FY20 COMPANION TO 1 YEAR ACTION PLAN - YEAR 5 of 5 - JULY 3 2019
CITY OF SALEM
FY20 COMPANION
to, and
ONE-YEAR ACTION PLAN
(YEAR 5 OF 5 OF THE 5-YEAR CONSOLIDATED PLAN)
JULY 1, 2019 – JUNE 30, 2020
FISCAL YEAR 2020
(HUD 2019 FUNDS)
JULY 3, 2019
Kimberley Driscoll
Mayor
Tom Daniel, AICP
Director of Planning & Community Development
Kathleen Winn
Deputy Director of Planning & Community Development
Jane A. Guy
Assistant Community Development Director
TABLE OF CONTENTS
FOR BOTH THE FY20 COMPANION AND FY20 ACTION PLAN
FY20 COMPANION
Introduction ................................................................................................................................................... i
CDBG 101: What Can Be Funded? ............................................................................................................ i
FY20 Action Plan Summary of Proposed Activities .................................................................................. iii
Other Resources………………………………………………………………………………………………………………………………..ix
FY20 ACTION PLAN
Executive Summary ....................................................................................................................................... 1
AP-05 Executive Summary - 91.200(c), 91.220(b) .................................................................................... 1
PR-05 Lead & Responsible Agencies - 91.200(b) ...................................................................................... 7
AP-10 Consultation - 91.100, 91.200(b), 91.215(l) ................................................................................... 8
AP-12 Participation - 91.401, 91.105, 91.200(c) ..................................................................................... 17
Expected Resources .................................................................................................................................... 21
AP-15 Expected Resources – 91.420(b), 91.220(c) (1, 2) ........................................................................ 21
Annual Goals and Objectives ...................................................................................................................... 25
AP-20 Annual Goals and Objectives………………...……….………………………………………………………………………. 25
AP-35 Projects - 91.420, 91.220(d) ......................................................................................................... 31
AP-38 Project Summary .......................................................................................................................... 33
AP-50 Geographic Distribution - 91.420, 91.220(f) ................................................................................ 43
AP-75 Barriers to Affordable Housing - 91.420, 91.220(j) ...................................................................... 44
AP-85 Other Actions - 91.420, 91.220(k) ................................................................................................ 46
Program Specific Requirements .................................................................................................................. 51
AP-90 Program Specific Requirements…………………………………………………………………………………………….….51
Appendix
1. LMI Map
2. Application for Federal Funding (SF-424) & Certifications
3. Citizen Participation Comments
Part 1 - Public Participation Process
Part 2 - Review of Draft Plan
Written comment received
i
Introduction
The Federal funding that Salem will receive for FY20 includes $1,065,891 in CDBG funds, an estimated
$145,619 in HOME funds and a projected $100,000 in program income. Total proposed expenditures
based on current estimates of funding to be available are $1,311,510.
Many activities leverage funding from other sources to maximize the impact of the federal dollars the City
receives. Together, these resources fund a wide range of activities designed to develop and maintain
affordable housing, improve neighborhood public facilities, provide economic opportunities, improve
access for people with disabilities, provide critical public services, assist people who are homeless, and
prevent homelessness. The City bases its funding allocations on needs identified, proposed activities and
accomplishments to meet those needs and estimated funding needed to reach the goals and
accomplishment levels.
CDBG 101: What Can Be Funded?
Although CDBG funds can be used for many types of housing, community and economic development
activities, some restrictions apply. CDBG funds must be used for an eligible activity, must address at least
one of three “national objectives” set by Congress, and a majority of the funds must be spent on activities
that benefit very low, low or moderate income people.
National Objectives
Benefit to very low, low and moderate income persons
Activities that serve a “limited clientele”
Limited clientele refers to certain populations presumed by HUD to have very low, low or
moderate incomes: abused children, battered spouses, elderly persons, severely disabled
adults, homeless persons, illiterate persons, persons living with AIDS and migrant farm
workers
Serving people with incomes below the very low, low or moderate income threshold (see
“Income Limits” below)
Area benefit activities
Activity conducted in a service area that is primarily residential, and at least 51% of the
residents have very low, low or moderate incomes (see Map in Appendix). The activity must
meet the needs of very low, low and moderate income persons.
Job creation or retention activities
At least 51% of the jobs created or retained must be available to and held by very low, low or
moderate income people
Aid in the prevention or elimination of slums or blight
Area Basis - Must be a formally designated area (i.e. Salem’s downtown)
Spot Basis – Only a limited set of activities qualify
Urban Renewal Area
Meet a need having a particular urgency
Recent emergency conditions only, posing an immediate threat to health or welfare of
community and no other funding is available
ii
Eligible Activities
CDBG funds may be used for a variety of activities. In general, the activities fall into these categories:
Anti-Crime Programs
Economic Development
Homeless & HIV/Aids Programs
Housing
Infrastructure
Planning & Administration
Public Facilities
Public Services
Senior Programs
Youth Programs
What Does “Very Low, Low or Moderate Income” Mean?
Each year HUD publishes “income limits” that define very low, low and moderate income levels used in
several housing and community development programs. The income limits are determined by household
size and the median incomes in a particular area1. Below are the income limits in effect for Salem as of
June 1, 2018.
Income Limits
Household Size
ONE
TWO
THREE
FOUR
FIVE
SIX
SEVEN
EIGHT
MODERATE
(80% of Median) 56,800 64,900 73,000 81,100 87,600 94,100 100,600 107,100
LOW
(50% of Median) 37,750 43,150 48,550 53,900 58,250 62,550 66,850 71,150
VERY LOW
(30% of Median) 22,650 25,900 29,150 32,350 34,950 37,550 40,150 42,750
1 Salem’s median income is $113,300 as of 4/24/2019
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FY20 Action Plan Summary of Proposed Activities
The following section describes the activities proposed for FY20 in the categories of Affordable Housing,
Economic Development, Neighborhood Improvements, Public Services and Planning & Administration
that will be undertaken with CDBG and/or HOME funds. The activities listed are a combination of those
managed by the city and by community organizations.
Typically, the City identifies activities to be funded from a specific year’s resources, but for some projects,
such as multi-year funding commitments or construction projects, the activity may be completed in the
following fiscal year or undertaken over several fiscal years. It is not uncommon for the City to have
projects that are ongoing from a previous fiscal year.
FY20 Affordable Housing Activities
Housing Rehabilitation Loan Program
The Housing Rehabilitation Loan Program provides technical
and financial assistance to help homeowners make needed
improvements to their properties. The program’s primary
objectives are the elimination of lead paint, hazardous
health and safety conditions, code violations, and barriers to
accessibility. The program rehabilitates owner-occupied
single and multi-family properties, which also creates
and/or improves rental opportunities. As requested by
residents to address the issue of substandard rental housing,
this program also addresses building code violations and
health and safety issues in investor-owned properties with
preference to locations in low to moderate income neighborhoods. Upon completion of the rehabilitation,
and for at least 15 years thereafter, all rental units assisted with federal funding will be restricted to
affordable rents.2 This year the City is considering expanding the program to non-federally assisted Salem
Housing Authority properties.
Projected Accomplishments: 3 Housing Units Rehabbed with CDBG
Proposed Funding: $80,000 CDBG; $141,250 HOME (If Salem’s HOME allocation is more/less than
estimated, HOME funds for this activity will be adjusted by the difference).
This activity will also use carried over funding from FY19 (for additional units).
First-Time Homebuyer Downpayment Assistance Loan Program
The First-Time Homebuyer Downpayment Assistance Loan Program provides 0 percent interest, deferred-
payment loans to households that wish to purchase a home in the City of Salem. The loan is deferred, as
long as ownership of the property is not sold, transferred or refinanced. This program provides renters
with the opportunity to become homeowners, while potentially freeing up a rental unit for another family.
Projected Accomplishments: 0 Households Assisted
Proposed Funding: $0.00 CDBG
This activity will use carried over funding from FY19.
TP
2PT Rents are established by HUD annually.
Housing Forum held March 5, 2019
iv
Rental Downpayment Assistance Program
The Rental Downpayment Assistance Program, administered through local social service agencies,
provides assistance to low- and very low-income Salem residents to help pay first and last month’s rents
and security deposits to enable them to obtain decent housing or to help subsidized rents on a temporary
basis for families escaping violence.
Projected Accomplishments: 0 Households assisted
Proposed Funding: $0.00 HOME
This activity will use carried over funding from FY19.
Tenant Based Rental Assistance (Housing First)
Tenant Based Rental Assistance will target homelessness in Salem through North Shore Community Action
Programs. It will provide 12-24 months of temporary rental assistance for high risk homeless individuals.
Support services will be provided separately through the agency.
Projected Accomplishments: 0 Individuals assisted
Proposed Funding: $0.00 HOME
This activity will use carried over funding from FY19.
Affordable Housing Development
Pool of funds for when opportunities arise for pre-development, acquisition and/or rehabilitation of
affordable housing units (at or below 80% of AMI) by non-profit housing developers and/or CHDO’s.
Projected Accomplishments: To be determined.
Proposed Funding: Carried over CDBG from FY19 will be used for specific development projects to be
determined.
Rehabilitation Administration
Provides for the administration costs necessary to manage our rehabilitation programs, including
inspectional services, mortgage filings, salary, benefits and non-salary expenses.
Proposed Funding: $87,600 CDBG; approximately $4,369 HOME
Fiscal Year 2020 Economic Development Activities
Small Business Financial Assistance Programs
The City provides financial assistance to local business owners through
its Business Loan Program and Storefront Improvement Program,
which are operated out of a funding pool. The Salem Business Loan
Program works to expand financing opportunities for local
entrepreneurs, while creating jobs for low- and moderate-income
individuals and revitalizing the city’s downtown and income-eligible
neighborhoods. The program provides low-interest loans to qualified
entrepreneurs to cover the gap between the amount of financing
needed for an economic development project and the amount that
conventional lenders can finance. Funds are available for acquisition,
construction, or rehabilitation of real property and for financing
First small business client to utilize
a new incubator space managed by
North Shore CDC.
v
related to the purchase of equipment, fixtures, inventory, leasehold improvements and working capital.
Terms/conditions of the loans vary. The Storefront Improvement Program is designed to encourage
private investment and reinvestment by new and existing property/business owners in eligible
commercial districts, by offering a one-to-one match for façade improvements. The match from the city
is up to $5,000 for each storefront.
Projected Accomplishments: 1 business assisted, minimum of 2 jobs created
Proposed Funding: $70,000. This activity may also use any carried over funding from FY19.
Business Technical Assistance
The City helps to coordinate and fund technical assistance services to local business owners. In FY20, the
City will continue to fund the Salem Main Streets Downtown Program. The goal of the Program is to assist
in the revitalization of downtown Salem as a vibrant year-round retail, dining and cultural destination
through business recruitment, retention and promotion. Main Streets works with entrepreneurs and
business owners to secure needed resources and navigate approval processes. Main Streets also works to
improve the downtown business climate in support of additional economic development.
Technical assistance is also provided to new and existing businesses by the City’s Economic Development
Planner, who administers the City’s financial assistance programs and provides administration to the
Salem Redevelopment Authority, which has approval authority over projects occurring in the Downtown
Area (slum/blight area).
Continuing this year will be assistance for a Small Business Engagement Program that will serve minority
entrepreneurs with a business workshop series, 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.
Projected Accomplishments: 50 business owners/potential owners assisted, minimum 4 jobs created
Proposed Funding: $140,000
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Fiscal Year 2020 Neighborhood Improvement Activities
Parks, Public Facilities & Infrastructure Improvements
Various improvements to publicly owned resources in
eligible neighborhoods. Improvements may include,
pedestrian circulation, safety and aesthetics, accessibility
improvements, trash receptacles, traffic improvements,
lighting, public art, signage, cleanup of vacant lots and open
space improvements, as well as improvements to fire
stations, other public facilities and public infrastructure.
Improvements under consideration include improvements to
one or more fire stations, improvements to Palmer Cove
Park, Gallows Hill Park, the On-Point Teen Center and/or
improvements to school recreational facilities.
Projected Accomplishments: Various park, public facility and infrastructure improvements
Proposed Funding: $243,200
Downtown/South River Improvements
Undertake infrastructure improvements to support Salem's slum/blight area (downtown) and
complement ongoing Economic Development activities. The Downtown is bounded roughly by Bridge
Street to the north, Peabody Street to the south, Summer Street to the west, and the Salem Common to
the east. The MBTA's Salem commuter rail station parking lot, located just north of Bridge Street, is
included within the Downtown, as is the South River located to the South.
Just a couple years ago, the properties along the Downtown side of the South River included several
vacant business spaces, including a large empty parcel that had several failed attempts at
development. However, more recently, this area has started to go through a positive transition that the
City would like to help further along. One building that had been vacant for over a year, as well as a former
tire shop, revived as new restaurants. Notch Brewery opened its brewery with a tasting room and outdoor
patio facing the South River. The Salem Waterfront Hotel has received all local permits needed to
undertake an expansion of their hotel by 42 rooms within a new building on a currently underutilized lot
that sits alongside of the South River. The City is pursuing state level permits and funding opportunities
to dredge the South River, with the end goal of making a portion of the river open to recreational
boating. The City recently acquired a large vacant parcel in the middle of this activity, currently
undergoing construction as a new waterfront park. These activities will all help alleviate slum/blight
conditions, create jobs and encourage further development. The City intends to complement these
efforts and other downtown efforts by contributing public investment to help further spur private
investment and to help bring new customers to fledgling businesses, further increasing the vitality of the
area, and thereby reducing slum/blight. Activities may include street/sidewalk improvements, pedestrian
circulation, safety and aesthetics, accessibility improvements, tree planting, trash receptacles, traffic
improvements, lighting, public art, signage and open space improvements, as well as improvements to
public facilities and public infrastructure. Examples could be the continuation of the Harborwalk or
installation of permanent year-round or seasonal lighting as public art.
Projected Accomplishments: Facility and infrastructure improvements and/or public art
Proposed Funding: $0.00. This activity will use carried over funds from FY19
Gallows Hill Park
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Neighborhood Street and Sidewalk Improvements/Tree Planting
The City’s Street Improvement Program funds the repaving of streets, installation of curb cuts/crosswalks,
replacement of sidewalks and planting of street trees in eligible neighborhoods or the downtown
slum/blight area.
Proposed Funding: $140,000
Note: The City is also considering submitting an application for a Section 108 loan in FY19, in order to
undertake comprehensive street improvements (street paving, sidewalk replacement, curbcuts and
crosswalk installations) in the Point Neighborhood or other eligible neighborhoods.
The Neighborhood Improvement category will also include $15,000 for program delivery costs.
Fiscal Year 2020 Social Services Activities
Community Support Services
This program provides grants to nonprofit agencies for social
service programs that assist homeless individuals and families, as
well as low- and moderate-income Salem residents in need.
Funded programs are selected through a competitive Request for
Proposal process.
Proposed Accomplishments: Grants for approximately 29 social
service agency programs to assist an estimated 8,800 persons.
Proposed Funding: $174,883
Fiscal Year 2020 Social Services Funding Proposals Received:
Located within or steps from the Point Neighborhood:
Catholic Charities - Homeless Prevention Program
HAWC – Children’s Services for Domestic Violence Victims in
Emergency Shelter
Disability Resources Center - Housing Assistance Services
Leap for Education - College and Career Ready Program
North Shore CDC - Family Resource Center
North Shore Community Health – Increased Access to Behavioral and
Medical Services to Homeless Individuals
Salem Community Child Care – Kindergarten Afterschool Program
Salem Police Department - Point Targeted Patrols
VOCES - Hispanic Education Program
Open Door Immigration Program – Increasing Community Access to Immigration Legal Services
Located in Downtown Salem:
Lifebridge - Medical & Outreach Supportive Services
New Liberty Innovation School – Teacher Home Visits & Family Engagement
Above: Fairy house planning
Below: The final result
viii
Salem YMCA - Afterschool Program
Located within Salem:
Aspire Developmental Services, Inc. – Early Intervention Program
Bentley Academy Charter School – Home Visits & Family Engagement
Boys & Girls Club of Greater Salem - Power Hour
Eastgate Christian Fellowship - Joseph’s Storehouse Food Pantry (withdrawn)
Inversant – Salem Families College Savings Program
The North Shore Moving Market – Food Delivery for Elderly and Disabled persons
Salem Council on Aging - Senior Transportation Program
Salem Council on Aging –Creative Arts Program for Senior Citizens
Salem Council on Aging –Muscle Strength & Endurance for Senior Citizens
Salem Park, Recreation & Community Services – Enrichment Playground Programs (Palmer Cove and
Memorial Parks)
The Salvation Army - Homeless Prevention Program
The Salvation Army – Winter Emergency Cot Shelter
Wellspring House - MediClerk Job Training Program
Located outside Salem (but available to Salem residents):
Citizens Inn, Inc. – Haven from Hunger Food Pantry
North Shore Community Action Programs, Inc. - Homeless Prevention Program
Fiscal Year 2020 Planning & Administration Activities
General Program Administration
This activity provides for the necessary general administration costs of the
CDBG program oversight and coordination. It also includes the
development of plans and studies and the provision of public information.
