FY18 CAPER EXECUTIVE SUMMARY- SEPTEMBER 19, 2018
CONSOLIDATED ANNUAL PERFORMANCE
AND EVALUATION REPORT
CITY OF SALEM, MASSACHUSETTS
Fiscal Year 2018
July 1, 2017 to June 30, 2018
Kimberley Driscoll, Mayor
Tom Daniel, AICP, DPCD Director
Jane A. Guy, Assistant Community Development Director
ii
INTRODUCTION
The overarching goal of the City of Salem is to provide a healthy, affordable , accessible and
welcoming community for its residents to live and work and for its businesses to thrive. To
accomplish this goal, the City uses grants from the U.S. Department of Housing and Urban
Development (HUD)—Community Development Block Grant (CDBG) and Home Investment
Partnership Program (HOME)—which are administered through the Department of Planning and
Community Development (DPCD). The following describes each of the grants and their program
objectives.
CDBG is a formula-based program designed to develop viable urban communities by
providing decent housing, a suitable living environment, and expanding economic
opportunities for persons of low- and moderate-income1.
HOME is a formula-based program for expanding and improving the supply of decent, safe
and affordable housing for low- and moderate-income persons.
These resources fund a wide range of projects designed to develop and maintain affordable housing,
improve neighborhood public facilities, provide economic opportunities, improve access to public
facilities for people with disabilities, provide critical public services, assist people who are homeless,
and prevent homelessness.
Throughout the many years of the City of Salem’s CDBG program, significant improvements have
been made to the City’s physical and social environment for its low- and moderate-income residents.
The CDBG program has made a strong impact in Salem, as seen through the numero us homes
rehabilitated, neighborhood facilities and infrastructure improved, businesses strengthened, jobs
created and families served through our non-profit community partners.
Consolidated Plan, Annual Action Plan, and CAPER
A Consolidated Plan for Housing and Community Development (Consolidated Plan) must be
prepared every five years for a community to receive CDBG and HOME funds from HUD. The
Consolidated Plan is a comprehensive analysis and evaluation of a community’s needs which is used
to identify goals and objectives and to establish a vision for attaining a higher quality of life for low-
and moderate-income residents. Prior to the start of each fiscal year within the five-year
Consolidated Plan period, an Annual Action Plan must be prepared which lists the specific activities
that will be undertaken, utilizing CDBG and HOME funds, that will work toward accomplishing the
5-year vision. The Consolidated Annual Performance and Evaluation Report (CAPER) must also be
prepared annually as a mechanism for reporting accomplishments of the funded activities and to
measure the success in achieving the vision, goals and objectives identified in the Consolidated Plan.
Salem’s current 5-Year Consolidated Plan - Fiscal Years 2016-2020 (FY16-20) - began on July 1,
2015.
Contact Information
We are always open to feedback on our progress, as well as to answer questions regarding any of our
programs mentioned in this report. If you would like more information please contact the
Department of Planning and Community Development at 978-619-5685.
1 Low- to moderate- income individuals equals less than 50 or 80 percent of the Boston area median income respectively.
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EXECUTIVE SUMMARY ....................................................................................................................................... 1
Affordable Housing Programs ................................................................................................................ 2
Public Services ........................................................................................................................................... 5
Economic Development ........................................................................................................................ 10
Neighborhood Improvements .............................................................................................................. 14
Planning & Administration .................................................................................................................... 15
CAPER Narratives in IDIS
CR-05 - Goals & Outcomes .................................................................................................................. 16
CR-10 - Racial and Ethnic composition of families assisted ............................................................ 21
CR-15 - Resources and Investments .................................................................................................... 22
CR-20 - Affordable Housing ................................................................................................................. 26
CR-25 - Homeless and Other Special Needs ...................................................................................... 28
CR-30 - Public Housing ......................................................................................................................... 32
CR-35 - Other Actions ........................................................................................................................... 34
CR-40 - Monitoring ................................................................................................................................. 41
CR-45 - CDBG ........................................................................................................................................ 43
Appendix
Financial Summary PR26
Please note: The PR26 for FY17 erroneously used Line 45 (instead of using Line 16) from
the FY16 PR26 as Line 1 of the FY17 PR26, resulting in Line 8 (Total Available) and Line
16 (Unexpended Balance) of FY17 PR26 to be in error. This correction has been reflected
in the FY18 PR26.
Maps
Low to Moderate Income Areas
Geographic Distribution of Entitlement Funds Expended FY18
Section 3 Report
CAPER finalization date – 9/19/18
Cover photo: Courtesy of the Boys & Girls Club of Greater Salem
TABLE OF CONTENTS
1
Salem’s FY18 CAPER provides an analysis of the second fiscal year - July 1, 2017 through June 30,
20182 - of the City’s 5-Year Consolidated Plan completed in 2015. This report is an opportunity to
demonstrate our progress and the accomplishments produced by the City of Salem and its
community partners, to report our successes over the past fiscal year and to inform the community
of how federal and local programs are making a difference in the lives of its low- and moderate-
income residents. In 2015, HUD implemented a new online system for preparing the Consolidated
Plan, Annual Action Plans and CAPERs. In this report, we included the information from the
online system to fulfill HUD requirements, as well as information that may be of interest to our
residents.
The CDBG entitlement funds from HUD for the fiscal year were $965,549 and program income
received during FY18 was $128,794.55. Our HOME funding allocation was $99,497. We also used
any available carried over CDBG and HOME funds from prior years.
We expended a total of
$1,257,396.27 in CDBG
funds. We met all
timeliness requirements
and program
expenditures were
consistent with our 5-
Year Consolidated Plan
and FY18 Action Plan
goals. Public Service
programs were just
below the 15 percent
maximum allowable for
such activities, and we
did not exceed the 20
percent administration
spending cap.
In addition to CDBG funds, the DPCD also spent $37,658.42 in HOME funds to undertake
additional affordable housing activities. The City of Salem is a member of the North Shore HOME
Consortium and the specific accomplishments of HOME activities are reported to HUD through the
Consortium by the City of Peabody. However, a summary of our activities is reported within this
document.
During FY18, the DPCD continued to make significant progress toward meeting the goals and
objectives laid out in the 5-Year Consolidated Plan and FY18 Action Plan. The following is a
summary of accomplishments for each of our program areas – Affordable Housing, Public Services,
Economic Development, Neighborhood Improvements and Planning & Administration. In the
Financial Summary tables found in each program area, “funding available” indicates the total CDBG
funds available during the fiscal year, including FY18 and prior year carried over funds+/- any
adjustments made during the year. Status is as of June 30, 2018.
2 HUD refers to Salem’s FY18 as Program Year 2017 (the funding source year)
EXECUTIVE SUMMARY
FY18 CDBG & HOME Expenditures by Category
Neighborhood
Improvements
39%
Affordable
Housing
23%
Economic
Development
9%
Public Services
13%
Planning &
Administration
16%
Fig. 1 FY17 Spending by Category,
as a Percentage of Total CDBG & HOME Expenditures
2
EXECUTIVE SUMMARY - AFFORDABLE HOUSING PROGRAMS
Salem has a number of services that address affordable housing issues, including rehabilitating and
maintaining current housing stock, developing new housing opportunities, assisting families in
acquiring housing and enabling struggling families to remain in their homes. In FY18, Salem spent
$304,066.83 in CDBG and HOME funds on affordable housing projects and programs.
Table 1: FY18 Housing Financial Summary
Project Project Description Funding
Available Status
Housing
Rehabilitation
Loan Program
Provides technical and financial
assistance to help LMI homeowners
and landlords make needed
improvements to their properties.
