TO LOW/MOD BENEFIT (1,305.23)
22 PERCENT LOW/MOD CREDIT (LINE 21/LINE 11)82.29%
LOW/MOD BENEFIT FOR MULTI-YEAR CERTIFICATIONS
23 PROGRAM YEARS(PY) COVERED IN CERTIFICATION PY: PY: PY:
19 DISBURSED FOR OTHER LOW/MOD ACTIVITIES 746,235.32
20 ADJUSTMENT TO COMPUTE TOTAL LOW/MOD CREDIT (1,305.23)
21 TOTAL LOW/MOD CREDIT (SUM, LINES 17-20)744,930.09
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
29 PS UNLIQUIDATED OBLIGATIONS AT END OF PREVIOUS PROGRAM YEAR 29,608.96
30 ADJUSTMENT TO COMPUTE TOTAL PS OBLIGATIONS 0.00
31 TOTAL PS OBLIGATIONS (LINE 27 + LINE 28 - LINE 29 + LINE 30)177,208.67
PART IV: PUBLIC SERVICE (PS) CAP CALCULATIONS
27 DISBURSED IN IDIS FOR PUBLIC SERVICES 185,714.68
28 PS UNLIQUIDATED OBLIGATIONS AT END OF CURRENT PROGRAM YEAR 21,102.95
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%
37 DISBURSED IN IDIS FOR PLANNING/ADMINISTRATION 178,117.67
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)1,182,032.55
36 PERCENT FUNDS OBLIGATED FOR PS ACTIVITIES (LINE 31/LINE 35)14.99%
PART V: PLANNING AND ADMINISTRATION (PA) CAP
32 ENTITLEMENT GRANT 1,053,238.00
33 PRIOR YEAR PROGRAM INCOME 128,794.55
34 ADJUSTMENT TO COMPUTE TOTAL SUBJECT TO PS CAP 0.00
46 PERCENT FUNDS OBLIGATED FOR PA ACTIVITIES (LINE 41/LINE 45)17.58%
43 CURRENT YEAR PROGRAM INCOME 93,950.32
44 ADJUSTMENT TO COMPUTE TOTAL SUBJECT TO PA CAP 0.00
45 TOTAL SUBJECT TO PA CAP (SUM, LINES 42-44)1,147,188.32
40 ADJUSTMENT TO COMPUTE TOTAL PA OBLIGATIONS 31,016.30
41 TOTAL PA OBLIGATIONS (LINE 37 + LINE 38 - LINE 39 +LINE 40)201,674.72
42 ENTITLEMENT GRANT 1,053,238.00
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 $1,026,708.41
Contact Person Jane Guy
Date Report Submitted 09/10/2019
Reporting Period
Program Area Code Program Area Name
From To
7/1/18 6/30/19 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 0 0 0 0
Total New Hires 1
Section 3 New Hires 0
Percent Section 3 New Hires 0.0%
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 $22,773.00
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 0.0%
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 $80,435.73
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 0.0%
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.
No 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 did not certify 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 City’s 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, MMA’s Beacon, to representatives of HOME Consortium communities and
the Salem HOPE distribution list. The City’s Section 3 Resident Certification Application is located
on the City’s website, on the Human Resources webpage at https://www.salem.com/sites/salemma
./files/uploads/section_3_resident_certification_3.pdf
Contracting
McGlew Park Improvements Section 3 efforts were reported in the FY18 report (HUD 2017). The
project is now complete. The contractor reported no new hires. While it had been initially expected
that there would be a Youthbuild component, there was not.
Splaine Park Improvements ($16,400) – The project was bid during this reporting period. The
invitation for bids and legal notice indicated that the project was subject to Section 3. Bidders are
required to sign an affidavit that they will comply. After the bid, the Section 3 requirements were
reviewed with the awarded contractor at the start-up meeting on 6/5/19. The work was actually
completed in July, 2019. They had no new hires and they had no subcontracts.
Other Efforts
The City’s Section 3 Business Affidavit is located on the City’s website, on the Purchasing
Department webpage at http://www.salem.com/sites/salemma/files/uploads/section3_business.pdf
YouthBuild North Shore CDC is the only YouthBuild in the region. YouthBuild North Shore CDC
partners with Salem High School, and Catholic Charities to graduate our members with either a
diploma or GED. YouthBuild North Shore CDC focuses on low-income young people ages 16 to 24
working toward their high school equivalency diplomas, while learning job skills by building
affordable housing in their communities. YouthBuild North Shore CDC empowers young adults with
the competency and desire to transform their lives and improve their communities through
education, employment, and leadership development. The program serves approximately 50 youth
annually from Salem, Lynn, and surrounding North Shore communities. 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 agency’s 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.