General administration costs are capped at 20 percent of the available
CDBG funds.
Proposed Funding: $215,208 (salary, benefits, non-salary expenses,
studies). This may include funds required to match grant funds being
provided by Massachusetts Historical Commission to undertake Survey
and Planning Grant projects and/or other grant-funded projects.
In 2018, the DPCD & other City offices
moved to a newly redeveloped building.
ix
Other Resources
Many activities leverage funding from other sources to maximize the impact of the federal dollars the City
receives. In addition to the City, several housing and community development programs are carried out
by non-city agencies that operate through a variety of resources. This section describes the anticipated
resources that assist Salem residents in addition to CDBG and HOME funds. These include leveraged
funding for Salem’s CDBG and HOME activities, financial resources for Salem’s community partners and
other services and resources available to Salem residents. The dollar amounts are best estimates and do
not indicate a minimum or maximum amount that will be leveraged.
Anticipated Financial/Leveraged Resources
While it is not possible to anticipate every source of funding, examples of anticipated funding resources
from other federal, state and private sources for the City of Salem Department of Planning & Community
Development for FY20 are below. This is in addition to City Capital Improvement Program, Community
Preservation Act, General and other local funds. The dollar amounts are best estimates and do not indicate
a minimum or maximum amount that will be leveraged. This includes full amounts applying for, applied
for, awarded or awarded and partially spent for all programs and projects to be undertaken by the DPCD
or in conjunction with other City departments - not just those leveraged with CDBG funds:
Source Amount
Federal Sources (Non-CDBG or HOME):
U.S. Dept. of Transportation Passenger Ferry Grant Program $3,400,000
Environmental Protection Agency - Revolving Loan Fund awarded with Peabody,
MA - for use over 5 years 1-/2014-9/2019 (includes remaining loan funds and
program income)
$760,645
State Sources:
MassHousing Planning for Housing Production $58,887
Executive Office of Energy and Environmental Affairs – Subdivision Grant $45,000
Massachusetts Cultural Council (awarded for Charter Street Cemetery
Restoration)
$125,000
MS DCR: Mass Trails grant for Szetela Lane shared-use path extension (applied) $300,000
Gateway Cities (289 Derby Street construction) $1,100,000
MA Division of Conservation Services – Parkland Acquisitions and Renovations
for Communities (Gallows Hill Park renovation)
$400,000
Seaport Economic Council Program (small boat facilities) $1,000,000
EOHED – MassWorks Infrastructure Program FY2016 (awarded for Bridge Street
project through Engineering Dept.)
$3,181,471
MassDevelopment TDI Affiliate District for Congress Street (estimate) $20,000
Essex County Community Foundation – Arts & Culture Grant (expecting to apply) $30,000
Massachusetts Emergency Management Agency (hazard mitigation plan) $16,666
Tufts Health Plan Foundation (Shuttle Study through Council on Aging) $30,000
Private/Other Sources:
National Grid (EV charging stations) – (applying up to) $10,000
Tony Hawk Foundation (Brennan Skatepark) $5,000
x
On the next few pages, we have included tables for several key organizations, (Salem Housing Authority,
North Shore Community Action Programs, Inc., Lifebridge and North Shore Community Development
Coalition). Each indicates the funding year that they provided, representing typical leveraged funds.
Salem Housing Authority for year ending September 30, 2019:
Source Amount
Federal Sources
U.S. Department of Housing and Urban Development Housing
Assistance Payments
$12,667,776
HUD Capital Fund Program $70,669
HUD Federal Public Subsidy $140,640
State Sources:
MA Dept. of Housing & Community Development 4001 $978,954
MA Dept. of Housing & Community Development MRVP $183,117
MA Dept. of Housing & Community Development Formula Funding $695,138
North Shore Community Development Coalition FY2018 (1/1/18-12/31/18)
Source Amount
Federal Sources
HOME Funds – Harbor Lafayette Homes $504,614
DOL – YouthBuild $453,263
AmeriCorps & WIOA – Youth $65,410
State Sources
MA Dept. Elementary Secondary Education & DTA $287,877
Local/City Sources
CDBG Salem $55,000
CDBG Peabody $8,000
Private/Other Sources
Grants/Foundations $365,393
Events $112,000
Contributions $103,000
Community Investment Tax Credit $299,000
DHCD – Housing Initiative Funds $669,388
DHCD – Housing Stabilization Funds Loan $363,485
Pathways $20,000
Eastern Bank Tax Exempt Bonds $2,979,324
Developer & other Real Estate Income
Salem CPA Funds
Other Loans – Harbor Lafayette – Private
CEDAC – Harbor Lafayette
$1,035,000
$100,000
$449,900
$363,516
North Shore CDC funding for real development estate development projects is listed on the next page.
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NORTH SHORE CDC: SALEM REAL ESTATE DEVELOPMENT SOURCE SUMMARY 2009-2020
Harbor and
Congress
Street The
Project Name Palmer
Cove Salem Point
II Lafayette
Homes Residences Lighthouses Lafayette
Housing
Affordable Housing Units 15 77 27 64 46 79
Year Completed 2009 2015 2019 2017 2022 est. 2021 est.
FEDERAL LIHTC 846,995 5,151,000 1,937,458 7,472,103 4,812,269 5,500,000
City/Consortium HOME 450,000 300,000 50,000 150,000 350,000
Community Development Block Grant (CDBG) 50,000
Tax Credit Assistance Program (TCAP)
Federal Historic Tax Credits (FHC) 1,811,000 3,331,332 2,000,000
Federal Subtotal 846,995 7,412,000 2,237,458 10,903,435 4,962,269 7,850,000
STATE Affordable Housing Trust (AHT) 1,211,922 1,000,000 1,000,000 1,050,000
CATNHP 750000
Housing Stabilization Fund (HSF) 1,211,923 700,000 1,450,000 500,000
HPSTF
Facilities Consolidation Fund (FCF) 548,580
State HOME 550,000 550,000
Housing Innovations Fund (HIF) 573,081 230,402 500,000 1,000,000 1,165,000
Danvers State Preservation Fund 182,000
State Low-Income Housing Tax Credits (STC) 1,182,600 2,699,520 2,070,000
State Historic Tax Credits (SHC) 1,221,750 1,254,000 1,500,000
Green Aff Hsg Dev Program
MassHousing Design Grant
Brownfields Redevelopment Fund 55,750
Community-Based Housing 585000
LEAN Multi-family Program 25,995 360,824
State Subtotal
xii
North Shore Community Action Programs, Inc. FY 20 funding resources/projected revenues:
Source Amount
Federal Sources
Emergency Food and Shelter Program 13,370
Federal Indirect
LIHEAP (Fuel Assistance) 2,539,775
Community Services Block Grant 351,153
HEARTWAP 254,639
HOME (City of Salem) 30,000
HOME (North Shore HOME Consortium) 225,000
Community Development Block Grant (City of Salem) 9,000
Community Development Block Grant (City of Peabody) 10,000
DOE – Action, Inc. 21,000
Title III Older Americans Act (NESE) 3,000
Title III Older Americans Act (LGSS) 2,500
HOPWA (Lynn Housing Authority & Neighborhood Development) 50,000
State Sources
Department of Housing & Community Development 2,235,518
Department of Elementary & Secondary Education 265,000
Local/City Sources
Peabody Municipal Light Plant 30,000
Danvers Electric 7,000
Trust Fund (Salem) 14,000
Private/Other Sources
Donations 128,000
Private Contracts & Grants 73,000
Tuition & Fees 1,723,000
Lifebridge FY20 funding sources/anticipated leveraged funds:
Source Amount
Federal Sources
HUD – ESG (Emergency Solutions Grant) $218,313
State Sources:
DHCD $650,399
Local/City Sources:
CDBG $9,800
Private/Other Sources:
Donations $500,000
Private Contracts & Grants $250,000
Commercial Income $500,000
Private Client Fees $99,000
xiii
Services
In addition to financial assistance provided to Salem residents through the City and its community
partners, there are numero us programs and services available to Salem residents. Some are funded
through CDBG. Some non-CDBG funded resources not previously mentioned in this plan include, but are
not limited to:
Greater Lynn Senior Services - THE RIDE
THE RIDE paratransit service provides door-to door, shared-ride transportation to eligible people
who cannot use fixed-route transit (bus, subway, trolley) all or some of the time because of a
physical, cognitive or mental disability. THE RIDE is operated by the Massachusetts Bay
Transportation Authority (MBTA) in compliance with the federal Americans with Disabilities Act
(ADA). THE RIDE in North area of Massachusetts is provided through Greater Lynn Senior Services
(GLSS). GLSS provided 30,085 total trips for Salem residents in FY18, including Ride trips under GLSS
(55), Ride trips under The Ride Access Center (28,505) and non-Ride trips (1,525).
Disability Resource Center ( formerly Independent Living Center of the North Shore and Cape Ann, Inc.)
The Disability Resource Center is a service and advocacy agency for people of all ages who live with
all types of disabilities within City of Salem and 24 other municipalities on the North Shore and
Cape Ann. DRC is run by and for people with disabilities. The agency is available to provide
information and resources regarding disability related services and programs for people living with
disabilities. The agency assists people with completion of SSI/SSDI, food stamps and various housing
applications and so much more. DRC hosts a monthly “Affordable Housing Application Workshop”
where staff are available in a group setting to offer guidance on completing the Standard Universal
Application for State Aided Housing (UHA) used to apply for public housing across Massachusetts.
Approximately 100 people annually are assisted in learning about housing opportunities, complete
housing applications (UHA, Section 8 centralized waiting list or regional Section 8 waiting list, and
privately operated subsidized housing opportunities.) Community workshops also provide a variety
of information on how to find affordable, accessible, and available housing with a focus on Salem
housing opportunities, as well as a housing rights workshop to inform persons with disabilities
regarding their rights as tenants, reasonable accommodation requests, as well as what to disclose
about one’s disability when applying and searching for housing.
North Shore Community Development Coalition
The North Shore CDC invests in neighborhoods to create thriving communities, striving to provide
quality affordable housing and foster economic empowerment and community development on the
North Shore. Located in the Point Neighborhood, its residents make up the majority of their clients.
North Shore CDC continues to advance quality programming that offers residents in the region basic
life skills to aid in achieving economic stability and a self -sufficient life. Programming includes
YouthBuild North Shore, (education and workforce development for youth ages 16-24), Students
Taking Action in Community Development First Jobs program (Youth ages 14-21) Adult Education
Classes (High School Equivalency Diploma 18 years and older), Small Business Engagement,
Homeownership Workshops and Counseling, English Language Learners Classes, Mobile Food Pantry,
Family Stability counseling and U.S Citizenship Classes. Annual numbers for FY18 include:
• Financial counseling – 9 workshops; 42 clients served one-on-one counseling
• Housing applications – 38
• First Time Home Buyer – N/a for FY18
• ESL/ELL Classes – 112 residents served
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Catholic Charities
Catholic Charities North began more than 95 years ago with initial sites in Salem and Lynn. The
programs at Catholic Charities North strive to prevent hunger and homelessness for local families in
a financial emergency; engage youth in education and employment programs focused on long term
solutions to poverty; and support families in their effort to build safe, nurturing environments for
children. The Salem office, in the Point Neighborhood, offers basic needs, family support, ESL/ELL
classes and counselling services. Just over 50% of Catholic Charities Salem Basic Needs clients reside
in the Point Neighborhood. Budgeting and financial education are offered to all Basic Needs clients.
The agency will also assist with providing information and assistance with applications upon request.
HAWC
HAWC provides free, confidential services and support to victims of domestic abuse residing in 23
cities and towns on Massachusetts’ North Shore. HAWC services include a 24-hour hotline,
emergency shelter, support groups, advocacy and education, community education, legal
services and children’s services, including a Parent-Child Trauma Recovery Program. Advocates meet
with individuals one-on-one to support them with identifying their needs and accessing resources.
The agency is headquartered at Shetland Properties in the Point Neighborhood. Advocates are also
available at North Shore Medical Center, Salem District Court and Essex Probate Court in Salem. In
2018, HAWC's two contracts with the Department of Public Health for its shelter and community-
based programming were renewed for 11 years of funding, ensuring the agency remains a steadfast
resource for survivors for years to come. HAWC is also celebrated its 40th anniversary in 2018 as the
domestic violence agency of the North Shore.
Citizens Inn
Citizens Inn works on an individual basis to help families and individuals who are experiencing a
housing crisis or food insecurity. Their full spectrum of services provides comprehensive assistance
to each person based on their specific needs. Citizens Inn, now merged with Haven from Hunger,
has served the North Shore for over 36 years. Their programs – Citizens Inn Between, Citizens Inn
Transition, Citizens Inn Homes, and Citizens Inn Haven from Hunger – are designed to help their
clients prepare for and transition to a sustainable life. Through their work, they not only provide a
safe place to stay and a meal on the table, but offer tools to empower their clients to find permanent
solutions to break the patterns of instability in their lives. Nearly one third of their residents are
from Salem and/or find housing in Salem upon exit from temporary family shelter, while 49% of the
food pantry clients at Haven from Hunger are Salem residents.
North Shore Community Action Program Inc.
North Shore Community Action Programs, Inc. (NSCAP) provides social services that enable low-
income families and individuals to obtain the skills and knowledge they need to become economically
self-sufficient, and civically engaged, leading lives with dignity and respect. To achieve its mission,
NSCAP provides a range of programs and services in five key areas: Education and Training, Economic
Stabilization, Housing and Homelessness Prevention, Energy Services, and Home Care.
As part of Energy Services, NSCAP's Fuel Assistance program provides heating assistance to eligible
households in Salem. For FY18, 903 Salem families were determined eligible for $678,102 in benefits.
NSCAP also assists clients who receive case management (shelter clients, chronically homeless and
chronically ill clients, Adult Education clients, representative payees, etc.) with preparation of
applications for benefits such as MassHealth, food stamps/SNAP, Fuel Assistance, and Social Security.
xv
Other agencies/collaborations
Salem High School has 14 different advanced placement offerings in 7 different academic areas, as
well as pathways leading to certifications in 6 different career and technical areas. Pathways
include English/Language Arts, Mathematics, Social Studies, Science Technology & Engineering
(Environmental, Traditional or Medical Track), World Language, Marine Corps Junior ROTC, Visual
Arts, Digital Media, Performing Arts (Drama, Music), and Career & Technical Education
(Automotive, Culinary, Electrical, Building & Property Maintenance, Early Education and Care,
Medical Assisting, and Accounting/Finance).
New Liberty Charter School provides academic skill, employability and personal stability programs for
homeless and at-risk students, and partners with North Shore CDC to provide a YouthBuild
program.
The Boys and Girls Club of Greater Salem provides engaging programs for teens promoting
academics, citizenship and positive behaviors, while helping teens think about the future by
exploring their interests, understanding different careers and helping identify different paths to
success. In addition, they offer licensed after school programs, providing a safe environment with
activities to promote healthy social, emotional and physical development. They also offer a
youth drop-in program that focuses on character and leadership, education and career, the arts
and sports, fitness and recreation.
Salem State University offers many programs that are available to residents, teachers and Salem High
School students. Along with non-credit classes and programs, the community can enjoy award-
winning theatrical performances and art exhibitions, along with many other cultural events,
benefit from the print and electronic resources of the library, or bring the family to an exciting
athletic event. There are part-time degree programs and institutes, athletic camps and clinics,
the Center for the Arts, and the Explorers Institute for Learning & Retirement. Salem State has
opportunities for all Salem community members to engage, learn and become inspired.
State Agencies - Salem is fortunate to also host many State offices, several of which are located in or
near the Point neighborhood. Agency offices in Salem include, but are not limited to, the Salem
Juvenile Court, Probate and Family Court, Transitional Assistance Department, Department of
Children & Families, North Shore Career Center, MA Rehabilitation Commission and the
Committee for Public Counsel – Children and Family Law Division and Youth Advocacy Division.
Links to social service agency websites are located at
http://www.salem.com/planning-and-community-development/pages/dpcd-links
The Disability Resource Center also provides an on-line “yellow pages” of resources. It is located at
https://disabilityrc.org/il-resources/yellow-pages.