$298,688.66
CDBG (FY18 &
carried over)
162,293.65 CDBG funds
spent
8 units improved (7
properties)*
*1 owner unit reported in FY17,
tenant unit reported here in
FY18
First Time
Homebuyer
Program
Provides 0% interest deferred
payment loans to LMI families
purchasing a home in Salem.
$42,831.88 CDBG
$39,557.21 CDBG funds
spent
5 Salem families assisted (5
units)
Congress Street
Residences
(Congress &
Ward)
N. S. CDC will rehabilitate 5
buildings on Congress & Ward
Streets (30 affordable housing).
$5,353.84 HOME
(FY15)
$3,629.42 HOME funds spent
Project now complete. 30
affordable units created and
reported occupied
Rental
Assistance
Programs
Funds are used to help low- and
extremely low-income Salem
residents move into decent,
affordable rental units.
$128,099 FY18
and carried over
open HOME
Contracts
$21,044 HOME funds spent
14 families assisted
Congress/Dow
Street Housing
Revitalization
N. S. CDC acquired 3 buildings on
Congress & Dow Streets for 34
affordable units, some for formerly
homeless families.
$0
$0 CDBG funds spent
Project now complete: 34
affordable units created
and reported occupied
Emergency roof
replacement
through the
Housing
Rehabilitation
Loan Program
3
Project Project Description Funding
Available Status
Harbor &
Lafayette
Homes
The North Shore CDC will
rehabilitate 2 buildings on Harbor &
Lafayette Streets to create 27
affordable housing units.
$50,000 HOME
(FY15) $0 funds spent (under
construction)
Boston Street
Crossing
Harborlight Community Partners
will rehab 2 buildings on Boston St.
(26 studio units) for formerly
homeless individuals, along with
providing supportive services.
$185,000 HOME
(FY16 & FY17)
$59,500 CPA
$10,000 HOME funds spent
43 Boston Street is complete
and fully occupied
179 Boston Street is in
progress
Affordable
Housing
Development
Funding pool for pre-development,
acquisition and/or projects with
rehabilitation of affordable housing
units (at or below 80% of AMI) by
non-profit housing developers
and/or CHDO’s.
$50,000 CDBG $0 funds spent
Housing
Program
Delivery
Costs associated with providing
rehabilitation programs &
inspectional services.
$93,733.99
CDBG (FY18 &
carried over)
$2,985 HOME
(FY18)
$64,557.55 in CDBG funds, &
$2,985 in HOME admin funds
spent for housing program
delivery & inspectional services
including lead inspection.
HOME Program
The City of Salem is a member of the North Shore HOME Consortium. The City of Peabody
administers the Consortium and maintains all documentation regarding Salem’s participation,
including accomplishments in Integrated Disbursement and Information System (IDIS) – HUD’s
on-line reporting program. The Housing Coordinator and/or the Assistant Development Director
attend regular meetings of the North Shore HOME Consortium.
During FY18, the City of Salem spent $37,658.42 in HOME funds. $10,000 was spent toward
Harborlight Community Partners’ Boston Street Crossing project, two properties that will result in
26 units of affordable housing. One of the two properties is complete and fully occupied, following
the a lottery in December, 2017 with over 90 applications. The City also spent $3629.42 toward the
Congress Street residences and the project is now complete with 30 occupied, affordable units.
$21,044 in HOME funds were used to fund Rental Downpayment Assistance Programs. A Rental
Downpayment Assistance Program assists low- and extremely low-income Salem households to help
pay first and last month’s rents and security deposits to enable them to secure decent, affordable
housing. The program is an important tool for helping families with the costs of moving into a
decent apartment. The FY18 Action Plan projected that up to 42 households would be assisted; 14
families were assisted through contracts with North Shore Community Action Program, Inc. and
Citizens, Inn, which was below the expected goal. NSCAP previously reported that it has had
difficulty in getting applicants that meet one of the three federal preferences and has increased the
maximum it will provide to eligible applicants. Citizens for Adequate Housing also uses a high
maximum to eligible applicants. In FY19, one of the existing NSCAP contracts will be canceled and
4
re-issued as a Tenant Based Rental Assistance contract to work toward a “housing first” model for
Salem’s homeless population.
Foreclosure Prevention
Located at www.salem.com/pages/salemma_dpcd/additionalresources/other, the city’s website
contains a list of links to various resources for foreclosure prevention and legal assistance. Housing
staff are also able to offer assistance to families threatened with the possibility of foreclosure.
Foreclosure can result in families being displaced from their home and can also result in increased
demand for affordable rental units by both the former homeowner and by any displaced tenants.
Salem continues to fund Rental Downpayment Assistance programs at NSCAP and Citizens for
Adequate Housing to provide first/last month’s rent and security which can be used by displaced
families.
Foreclosure can also result in vacant buildings, which can have a deteriorating effect on
neighborhoods. In an effort to re-occupy and repair foreclosed properties, the City’s First-Time
Homebuyer Downpayment Assistance Loan Program is available to first-time buyers who hope to
take advantage of the lower price that they may get by purchasing a foreclosed upon home. The
Housing Rehabilitation Loan Program is available to investors who purchase foreclosed properties
so that they can bring the property up to code and turn them into affordable rental units. As part of
the Housing Rehabilitation Loan Program, any renovated rental units are restricted to affordable
rents and must be occupied by low- to moderate-income households for a period of 15 years.
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Salem Park & Recreation
Hip Hop Class
EXECUTIVE SUMMARY - PUBLIC SERVICES
The Consolidated Plan identified the need for various
social service programs that primarily benefit Salem’s
low- to moderate-income population and those with
special needs (such as physically or mentally disabled,
elderly or frail elderly, youth, non-English speaking
residents, persons living with HIV/AIDS, substance
abusers and homeless persons and families). In FY18,
our priority goals were to continue to support a broad
range of social service programs that are consistent with
the needs and goals identified in the Consolidated Plan
and the FY18 Action Plan.
Public service projects funded during FY18 were
selected using a Request for Proposals (RFP) process.
The Citizen Advisory Committee reviewed all applications received, using criteria that included project
eligibility and documented need for services. Recommendations on funding levels were provided to
the Mayor following this review. All awards are made to non-profit agencies or city departments to
carry out the programs.
According to HUD regulations, we are allowed to commit up to 15 percent of our CDBG allocation
to public service activities. We are fortunate to have an excellent network of public service providers
that utilize our funds to best meet community needs, which is why we continue to spend just under
that limit. These public service activities provide direct benefit to our low - and moderate-income
residents; therefore it is important to continue funding at this level.
In FY18, we were able to expend $170,538 on 32 open public service contracts (including 21 FY18
contracts), which, in turn, assisted 8,846 people, including at least 921 youth and 311 seniors (see
Table 2 for Active Projects). All contracts with funds remaining are carried over to FY19.
Table2: FY18 Public Services Financial Summary
Agency
CDBG
Funding
Available
CDBG
Funds
Spent
Number
Assisted Program Impact
1647 National Center on Time &
Learning $14,970 $9,800.00 187 youth
Provided teacher home visits with
two teachers at each visit, for
students the Bentley Academy
Charter and the New Liberty
Innovation Schools. During
FY17/18, 170 families received a
relationship-building home visit to
help build strong teacher/family
relationships in order to improve
student learning and promote family
involvement in their child's
education.
6
Agency
CDBG
Funding
Available
CDBG
Funds
Spent
Number
Assisted Program Impact
Aspire Developmental Services,
Inc.
North Shore Infant & Toddler
Preschool Program
$4,800.00 $4,024.30 64 children
For children with physical and
developmental disabilities to attend
integrated developmental play
groups once per week. 37 children
will continue to attend; 2 dropped
out. The children who have aged
out of the program have gone to
private day care (7), Salem Public
Schools (14), Head Start (4).
Boys & Girls Club $5,000.00 $5,000.00 277 youth
Provided daily homework help on
weekdays for the months of
September-December (6281 total
visits) for students ages 5-12.
Catholic Charities
Homeless Prevention Program $9,000.00 $9,000.00 20 persons
Assisted 10 households with
avoiding eviction and homelessness
through payment of rental
arrearages to landlords. Each
household also received budget
counseling, information and referral
and advocacy when needed.
Citizens, Inc./Haven From Hunger
Food Pantry $9,000.00 $9,000.00 875 persons
Provided food to 250 Salem
families, August, 2017-February,
2018, for a total of 4292 visits to the
food pantry over 6 months (153,950
pounds of food).
East Gate Fellowship: Joseph’s
Storehouse $9,000.00 $9,000.00 1789
persons
Provided a supplemental food
assistance to 715 unique Salem
households for 12 months for a
total of 5461 household visits.
H.A.W.C.
Legal Services $9,000.00 $9,000.00 98 persons
Provided free legal assistance to
survivors of domestic violence. 110
legal consultations were provided by
3 family law attorneys, who assisted
clients with abuse prevention and
harassment orders, custody, divorce,
asset division, child support, and
employment and housing rights.
Independent Living Center
Accessible Housing Education
Services Program
$4,800.00 $4,800.00
29 disabled
persons/
households
Provided two housing forums, one
on availability of housing and one
on housing rights. ILCNSCA also
provided individual independent
living services and information and
referral (in-office and telephone) on
housing issues. They held twelve
monthly Universal Housing
Application assistance workshops.
Four Salem residents were
supported in gaining housing.
7
Agency
CDBG
Funding
Available
CDBG
Funds
Spent
Number
Assisted Program Impact
Inversant
Salem Families College Savings
Program
$5,200.00 $5,200.00 21 youth
Facilitated a total of 7 bilingual
workshops (English/Spanish) to
learn about financial aide vs
scholarships and money
management. The program resulted
in 5 students completing the
program requirements and saving
the minimum required to receive
matching funds through this
program, including enrollment in
higher education.
LEAP for Education $9,000.00 $9,000.00 79 youth
54 middle school and 25 high school
students attended programs an
average of 2 hours/week for 32
weeks during the school year and
for middle school students an
additional 2 hours/week for 5 weeks
in summer. 25 high school students
attended College Success Program
classes 4 hours/week for 32 weeks.
As a result of these activities, 54
applications to colleges/universities
were submitted, 8 applications for
college financial aid were submitted
and 8 students took college entrance
exams from October, 2017 through
February,. 2018.
Lifebridge
Medical Support Services $9,000.00 $9,000.00 231 persons
Provided wound care, general health
assessments, symptom management,
diabetic monitoring and education.
742 health assessments were
completed by the Lifebridge nurse
between July, 2017 and January,
2018. They also conducted street
outreach services to connect
homeless individuals with shelter
services and provided referrals to
medical, mental health, substance
abuse and social service providers,
provided clothing, access to
showers, personal care items,
blankets, food and sleeping bags to
those who remain unsheltered in the
community and offered community
meals 3 times a day, 7 days a week.
NSCAP
Homeless Prevention Program $9,000.00 $9,000.00 27 persons
Assisted 12 families with rent
assistance to prevent eviction and
homelessness. The agency also
served an additional 97 Salem
families utilizing other funding.
8
Agency
CDBG
Funding
Available
CDBG
Funds
Spent
Number
Assisted Program Impact
North Shore CDC
Family Stability Program $6,770.55 $4,194.34 203 persons
Provided English Language classes
(2 beginner classes, 3 intermediate
classes and 1 advanced class) for a
total of 12 hours per week, tax
preparation assistance services for 8
hours per week, 7 career counseling
and 6 financial literacy sessions from
August, 2017 through March, 2018.
North Shore Moving Market $4,500.00 $4,500.00 74 persons
Assisted approximately 47 Salem
households with monthly deliveries
of food. Approximately 311
deliveries were made between July
and December, 2017.
Salem Community Child Chare $9,000.00 $9,000.00 13 youth
Provided education and child care
for 13 children in kindergarten and
first grade. Education and care is
provided from 1:30-5:30 Monday
through Friday when school is in
session and 7:00 to 5:30 during
school vacations. Children were
assisted with homework in order to
help them complete kindergarten
and prepare them for first grade,
and complete art projects and
STEM projects, and are given daily
gross motor time in the indoor gym
or at the local park.
Salem Park & Recreation
Playground Program $8,400.00 $3,693.60 63 youth
Provided enrichment programs at
Palmer Cove Park during the
summer of 2017 and spring of 2018.
Programs included art workshops,
yoga and meditation, beginner's
guitar, hip hop dance and a series of
Saturday morning basketball clinics.
Salem Council on Aging
Art Program $3,458.86 $2,039.08 23 seniors
Art projects included making picture
frames, painting scenes using still
lite floral arrangements, decorating
flip flops and fairy houses, snow
globes, Thanksgiving wreaths,
napkin rings and centerpieces, key
chains and necklaces, lace bowls, tea
lamps, rope coasters, painted rocks,
tassel wall hangings and bookmarks
and a lesson in self-discovery art
through painting. Classes averaged
10-14 participants.
Salem Council on Aging
Exercise Program $1,750.00 $856.60 30 seniors
Held 15 weekly classes with an
average of 12 senior citizens and
disabled residents. The class
provides body conditioning to
enhance strength, balance,
coordination and endurance.
9
Agency
CDBG
Funding
Available
CDBG
Funds
Spent
Number
Assisted Program Impact
Salem Council on Aging
Transportation Program $18,650.00 $15,300.00 258 seniors
Drivers for the senior transportation
program provided 17,006 rides to
the following: 5227 to the Council
on Aging, 3618 medical, 3979
shopping, 865 events, 741
barber/hairdresser, 358 library, 357
YMCA, 217 bank, 883
volunteer/employment, 761 other.
Salem Police Department
Bicycle and Walk/Ride Patrols $18,639.08 $11,081.29 4,120
persons
Provided targeted teamed bike
patrols in the Point Neighborhood.
They concentrate on the reduction
of crime, loiterers, drug interaction
& improving quality of life.
Salem YMCA
School Age Child Care Program $9,000.00 $9,000.00 217 youth
Provided child care with curriculum
based instruction, enrichment
activities, swimming and field trips 5
days per week.
Salvation Army
Homeless Prevention $14,389.68 $6630.00 36 persons
Assisted 14 households with
homelessness prevention (rent
arrearage).
V.O.C.E.S.
Hispanic Education Program $4,818.79 $4,818.79 106 persons
Provided 586 classes in citizenship
and GED in Spanish. During the
program year, they reported 62 new
US citizens and 1 GED graduates.
Wellspring House
MediClerk Program $3,000.00 $3,000.00 6 persons
Assist Salem students in the 13 week
MediClerk Program. Students
received instruction in Goals/Job
Search Strategies, Medical
Terminology, Medical Office
Procedures, Business
Communication, Computer Skills &
Keyboarding, Professional Success
and an Applied Skills Laboratory.
Job shadowing was conducted. 3 of
the 4 students from the first two
sessions completed the program.
Two of the 3 Salem graduates are
employed full-time at the North
Share Medical Center and the third
is interviewing. Two Salem students
are enrolled in the 3rd MediClerk
session which began 5/9/18 and
will be completed later in summer
2018.