1
Executive Summary
AP-05 Executive Summary - 91.200(c), 91.220(b)
1. Introduction
Each year, the City of Salem receives funds from the U.S. Department of Housing and Urban
Development (HUD) to undertake housing and community development activities. These funds are used
to undertake housing, community and economic development projects and programs that assist low- to
moderate-income individuals, families and neighborhoods. In order to receive these funds, the City must
prepare a Consolidated Plan every five years, as well as annual Action Plans to implement the five-year
plan. Together, the Consolidated Plan and the Annual Action Plans provide a record of how Salem
evaluated its needs and presents a blueprint of how it will use the federal funds to be received. The
Consolidated Plan establishes a vision for attaining a higher quality of life for low- and moderate-income
residents and the annual Action Plan outlines specific activities that work toward accomplishing that
vision. Salem's current Consolidated Plan was completed in 2015, along with the Fiscal Year 2016 Action
Plan (Year 1).
This document is the City of Salem's Action Plan for Fiscal Year 2020 (Year 5). It describes the activities
that the City will undertake in the next fiscal year (July 1, 2019-June 30, 2020) with Community
Development Block Grant (CDBG) and Home Investment Partnership (HOME) funds. These funds can be
used for projects or programs undertaken by the City or by organizations engaged by the City.
Community Development Block Grant (CDBG) funds are used to benefit low- and moderate-income
persons or to prevent or eliminate slums or blight in Salem through a variety of community
development programs. CDBG is a formula-based program designed to develop viable urban
communities by providing decent housing, a suitable living environment and expanded economic
opportunities for persons of low- and moderate-income.
In addition, Salem is a member of the North Shore HOME Consortium and receives an allocation of
Home Investment Partnership (HOME) funds. The City of Salem is one of thirty member communities in
the North Shore HOME Consortium. HOME funds are dedicated solely for housing programs, and can be
used to fund a wide range of activities that build, buy and/or rehabilitate affordable housing for rent or
home ownership. Please note that while our narratives discuss the use of HOME funds, this year we
have removed all HOME funding from the IDIS tables, because these funds are reported through the
Consortium. However, because HOME funds were unnecessarily included in the 5-Year Consolidated
Plan tables, this may result in some inconsistences in accomplishments reporting.
The FY20 Action Plan, including appendices, will be located at www.salem.com., along with a companion
document that provides a summary of activities proposed for FY20.
2
2. Summarize the objectives and outcomes identified in the Plan
In 2006, HUD devised a means to uniformly measure accomplishments funded through its housing and
community development programs. In doing so, HUD determined that activities should meet one of
three specific objectives and three outcomes. They are:
Objectives
Activities must meet one of the following three objectives:
Suitable Living Environment - In general, this objective relates to activities that benefit communities,
families or individuals by addressing issues in their living environment.
Decent Housing - Activities found under this objective cover the wide range of housing possible under
HOME or CDBG. This objective focuses on housing programs where the purpose of the program is to
meet individual family or community needs and not programs where housing is an element of a larger
effort. Such programs should be reported under Suitable Living Environment.
Creating Economic Opportunities - This objective applies to economic development, commercial
revitalization or job creation activities.
Outcomes
Activities must work to achieve one of three outcomes as follows:
Availability/Accessibility - This outcome category applies to activities that make services, infrastructure,
public services, public facilities, housing, or shelter available or accessible to low- and moderate-income
people, including persons with disabilities. In this category, accessibility does not refer only to physical
barriers, but also to making the affordable basics of daily living available and accessible to low and
moderate income people where they live.
Affordability - This outcome category applies to activities that provide affordability in a variety of ways
in the lives of low- and moderate-income people. It can include the creation or maintenance of
affordable housing, basic infrastructure hook-ups, or services such as transportation and day care.
Sustainability - Promoting Livable or Viable Communities - This outcome applies to projects where the
activity or activities are aimed at improving communities or neighborhoods, helping to make them
livable or viable by providing benefit to persons of low- and moderate-income or by removing or
eliminating slums or blighted areas.
The table below summarizes the proposed projects’ objectives and outcomes for FY20.
3
Objectives and Outcomes
3. Evaluation of past performance
During the many years of Salem’s CDBG Program, the City has made significant improvements to the
City’s physical and social environment for its low- and moderate-income residents. The CDBG program
has had a strong impact in Salem, as seen through the numerous homes rehabilitated, neighborhood
facilities and infrastructure improved, businesses strengthened, jobs created and families served
through our public service agencies.
The annual Consolidated Annual Performance and Evaluation Report (CAPER) provides an analysis of the
accomplishments and progress the City has made toward meeting the goals and objectives laid out in its
Five Year Consolidated Plan. The FY19 CAPER, for the current fiscal year, will be available by September
30, 2019. The most recent CAPER, for FY18, evaluated the third fiscal year of the current Five Year
Consolidated Plan. HUD calculated that 99.6% of CDBG funds spent in FY18 directly benefited low- and
moderate-income persons. The FY18 CAPER is available at the City of Salem Department of Planning and
Community Development (DPCD), the Salem Public Library and on the City’s website at
https://www.salem.com/sites/salemma/files/uploads/caperfy18finalcorrect112918.pdf .
Housing
Housing Rehabilitation Loan Program Decent Housing Affordability 3 Housing Units*
Affordable Housing Development (HOME funds)Decent Housing Affordability To be determined*
Rehabilitation Adminstration (inspections, mortgage
filings, salary, benefits, non-salary expenses)
Economic Development
Business Technical Assistance Creating Economic
Opportunities
Availability/
Accessibility
50 Businesses; 4 Jobs
Small Business Finanancial Assistance Programs Creating Economic
Opportunities
Affordability 1 Business; 2 Jobs
Neiighborhood Improvement Activities
Neighborhood Street & Sidewalk Improvements/Tree
Planting
Suitable Living Environment Sustainability Locations to be
determined*
Park/playground, Public Facility & Infrastructure
Improvements
Suitable Living Environment Sustainability Various infrastructure
improvements*
Downtown Improvements Creating Economic
Opportunities
Sustainability Infrastructure
improvements*
Program delivery (placeholder)
Social Service Activities
Community Support Services Suitable Living Environment Availability/
Accessibility
8,800 Persons
Not-Applicable to Salem's Performance Measurement
General Program Administration (salary, benefits, non-
salary expenses, planning studies & reports)
*Activities may also use carried over funds to complete outcomes from a prior year or to add to noted outcomes for the current year
AffordabilityFirst Time Homebuyer Programs Decent Housing 0 Households*
4
The chart illustrates FY18 spending by category, as a percentage of overall CDBG and HOME
expenditures.
4. Summary of Citizen Participation Process and consultation process
As part of the process in developing the 2015 Consolidated Plan, public input was sought from residents,
businesses, social service organizations and various stakeholders. A series of nine community meetings
and focus groups were held throughout the city and targeted various neighborhoods and populations.
Individual stakeholder interviews were conducted along with an online survey in English and
Spanish. The result was a comprehensive strategy for the use of Salem’s federal housing and
community development funds for July 2015 through June 2020.
Identifying the needs of the community is an on-going process. Each year, the City holds additional
public hearings and comment periods to review those goals and to make specific recommendations for
programs and initiatives to be undertaken in a given year.
For the fifth year Action Plan, citizen participation included a public hearing in January, 2019 and the
collection of written comment. In order to include broad public participation, outreach to participate
included an English/Spanish legal notice in the Salem News. An English/Spanish public notice was
posted at City Hall and City Hall Annex, was sent to the Salem Public Library, Salem Council on Aging and
the Salem Housing Authority for posting, was provided to all City Councillors, was placed on the City’s
website and was mailed to various social service agencies and neighborhood associations, as well as the
Citizens Advisory Committee members. A press release was sent to the Salem News, Salem Gazette and
other media. An English/Spanish Community Bulletin Board request was posted with Salem Access
Television.
Affordable Housing
24%
Neighborhood
Improvements
38%
Economic Development
9%
Planning &
Administration
16%
Public Services
13%
FY18 CDBG & HOME Expenditures by Category
5
The City will publicize the availability of the draft Action Plan and the date/time of the public hearing
and the public comment period in several ways, targeting residents, businesses, social service
organizations and civic groups:
An English/Spanish Community Bulletin Board request at Salem Access Television.
An English/Spanish legal ad published in the Salem News indicating the availability of plans and
providing notice of the 30-day comment period and scheduled public hearing.
English/Spanish notices posted at City Hall and City Hall Annex and on www.salem.com.
Notices provided to the Salem Public Library, Salem Council on Aging and the Salem Housing
Authority, and e-mailed or mailed to several social service agencies, neighborhood associations
and Citizens Advisory Committee members. Notices emailed to the Salem H.O.P.E. distribution
list.
Press release to the Salem News, the Salem Gazette and other media.
Copies of the plans are provided to the Salem Housing Authority and Salem Public Library for public
viewing and copies are available at the Department of Planning & Community Development. Copies of
the plan are provided to the members of the Citizens Advisory Committee via email. The plan is made
available for download on www.salem.com. Copies of the draft plans are available for attendees of the
public hearing. Copies of the draft plans are provided to the Salem City Council.
The City Council approves the submission of the Application for Federal Assistance.
Public hearing minutes are located in the Appendix.
5. Summary of public comments
On January 17, 2019 a public meeting was held for all interested persons at City offices at 98
Washington Street. Spanish translation was available. A public participation guidebook was provided to
all attendees. There were nine attendees. Comments summarized:
Minutes of the public hearing are located in the Appendix, along with a copy of a written submission.
The Draft Action Plan, along with an updated Citizens’ Participation Plan, was made available for a 30-
day public comment from May 30, 2019 through June 28, 2019.
A second public hearing was held for all interested persons at City offices at 98 Washington Street on
June 20, 2019. There were no attendees.
An email was received from Darlene Story of Catholic Charities. She stated that she would “want to
express the need for the continued support for homeless prevention for the residence of Salem.”
6. Summary of comments or views not accepted and the reasons for not accepting them
All comments and views were taken into consideration in preparation of this Action Plan.
6
There were no comments or views that were not accepted.
7. Summary
The Federal funding that Salem will receive for FY20 includes $1,065,891 in CDBG funds and a projected
$100,000 in program income for a total of $1,165,891. This Action Plan will identify the projects that
will be funded from this total through the tables found in AP-35.
In addition, the Salem will receive an estimated allocation of $145,619 in HOME funds through the
North Shore HOME Consortium, bringing the total proposed expenditures based on current estimates of
funding to be available to $1,311,510. The majority of HOME funds will likely be utilized through the
Housing Rehabilitation Loan Program. However, it is possible that a portion may be provided to a sub-
recipient for Rental Downpayment Assistance, Tenant Based Rental Assistance or other Affordable
Housing.
It is estimated that at least 70 percent of the FY19 CDBG funding and 100 percent of the HOME funding
will be used for activities that benefit persons of low- and moderate-income. The pie chart below
illustrates the city’s proposed FY20 spending by category, as a percentage of estimated CDBG and HOME
funds.
While the City typically identifies activities to be funded from a specific year’s resources, for some
projects, such as multi-year funding commitments or construction projects, the activity may be
completed in the following fiscal year or undertaken over several fiscal years. It is not uncommon for the
City to have projects that are ongoing from a previous fiscal year.
Many activities leverage funding from other sources to maximize the impact of the federal dollars the
city receives. Together, these resources fund a wide range of activities designed to develop and
maintain affordable housing, improve neighborhood public facilities, provide economic opportunities,
improve access for people with disabilities, provide critical public services, assist people who are
homeless, and prevent homelessness. The City bases its funding allocations on needs identified,
proposed activities and accomplishments to meet those needs and estimated funding needed to reach
the goals and accomplishment levels.
7
PR-05 Lead & Responsible Agencies - 91.200(b)
1. Agency/entity responsible for preparing/administering t he Consolidated Plan
The following are the agencies/entities responsible for preparing the Consolidated Plan and
those responsible for administration of each grant program and funding source.
Agency Role Name Department/Agency
CDBG Administrator SALEM Department of Planning &
Community Development
Table 1 – Responsible Agencies
Consolidated Plan Public Contact Information
For inquiries or to send written comment contact:
City of Salem
Department of Planning & Community Development
98 Washington Street
Salem, MA 01970
Att: Jane A. Guy, Assistant Community Development Director
T: 978-619-5685
E: jguy@salem.com
Economic
Development,
$210,000 , 16%
Affordable Housing,
$313,219 , 24%
Neighborhood
Improvements,
$398,200 , 30%
Planning &
Administration,
$215,208 , 17%
Public Services,
$174,883 , 13%
FY20 Proposed Expenditures (CDBG & HOME)
8
AP-10 Consultation - 91.100, 91.200(b), 91.215(l)
1. Introduction
The City of Salem uses CDBG funds to support specific projects and initiatives that are needed by its
residents and that meet HUD’s national goals and objectives. Identifying the needs of the community is
an on-going process.
In 2014, the City of Salem retained Community Opportunities Group, Inc. (COG) to prepare its Five Year
Consolidated Plan (covering city Fiscal Years 2016-2020) and first year Action Plan (FY16). In developing
the Consolidated Plan, a series of nine community meetings and focus groups were held throughout the
city, including a public hearing. The meetings were held at the Salem Housing Authority, at
neighborhood meetings within specific wards with large low- and moderate-income (LMI) populations,
in the City Hall offices, at community organizations, and at Salem State University to reach broad
population. The focus groups targeted persons with disabilities, housing providers, businesses and
seniors. Individual stakeholder interviews were conducted with city staff, social service providers,
residents, business owners, and other persons and organizations familiar with local needs.
In addition, COG interviewed and consulted with staff from provider agencies who serve Salem
residents, both located in and outside of Salem. Also, an on-line survey (in Spanish and English)
generated 318 responses. The purpose of this process was to obtain an understanding of the
population’s needs and the resources available to address the needs, as well to gain an understanding of
gaps of needed programs and services. This process also served to assist the City in determining how
HUD, along with other federal and state and private funds could be used most effectively. While many of
the various local and regional agencies have a good awareness of the existence of other agencies and
their respective programs and services, the consultation process helped to refresh inter-agency
coordination.
In May, 2015, after months of public hearings and public comment, the City adopted the Five Year
Consolidated Plan, highlighting the community development needs and goals for July 2015– June 2020.
Each year, the City holds additional public hearings and comment periods to review those goals and to
make specific recommendations for programs and initiatives to be undertaken in a given year. The result
is the annual Action Plan, designed to put into action the goals and strategies established in the
Consolidated Plan.
It is important to note that the Action Plan is not a budget, but rather a planning tool that outlines the
priorities and activities that the City will undertake to address housing, community and economic
development needs. Proposed activities must meet HUD’s eligibility rules, and must be consistent with
the Consolidated Plan. The City identifies estimated costs for each proposed activity included in this
document. During the year, should the cost of the proposed activities change, these values can be
adjusted. In addition, the City can reallocate unused funds to assist new programs that may be
developed during the course of the year, or to supplement existing activities that require additional
funding.
9
Provide a concise summary of the jurisdiction’s activities to enhance coordination between
public and assisted housing providers and private and governmental health, mental health
and service agencies (91.215(l)).
The City works cooperatively with private housing providers and private and governmental health,
mental health, and service agencies and other interested parties to implement its Consolidated Plan.
The DPCD leads Salem H.O.P.E. (Human Organization Partnership Effort), a networking group of human
service agencies that serves Salem residents. H.O.P.E. provides an opportunity for agencies to learn
about the services being provided by other agencies in order to fill in gaps, coordinate efforts and avoid
duplication of services. All human service agencies are invited to attend the quarterly Steering
Committee breakfast meetings held at rotating agency locations. Through this program, agency
representatives are (re-)introduced to each other and exchange information, announcements and
updates.
The DPCD coordinates with the SHA to address the housing needs of Salem’s lower-income residents.
Proposed development sites or demolition or disposition of existing public housing developments must
follow established regulatory procedures administered by City agencies. Some of these, such as the
Board of Appeal and Planning Board have staff support from the DPCD.
The City also works with nonprofit agencies to administer social service activities. The City issues annual
Requests for Proposals (RFP) for public services, housing services, and economic development funding to
undertake priority programs outlined in the Consolidated Plan. Additionally, the City cooperates and
coordinates with other agencies and funding sources to support specific activities. Examples of these
include MassHousing’s “Get the Lead Out” and Massachusetts Housing Partnership’s “Soft Second
Mortgage” programs.
The City of Peabody is the lead community for the North Shore HOME Consortium. Salem works with
the consortium to coordinate the implementation of its HOME-funded programs. Salem also works with
local CHDOs and CDCs to carry out priority activities.