TOTAL PERSONS ASSISTED 8,846 persons,
including at least 921 youth & 311 seniors
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Ledger Restaurant
EXECUTIVE SUMMARY - ECONOMIC DEVELOPMENT
The City of Salem is dedicated to economic
development through efforts to stimulate our local
economy, revitalize the downtown and
neighborhood commercial districts, improve exterior
building façades, and assist local business owners.
This focus brings new employers and new jobs to
the city, while retaining jobs by helping existing
businesses improve their commercial infrastructure
or expand their operations. During FY18, several
new businesses opened in the downtown bringing
new goods and services locally. Salem has also seen
a surge of redevelopment in the past few years. The
increased development brings vitality to the
downtown and, in the process, improves and stabilizes neighborhood business districts. Improved
vitality in our neighborhood and downtown commercial districts also has the residual effect of
improving public safety. Salem’s unemployment rate continues to steadily improve. Salem’s
unemployment rate in June, 2018 was 3.9%, down from 4.0% in June, 2017.3
Table 3: FY18 Economic Development Financial Summary
Program Description
CDBG
Funding
Available
Status
Storefront Improvement
Program
Provides design assistance and/or
matching funding up to $5,000 to
business owners wishing to improve
the exterior façade of their business.
$24,332.55 $1,065 CDBG spent
2 storefronts assisted
Business Loan Program
Provides three types of loans that
fund commercial rehabilitation, job
creation or retention and/or micro-
enterprise assistance to make our
commercial areas vibrant.
$106,561.91 $0 CDBG spent
Business
Technical
Assistance
Salem Main
Streets
Program
Provides commercial district
revitalization through organization,
promotion, economic restructuring
and design.
$35,000.00
$35,000 CDBG spent
8 new full & part time
jobs documented (=6
FTE)
Assisted 3 new, 45
existing and 4
prospective businesses
(including 43 micro-
enterprises and 1
expanding business)
Economic
Development
Program
Delivery
Costs associated with providing
Economic Development programs
and administration of the Salem
Redevelopment Authority.
$80,541.75
$80,541.75 CDBG
spent
(see description below)
3 https://www.mass.gov/find-unemployment-rates
11
In total, $116,606.75 in CDBG funds was spent during the program period for economic
development activities, including technical assistance provided by the City of Salem’s Economic
Development (ED) Planner, who administers the City’s financial assistance programs, undertakes
numerous economic development initiatives and provides administration to the Salem
Redevelopment Authority, which oversees the Urban Renewal Area.
Technical assistance is provided to potential, new and existing businesses including micro-
enterprises, in the downtown, Point Neighborhood and other commercial areas, and includes:
Working with businesses on business locations, business expansion;
Development of tax increment financing agreements;
Liaising with state economic development agencies to provide businesses with access to tax
credits and other incentives;
Coordinating the development of neighborhood and economic development plans;
Acting as a liaison between businesses and the Salem Redevelopment Authority, including
processing of applications and attending meetings;
Managing the Salem Main Streets contract; and,
Managing Small Business Financial Assistance Programs
o Small Business Loan Program – Work with businesses to submit applications, underwriting,
loan documents, job monitoring
o Storefront Improvement Program (to undertake exterior improvements, building code
improvements and purchase of signage for businesses in the Urban Renewal Area and LMI
neighborhoods).
During FY18, DPCD’s Economic Development Planner worked on several significant
redevelopment projects, including:
The approval of 37 projects including, but not limited to, installation of signs, public art
installations, and façade/building renovations proposed within Salem’s Urban Renewal Area.
The ED Planner worked with applicants on all required information needed for Board
submissions and ultimate approvals.
Coordination with the Public Art Planner on the approval and installation of public art that
included:
o Mural Slam – Held for a third year, the slam is a two-day event where selected artists paint
work on plywood boards mounted on the back of stalls at Salem’s Artists’ Row. The event
was held during the Salem Arts Festival and the pieces are still in place.
o Art in Residence Pilot Program at Artists’ Row – Artist Claudia Paraschiv created a
community table using pallets and materials from each of the vendors on Artists’ Row. A
reading nook was developed using a painted bureau that held books, along with chairs of
different sizes.
o Lesley University Project - In Collaboration with Salem Public Art Commission and the
Public Art Planner, students from Lesley University worked on re-branding Artists’ Row.
The four person team from the University project included new paint colors, new doors and
windows for better interior lighting, the addition of portable gardens with pollinating plants,
and a new logo incorporated into signage. The improvements were completed in Fall, 2017.
o “When Art Speaks” was a collaboration with the art departments and teachers of the Salem
Schools. The Public Art Commission hosted an all-city art exhibit for the second year at Old
Town Hall bringing in over 200 families during the last weekend in April, 2018.
12
Managing a $3.75M MassWorks Infrastructure Program grant funded project to design and
construct a “complete streets” rebuild of a primary entrance corridor leading into Salem’s
downtown that will also support several mixed use housing projects with retail, as well as the
City’s new “Community Life Center” (senior center).
Coordination of all processes related to the redevelopment of the City’s former District Court
site. This includes the execution of a local Tax Increment Exemption (TIE) Agreement. The
project currently calls for a new building to be constructed that will contain 61 condominium
units (six units will be deed restricted affordable), on-site parking, and ground floor retail.
Coordination of the production of ULI Strategic Advisory Panel Report that focused on the
issues, constraints and opportunities presented by underutilized publicly-owned, downtown
properties.
Coordination of pre-development work for the adaptive reuse of the Superior Court and County
Commissioner’s buildings, including the production of the Salem Superior Court/County
Commissioners’ Building Redevelopment Analysis report.
Managed the City’s designation of Federal Opportunity Zones for two low to moderate income
census tracts.
Managed the update of the Salem Downtown Retail Action Plan.
Coordination of the pre-development work for the adaptive reuse of the Salem Senior Center at
5 Broad Street.
The Economic Development Planner continues to work with the North Shore Community
Development Coalition and other local stakeholder partners on the implementation of the “Salem
Point Neighborhood Vision and Action Plan.” Action items call for quality of life improvements to
the Point Neighborhood, which is Salem’s foremost environmental justice neighborhood. Examples
of the type of projects being implemented include sidewalk repairs, park improvements, community
programming, and public art.
The Economic Development Planner continues to collaborate with the Salem Chamber of
Commerce on several economic development topics including downtown transportation, business
recruitment and retention, and the development of policy suggestions for the City to consider that
will streamline permitting for small businesses.
The Economic Development Planner continues to work with the Massachusetts Office of Business
Development to help current businesses grow and to recruit new businesses to Salem. This includes
coordinating the State’s Economic Development Incentive Program (EDIP) applications and local
Tax Increment Financing (TIF) program for local businesses.
The Economic Development Planner is also the City’s representative board member on the North
Shore Workforce Investment Board, which serves as the oversight and policy-making body for
federally funded employment and training services in the 19 community North Shore Region. The
board also has the broader role of addressing critical labor market issues and developing strategic
partnerships with local leaders in economic development, the K-12 and higher education system,
13
government agencies, and chambers of commerce, as well as community-based and labor
organizations. The board charters and oversees a one-stop career center, North Shore Career
Center, located in Salem, with satellite offices throughout the North Shore.
Table 4: Economic Development Job Monitoring in FY18
Project Amount of
Assistance
Total Jobs Monitored
(mix of part/full time)
Salem Main Streets (t/a) $35,000 8 new jobs = 6 FTE
Kokeshi/Ragazza $36,620 14 new jobs = 13 FTE
14
McGlew Park is substantially complete.
EXECUTIVE SUMMARY - NEIGHBORHOOD IMPROVEMENTS
The City of Salem is committed to undertaking the
infrastructure and public facility improvements needed
to make our city a livable community. By continually
investing in neighborhoods, Salem aspires to be the best
place it can be for people to live and work.
Due to the size and scope of these types of activities,
some require multi-year funding, as well as a few years to
plan, permit and complete the project. To that end,
some of our Neighborhood Improvement Projects are
still in the planning, permitting or bidding stages. The
following table outlines the current neighborhood
improvement projects and their status at the close of
FY18. Neighborhood Improvement Projects can only take place in those areas eligible for CDBG
funding (see Appendix for map); therefore, all the projects listed are designated for these target
neighborhoods.
During the program period, we continued to work on important neighborhood projects, and spent a
total of $497,065.89 including program delivery costs, toward meeting the goals in the FY18 Action
Plan and 5 Year Consolidated Plan.
Table 5: FY18 Neighborhood Improvement Financial Summary*
Activity CDBG Funds
Available
CDBG Funds
Spent Status
Peabody Street Park canopy/overhang $9,800.00 $9,800.00 Complete
Point Neighborhood Community Space
Art Mural $3,245.51 $3,245.51 Complete
Lappin Park Drinking Fountain $2,916.00 $2,916.00 Complete
Street Improvements (i.e. sidewalks,
curbcuts, paving & crosswalks) $200,000.00 $200,000.00 Ongoing
annually
Tree Planting Program $13,065.00 $13,065.00 Ongoing
annually
Lafayette Park Improvements $139,983.34 $123,160.00 Underway
McGlew Park Improvements $138,503.25 $115,028.67 Underway
Punto Urban Art Museum $10,000.00 $10,000.00 Underway
Palmer Cove Park Survey & Testing $28,636.92 $8,848.42 Underway
Point Neighborhood Security Cameras $12,612.33 $8,106.78 Underway
Mary Jane Lee Park Improvements $12,013.98 $2,266.05 Underway
Downtown Pedestrian Mall
Improvements $169,215.65 $0 Underway
Splaine Park Climbing Structure $18,979.46 $629.46 Bidding
South River Improvements $100,000.00 $0 Planning
Boston Street Neighborhood $25,000.00 $0 Planning
Downtown Alley Lighting $10,000.00 $0 Planning
Teen Center Furnace Purchase $7,500.00 $0 Planning
*Funds available and spent represent only FY18 and may not reflect the actual entire project cost.
15
Salem was selected as one of the winners of the
NCDA Region 1 Community Development
Achievement Award for 2017 for the Congress
Street Residences completed by the North Shore
Community Development Coalition
EXECUTIVE SUMMARY - PLANNING & ADMINISTRATION
In the Consolidated Plan, our priority administrative goals
are to provide for the administrative costs associated with
the management of the Salem Community Development
Block Grant program and to develop the planning
resources and documents necessary to undertake program
activities.
During FY18, the City used CDBG funds to undertake an
appraisal for the soon to be former Council on Aging
building, to complete an update the Salem Downtown
Retail Action Plan, to provide access to immigration legal
services to Salem residents who are foreign born and to
engage homeless individuals in order to encourage
comprehensive health assessments, including behavioral
health, substance abuse and depression.
In FY18, we spent a total of $206,777.22 in Planning and
Administration for planning projects completed in the
fiscal year and administration expenses necessary to carry
out our programs. As stated previously, we were able to
remain under the administrative spending cap of 20
percent.
Table 7: FY18 Planning & Administration Financial Summary
Activity CDBG Funds
Available
CDBG Funds
Spent
5 Broad Street Appraisal & Recording $2,875.00 $2,875.00
Salem Downtown Retail Action Plan $2,750.00 $2,750.00
Open Door Immigration Services $13,000.00 $5,690.75
North Shore Community Health $10,000.00 $10,000.00
General Administration - Non-salary $8,450.47 $8,450.47
General Administration - Benefits $39,008.16 $39,008.16
General Administration - Salary $138,077.84 $138,077.84
Unprogrammed Studies $11,500.00 $0
CAPER NARRATIVES IN IDIS
16
CR-05 - Goals and Outcomes
Progress the jurisdiction has made in carrying out its strategic plan and its action plan.
91.520(a)
Please note that the CAPER in IDIS defaulted to Version 4, which was an amendment to the
NSHC/Peabody Action Plan 2017, which shows all Salem projects as status "Canceled". We are unable to
use a prior version and the result is our accomplishments are not associated with a strategic plan goal
and we had to enter all accomplishment data manually.
For Affordable Housing Development the 27 units that was proposed in the 2015 AAP was for the
Harbor/Lafayette project, now being funded with HOME funds, and to be reported through the
Consortium when complete. The Congress/Ward project will also be reported through the Consortium.
The Congress/Dow project is now complete and accomplishment data is reported in this CAPER (34
units).
We exceeded our goal to assist 3 households to purchase their first home through the First Time
Homebuyer Program by assisting 5 households.
The Housing Rehabilitation Loan Program continues to assist families in need and to meet or exceed the
goals laid out in the Consolidated Plan. In FY18, we exceeded our estimate of rehabilitating 2 housing
units with having improved 8 housing units.
The AAP projected up to 42 households would be assisted with our Rental Downpayment Assistance
Programs. However, just 14 families were assisted with contracts through the North Shore Community
Action Programs, Inc. and Citizens Inn, Inc., utilizing HOME funds (to be reported through the North
Shore HOME Consortium).
For Small Business Economic Development Activities, while no new loans were issued, monitoring of an
existing loan resulted in 14 new jobs (13 FTE), exceeding the AAP goal of 2 jobs. Two businesses were
assisted through the Storefront Improvement Program.
For Business Technical Assistance, the Salem Main Streets Program provided technical assistance to 3
new, 45 existing or 4 potential businesses for a total of 52, including 43 micro-enterprise businesses and
1 expanding business, exceeding our FY16 Annual Action Plan (AAP) goal of assisting 22 business owners.
Please note that only the new and existing businesses (48) are included in Table 1. In addition, 8 new
jobs were documented (6 FTE) exceeding the goal of 5 jobs.
For Community Support Services , our AAP goal was to provide approximately 23 new grants and serve
an estimated 8,300 persons. We were right on par by executing agreements for 23 new grants and
through these new grants and carried over open contracts, we assisted 8,846 persons. One program is
in an LMI census track of 4120 persons. There were three actual activities for this program due to
carried over funds, but for accomplishment purposes, the numbers were not duplicated.
CAPER NARRATIVES IN IDIS
17
Downtown Improvements accomplishment number (5055 expected) is based on the census tracks in the
Downtown Slum/Blight area, which may include several activities. In Table 2, each year, rather than
multiply 5055 times the number of activities completed, we use 5055 as the total actual, avoiding
inflated or duplicated numbers.
Neighborhood Improvement Activities' accomplishments (8265) are the census track totals for the
completed Peabody Street Park Improvements, Street Improvements, Tree Planting and Point
Neighborhood Community Space Art Mural (although there are additional open activities with
expenditures), not duplicating any tracks. Projects underway include Lafayette Park Improvements,
McGlew Park Improvements, Punto Urban Art Museum, Palmer Cove Park Survey & Testing, Point
Neighborhood Security Cameras, and MaryJane Lee Park improvements. Additional projects from the
AAP are in the planning stage and these funds will be carried over to FY19.
Lastly, the City of Salem broke ground on a new Council on Aging facility on September 7, 2017.
Construction completion is slated for Fall, 2018.
CAPER NARRATIVES IN IDIS
18
Comparison of the proposed versus actual outcomes for each outcome measure submitted with the consolidated plan and explain, if
applicable, why progress was not made toward meeting goals and objectives. 91.520(g)
Categories, priority levels, funding sources and amounts, outcomes/objectives, goal outcome indicators, units of measure, targets, actual
outcomes/outputs, and percentage completed for each of the grantee’s program year goals.