The City also issues an annual RFP to municipal departments to request funding to undertake public
facility and infrastructure improvements in LMI and/or slum/blight neighborhoods.
Describe coordination with the Continuum of Care and efforts to address the needs of
homeless persons (particularly chronically homeless individuals and families, families with
children, veterans, and unaccompanied youth) and persons at risk of homelessness.
Homeless needs in the area are primarily serviced through the Gloucester/Haverhill/Salem/Essex
County Continuum of Care (CoC), referred to as the North Shore Continuum of Care Alliance. The lead
entity is the City of Peabody, which also oversees the North Shore HOME Consortium. The CoC receives
funds through the McKinney-Vento program, which are distributed directly to area organizations, such
as Salem-based Lifebridge.
10
NSCAP coordinates the North Shore Housing Action Group (NSHAG), which is a regional network of
providers and organizations who work to address the needs of those who are homeless or at risk of
becoming homeless with the aim to enhance coordination and communication among providers.
Salem uses its CDBG funds to address homeless needs and conduct homelessness prevention activities
through an annual housing/public service funding award process. Funded programs for homeless may
include HOME-funded rental down payment (first/last/security) or tenant based rental assistance,
and/or CDBG funded homelessness prevention emergency assistance and medical or outreach services.
NSCAP, Salvation Army, Catholic Charities and Citizens Inn, among others, administer the services.
In 2014, the Mayors of Salem and Beverly created a task force to better address homelessness. Included
were representatives of city departments and service agencies. In February, 2017, Salem, Beverly and
Peabody executed an inter-regional MOU on homelessness, which included a commitment to support
the production of permanent supportive housing for lower income families and individuals at risk of
homelessness in each participating community over 5 years (2017-2022), which would result in 100
family and 60 individual units.
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:
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.
Establishing hope@salem.com to report non-emergency transient or homeless issues.
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).
High Risk Homeless Task Force, where service providers review the cases of high-risk individuals
and work to address individual needs.
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 (which helps reduce loitering by homeless
individuals, while providing a comfortable space for access to services) and the formation of community
coalitions.
11
In August, 2018, the City replaced an existing Rental Downpayment Assistance Program agreement with
NSCAP, with a new, Tenant Based Rental Assistance agreement to target funds for housing Salem’s
highest risk homeless individuals. A second agreement has since been issued
On April 1, 2019, Lifebridge opened a day center 3 days per week that welcomes, mostly chronic,
homeless individuals. It is a safe place to gather and have positive socialization, while at the same time
building trust toward service providers, so that they may be connected to appropriate services.
Describe consultation with the Continuum(s) of Care that serves the jurisdiction’s area in
determining how to allocate ESG funds, develop performance standards for and evaluate
outcomes of projects and activities assisted by ESG funds, and develop funding, policies and
procedures for the operation and administration o f HMIS
No community or agency within Salem’s jurisdiction receives a direct award of ESG funds.
2. Agencies, groups, organizations and others who participated in the process and
consultations
See Table 2 starting on next page.
12
Table 2 – Agencies, groups, organizations who participated
1 Agency/Group/Organization NORTH SHORE COMMUNITY ACTION PROGRAM (NSCAP)
Agency/Group/Organization Type Services - Housing
Services-Children
Services-Elderly Persons
What section of the Plan was addressed by
Consultation?
Housing Need Assessment
Market Analysis
Anti-poverty Strategy
Briefly describe how the Agency/Group/Organization
was consulted. What are the anticipated outcomes of
the consultation or areas for improved coordination?
For the Five Year Consolidated Plan, Deric LePard of North Shore Community
Action Program (NSCAP) was consulted via phone interview. He provided
information which was incorporated into the Needs Analysis and Market
Analysis. NSCAP will continue to coordinate with the city to implement strategies
that provide community services. For the FY 20 Action Plan, Deric LePard was
present at the Public Hearing and provided comment on current needs. He
stated that affordable housing is the number one need. Second is the consistent
need for rental arrearage and utility assistance, which really makes a difference
for stability. Persons with disabilities are often lower income and it can be
overwhelming and stressful to come up with first, last, security and moving costs
and that rental start-up assistance is a huge help. All comments are considered
during the development of the plan.
2 Agency/Group/Organization DISABILITY RESOURCE CENTER ( FORMERLY INDEPENDENT LIVING CENTER OF
THE NORTH SHORE & CAPE ANN, INC.)
Agency/Group/Organization Type Services-Persons with Disabilities
What section of the Plan was addressed by
Consultation?
Housing Need Assessment
Non-Homeless Special Needs
Market Analysis
13
Briefly describe how the Agency/Group/Organization
was consulted. What are the anticipated outcomes of
the consultation or areas for improved coordination?
For the Consolidated Plan, Mary Margaret Moore of the Independent Living
Center of the North Shore and Cape Anne participated in focus groups in the
public participation process. Information provided by the organization was
incorporated in the Needs Analysis and Market Analysis. All comments are
considered during the development of the plan.
3 Agency/Group/Organization Brookhouse Home for Women
Agency/Group/Organization Type Services-Elderly Persons
What section of the Plan was addressed by
Consultation?
Non-Homeless Special Needs
Briefly describe how the Agency/Group/Organization
was consulted. What are the anticipated outcomes of
the consultation or areas for improved coordination?
For the FY20 Action Plan, Laurie Fullerton was present at the Public Hearing and
stated that the Brookhouse Home is for women 65+ and they get calls almost
daily about housing. They rely on grants to address building issues that are due
to the building’s age. They have individuals with behavioral health issues and
they are slowly transitioning to meet the greatest needs. All comments are
considered during the development of the plan.
4 Agency/Group/Organization Salem Housing Authority
Agency/Group/Organization Type PHA
What section of the Plan was addressed by
Consultation?
Public Housing Needs
Market Analysis
Other Actions in FY20 Action Plan
14
Briefly describe how the Agency/Group/Organization
was consulted. What are the anticipated outcomes of
the consultation or areas for improved coordination?
For the Consolidated Plan, the Salem Housing Authority was consulted via
meeting and phone interview to determine the agency's most pressing needs. In
addition, the SHA's Comprehensive Plan must take into account the findings of
the Consolidated Plan and the City of Salem must certify that the documents are
consistent. Information provided by the SHA was incorporated throughout the
Consolidated Plan. For the FY20 Action Plan, the SHA was consulted to update
information provided during the Consolidated Plan process and last year's Action
Plan and CAPER process.
5 Agency/Group/Organization North Shore Community Development Coalition
Agency/Group/Organization Type Housing
Regional organization
Planning organization
Community Development
What section of the Plan was addressed by
Consultation?
Housing Need Assessment
Non-Homeless Special Needs
Market Analysis
Economic Development
Anti-poverty Strategy
Briefly describe how the Agency/Group/Organization
was consulted. What are the anticipated outcomes of
the consultation or areas for improved coordination?
For the Consolidated Plan, the North Shore Community Development Coalition
provided input through focus group meetings and interviews, and contributed
data for the Needs Analysis and Market Analysis. NSCDC will continue to
coordinate with the City of Salem to carry out projects in implementation of the
Strategic Plan. For the FY20 Action Plan, NSCDC was consulted to update
information provided during the Consolidated Plan process and last year's Action
Plan and CAPER process. All comments are considered during the development
of the plan.
6 Agency/Group/Organization North Shore Community Health Center
15
Agency/Group/Organization Type Services – Children
Services – Elderly Persons
Services – Persons with Disabilities
Services – Persons with HIV/AODS
Services – homeless
Services – Health
Health Agency
What section of the Plan was addressed by
Consultation?
Homeless Needs – Chronically homeless
Homeless Needs – Families with children
Non-Homeless Special Needs
Briefly describe how the Agency/Group/Organization
was consulted. What are the anticipated outcomes of
the consultation or areas for improved coordination?
For the FY20 Action Plan, Linda Weibner was present at the Public Hearing and
stated a lot of her patients are homeless and some have issues paying for
utilities.
Identify any Agency Types not consulted and provide rationale for not consulting
Please see PR-10 in the 5-Year Consolidated Plan for a complete list of agencies consulted during its development. For the Five Year Consolidated
Plan, to the City’s knowledge, it consulted with all relevant agency types. There were a few individual agencies for which contact was attempted
but were unable to reach.
16
Other local/regional/state/federal planning efforts considered when prep aring the Plan
Name of Plan Lead Organization How do the goals of your Strategic Plan overlap with the goals of each plan?
Continuum of Care City of Peabody
Salem DPCD works directly with Peabody and member agencies in
implementation of the Strategic Plan to support and enhance its existing
programs that address at-risk and homeless families.
North Shore HOME
Consortium Consolidated
Plan
City of Peabody HOME programs overlap with affordable housing-related goals in the
Consolidated Plan.
Salem Housing Authority
Comprehensive Plan Salem Housing Authority The Salem Housing Authority seeks to address the housing needs of lower-
income residents in Salem.
NSWIB 2015-2017 Strategic
Plan
North Shore Workforce
Investment Board, Inc.
The WIB seeks to create economic opportunities that benefit low- and
moderate-income residents and align with the anti-poverty strategy of the
Consolidated Plan.
Downtown Salem Retail
Market Strategy/Action Plan
Salem Redevelopment
Authority
The SRA seeks to create economic opportunities that benefit low- and
moderate-income residents and to improve the downtown which is designated
as a slum & blight area.
Table 3 - Other local / regional / federal planning efforts
Narrative
The Department of Planning and Community Development (DPCD) coordinates and communicates with other municipal departments, local and
regional agencies, and public and private housing organizations. The DPCD coordinates the Salem H.O.P.E. effort and communicates regularly
with subcontracted agencies delivering social services and subrecipients of federal funds. DPCD also works with the Salem Housing Authority
(SHA), nonprofit organizations, and housing developers to produce affordable housing in the City. The strength of these relationships is
beneficial in streamlining housing development and leveraging additional funds for projects.
17
AP-12 Participation - 91.401, 91.105, 91.200(c)
1. Summary of citizen participation process/Efforts made to broaden citizen participation
Summarize citizen participation process and how it impacted goal-setting
For the fifth year Action Plan, citizen participation included a public hearing in January, 2019 and the
collection of written comment. In order to include broad public participation, outreach to participate
includes an English/Spanish legal notice in the Salem News and an English/Spanish notice posted at City
Hall & City Hall Annex. Notices were provided to the Salem Public Library, Salem Council on Aging and
the Salem Housing Authority for posting. An English/Spanish Community Bulletin Board request was
posted with Salem Access Television. Notices and a cover letter were provided to all City Councillors. A
press release was sent to the Salem News, the Salem Gazette and other media. The public hearing
notice was also posted on the City’s website and was mailed or emailed to various social service
agencies and neighborhood associations, as well as the Citizens Advisory Committee members. Public
hearing minutes are provided in the Appendix.
The City publicized the availability of the draft Action Plan and the date/time of the public hearing and
the public comment period in several ways in order to obtain broad public comment. Information
regarding the expected draft plan availability and the upcoming comment period and public hearing was
provided to those attending the Salem H.O.P.E. meeting in March, 2019. An English/Spanish Community
Bulletin Board request was provided to Salem Access Television. An English/Spanish legal ad was
published in the Salem News indicating the availability of plans and providing notice of the 30-day
comment period & scheduled public hearing. English/Spanish notices were posted at City Hall and City
Hall Annex and on www.salem.com. Notices were provided to the Salem Public Library, Salem Council
on Aging and the Salem Housing Authority, and were mailed or emailed to several social service
agencies, neighborhood associations and Citizens Advisory Committee members. The notices were also
emailed to the Salem H.O.P.E. distribution list. A press release was sent to the Salem News, the Salem
Gazette and other media.
Copies of the plans were provided to the Salem Housing Authority and Salem Public Library for public
viewing and copies were available at the Department of Planning & Community Development. Copies of
the plan were provided to the members of the Citizens Advisory Committee. The plan was made
available for download on www.salem.com.
The public comment period commenced on May 30, 2019 and ended on June 28, 2019. A public hearing
was held on June 20, 2019 at City Hall Annex.
Copies of the draft plans are provided to the Salem City Council. The City Council approved submission
of the Application for Federal Assistance in June, 2019.
18
Citizen Participation Outreach
Sort Order Mode of Outreach Target of Outreach Summary of
response/attendance
Summary of
comments received
Summary of comments
not accepted
and reasons
URL (If
applicable)
1 Public Meeting
Non-English
Speaking - Specify
other language:
Spanish
Non-
targeted/broad
community
City Councillors,
Citizens Advisory
Committee, public
service agencies
On January 17, 2019
a public meeting was
held for all interested
persons at City
offices at 98
Washington Street.
Spanish translation
was provided. A
public participation
guidebook was
provided to all
attendees. There
were nine attendees.
Affordable housing
is priority,
particularly senior
housing.
Consistent need for
rental arrearage
and utility
assistance and
assistance with
rental start-up
costs. Populations
in need are persons
with disabilities,
low income and
elderly. Concerns
about lengthy
waiting lists for
affordable senior
housing. Good
practice used by
the City to use
CDBG to leverage
other funding
sources.
All comments and
views were taken into
consideration in
preparation of this
Action Plan. The City
continues to fund
housing projects to add
affordable units,
provide emergency
funds for rental
arrearages and utilities
to help avoid eviction,
to provide rental start-
up assistance and
provide various public
service programs
including services to
assist with housing
(including assistance
for seniors, disabled,
and homeless
individuals).
19
Sort Order Mode of Outreach Target of Outreach Summary of
response/attendance
Summary of
comments received
Summary of comments
not accepted
and reasons
URL (If
applicable)
2 Newspaper Ad
Non-English
Speaking - Specify
other language:
Spanish
Non-
targeted/broad
community
City Councillors,
Citizens Advisory
Committee, public
service agencies
See summary of
citizen participation
above for full
description of
newspaper ads,
public notices and
press releases issued
- both at the start of
the Action Plan
process and upon
availability of the
Draft FY20 Action
Plan.
No written
comments were
received.
All comments and
views were taken into
consideration in
preparation of this
Action Plan.
3 Public Meeting
Non-English
Speaking - Specify
other language:
Spanish
Non-
targeted/broad
community
City Councillors,
Citizens Advisory
Committee, public
service agencies
On June 20, 2019 a
public meeting was
held for all interested
persons at City
offices at 98
Washington Street.
Spanish translation
was available. Copies
of the Draft Action
Plan were available.
There were no
attendees present
No comments were
received N/A
20
Sort Order Mode of Outreach Target of Outreach Summary of
response/attendance
Summary of
comments received
Summary of comments
not accepted
and reasons
URL (If
applicable)
4 Newspaper Ad
Non-English
Speaking - Specify
other language:
Spanish
Non-
targeted/broad
community
City Councillors,
Citizens Advisory
Committee, public
service agencies
See summary of
citizen participation
above for full
description of
newspaper ads,
public notices and
press releases issued
- both at the start of
the Action Plan
process and upon
availability of the
Draft FY20 Action
Plan.
An email was
received from
Darlene Story of
Catholic Charities.
She stated that she
would “want to
express the need
for the continued
support for
homeless
prevention for the
residence of
Salem.”
All comments and
views were taken into
consideration in
preparation of this
Action Plan.
Table 4 – Citizen Participation Outreach
21
Expected Resources
AP-15 Expected Resources – 91.420(b), 91.220(c) (1, 2)
Introduction
The City of Salem receives Community Development Block Grant (CDBG) funds from HUD to benefit low -
and moderate-income persons or to prevent or eliminate slums or blight in Salem through a variety of
community development programs. CDBG is a formula-based program designed to develop viable urban
communities by providing decent housing, a suitable living environment, and expanded economic
opportunities for persons of low- and moderate-income.
As one of thirty member communities of the North Shore HOME Consortium, Salem receives an
allocation of Home Investment Partnership (HOME) funds from HUD. HOME funds are dedicated solely
for housing programs, and can be used to fund a wide range of activities that build, buy and/or
rehabilitate affordable housing for rent or home ownership. The Consortium, through its lead
community of Peabody, submits a Consolidated Plan for operating the HOME program. The City of
Salem will not use HOME funds to refinance any existing debt secured by multi-family housing
developments.
Along with HUD funds, Salem's housing and economic loan programs generate program income, which
the City directs to existing or new programs as needed. Income is generated as loans are repaid or
recaptured from an assisted property or business. The City typically receives program income funds each
year and they help extend its ability to support CDBG-eligible activities.
The Federal funding that Salem will receive for FY20 includes $1,065,891 in CDBG entitlement funds. We
estimate program income of $100,000 (from housing and ED loan repayments). Some prior year
resources may be available in FY20, such as unspent/unprogrammed dollars. However, it is unknown
how much will be carried over until after FY19 closes. Additional federal funds include an estimated
$145,619 in HOME funds.
In addition to these resources, many activities leverage funding from other government and private
sources to maximize the impact of the federal dollars the city receives.
The Community Preservation Act (CPA) was adopted by Salem voters in 2012. It established a local
dedicated fund for the purpose of open space, historic preservation, outdoor recreation and community
housing projects. It is financed by a property tax surcharge of 1%, along with annual matching funds
from the statewide CPA Trust Fund. These funds can be used for a variety of purposes, including
activities that acquire, create, preserve, support and rehabilitate/restore housing for low- and
moderate-income households. An appointed committee recommends how the funds will be utilized
each year. Massachusetts CPA regulations require that a minimum of 10% of annual CPA revenues be
set aside or spent for each of the program areas, including affordable housing, open space and
recreation, and historic preservation, with the remaining 70% to be allocated to any one or more of
22
these program areas. In the Five Year Consolidated Plan, the city projected an estimated $531,000
annually from both local and matching funds in future years (based on FY16 funding estimates).
Several housing and community development programs are carried out by non-city agencies that
operate through a variety of funding resources. Together, these resources fund a wide range of activities
designed to develop and maintain affordable housing, improve neighborhood public facilities, provide
economic opportunities, improve access for people with disabilities, provide critical public services,
assist people who are homeless, and prevent homelessness. Salem will continue to work with
community and regional partners to identify further funding opportunities that can be used to support
affordable housing and other objectives served by CDBG programs.
23
Anticipated Resources
Program Source
of Funds
Uses of Funds Expected Amount Available Year 4 Expected
Amount
Available
Remainder
of ConPlan
$
Narrative Description
Annual
Allocation:
$
Program
Income:
$
Prior Year
Resources:
$
Total:
$
CDBG public -
federal
Acquisition
Admin and
Planning
Economic
Development
Housing
Public
Improvements
Public Services 1,065,891 100,000 0 1,165,891 0.00
CDBG is a formula-based program that
provides decent housing, a suitable living
environment, and expanded economic
opportunities for persons with low- and
moderate income.
This is Year 5 of the 5-Year Consolidated
Plan. Therefore, there would be no
remaining funds following this year.
Table 5 - Expected Resources – Priority Table
Explain how federal funds will leverage those additional resources (private, state and local funds), including a description of how
matching requirements will be satisfied
The following are the funds typically leveraged:
First Time Homebuyer Program: matching funds and financing were projected for approximately $131,500 annually. In FY18,
homebuyers provided $84,712 in private funds, as well as obtained $1,066,054 in financing from a primary lender.
Housing development projects by non-profit developers combine Low-Income Housing Tax Credits and other state, federal
funding, as well as private fundraising, grants, financing, and program fees . The 27 SRO units at Harbor and Lafayette Homes
(financing closed March, 2018) will have total development cost of $7.4M, of which $50,000 is HOME and $100,000 i s CPA.
State programs such as Get the Lead Out have been used to assist in home rehabilitation.
The Salem Main Streets Program leverages funds through business contributions and donations, as well as event fees and
donations to cover costs: $20,000-$80,000 annually.
Community Preservation Act funding ($383,155 toward housing to date) has been utilized for 4 affordable housing project for
a total of 109 housing units. Two projects are complete, one is under construction and one is in pre-development.
24
Salem is a Gateway City, making it eligible for certain State funds.
The City’s Capital Improvement Program provides funding annually on a project-specific basis for both CDBG and non-CDBG
activities.
Other sources include the City's General Fund, State Chapter 91 and various federal, state and private grant or loan programs
for brownfields, parks, and infrastructure improvements. Examples of these include Parkland Acquisitions and Renovations
for Communities (PARC), Environmental Protection Agency, National Endowment for the Arts, MassDevelopment
Brownfields Assessment Program, MA Office of Coastal Zone Management, MassWorks, and the Massachusetts Preservation
Projects Fund. The City may also seek state grants including Green Communities, the Cultural Facilities F und, and the
Gateway Cities Park Program.
Most subrecipient agencies use CDBG as a portion of their overall activity budgets. Examples of several agency funding
sources are provided in the appendix. Other funding sources include federal and state grants, p rivate grants and donations,
and program income.
The City provides about $550,000 annually for planning and administration funds.
Additional planning funds and technical assistance have been obtained through Massachusetts Historical Commission and
Metropolitan Area Planning Council.
Salem was recently awarded a $59,000 MassHousing grant to implement the City's Imagine Salem vision by studying
neighborhood mixed use zoning, conducting a citywide public engagement campaign around affordable housing needs and
advancing a new inclusionary zoning ordinance.
The City is also considering submitting an application for a Section 108 loan in FY19, in order to undertake comprehensive
street improvements (street paving, sidewalk replacement, curbcuts and crosswalk insta llations) in the Point Neighborhood.
A listing of anticipated leveraged funds for FY20 is found in the FY20 Companion document, including anticipated Federal, State and
private funding resources for the City of Salem and several key organizations.
If appropriate, describe publically owned land or property located within the jurisdiction that may be used to address the needs
identified in the plan
None have been identified at this time.
25
Annual Goals and Objectives
AP-20 Annual Goals and Objectives - 91.420, 91.220(c)(3)&(e)
Goals Summary Information
Sort
Order
Goal Name Start
Year
End
Year
Category Geographic
Area
Needs Addressed Funding Goal Outcome Indicator
1 Housing
Rehabilitation
Programs
2015 2019 Affordable
Housing
Affordable Housing CDBG:
$167,600
Homeowner Housing
Rehabilitated: 3 Household
Housing Unit
2 Affordable Housing 2015 2019 Affordable
Housing
Affordable Housing CDBG:
$0.00
Rental units rehabilitated:
Household Housing Unit
3 First Time
Homebuyer
Program
2015 2019 Affordable
Housing
Affordable Housing
Homeownership
Assistance
CDBG:
$0.00
Direct Financial Assistance to
Homebuyers: 0 Households
Assisted
4 Small Business
Financial
Assistance
Programs
2015 2019 Non-Housing
Community
Development
Economic
Development
CDBG:
$70,000
Jobs created/retained: 3 Jobs
Businesses assisted: 2
5 Business Technical
Assistance
2015 2019 Non-Housing
Community
Development
Economic
Development
CDBG:
$140,000
Jobs created/retained: 4 Jobs
Businesses assisted: 50
6 Community
Support Services
2015 2019 Homeless
Non-Homeless
Special Needs
Public Services CDBG:
$174,883
Public service activities other
than Low/Moderate Income
Housing Benefit: 8800 Persons
Assisted
7 Neighborhood
Improvements
Activities
2015 2019 Non-Homeless
Special Needs
Neighborhood Public
Facilities and
Infrastructure
CDBG:
$398,200
Public Facility or Infrastructure
Activities other than
Low/Moderate Income Housing
Benefit: 12,180 Persons Assisted
26
Sort
Order
Goal Name Start
Year
End
Year
Category Geographic
Area
Needs Addressed Funding Goal Outcome Indicator
8 Downtown
Improvements
2015 2019 Non-Housing
Community
Development
Downtown Public
Facilities and
Infrastructure
CDBG:
$0.00
Public Facility or Infrastructure
Activities other than
Low/Moderate Income Housing
Benefit: 4735 Persons Assisted
Table 6 - Goals Summary
Estimate the number of extremely low-income, low-income, and moderate-income families to whom the jurisdiction will provide
affordable housing as defined by HOME 91.215(b)
Estimates for HOME funds are provided through the North Shore Home Consortium’s Action Plan.
Note: The City of Salem has also targeted $215,208 in CDBG funds for General Program Administration (salary, benefits, non-salary expenses,
planning studies & reports, grant matching funds) to provide for CDBG program oversight.
Goal Descriptions
See Table on next page.
27
1 Goal Name Housing Rehabilitation Programs
Goal
Description
The majority of Salem’s housing stock pre-dates 1949. While older homes are an integral part of Salem's history and
neighborhood fabric, they also require a great deal of maintenance and may not meet current building codes. In response
to this issue, the City administers a Housing Rehabilitation Loan Program (funded with both CDBG and HOME funds) to
provide low-interest loans to owners of single and multi-family properties to address cost-prohibitive health and safety
issues. Through the rehabilitation of existing housing stock, more homeowners, as well as tenants residing in rental units,
can live in decent housing. Previously, the City expanded the program to investor-owners with low- to moderate-income
tenants, to address code compliance and health and safety issues and to maintain affordable, quality rental properties and
to discourage the conversion of affordable rental units into market rate condominiums.
In June, 2007, the North Shore HOME Consortium voted to adopt the federal Energy Star Standards. The implementation
of this new policy for the use of HOME funds began in October, 2007. All new HOME-assisted units are required to be
certified as Energy Star compliant whenever either new construction is involved or where the rehabilitation of an existing
structure involves the gutting of the structure to the bare walls. Homeowners are also referred to NSCAP’s weatherization
program, where they can get energy-efficiency work undertaken, and then utilize Salem’s loan program, thereby reducing
the homeowner’s loan burden.
In addition, the City offers deleading assistance for homeowners with a lead poisoned child through MassHousing’s Get the
Lead Out Program. This program can be combined with the City’s Housing Rehabilitation Loan Program. As a Local
Rehabilitation Agency (LRA) for the Get the Lead Out Program, Salem is responsible for intake of application information,
technical assistance, working with the applicant through the construction process and acting as the escrow agent for the
loan funds.
2 Goal Name Affordable Housing
Goal
Description
Salem utilizes CDBG, HOME and CPA funds to provide a local match for non-profit development projects that result in long-
term and permanent affordable housing, often by creating new affordable housing units through the conversion of old,
abandoned or underutilized buildings and. A pool of funds for affordable housing is often set aside to provide resources for
the City or a nonprofit partner, such as the North Shore CDC or Harborlight Community Partners, to take advantage of
opportunities that arise to acquire available abandoned, derelict properties and turn them back into decent, affordable
homes. The local match shows City support so that these agencies can leverage financing from various other funders.
Salem will continue to work with nonprofit partners, as well as to negotiate on a case-by-case basis with private
developers, to facilitate the creation of new affordable housing units.
28
3 Goal Name First Time Homebuyer Program
Goal
Description
The City continues its goal to provide families with the opportunity to own their first home through the First-Time
Homebuyer Downpayment Assistance Loan Program (FTHB). In addition to basic downpayment assistance, the program
offers a $1,000 increase over the maximum loan amount for homeowners who complete First-Time Homebuyer
Counseling through a qualified training program.
In addition to administering the First-Time Homebuyer Downpayment Assistance Loan Program, DPCD staff provides
assistance to coordinate other resources for down payment assistance, such as homeownership programs offered by
MassHousing, as well as supporting first time homebuyer education workshops provided by various organizations.
4 Goal Name Small Business Financial Assistance Programs
Goal
Description
Businesses often need additional assistance and more creative financing options than may be offered by banks. Even the
very best innovative new business idea often has difficulty filling the “gap” between what they can invest and what banks
will loan, versus the cost of the project. Without capital, new equipment or storefront improvements, some of the best
small businesses can fail. The Salem Business Loan Program offers expanded financing opportunities for local
entrepreneurs, while creating jobs and revitalizing the city. The program provides these types of loans:
Microenterprise Assistance - provides loans to low- to moderate-income entrepreneurs to assist with their
microenterprise business (5 or fewer full-time employees, including the owner)
Commercial Revitalization - provides loans to business owners in the downtown and eligible neighborhood districts
to assist with the exterior rehabilitation of their business and/or to correct code violations
Special Economic Development - provides loans to business owners throughout the city in exchange for job
creation and/or job retention for low- and moderate-income people.
Low-interest loans for commercial, industrial or mixed-use projects help create and retain jobs while improving the
appearance of neighborhoods and promoting economic growth. The DPCD will continue to work with business owners to
help finance a small project or to assist with gap financing of larger projects.
The Storefront Improvement Program helps to improve the physical appearance of districts by advocating for appropriate
design and historic preservation. By offering small business loans and grants toward new signage and façade
improvements, the City is helping to enhance our historic neighborhood business districts with financial incentives to
Salem business and property owners. Furthermore, the City has developed the City of Salem Commercial Design Guidelines
to help business and property owners with appropriate design. Copies are free at the DPCD office or on the City’s website.
29
5 Goal Name Business Technical Assistance
Goal
Description
Often small business owners need some degree of technical assistance to help them with managing or growing their
business. The needs of local entrepreneurs range from business planning, drawing up financial statements, or navigating
the city permitting process.
The City’s Economic Development Planner assists with new business location or existing business relocation, walks new
businesses through permitting processes, coordinates available loan programs, coordinates the development of tax
increment financing agreements, coordinates the development of neighborhood and economic development plans,
manages the Salem Main Streets and North Shore CDC’s Small Business Engagement contracts and liaises between
businesses and the Salem Redevelopment Authority, as well as with state economic development agencies to provide
businesses with access to tax credits and other incentives. The City works in collaboration with several agencies to improve
economic opportunity in Salem by providing technical assistance to businesses. The Salem Main Streets Initiative, North
Shore CDC, Salem Partnership, Salem Chamber of Commerce, Destination Salem, SBA Small Business Development Center
and Salem State University Assistance Corporation’s Enterprise Center each work in cooperation with the City to support
local business, with some of the programs targeted toward low-income, minority and female entrepreneurs. The City
offers a “Doing Business in Salem Guide” that is available on the City’s website.
6 Goal Name Community Support Services
Goal
Description
Along with housing services to help provide decent, affordable housing and economic development activities to help
provide good jobs at good wages, individuals and families may have additional needs that are specific to their household.
The Five Year Consolidated Plan identified the need for various social service programs to primarily benefit Salem’s low- to
moderate-income population and those with special needs (i.e. 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). Each year, Salem sets aside funds for social service programs to address these special needs.
Through a Request for Proposals process, the city makes awards to nonprofit service organizations that offer such services.
Public services eligible for funding include, but are not limited to, employment, crime prevention, child care, health,
substance abuse, education, fair housing counseling, energy conservation, recreation programs, food programs and
services for senior citizens. Target populations include, but are not limited to, persons with HIV/AIDS, abused children,
battered spouses, elderly and frail elderly, minorities, non-English speaking residents, residents of public assisted housing,
persons who are mentally ill or mentally retarded, substance abusers, youth and persons with disabilities. Funding
proposals received are available for viewing at the DPCD.
30
7 Goal Name Neighborhood Improvements Activities
Goal
Description
Residents depend on neighborhood infrastructure and public facility improvements to make the city the livable community
that it is. By continually investing in neighborhoods, Salem strives to be the best place it can be for people to live and work.
In FY20, the City will continue the investment in eligible neighborhoods through public infrastructure and traffic
improvements (i.e. street paving, new sidewalks, curbcuts/crosswalks, traffic/pedestrian improvements and the removal
of architectural barriers), public art and through neighborhood improvement initiatives (e.g., parks/playgrounds, lighting,
trash receptacles, tree planting, signage and bike paths).
The City will continue to invest in efforts that strengthen its public facilities, including improvements to fire stations.
Salem’s goal to have a new senior center will be realized in the Fall of 2018.
8 Goal Name Downtown Improvements
Goal
Description
Healthy vibrant downtown and neighborhood commercial districts are essential to Salem’s overall economic health. Salem
will continue to work toward the implementation of the Salem Downtown Renewal Plan, including historic preservation,
public art and other improvements that help discourage neglect and disinvestment and eliminate slums/blight.
Table 7 – Goal Descriptions
31
AP-35 Projects - 91.420, 91.220(d)
Introduction - Salem will carry out the following programs to address the goals identified in the Five
Year Consolidated Plan (Note: some activities will use prior year funds):
Housing Rehabilitation Program - Offer financial and technical assistance to eligible
homeowners and investor-owners to improve housing units, including improvements for
accessibility.
Affordable Housing - Support for local non-profit housing organizations and CHDOs seeking to
acquire, create, preserve, and/or renovate affordable units.
First Time Homebuyer Program - Financial assistance to eligible households in the form of loans
for downpayments and closing costs.
Small Business Financial Assistance Programs - Business Loan Program and Storefront
Improvement Program for new, emerging or expanding small businesses that create or retain
jobs for low- and moderate-income workers or eliminate or prevent blight, address building
code violations and/or improve access, and/or leverage private investment.
Business Technical Assistance - Technical assistance, training, design guidance, location service
and referrals for owners of microenterprises or businesses that create or retain jobs for low- and
moderate-income workers. Program delivery for the business loan program, oversight of the
Salem Redevelopment Authority and funding for the Salem Main Streets Program and the
micro-enterprise programs offered by Salem State University’s Enterprise Center.