Goal Category Source /
Amount
Indicator Unit of
Measure
Expected
–
Strategic
Plan
Actual –
Strategic
Plan
Percent
Complete
Expected
–
Program
Year
Actual –
Program
Year
Percent
Complete
Affordable
Housing
Affordable
Housing
CDBG:
$
Rental units
constructed
Household
Housing
Unit
56 34
60.71% 2 34
1700.00%
Business
Technical
Assistance
Non-Housing
Community
Development
CDBG:
$
Jobs
created/retained Jobs 10 26
260.00% 5 6
120.00%
Business
Technical
Assistance
Non-Housing
Community
Development
CDBG:
$ Businesses assisted Businesses
Assisted 50 130
260.00% 22 48
218.18%
Community
Support
Services
Homeless
Non-Homeless
Special Needs
CDBG:
$
Public service
activities other than
Low/Moderate
Income Housing
Benefit
Persons
Assisted 45000 25378
56.40% 8300 8846
106.58%
Downtown
Improvements
Non-Housing
Community
Development
CDBG:
$
Public Facility or
Infrastructure
Activities other than
Low/Moderate
Income Housing
Benefit
Persons
Assisted 5055 5055
100.00% 5055 5055
100.00%
CAPER NARRATIVES IN IDIS
19
First Time
Homebuyer
Program
Affordable
Housing
CDBG:
$
Direct Financial
Assistance to
Homebuyers
Households
Assisted 25 13
52.00% 3 5
166.67%
Housing
Rehabilitation
Programs
Affordable
Housing
CDBG:
$
Homeowner Housing
Rehabilitated
Household
Housing
Unit
20 21
105.00% 2 8
400.00%
Neighborhood
Improvements
Activities
Non-Homeless
Special Needs
CDBG:
$
Public Facility or
Infrastructure
Activities other than
Low/Moderate
Income Housing
Benefit
Persons
Assisted 8265 8265
100.00% 8265 8265
100.00%
Small Business
Financial
Assistance
Programs
Non-Housing
Community
Development
CDBG:
$
Jobs
created/retained Jobs 15 30
200.00% 2 13
650.00%
Small Business
Financial
Assistance
Programs
Non-Housing
Community
Development
CDBG:
$ Businesses assisted Businesses
Assisted 5 6
120.00% 2 2
100.00%
Table 1 - Accomplishments – Program Year & Strategic Plan to Date
CAPER NARRATIVES IN IDIS
20
Assess how the jurisdiction’s use of funds, particularly CDBG, addresses the priorities and
specific objectives identified in the plan, giving special attention to the highest priority
activities identified.
Overall, we made significant progress toward meeting the priorities and objectives of our 5-year
Consolidated Plan and FY18 Action Plan. The following is a summary of major activities accomplished in
FY18:
5 families assisted to purchase their first home in Salem;
9 housing units were renovated;
14 families received assistance with first/last month’s rent and/or security deposits (HOME
funds);
32 open social service contracts assisted 8,846 persons, including at least 921 youth and at least
311 seniors;
14 new jobs were created through the monitoring of one business previously provided with an
economic development loan;
2 businesses provided with storefront improvement assistance;
8 new jobs documented through the Salem Main Streets Program;
Salem Main Streets Program highlights: Assisted 3 new, 45 existing businesses and 4 prospective
businesses (including 43 micro-enterprises and 1 expanding business). Technical assistance
included one-on-one design assistance, appearance and marketing (including social media),
advocacy, strategy, business plan development, expansion assistance, and relocation
assistance. The agency holds periodic retail meetings, which provide resource information,
market study information, overview of promotions, technical support (i.e. design assistance),
information on signage regulations and approvals, and updates on issues such as grant
applications, plastic bag ban, and shop local campaign. They also provided targeted promotions,
ribbon cuttings and events. Events included the Farmers’ Market, a fashion show and Salem Arts
Festival, the Ice Scream Bowl, Howl-o-ween Parade, Holiday Tree and Santa's Arrival, Small
Business Saturday, Holiday Window Contest, Festive Fridays, New Year's Eve LAUNCH!, Salem So
Sweet and Salem Film Fest Window Contest.
Peabody Street Park canopy/overhang purchased and installed;
Point Neighborhood Community Space Art Mural completed;
Lappin Park Drinking Fountain replaced;
Street improvements completed on Salem Street; and
55 trees which were planted on Congress, Dow, Perkins, Ward, Andrew, Federal, Cabot, Cedar,
Fairfield, Gardner, Hancock, Lafayette, Linden, Chandler, Cushing, North and School Streets and
Memorial Drive and Raymond Avenue.
Salem has received significant cuts in CDBG (22%) and HOME (52%) funds from FY11 to FY18. Still,
despite the reduction in HUD funding, we are proud of the accomplishments made and that we continue
to meet Salem needs and goals.
CAPER NARRATIVES IN IDIS
21
CR-10 - Racial and Ethnic composition of families assisted
Describe the families assisted (including the racial and ethnic status of families assisted).
91.520(a)
CDBG
White 2,566
Black or African American 771
Asian 45
American Indian or American Native 27
Native Hawaiian or Other Pacific Islander 34
Total 3,443
Hispanic 1,536
Not Hispanic 1,907
Table 2 – Table of assistance to racial and ethnic populations by source of funds
Narrative
The table numbers are generated by IDIS based on accomplishment data entered.
CAPER NARRATIVES IN IDIS
22
CR-15 - Resources and Investments 91.520(a)
Identify the resources made available
Source of Funds Source Resources Made
Available
Amount Expended
During Program Year
CDBG CDBG 1,072,049 1,257,396
HOME HOME
HOPWA HOPWA
ESG ESG
Housing Trust Fund Housing Trust Fund 0 0
Other Other 1,378,997 1,860,580.39
Table 3 - Resources Made Available
Narrative
CDBG funds – the actual amount spent in FY18 ($1,257,396.27).
The total of $1,860,580.39 includes:
City of Salem - the actual amount of City of Salem funds spent on salaries and benefits ($590,153.17).
City of Salem CIP - the amount budgeted in FY18 toward projects also being funded with CDBG and/or
CPA funds ($515,000).
CPA funds - the total of amount of surcharge funds collected ($617,350.80), not including penalties or
interest, and including the State match funds received ($100,418) for a total of $717,768.80.
HOME funds - the actual amount spent in FY18 ($37,658.42).
Identify the geographic distribution and location of investments
Target Area Planned Percentage of
Allocation
Actual Percentage of
Allocation
Narrative Description
Table 4 – Identify the geographic distribution and location of investments
Narrative
Salem does not allocate a specific amount of dollars to a specific geographic area. Rather we identify a
need, develop a program or activity to meet the need and assign the dollars that will be used to address
the need. Some programs and activities undertaken are available on a citywide basis to income eligible
households. Other programs and activities are targeted to particular neighborhoods with
concentrations of low- and moderate-income households or to programs that benefit specific
populations such as senior citizens, disabled persons and minorities.
CAPER NARRATIVES IN IDIS
23
concentrations of low- and moderate-income households or to programs that benefit specific
populations such as senior citizens, disabled persons and minorities.
When prioritizing activities, the City pays special attention to those low- and moderate-income (LMI)
neighborhoods where the greatest needs have been identified and whose public facilities and
infrastructure are in the worst condition. A map of the LMI neighborhoods is located in the
Appendix. In accordance with CDBG regulations, the City can undertake specific activities, such as
street, sidewalk and playground improvements in the LMI neighborhoods or in neighborhoods meeting
the definition of “slums and blight”, with the exception of handicap access improvements which can
typically be undertaken city-wide. Some projects are undertaken on other publically owned land, such
as park improvements.
Recognizing that needs are not solely located in distressed neighborhoods, the City also offers programs
that may be accessed by people living outside these areas. For example, the Housing Rehabilitation
Loan Program, First Time Homebuyer Downpayment Assistance Program, and the Small Business Loan
Program are offered citywide to allow any low to moderate-income individual or household to take
advantage of their availability.
CAPER NARRATIVES IN IDIS
24
Leveraging
Explain how federal funds leveraged additional resources (private, state an d local funds),
including a description of how matching requirements were satisfied, as well as how any
publicly owned land or property located within the jurisdiction that were used to address the
needs identified in the plan.
In order to maximize accomplishments and make projects feasible, CDBG funds often must be
combined with other funding sources. The following summarizes the amount of funds
leveraged in FY18 that we were able to document.
Housing
For the First Time Homebuyer Program, homebuyers provided $84,712 in private funds
as well as obtained $1,066,054 in financing from a primary lender.
For the Housing Rehabilitation Loan Program, homeowners provided $3,050 in private
funds.
Economic Development:
The Salem Main Streets Program leveraged $65,836.36. Of this total, $3,165.30 was
from local business and donations and $62,671.06 was from event fees and donations to
cover costs.
Storefront Improvement Program leveraged $1,187.50 in business matching funds.
Neighborhood Improvements (typically conducted only on publically owned land or
infrastructure):
Mary Jane Lee Park’s CDBG funds are leveraging a $400,000 PARC grant, $85,075 in CPA
funds and $60,000 in the City’s Capital Improvement Program funds.
McGlew Park funds are being leveraged with $79,383 in CPA funds, a $394,580 PARC
grant and $88,348 in Capital Improvement Plan (CIP) funds.
The Lafayette Park project is leveraging $100,000 in CPA funds, $25,000 in CIP funds and
$14,850 in Capital Outlay Funds.
Street Improvements for Salem Street leveraged $79,113.33 in CIP funds.
Planning & Administration:
Planning and administration funds leveraged $506,174.70 in City funds plus $83,978.47
in benefit costs, along with and $4,718.49 in State Seaport Advisory Council funds and
CAPER NARRATIVES IN IDIS
25
$22,716.78 in Massachusetts Historical Commission Survey and Planning Grant funds for
all DPCD staff.
Public Services:
Most of the public service agencies funded use CDBG funds as a portion of their overall
activity budgets. Based on leveraged funds reports provided by each agency at the end
of the program year, the amount leveraged is $4,113,783.27 in other federal, state,
private or other funds.
Note: Leveraged funds for multi-year projects may be repeated within more than one year’s
CAPER. Above, leveraged funds are only included for projects for which CDBG funds were
expended during the fiscal year. The above does not include funds leveraged for HOME funded
projects.
CAPER NARRATIVES IN IDIS
26
CR-20 - Affordable Housing 91.520(b)
Evaluation of the jurisdiction's progress in providing affordable housing, including the
number and types of families served, the number of extremely low -income, low-income,
moderate-income, and middle-income persons served.
One-Year Goal Actual
Number of Homeless households to be
provided affordable housing units 0 0
Number of Non-Homeless households to be
provided affordable housing units 5 13
Number of Special-Needs households to be
provided affordable housing units 0 0
Total 5 13
Table 5 – Number of Households
One-Year Goal Actual
Number of households supported through
Rental Assistance 0 0
Number of households supported through
The Production of New Units 0 0
Number of households supported through
Rehab of Existing Units 2 8
Number of households supported through
Acquisition of Existing Units 3 5
Total 5 13
Table 6 – Number of Households Supported
Discuss the difference between goals and outcomes and problems encountered in meeting
these goals.
For the non-homeless households (2 under the Housing Rehabilitation Program and 3 under the First
Time Homebuyer Program), in FY18 we assisted 13 units/households (8 under the Housing
Rehabilitation Program and 5 under the First Time Homebuyer Program).
Rental assistance was provided to 14 families through the use of HOME funds, but these will be reported
through the North Shore HOME Consortium's CAPER.
CAPER NARRATIVES IN IDIS
27
Discuss how these outcomes will impact future annual action plans.
We will continue to estimate proposed outcomes for future plans based on actual outcomes of current
and past plans. It should be noted that our one year goals are based on CDBG funding budgeted using
current fiscal year funds and do not include carried over, prior year funds.
Also of note, in July, 2015, the Metropolitan Area Planning Council provided an overview of their
analysis of local demographic data and housing stock and the key characteristics and trends in Salem
that help explain housing need and demand for the next 15 years. Their findings are located on the
Studies and Reports page of www.salem.com. These numbers reiterate the ongoing need for affordable
housing in Salem.
Include the number of extremely low-income, low-income, and moderate-income persons
served by each activity where information on income by family size is required to determine
the eligibility of the activity.
Number of Households Served CDBG Actual HOME Actual
Extremely Low-income 2 0
Low-income 6 0
Moderate-income 5 0
Total 13 0
Table 7 – Number of Households Served
Narrative Information
These numbers reflect the 5 households (not persons) assisted through the First Time Homebuyer
Program (80% moderate income) and the 8 households (not persons) assisted by the Housing
Rehabilitation Program (62.5% low income). These show that Salem's housing programs serve all
income levels, but predominantly (61.5%) those with low or extremely low incomes.
HOME numbers are reported through the North Shore HOME Consortium.
CAPER NARRATIVES IN IDIS
28
CR-25 - Homeless and Other Special Needs 91.220(d, e); 91.320(d, e); 91.520(c)
Evaluate the jurisdiction’s progress in meeting its specific objectives for reducing and ending
homelessness through:
Reaching out to homeless persons (especially unsheltered persons) and assessing their
individual needs
The Salem Police Department, both through its normal staff complement and its Community Impact
Unit, work directly with the homeless in Salem. It also coordinates with Lifebridge to provide outreach
to homeless, some of whom may be unsheltered. CDBG provides funding via sub-grants to local and
regional organizations that provide direct services and outreach.
Through Lifebridge, a 34-bed shelter for men and women, the City partially funds a licensed nurse
through their Medical Support Services Program which provides on-site and community-based health
assessments to the homeless population, including wound care, general health assessments, symptom
management, diabetic monitoring, nutrition and general health education - 231 persons received a total
of 742 health assessments from July, 2017 to January, 2018.They also conducted street outreach
services to connect homeless individuals with shelter services and provided referrals to medical, mental
health, substance abuse and social service providers.
In July, 2017, Salem held a Public Dialogue to involve residents, business owners, community groups,
and homeless individuals in a conversation on how the community can collectively address
homelessness. A presentation introduced the Collaborative of Hope and outlined existing statistics and
practices, along with new strategies. Resulting efforts included:
Collaborate For Hope’s Homeless Task Force - Monthly meetings of organization representatives
(i.e. City of Salem, Salem Police Dept., North Shore Community Health Center, Lifebridge, NSCAP
and the North Shore Workforce Investment Board).
Added police patrols and training (i.e. the distribution of Homeless Solutions & Resources: A
Police Officer’s Guide to Policing the Community).
Funded with CDBG, outreach workers on call out of the Salem Police Department in partnership
with North Shore Community Health, to connect homeless with health and other services.
Establishing hope@salem.com to report non-emergency transient or homeless issues.
High Risk Homeless Task Force, where service providers meet monthly to review the cases of
high-risk individuals and work to address individual needs.
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.
CAPER NARRATIVES IN IDIS
29
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.