Neighborhood Improvement Activities - Public facility and infrastructure improvements that
enhance the quality of life in eligible neighborhoods, such as, parks/playgrounds, tree planting,
lighting, signage, bike paths, streets, sidewalks, crosswalks, pedestrian safety, trash receptacles,
traffic calming, accessibility, public art, senior center, fire stations, schools, etc.
Community Support Services - Grants to nonprofit agencies for social services programs such as
homelessness and foreclosure prevention, housing education, food distribution, homeless
services, job training, senior transportation, childcare, crime prevention, immigrant services
(cultural orientation and acclimation), ESL and citizenship education, youth activities, senior
services, adult education (financial literacy, computer training, etc.) and substance abuse
prevention, and other programs that advance self-sufficiency, reduce household financial
burdens or improve the quality of life, as well as other special services (legal assistance, program
navigation guidance). Also to support programs that provide supplemental education and/or
engagement programs to increase public school students’ academic achievement.
Planning & Administration - Planning and general administration necessary to provide the tools
needed to manage the CDBG program, as well as the development of plans and studies and the
provision of public information.
Downtown Improvements - Public facilities and infrastructure improvements that are located in
Salem’s slum/blight area and/or that benefit people with disabilities, such as lighting, signage,
pedestrian safety, streets, sidewalks, crosswalks, trash receptacles, accessibility, public art
and/or tree planting.
32
# Project Name
1 Affordable Housing
2 Housing Rehabilitation Programs
3 First Time Homebuyer Program
4 Small Business Financial Assistance Programs
5 Business Technical Assistance
6 Neighborhood Improvement Activities
7 Community Support Services
8 Planning & Administration
9 Downtown/South River Improvements
Table 8 – Project Information
Describe the reasons for allocation priorities and any obstacles to addressing underserved
needs
During the development of the Five Year Consolidated Plan, Salem residents identified the community
development needs and goals for Fiscal Years 2016-2020. The priority needs identified during the
extensive public process included the need for affordable housing, economic development,
neighborhood improvement, and social services. The City has based its funding allocations on the
identified needs. The proposed activities and expected accomplishments are intended to address those
needs, with the goals and accomplishments calibrated to projected funding levels. At least 70% of the
FY20 CDBG funding will be used for activities that benefit low- and moderate-income persons.
Affordable Housing - Approximately 14.4% of CDBG funding (including estimated program
income) in FY20 will be allocated to affordable housing, along with 100% of Salem’s HOME
funding allocation through the North Shore Home Consortium. This funding will be used to
facilitate rehabilitation, acquisition and rental assistance for low- and moderate-income
households.
Economic Development – The City intends to allocate approximately 18% of its CDBG funding
for FY20 to efforts to revitalize commercial districts, improve exterior building facades, and
assist new and existing business owners (including microenterprises), through financial and
technical assistance.
Social Services – In FY20, the City intends to allocate the maximum allowable amount of 15% to
support a broad range of social service programs that are consistent with the needs and goals
identified in the Five Year Consolidated Plan.
Public Facilities and Infrastructure Improvements - Approximately 34% of the City’s FY20 CDBG
funding will be allocated towards public facilities and infrastructure improvements projects in
LMI neighborhoods and in the Downtown Urban Renewal District.
Program Administration - Not more than 20% will be allocated for the necessary general
administration costs for program oversight and coordination, including plans and studies.
33
AP-38 Project Summary
Project
Summary
Information1
Project Name Affordable Housing
Target Area
Goals Supported Affordable Housing
Needs Addressed Affordable Housing
Funding $0.00
Description Support local non-profit housing organizations and CHDOs seeking to acquire, create,
preserve and/or renovate affordable units.
Target Date 6/30/2020
Estimate the number and
type of families that will
benefit from the proposed
activities
Salem will use carried over CDBG and HOME funding to complete the activities noted in a
prior year's Action Plan (FY18). These funds have not been associated with a specific
development project. The goals indicator for FY18 was set at a minimum of 2 units for LMI
families.
Location Description The location of the minimum of 2 units utilizing FY18 funds has not been determined.
Planned Activities
2 Project Name Housing Rehabilitation Programs
Target Area
Goals Supported Housing Rehabilitation Programs
Needs Addressed Affordable Housing
Funding CDBG: $167,600
Description Offer financial and technical assistance to eligible homeowners and investor-owners to
improve housing units, including improvements for accessibility, through the Housing
Rehabilitation Loan Program.
Target Date 6/30/2020
34
Estimate the number and
type of families that will
benefit from the proposed
activities
It is estimated that a minimum of three families of low to moderate income will be
assisted. This activity may also use carried over funding from the prior year to complete
additional units.
Location Description Addresses will be determined from applications for assistance that will be submitted by
homeowners.
Planned Activities Housing Rehabilitation Loan Program
Inspectional Services
Rehabilitation Administration
3 Project Name First Time Homebuyer Program
Target Area
Goals Supported First Time Homebuyer Program
Needs Addressed Homeownership Assistance
Funding CDBG: $0.00
Description Financial assistance to eligible households in the form of loans for downpayments and
closing costs through the First Time Homebuyer Downpayment assistance Loan Program.
Target Date 6/30/2020
Estimate the number and
type of families that will
benefit from the proposed
activities
Salem will use carried over CDBG funding to complete the activities noted in a prior year's
Action Plan (FY19). As of 5/21/19, these funds had not been associated with a specific
address. The goals indicator for FY19 was set at 5 LMI households.
Location Description Locations to be determined upon receipt of program applications from eligible
households.
Planned Activities Loan pool for downpayment assistance loan program. As individual activities are set up
for first time homebuyer loans, the loan pool is reduced.
35
4 Project Name Small Business Financial Assistance Programs
Target Area
Goals Supported Small Business Financial Assistance Programs
Needs Addressed Economic Development
Funding $70,000
Description Provide a Business Loan Program and a Storefront Improvement Program for new,
emerging or expanding small businesses that create or retain jobs for low- and moderate-
income workers, address building code violations and/or handicapped access, and/or
leverage private investment.
Target Date 6/30/2020
Estimate the number and
type of families that will
benefit from the proposed
activities
It is estimated that one business will be assisted, creating a minimum of 2 LMI jobs.
Location Description Point Neighborhood, Downtown Salem (slum/blight area) or other eligible LMI commercial
areas.
Planned Activities Small Business Loan Program
Storefront Improvement Program
5 Project Name Business Technical Assistance
Target Area
Goals Supported Business Technical Assistance
Needs Addressed Economic Development
Funding CDBG: $140,000
36
Description Offer technical assistance, training, design guidance, location service and referrals for
owners of micro-enterprises or businesses that create or retain jobs for low- and
moderate-income workers. Provide program delivery for the business loan program,
technical support to the Salem Redevelopment Authority and funding for the Salem Main
Streets Program and North Shore CDC’s Small Business Engagement Program.
Target Date 6/30/2020
Estimate the number and
type of families that will
benefit from the proposed
activities
It is estimated that a minimum of four LMI jobs will be created, as well as a minimum of
fifty businesses assisted.
Location Description Point Neighborhood, Downtown (slum/blight area) and other LMI commercial areas.
Planned Activities Salem Main Streets Program
Economic Development Program Delivery
North Shore CDC Small Business Engagement Program
6 Project Name Neighborhood Improvement Activities
Target Area
Goals Supported Neighborhood Improvements Activities
Needs Addressed Neighborhood Public Facilities and Infrastructure
Funding CDBG: $398,200
Description Undertake public facility and infrastructure improvements that enhance the quality of life
in eligible neighborhoods such as, parks/playgrounds, clean-up of vacant lots, open space
improvements, tree planting, lighting, signage, bike paths, streets, sidewalks, crosswalks,
pedestrian access & safety, trash receptacles, traffic calming, public art, accessibility,
senior center, fire stations, teen center, schools, etc.
Target Date 6/30/2020
37
Estimate the number and
type of families that will
benefit from the proposed
activities
Projects will be undertaken in LMI neighborhoods. Per the American Community Survey
2011-2015 5-year estimates, it is estimated that Salem has 21,395 or 52.7% residents that
are LMI persons.
LMI neighborhoods have 17,600 persons of which 12,180 or 69.2% are LMI persons. We
have used 17,600 as the estimated for the number of persons to be assisted.
Location Description All activities will be undertaken in eligible LMI neighborhoods.
Planned Activities Street & Pedestrian Improvements
Tree Planting
Park/playground Improvements
Lighting Installations
Point Neighborhood Improvements
Council on Aging Improvements
Public Art
7 Project Name Community Support Services
Target Area
Goals Supported Community Support Services
Needs Addressed Public Services
Funding CDBG: $174,883
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Description Provide grants to nonprofit agencies for social service programs such as homelessness or
foreclosure prevention, housing education, food distribution, homeless services, job
training, senior transportation, child care, crime prevention, immigrant service, ESL and
citizenship education, youth activities, senior services and activities, adult education
(financial literacy, computer train, etc.) and substance abuse prevention, and other
programs that advance self-sufficiency, reduce household financial burdens or improve
the quality of life, as well as other special services (legal assistance, program navigation
guidance). Also to support programs that provide supplemental education and/or
engagement programs to increase public school students' academic achievement.
Target Date 6/30/2020
Estimate the number and
type of families that will
benefit from the proposed
activities
Approximately 8,800 persons will be assisted through approximately 29 social service
programs. It is estimated that 97% of the persons served will be low to moderate income.
Location Description Not applicable
39
Planned Activities Grants for up to 28 social service programs.
Fiscal Year 2020 Social Services Funding Proposals Received:
Located within or steps from the Point Neighborhood:
Catholic Charities - Homeless Prevention Program
HAWC – Children’s Services for Domestic Violence Victims in Emergency Shelter
Disability Resources Center, Inc. - Housing Assistance Services
Leap for Education - College and Career Ready Program
North Shore CDC - Family Resource Center
North Shore Community Health – Increased Access to Behavioral and Medical Services
to Homeless Individuals
Salem Community Child Care – Kindergarten Afterschool Program
Salem Police Department - Point Targeted Patrols
VOCES - Hispanic Education Program
Open Door Immigration Program – Increasing Community Access to Immigration Legal
Services
Located in Downtown Salem:
Lifebridge - Medical & Outreach Supportive Services
New Liberty Innovation School – Teacher Home Visits & Family Engagement
Salem YMCA - Afterschool Program
Located within Salem:
Aspire Developmental Services, Inc. – Early Intervention Program
Bentley Academy Charter School – Home Visits & Family Engagement
Boys & Girls Club of Greater Salem - Power Hour
Eastgate Christian Fellowship - Joseph’s Storehouse Food Pantry (withdrawn)
Inversant – Salem Families College Savings Program
Salem Council on Aging - Senior Transportation Program
Salem Council on Aging –Creative Arts Program for Senior Citizens
Salem Council on Aging –Muscle Strength & Endurance for Senior Citizens
Salem Park, Recreation & Community Services – Enrichment Playground Programs
(Palmer Cove, 289 Derby and Memorial Parks)
40
The North Shore Moving Market – Food Delivery for Elderly and Disabled Persons
The Salvation Army - Homeless Prevention Program
The Salvation Army – Winter Emergency Cot Shelter
Wellspring House - MediClerk Job Training Program
Located outside Salem (but available to Salem residents):
Citizens Inn, Inc. – Haven from Hunger Food Pantry
North Shore Community Action Programs, Inc. - Homeless Prevention Program
8 Project Name Planning & Administration
Target Area
Goals Supported Housing Rehabilitation Programs
Affordable Housing
First Time Homebuyer Program
Small Business Financial Assistance Programs
Business Technical Assistance
Community Support Services
Neighborhood Improvements Activities
Downtown Improvements
Needs Addressed Affordable Housing
Homeownership Assistance
Economic Development
Public Services
Neighborhood Public Facilities and Infrastructure
Downtown Public Facilities and Infrastructure
Funding CDBG: $215,208
Description Cover costs associated with planning and general administration in order to provide the
tools needed to manage the CDBG program, as well as the development of plans and
studies and the provision of public information. This includes funds to match grant funds
being provided by the Massachusetts Historical Commission Survey and Planning Grant
Program and/or other grant programs.
41
Target Date 6/30/2020
Estimate the number and
type of families that will
benefit from the proposed
activities
Not applicable
Location Description Not applicable
Planned Activities General Program Administration
Planning Studies
Provision of public information
9 Project Name Downtown Improvements
Target Area
Goals Supported Downtown Improvements
Needs Addressed Downtown Public Facilities and Infrastructure
Funding CDBG: $0.00
Description Undertake infrastructure and public facility improvements to support Salem's slum/blight
are (downtown) and complement ongoing Economic Development activities. Projects
may include street & sidewalk improvements, pedestrian circulation, safety, access and
aesthetics, accessibility improvements, tree planting, trash receptacles, traffic
improvements, lighting, signage and open space improvements, as well as improvements
to public facilities and public infrastructure. The City may also look at various locations in
the downtown for consideration of public art projects.
Target Date 6/30/2020
42
Estimate the number and
type of families that will
benefit from the proposed
activities
4735 persons are located within the block groups that comprise the Downtown
(slum/blight area):
2045003 – pop 710
2045002 – pop 1250
2042002 – pop 495
2042003 – pop 1250
2043001 – pop 1030
Location Description Salem's downtown (slum/blight area) is just south of the North River and west of Salem
Harbor. The area is bordered by dense, mostly residential areas on all sides. It is bounded
roughly by Bridge Street to the north, Peabody Street to the south, Summer Street to the
west, and the Salem Common to the east. The MBTA's Salem commuter rail station
parking lot, located just north of Bridge Street, is included within the Downtown.
Planned Activities Slum/blight area improvements are the City's contribution to economic activity and
private investment.
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AP-50 Geographic Distribution - 91.420, 91.220(f)
Description of the geographic areas of the entitlement (including areas of low -income and
minority concentration) where assistance will be directed
As of 4/1/19, HUD announced the publication of low- and moderate-income summary data based on the
American Community Survey 2011-2015 R-year estimates (2015 ACS). A map of the 2015 Census block
groups (see Appendix) is used to identify low- to moderate-income (LMI) areas. According to the 2015
ACS, Salem is now 52.7% LMI, with block groups of lower income concentration in the neighborhood
roughly between Boston Street and Dunlap/Balcomb Streets; the area bordered by Witch Way, Puritan
Road, Ord and Summit Streets, Berube Road, Rawlins and Boston Streets and the City of Peabody line,
the neighborhood bordered by Boston, Pope, Proctor, Jackson and Wilson Streets and Jefferson and
Highland Avenues; and a large, contiguous, 9 block group area that includes portions of the downtown,
the Point Neighborhood and South Salem, boarded by Bentley, Essex, Summer, Broad Street and
Hathorne Streets, Jefferson Avenue, crossing over to and along the railroad thru to the bike path parallel
to Raymond Road until the Marblehead line, then proceeding up Lafayette Street to Willow Avenue and
the Atlantic Ocean, (with the exception of one block group – 2042.004). There is overlap between the
Downtown and the Point Neighborhood, which also has the highest concentration of minority residents.
Rationale for the priorities for allocating investments geographically
The City typically supports programs that benefit low- and moderate-income households or specific
population groups such as senior citizens, disabled persons and minorities. Although some programs
support the needs of these populations throughout the city, many activities are targeted to specific
neighborhoods with concentrations of low- and moderate-income households. When prioritizing
activities, the City pays special attention to those low- and moderate-income neighborhoods where the
greatest needs have been identified and whose public facilities and infrastructure are in the worst
condition. In addition, the City has also undertaken improvements in the Downtown Urban Renewal
Area, which is designated as a Slum and Blight District.
Discussion
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. To this end, the City will look closely at activities
that can address comprehensive needs. In addition, the Housing Rehabilitation Loan Program, First-
Time Homebuyer Downpayment Assistance Loan Program, and the Small Business Loan Program will
continue to be offered citywide, to allow any low- to moderate-income individual or household to take
advantage of their availability.
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AP-75 Barriers to affordable housing -91.420, 91.220(j)
Introduction
Throughout the process of gathering input through public meetings and through interviews with service
providers, business associations, and housing professionals during the 5-Year Consolidated Plan process,
the City did not find that its housing policies create impediments to fair housing. Compared to other
cities and towns within the region, Salem offers a greater diversity of housing, and a higher proportion
of affordable housing overall, having exceeded the State’s 10% affordable housing goal. Nonetheless,
several factors contribute to the difficulty of increasing the availability of affordable housing, including a
shortage of land, environmental conditions, constraints on development finance, and the lack of
regulatory tools to require affordable housing in new developments. Like other communities, Salem is
not in control of all of these barriers.
Actions it planned to remove or ameliorate the negative effects of public policies that serve
as barriers to affordable housing such as land use controls, tax policies aff ecting land, zoning
ordinances, building codes, fees and charges, growth limitations, and policies affecting the
return on residential investment
Salem’s zoning does not require developers to provide affordable housing via an inclusionary zoning
ordinance. As a result, the redevelopment of obsolete residential and commercial space for new
condominium or rental housing has produced higher-end units that are not affordable to a large
percentage of the City’s existing residents. While the infusion of more people and disposable income in
the downtown area supports local economic development goals, a lack of a sufficient supply of housing
for low-, moderate-, and middle-income households may create negative social and economic
consequences for the City as a whole. The City will:
Continue to negotiate the inclusion of affordable units in private housing developments.
Continue to utilize Massachusetts’ Chapter 40B Comprehensive Permit program which enables
the City to waive local zoning requirements including density, height, and use, for developments
to create new affordable housing.
Expand affordable housing stock through work of the Affordable Housing Trust Fund Board
(AHTF). Utilizing a $59,000 housing planning grant from Massachusetts Housing Partnership
(MHP), the AHTF has begun to implement the vision of the city’s recent “Imagine Salem”
planning process. The project supports 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
AHTF is evaluating opportunities to leverage public owned land for affordable housing. The City
is collaborating with MHP to identify the sites that would be the easiest for Salem to move
towards a Request for Proposal for disposition. MHP will assist the City in providing third party
technical assistance to do a Phase I Environmental, Site Survey and flagging (identifying also
extent of abutters encroachment) and some borings to understand geotechnical conditions.
Once the technical assistance is done, MHP staff will work with City to put together fiscally-
45
feasible options that meet community needs/goals and help craft an RFP for developers.
Discussion
There are regulatory barriers that prevent the full realization of Salem’s vision for housing growth.
Among these barriers are regulations relating to the inability to use historic buildings in single-family
zones as multi-family, parking requirements, and dimensional requirements. The City will continue to
review the existing zoning ordinance and identify opportunities to make changes that would reduce
barriers to housing production while also protecting neighborhood character. For example:
- In the summer of 2018 the parking minimums in the North River Canal Corridor (NRCC) Zoning
District, a corridor in walking distance to the commuter rail, were reduced from 2 spaces per
unit to 1.5 spaces per unit.
- The City is currently developing a permitting path that will allow for large historic buildings in
single-family residential zones that were developed for a use other than housing, e.g. religious
uses, to be adaptively reused as multifamily uses.
- The AHTF has identified updating the Accessory Dwelling Unit (ADU) ordinance as a priority for
2019. The current ADU limits the eligibility of ADUs to units that will be occupied by family
members and/or caretakers to the main residential unit. In addition, the ordinance requires a
special permit to create an ADU. The goal of updating the ordinance is to look at ways to
remove exclusionary barriers in the ordinance, i.e. the family and caretaker requirement and
identify whether there is an opportunity to allow ADUs by right rather than requiring a special
permit. While the accessory units created through the amended ordinance will not be deed
restricted affordable housing, these are naturally more affordable than a standard market rate
1- or 2-bedroom apartment in Salem. Thus, the units created as a result of the amended
ordinance will increase the housing stock and the range of housing options.
- The City is analyzing data on the usage of variances for multi-family development to identify
whether there are opportunities to amend the dimensional standards and/or revising the
dimensional relief process from a variance to a special permit.
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AP-85 Other Actions - 91.420, 91.220(k)
Introduction
This section addresses other actions that the City of Salem will undertake including:
Actions planned to address obstacles to meeting underserved needs;
Actions planned to foster and maintain affordable housing;
Actions planned to reduce lead-based paint hazards;
Actions planned to reduce the number of poverty-level families;
Actions planned to develop institutional structure; and
Actions planned to enhance coordination between public and private housing and social service
agencies.
Actions planned to address obstacles to meeting underserved needs
The Five Year Consolidated Plan outlines several barriers to housing affordability and reducing the
impacts of poverty in Salem: the cost of permitting and developing land with environmental constraints,
the lack of regulatory tools to require or encourage affordable housing in new developments, the lack of
resources to finance affordable housing development, an economy imbalanced by lower-wage jobs, and
local government’s dependence on the property tax to finance City services.
Like other communities, Salem is not in control of all of these barriers, and as a result, its ability to solve
them is constrained by financial resources and legal requirements. Nevertheless, Salem has identified
several strategies to overcome these obstacles in its goals to increase affordable housing, provide a
decent living environment, and increase economic opportunities for low- and moderate-income
residents.
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 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.
Utilize local funding through the Community Preservation Act to facilitate affordable housing
development.
Actions planned to foster and maintain affordable housing
The following summarizes Salem’s strategy to address housing needs, which includes both new housing
production and preserving the existing housing stock for working families. Key components are:
Producing New Housing Units - Working with private and nonprofit developers, such as North
Shore CDC and Harborlight Community Partners, Salem supports the creation of affordable
47
housing units through the conversion of underutilized buildings and parcels, often assisted with
Salem's CDBG, HOME and/or CPA funds.
Preserving Existing Affordable Units - Salem has several private rental developments with
affordable units utilizing subsidies that will expire after a period of time. The city continues to
negotiate the extension of affordability for expiring subsidized units.
The City negotiates with developers on a case-by-case basis for 10% affordable units.
The City's Community Preservation Act funds require a minimum spending (or reserve) of 10%
of the annual budget on affordable housing projects.
The Salem Housing Authority (SHA) currently administers 1,117 Section 8 vouchers of which 929
are leased units in Salem and 171 are leased in other communities, and currently administers 17
for other communities/housing authorities in Salem. The SHA administers 16 vouchers through
the DMH program, as well as 125 project-based vouchers. The SHA owns and manages a
portfolio of 715 units of public housing for low income elderly, family, and handicapped
residents scattered across the city. Funding to preserve and maintain these properties is
provided by DHCD and HUD.
Community Teamwork, Inc. in Lowell currently administers the following vouchers in Salem:
AHVP (1), MRVP (47 mobile), MVRP Project Based Vouchers (35).
Providing First-Time Homebuyers Assistance - The City provides families with the opportunity to
own their first home through the First-Time Homebuyer Downpayment Assistance Loan
Program. The program also offers an additional $1,000 for homeowners who complete
Homebuyer Counseling. DPCD staff also provide assistance to coordinate other resources for
homebuyers, such as programs offered by MassHousing, as well as supporting first-time
homebuyer education workshops provided by various organizations.
Rehabilitation of Existing Housing - While older homes are integral to Salem’s history and
neighborhood fabric, they require a great deal of maintenance and may not meet current
building codes. In response, the City administers a Housing Rehabilitation Loan Program to
provide low-interest loans to owners of single and multi-family properties to address health and
safety issues. The program was expanded to investor-owners with low- to moderate-income
tenants to maintain affordable, quality rental properties and to discourage the conversion of
affordable rental units into condominiums. Homeowners are also referred to NSCAP’s
weatherization program for energy-efficiency work before utilizing Salem’s loan program,
thereby reducing the homeowner’s loan burden. In addition, the City offers deleading assistance
for homeowners with a lead poisoned child through MassHousing’s Get the Lead Out Program,
which can be combined with the City’s Housing Rehabilitation Loan Program.
Working Regionally to Increase the Supply of Housing - As the housing market is not confined to
city boundaries, ongoing multi-jurisdiction cooperation is needed to address the region’s lack of
affordable housing. No one city or town can, or should, bear the responsibility of providing all of
the region’s affordable units. Salem is committed to working with its partners in the North Shore
HOME Consortium and with the region’s mayors to encourage the development of housing
48
throughout the area in an effort to increase the supply of housing for all.
Actions planned to reduce lead-based paint hazards
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. 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.
In cooperation with the Commonwealth of Massachusetts and other municipal departments, the City of
Salem, through its DPCD, works to decrease the number of housing units containing lead-based paint
hazards. The City actively works to reduce lead-paint hazards in pre-1978 housing occupied by lower-
income households through the City of Salem’s Housing Rehabilitation Loan Program. Through the
Salem Housing Rehabilitation Loan and Get the Lead Out Programs, the City provides loan funds for
qualified applicants for lead testing, hazard reduction and abatement activities, and temporary
relocation reimbursements. Lead-based paint hazard control measures are consistent with the federal
Title X requirements and State lead based paint regulations. MassHousing’s Get the Lead Out Program is
also available to homeowners with a lead poisoned child.
Finally, all participants in the First-Time Homebuyer Downpayment Assistance Loan Program are given a
copy of the EPA brochure “Protecting Your Family from Lead in Your Home.”
Actions planned to reduce the number of poverty-level families
Salem uses CDBG and other funds to pursue an anti-poverty strategy carried out by the City and a
variety of social service subrecipients. The strategy consists of four components: education, job training,
affordable housing and social services.
Education
An adequate school system is crucial to reducing poverty in future generations. The City has used state
funding to renovate and improve its educational facilities and provide school-age children with an
environment conducive to learning. The Salem Public Schools support bilingual classroom settings and
49
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, which may include Salem Public Schools, and programs
administered by non-profit agencies such as Aspire Developmental Services, Inc., LEAP for Education,
the Boys and Girls Club, Wellspring House, North Shore Community Development Coalition, and VOCES.
Job Training and Employment Resources
Salem collaborates with numerous job training, and workforce development programs in the region
such as The North Shore Career Center and the North Shore Workforce Investment Board.
The City will continue to use CDBG funds to support job training and employment assistance programs,
such as the Wellspring House MediClerk Program.
Affordable Housing
Providing adequate, affordable housing for low- and moderate-income residents is critical to the success
of an anti-poverty strategy. 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
50
households overcome various obstacles to self-sufficiency.
Actions planned to develop institutional structure
The Department of Planning and Community Development (DPCD) administers the City of Salem
Community Development Program as well as the formula funding received by the North Shore HOME
Consortium for which the City of Peabody is the lead agency. Under the direction of the Director of
Planning and Community Development, the Assistant Community Development Director manages and
monitors Salem’s community development programs.
Salem’s housing programs are administered by the DPCD Housing Coordinator under the direction of the
Director of Planning and Community Development. In addition, local non-profit agencies, CHDOs and
CDCs administer certain housing activities. Many housing activities leverage funds through private
lender financing.
City departments undertake certain CDBG-funded activities, such as the tree planting program, sidewalk
replacement, street paving and curbcut installation. These departments may subcontract work under
public bidding procedures and provide requests for reimbursement and any required documentation
(i.e., prevailing wage documentation) to the DPCD.
Each year the City of Salem issues a Request for Proposals to nonprofit organizations that offer social
service, housing or economic development programs. CDBG funds are awarded to organizations that
demonstrate programmatic needs and the capacity to administer the proposed program. The City’s
Assistant Community Development Director coordinates the management of the public service and
housing subcontracts and the Economic Development Planner coordinates the management of the
economic development subcontracts.
In general, DPCD staff carries out the remaining activities, including the hiring of consultants or other
private businesses through established municipal purchasing procedures.
The City’s auditing firm audits Salem’s CDBG program delivery system annually. In addition, HUD staff
conducts periodic reviews and grant monitorings. The City promptly implements recommendations
arising as a result of these reviews. The DPCD continuously works to improve upon its methods and
procedures for the administration of its programs.
Actions planned to enhance coordination between public and private housing and social
service agencies
DPCD will continue 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.
51
Program Specific Requirements
AP-90 Program Specific Requirements - 91.420, 91.220(l)(1,2,4)
Introduction
Over the past five years, Salem met all timeliness requirements, and program expenditures were
consistent with its Five Year Consolidated Plan and annual Action Plan goals. Funds drawn down are
always used within the year they are received; no program income is carried over.
Community Development Block Grant Program (CDBG)
Reference 24 CFR 91.220(l)(1)
Projects planned with all CDBG funds expected to be available during the year are identified in the
Projects Table. The following identifies program income that is available for use that is included in
projects to be carried out.
1. The total amount of program income that will have been received before the start of the next
program year and that has not yet been reprogrammed 0
2. The amount of proceeds from section 108 loan guarantees that will be used during the year to
address the priority needs and specific objectives identified in the grantee's strategic plan. 0
3. The amount of surplus funds from urban renewal settlements 0
4. The amount of any grant funds returned to the line of credit for which the planned use has not
been included in a prior statement or plan 0
5. The amount of income from float-funded activities 0
Total Program Income: 0
Other CDBG Requirements
1. The amount of urgent need activities 0
2. The estimated percentage of CDBG funds that will be used for activities that
benefit persons of low and moderate income. Overall Benefit - A consecutive
period of one, two or three years may be used to determine that a minimum
overall benefit of 70% of CDBG funds is used to benefit persons of low and
moderate income. Specify the years covered that include this Annual Action Plan. 70.00%
Discussion
This AP covers July 1, 2019-June 30, 2020 (Salem's FY20, using HUD 2019 funds). We estimate receiving
$100,000 in program income during this program year. All program income received in FY20 will be
reported and spent under FY20. We do not have any lump sum drawdown agreements, nor
reimbursements other than program income, made to the local account, expected to be available during
FY20.
Salem intends to spend at least 70% of CDBG funds to benefit persons of low and moderate income in
FY20. The City of Salem primarily funds activities that serve low- to moderate-income households
(limited clienteles) or activities within majority low- to moderate-income neighborhoods, typically
reaching a percentage of 89% or higher (99.6% in FY18).
Appendix
1 - Map
2 - Application for Federal Funding and Certifications
3 - Citizen Participation Comments
Part 1 - Public Participation Process
Part 2 - Review of Draft Plan
Written Comment Received
Appendix 1 – LMI Map
Appendix 2 - Application for Federal Funding & Certifications
Hard copy - See next pages in Final Action Plan.
IDIS – See separate attachment.
Appendix 3 – Citizen Participation Comments
Part 1 – Public Participation Process
Public Hearing, 6:00 PM, January 17, 2019
Staff Present: Jane Guy, Assistant Community Development Director
Naomi Francisco, Housing Coordinator & Spanish translator
Kate Newhall-Smith, Principal Planner
Attendees: 9, plus 3 city staff
All attendees were provided a guidebook handout.
Jane Guy, Assistant Community Development Director opened the Community Development Block Grant
public hearing. Ms. Guy introduced Naomi Francisco, Housing Coordinator, stating that Ms. Francisco, if
required, was available for Spanish translation. Ms. Guy stated that the purpose of the meeting was to
obtain citizen views on Salem’s housing, community, and economic development needs and priorities in
order to prepare the FY20 Action Plan, which starts on July 1st. This is for funding the City will receive,
including Community Development Block Grant and HOME monies from the federal government. Ms. Guy
stated that the Action Plan is a one-year document that outlines the activities that will be undertaken
using these funds and includes activities identified as priorities from the 5-year Consolidated Plan
completed in 2015. The upcoming year will be the fifth year of the Consolidated Plan; another plan will
be started next year. Ms. Guy indicated that the 5-year Consolidated Plan from 2015, current Action Plan
for FY19 and end of year report from June, 2018 (Caper FY18) were available for view on the table to
anyone interested to see what kinds of things have been funded in the past. All the documents are
available at online at www.salem.com .
Ms. Guy stated that, as of this date, the City has not been informed of the FY20 allocation and will be using
last year’s allocation as estimates. For CDBG FY18 the allocation was $1,053,238 and HOME (Home
Investment Partnerships) was $162,324. In order to utilize these funds, activities must be considered
eligible by HUD standards to primarily serve low to moderate income residents, households or
neighborhoods. Ms. Guy identified on a map the low-income areas, by census track, where physical
improvements can be undertaken, such as tree planting, sidewalks, new parks and street paving. She
stated that for households there are income guidelines, provided in the handout, that determine the
eligibility for use of programs, such as first-time homebuyer or housing rehabilitation programs or for
loans through the business loan program. She added that funds also serve social service agencies that
serve low to moderate income residents, for which the income guidelines are used to determine eligibility
for programs, such as food or homeless programs, or the Boys and Girls Club youth program, noting that
there are about 26 programs that are funded each year for public services.
Ms. Guy stated that CDBG funds can be used to create jobs and introduced Kathryn Newhall- Smith, the
new Economic Development Planner, adding that eligibility and job creation are requirements for loans
through the business loan program, and that jobs created are documented in the year-end report. Ms.
Guy stated that funded programs range from the business loan program to create or retain jobs, housing
rehabilitation loan program, first time homebuyer loan program, access improvements for persons with
disabilities, public facilities improvements, such as improvements to a firehouse or playground,
infrastructure improvements, such as tree planting, sidewalks, curb cuts and street resurfacing, studies,
such as a study to preserve a historic building, and grants to social service agencies for various programs,
such funds to prevent addiction, food pantries, youth activities, senior transportation, child care,
neighborhood police bike patrols and job training. Ms. Guy further stated that funded activities can be
projects or programs managed directly by the City of Salem or they can be projects or programs managed
by other organizations, such as when grants are provided to agencies such as North Shore Community
Action Programs, North Shore CDC, Boys & Girls Club, and various others.
Ms. Guy stated the handout has a schedule of the Action Plan process. The Request for Proposals to enable
the non-profit agencies to request funds was mailed out this week and proposals are due February 23,
2019. She noted that the process kicks off with this public hearing, then the funding requests will be
received, the Action Plan will be drafted and the plan will be made available for a 30-day public comment
period - currently scheduled for the end of March. She noted that the timetable is contingent upon what
happens with the Federal government shutdown and a public meeting cannot occur until the City is
informed of its allocation - noting that, last year, the allocation notification was received two months late.
She stated that there will be ample notification as to when the next public meeting will he held, but that
the plan will not be written with the proposed physical activities/programs until the allocation is
announced. She stated that the timetable in the handbook will probably be pushed out a bit.
Ms. Guy asked the public what they feel are priorities, if there are any new or increased priorities since
the Consolidated Plan in 2015, if there are any things that are less of a priority now, or if there are
particular activities suggested that would meet the needs. Ms. Guy asked those speaking to first state
their name, and asked if there were any questions regarding the program.
Linda Stark stated that she was a resident concerned about housing. She asked how many people are on
the committee that make the decisions on which funds get allocated to the different organizations in
Salem that submit fund requests.
Ms. Guy explained that once the proposals are received, she will make recommendations that are
reviewed by the Director of Planning and Community Development and then by the Citizens Advisory
Committee.
Ms. Stark asked how many members were on the committee, stating that she received an email from
Ward Councilor Christine Madore asking to be on a committee, which she thought was for housing.
Ms. Guy asked if it was for the Community Preservation Committee.
Ms. Stark replied that it was for housing, for which she has an interest and for which she responded she
would be on the committee. She thought it was regarding low-income housing.
Ms. Guy responded that perhaps it was the Affordable Housing Task Force. There is also the Community
Preservation Committee, which deals with housing, recreation and historic resources.
Ms. Stark asked if the City turns requests away.
Ms. Guy replied in the affirmative. She stated there is a rating system based on the findings of the
Consolidated Plan. For example, housing is a high priority and youth programs are medium priority. If a
program is not high or medium priority, then it’s considered a low priority, and it’s unlikely that it will be
funded. High priorities are likely to get funded. She stated that there a lot of agencies that submit every
year and many get level funded. A new program would need to be high priority, such as one that addresses
the opioid crisis, in order to likely get funded - but the funded program could end up bumping another
program out, because only 15 percent of the allocation can be spent on public services. She noted that
the City spends this maximum annually, because there are so many needs. Ms. Guy clarified that the
annual allocation (i.e. $1,053,238 million), plus the program income received from the previous year,
multiplied by 15 percent determines the maximum that can be allocated for public services for this year.
Ms. Stark questioned who sets the 15 percent limit.
Ms. Guy responded that it is HUD, the Federal government.
Ms. Stark asked if it was nationwide.
Ms. Guy responded in the affirmative.
Ms. Stark asked if the available summary of the prior year will show where last year’s dollars were spent.
Ms. Guy replied in the affirmative, and stated that the end of year report (CAPER), is on the table and is
available for the audience to breeze through. It is also available online at www.salem.com under studies
and reports. The section entitled Community Development Block Grant has the Consolidated Plan, and
several years’ Action Plans and end of year reports.
Ms. Stark asked if the Mayor has to approve anything.
Ms. Guy replied in the affirmative, noting that the Mayor has the final say.
Ms. Stark asked if it goes before City Council.
Ms. Guy replied in the negative, noting that the only thing that goes before City Council is the application
for Federal funding, so that they can approve the submission of the CDBG grant application.
William Dowd, from the Salem Gazette, stated that a lot of the times the City leverages grant monies with
other funds such as CPA, of which Lafayette Park is one example. He questioned how much money was
used for that particular park, and asked if there are other examples.
Ms. Guy replied that, in the CAPER, there is a section on leveraged funds. She noted that this project
probably received PARC funding and/or other types of funds and that it often takes funds from different
sources to make a project work.
Mr. Dowd stated it was interesting to see and that it’s a Beverly Strauss asked what CAPER stands for.
Ms. Guy replied that it is Consolidated Annual Performance and Evaluation Report.
Ms. Strauss asked if nonprofits submit reports each year.
Ms. Guy replied that the agencies submit annual proposals.
Ms. Strauss asked if, after so many years, is it decided to look for new people or organizations.
Ms. Guy replied that when the Request for Proposal is issued, any agency is welcome to submit a proposal.
She noted that it’s based on needs and that high priority programs are going to be funded first. She added
that there have been programs that have been dropped, because they were either not priority, or because
the agency was underserving. Sometimes the amount of funding to one agency is reduced and increased
for another.
Ms. Strauss inquired as to how the City monitors the organization, in general, and if larger cities have
larger budgets.
Ms. Guy replied that funds are allocated by a federal formula that is based on various data including the
age of housing, lead paint statistics, etc. She stated that the formula is applied each year, and sometimes
there are new CDGB communities that come on board, and sometimes others drop out. She stated that
each community is going to get a different amount of funding.
Ms. Guy replied that as far as monitoring of programs, for public services, agencies are required to provide
monthly reports before an invoice can be processed and the invoice needs to include proof of payment.
For instance, if the program is to provide childcare and the program is paying the salary for the person
doing the childcare, they must provide us with proof that this person was paid the salary. For the children
assisted, although anonymous, the statistics on the households are also required. The agency must have
documentation in their files on household income for each household. Ms. Guy further stated that
periodical site visits are conducted, for which she and Ms. Francisco monitor and review all files.
Therefore, there’s ongoing monitoring through monthly reports, along with onsite monitoring.
Deric Lepard stated that he works for North Shore Community Action Programs, one of the agencies that
has benefitted. He stated that through speaking with other staff and reviewing the community needs
assessment of their strategic plan, one of the areas they consistently see a need is rental arrearages
assistance. He stated that rents are going up and it only takes one bump in the road for someone to fall
behind and when resources are available to prevent them getting to the next step of eviction, it really can
make a difference, so that people don’t have to go down that road. He added that utilities (such as if
someone is in threat of having their electricity shut off or they’ve utilize their fuel assistance benefit and
they don’t have enough heat), is also what they are seeing as some of the greatest needs. Mr. Lepard
further stated that they recently completed a consumer survey and heard that stability in someone’s
family to not become homeless, to be able to stay in the school system or in an apartment, is some of the
greatest needs that they are seeing. He added that in the needs assessment, emergency financial
assistance was the second need, with affordable housing being number one. In particular, when they
asked about underserved populations, people with disabilities was number one, which is often where
there’s a lower income. Mr. Lepard stated he had been speaking with someone about start-up assistance
(noting that NSCAP has been awarded moneys, is spending it very quickly and will be out before too long),
and it was discussed that it’s a lot of money to come up with first, last, security and moving costs based
on a disability income. He questioned how the person could make it work. He stated that it was very
overwhelming and stressful for the individual and that when this assistance is available to low income
people, it is a huge help for which he thanked the City.
Linda Weibner, Social Worker at the Salem Family Health Center on Congress Street, stated a lot of her
patients are homeless, and some have issues paying for utilities. She stated that a patient who was living
at the Howard Street rooming house, a place that was recently condemned because of a pipe burst leaving
water everywhere, is now homeless again. Ms. Weibner inquired about funds or programs for the
neighborhood where the clinic is located, which is down-trodden - noting that the handout states that
CDBG can aid in the prevention and elimination of slums or blight.
Jane Guy asked the address of the clinic.
Ms. Weibner replied that it is at 47 Congress Street at the corner of Harbor.
Ms. Guy replied that the street is in an eligible area, but for the building, the owner would need to contact
Ms. Francisco, if they are seeking assistance for the units. There are requirements if you are a property
owner or an absentee landlord and need assistance. The assistance is in a form of a loan with mortgages
and requirements to which they would have to adhere.
Ms. Weibner asked if there were any plans to renovate in that area, noting there is a lot of subsidized
housing. She asked if there are any plans in the upcoming year, such as converting the St. Joseph school.
Ms. Guy stated the school is owned by the Archdiocese and there was a memorandum of agreement that
was signed a while ago, but she did not know the status. She is aware they were encouraged to do housing
and that it’s what they’ve been doing with a lot of their properties that have been decommissioned. The
City was pushing for housing; it’s not owned by the city.
David Friedberg, realtor, stated he was interested in housing for low income and elderly, and inquired
about the citizen’s task force, and if it changes every year, how does one get on it, what’s the make-up,
how long does one stay on and who decides who’s on it.
Ms. Guy responded that there are a few different task forces, and that the Citizens Advisory Committee
is only active committee when called upon annually to look at proposals for funding. There’s an Affordable
Housing Task Force, of which Amanda Chiancola staffs and who would be a good person to speak with.
Ms. Guy did not know if there are any openings.
Mr. Friedberg stated he wasn’t necessarily looking to be on the task force, but was curious about whose
eyes are on this, what are their qualifications and how do they get on, because the eyes should be really
good ones, the head should be really good and that his community may know of someone. He noted that
the realtors were asked to bring someone on for historic preservation.
Ms. Guy stated that a realtor is required for the Salem Historical Commission. She noted that the names
of all board members should be included on the city website.
Mr. Friedberg asked that, with housing having a high priority rating, if the priority ratings are numbers of
something that has been established, if they consistent or if they have changed and how does he get to
know that.
Ms. Guy stated housing is the Mayor’s highest priority and the reason why the Affordable Housing Task
Force was established. Ms. Chiancola is working full force on this issue and is the best person to speak
with.
Mr. Friedberg asked if the amount of money for housing is consistent on a percentage basis or does it
fluctuate. He stated that he knows it’s a high priority and that Salem’s prices are too high and asked if the
amount of money for housing generally stays about the same percentage.
Ms. Guy replied that for CDBG and HOME, the city will get requests from North Shore CDC or Harborlight
Community Partners for help with funding to purchase a property and rehabilitate it, which enables them
to apply for other grants, etc. This community match gives them the ability to go to other funding sources
and say the city supports it. The agencies can also apply for Community Preservation Act funds, and then
apply to banks and for tax credits. Developing housing is a very complicated financial process with millions
of dollars needed in the end for a project. The City has assisted with quite a bit of housing with CDBG and
Community Preservation Act funding. The City has assisted with over 100 units of housing with CPA
money over the last four to five years.
Mr. Friedberg asked, with regard to individuals who cannot pay their rent, if there are contingency monies
set aside, or emergency appropriations.
Ms. Guy replied in the affirmative, stating that Mr. Lepard referred to this funding, which is provided to
NSCAP and other agencies, such as Catholic Charities and Salvation Army. If someone is behind on their
rent or utilities, they can contact one of these agencies for assistance. Funding is also available for first,
last and security through NSCAP and Citizen’s Inn.
A member of the audience asked if the Citizen’s Inn was a shelter.
Ms. Guy stated it’s an agency that has housing, shelter and runs Haven from Hunger, as well as other
programs to advocate for lower-income people. They are located in Peabody, but serve the whole North
Shore.
Mr. Dowd asked about the Mayor’s Task Force.
Ms. Guy replied that there is a Mayor’s Task Force for homelessness, which is a meeting with providers to
address homelessness issues. There have been a couple public hearings, increased Police patrols, a recent
meeting with faith leaders and the city continues to work on homelessness issues.
A member of the audience asked how the process of helping the homeless was going.
Ms. Guy stated the City is partnering with NSCAP to provide a housing first program, where funds are
targeting the highest risk persons on the street, the chronic homeless. Rather than first finding someone
a job and then an apartment, the first need is getting the person housed, so they can be stabilized. The
goal is to assist the highest risk, chronic homeless, for which three have been housed and off the street in
just the last few months. Ms. Guy stated there are also outreach workers, one through North Shore
Community Health, and one through the Salem Police Department, who try to connect with folks to get
them the services that they need, such as doctor and dentist appointments, to try to regulate their meds,
to assist with nutrition or to get them to come in to Lifebridge for food and other services.
A member of the audience asked if the city is initially paying the rent of those individuals housed because
they may not have a job and, if they do, it may not be enough.
Ms. Guy replied that in the short term HOME funding is used for tenant based rental assistance to get
someone housed. Once in housing, they can start working on things like getting them a job. She noted
that some are on social security, which can also be used to get them stabilized.
Laurie Fullerton from the Brookhouse Home for Women on Derby Street commented that the Brookhouse
serves the elderly women of Salem which is supported by the State Department of Transitional Assistance
and Medicaid. She stated that the home gets almost daily calls about housing. Women 65 and older can
reside there. They are a resource for the city, but are somewhat under the radar. Ms. Fullerton stated
that the home is non-profit and relies on grants, such as the Cummings Foundation, which provided
funding to repair the roof, and noted that the home has a lot of issues due to the building being very old,
having been built in the 1800’s. Ms. Fullerton asked if there are partnerships for a place like the
Brookhouse home, such as to partner with on grant applications.
Ms. Guy asked if Ms. Fullerton was looking to partner with another agency for physical improvements or
for programs.
Ms. Fullerton stated the needs are not the same as some of the questions raised tonight. She stated that
she was curious if anyone had ideas about working more closely with some issues the city is facing because
the home is like a resource, but is under the radar.
Ms. Guy replied that she was willing set up time to further discuss what Ms. Fullerton may have in mind,
noting that the City partners with a lot of agencies in different ways, depending of what the needs are and
what the agency would like to offer.
Ms. Fullerton stated the home has some individuals with more behavioral health issues living there and it
is slowly transitioning to meet the greatest needs.
A member of the audience stated affordable housing is a priority and it is a bad situation in Salem. She
questioned how to get developers that want to build affordable housing.
Ms. Guy replied that there are a couple good developers that have been creating affordable housing such
as Harborlight Community Partners and North Shore CDC. She stated that North Shore CDC constantly
has something in the works, further commenting that housing is what the Affordable Housing Task Force
is working on. She stated that the Affordable Housing Task Force is a great resource and recommended
attendance at their meetings.
A member of the audience asked if Beverly or other surrounding communities had more affordable
housing than Salem.
Mr. Lepard stated that Lynn has.
Ms. Guy stated that Salem has one of the highest percentages of affordable housing within the 30 North
Shore Home Consortium communities and believes its only second to Georgetown. Salem has
approximately 12.5 percent of its total units as affordable.
Mr. Friedberg stated that a community needs a minimum of 10 percent of affordable units in order to
apply for certain programs.
Ms. Guy stated that the community percentages as of 2015 are listed in the 2015 Consolidated Plan.
Mr. Friedberg stated he was at one of the City Council meetings and one of the Councillors spoke, who
was in his 70’s and who had made it known he was looking forward to retiring and living in senior housing,
but commented that there isn’t enough, and that he was told there are people on list that never make it
to senior housing, due to how long it takes to get housing. Mr. Friedberg mentioned he was aware that
there are certain historic buildings that are being targeted for overlay to be able to provide more housing
and but he didn’t think there was any promise or commitment for a very high percentage of moderate or
low-income and no mention of senior housing. He stated that it’s a pretty big deal for people who don’t
own a property they can sell at an older age and it’s very hard for them to stay here. If they own a home,
it’s easier, but they still have healthcare to worry about, so he would like to see more of senior housing.
A member of the audience commented that she visits Council on Aging facilities for her job and that every
town and city have the same problem with a very long waiting lists for senior housing.
Ms. Francisco stated there’s an eight-year waiting list through Salem Housing Authority for the disabled
and elderly.
Mr. Friedberg asked at what age can someone start the application process.
Mr. Lepard replied that it was 60.
A member of the audience stated that Massachusetts, while expensive, is paradise compared to Texas,
due to the available resources here.
There were no further comments, Ms. Guy thanked the participants and the meeting was adjourned.
Part 2 – Review of Draft Plan
Public Hearing, scheduled for 6:00 PM, June 20, 2019
Staff Present: Jane Guy, Assistant Community Development Director
Naomi Francisco, Housing Coordinator & Spanish translator
Amanda Chiancola, Senior Planner
Attendees: There were no attendees present
Part 3 – Written Comment Received
An email was received from Darlene Story of Catholic Charities. She stated that she would “want to
express the need for the continued support for homeless prevention for the residence of Salem.”