Addressing the emergency shelter and transitional housing needs of homeless persons
Each year the City issues a Request for Proposals for agencies to submit funding proposals, including
proposals for emergency shelter and transitional housing needs. This year, new contracts were
executed contracts with Lifebridge for which the City partially funds a licensed nurse who provides on-
site and community-based health assessments to the homeless population, including wound care, blood
pressure monitoring, nutrition and general health education.
Salem also funds Rental Downpayment Assistance to Citizens for Adequate Housing and NSCAP with
HOME funds to pay for first, last and security for eligible households moving into affordable housing.
Although not funded with CDBG, HAWC provides childcare and therapeutic intervention for the mothers
and children at the shelter for abused women and their children. HAWC provides services to victims of
domestic abuse and their children.
Helping low-income individuals and families avoid becoming homeless, especially extremely
low-income individuals and families and those who are: likely to become h omeless after
being discharged from publicly funded institutions and systems of care (such as health care
facilities, mental health facilities, foster care and other youth facilities, and corrections
programs and institutions); and, receiving assistance from public or private agencies that
address housing, health, social services, employment, education, or youth needs
As stated in the Action Plan, Salem awards CDBG-funded public social service sub-grants to provider
agencies and to housing and service organizations, including those whose core mission is to prevent
homelessness and to foster individual and family self-sufficiency. Each year the City allocates up to the
maximum allowed of its CDBG funding to public social services. All of these sub-grants benefit low- to
moderate-income individuals and families, many of whom are extremely low income. While the grants
made to organizations providing homeless or homelessness prevention services were not specifically
targeted to dischargees of publicly-funded institutions or care systems, these community partners
address a range of housing, health, and other social service needs. For example, North Shore CAP
provides a range of housing and social services to households, in addition to assisting families who are
experiencing homelessness, while Lifebridge reports that an increasing majority of clients are being
discharged to the shelter from health care systems or are referred by other health care or service
agencies. Other types of services and programs that the City has funded include food pantries, child
CAPER NARRATIVES IN IDIS
30
care, health screening and education, ESOL, job readiness and skills training, financial education and
budgeting, and individual counseling and support groups.
In FY15, the City awarded CPA funds for North Shore CDC’s proposed project at 15-17 Harbor Street for
27 single room occupancy units for which 17 units will be set aside for formally-homeless, low-income
youth aging out of the foster care system. Salem has awarded $100,000 in CPA funds and $50,000 from
HOME funds and the project is under construction.
Helping homeless persons (especially chronically homeless individuals and families, families
with children, veterans and their families, and unaccompanied youth) make the transition to
permanent housing and independent living, including shortening the period of time that
individuals and families experience homelessness, facilitating access for homeless individuals
and families to affordable housing units, and preventing individuals and families who were
recently homeless from becoming homeless again
The City of Salem has committed $185,000 in HOME funds to Harborlight Community Partners project to
rehabilitate two buildings on Boston St. (26 studio units) in order to house formerly homeless
individuals, along with providing supportive services. One building is complete and occupied, while the
second is nearing completion.
Although not specifically for homeless persons, the City executed a HOME agreement with NSCAP and
Citizens Inn, Inc. to provide for rental downpayment assistance to help extremely low- and low-income
households (including homeless) to move into decent, affordable rental units. In total, 14 families were
provided with this tenant based rental assistance. The City is working with NSCAP to amend an existing
HOME agreement to target the funds to chronically homeless to be used toward a Housing First model,
which will provide housing with supportive services.
The City's community partner, Lifebridge, offers a suite of essential services that target the needs of
homeless and disadvantaged adults, designed to promote education, employment, and self-
sufficiency. They offer 22 congregate units of permanent supportive housing for homeless persons to
make the transition. In addition to supporting Lifebridge efforts, the City awards CDBG social services
sub-grants to provider agencies to address goals of ending homelessness. These organizations may
provide transitional and permanent supportive housing to homeless and formerly homeless persons,
assist with housing search, housing counseling, and provide emergency housing assistance (e.g.,
delinquent rent and utility payments). Specifically, in FY18, agreements were executed with Catholic
Charities, Salvation Army and NSCAP for homeless prevention through emergency assistance of rental
payments in order to avoid eviction. Along with carried over contracts with Salvation Army, in FY18,
these programs resulted in 36 households (83 persons) avoiding homelessness through CDBG-funded
Homeless Prevention Programs.
The City also awards sub-grants to other agencies that serve specific sub-populations, such as at-risk
youth, seniors, persons with disabilities, or to residents who need ESOL, job readiness and skills training,
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31
or other anti-poverty initiatives, including assistance with food, child care or other needs. Although
funding to these organizations does not target homelessness per se, the funding aids in stabilizing
individuals and families, thereby reducing the risk of homelessness or its recurrence. Programs were
provided by East Gate Fellowship (Joseph's Storehouse), Citizens Inn’s Haven From Hunger, North Shore
CDC, North Shore Moving Market, Salem Community Child Care, Salem YMCA (child care), VOCES and
Wellspring House (MediClerk). Funding was also provided to the Independent Living Center of the North
Shore and Cape Ann, Inc. to provide housing assistance to persons with disabilities.
Finally, the City used CDBG funds for North Shore Community Health to provide a nurse to engage
chronically homeless individuals to encourage comprehensive health assessments, including behavioral
health, substance abuse and depression.
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32
CR-30 - Public Housing 91.220(h); 91.320(j)
Actions taken to address the needs of public housing
As cited in the Strategic Plan and evidenced by consistently excellent SEMAP and PHAS scores, the Salem
Housing Authority is a well-managed public housing authority designated as a “high performer”. In its
most recent PHAS evaluation, the SHA scored 90 out of a possible 100 points and its most recent SEMAP
score was 100 out of 100.
The Salem Housing Authority continues its ongoing modernization program to make capital
improvements to its state and federal public housing units. These improvements are funded by the
United States Department of Housing and Urban Development (HUD) for its federally-funded units and
the Massachusetts Department of Housing and Community Development (DHCD) for its state-funded
housing units.
In addition to ongoing routine maintenance and repair work, the following capital fund modernization
projects are either currently underway or in the planning stage:
State Properties:
• $250,000 Window replacement, venting, tub surround replacement, and related work at 117
Congress St.;
• $650,000 Carpet replacement, painting, and related work at various elderly and handicapped
developments;
• $100,000 Lock replacement at 27 Charter St.; and
• $480,000 Concrete balcony repair work at Bates and Norton Terraces
Federal Properties:
• $300,000 Window replacement, skylight and related work at the Zisson Building; and
• $69,865 is the anticipated award from HUD’s Capital Improvement Fund Program for use for
maintenance and administrative operation costs associated with the SHA’s 39 units of federal
elderly and family housing.
Actions taken to encourage public housing residents to become more involved in
management and participate in homeownership
The Salem Housing Authority (SHA) is governed by a Board comprised of five members. The Mayor of
Salem appoints four of the five board members and the fifth board member is appointed by the
Governor of the Commonwealth of Massachusetts. One member of the board is required to be a
resident of public housing and one member must be a member who represents organized labor.
The SHA has a Resident Advisory Board (RAB) that is actively engaged with the planning and submission
of the Public Housing Agency annual plan. There is also an active tenants’ association at the 27 Charter
Street elderly housing development. All SHA residents of state-funded public housing are included in
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33
the annual planning and submission of the state-funded Capital Improvement Plan.
Copies of the Consolidated Plan, Annual Action Plans and CAPER are provided to the Salem Housing
Authority for residents to peruse. Copies of all CDBG-related notices (i.e. Consolidated Plan, Action Plan
and CAPER) are posted with the SHA in English and Spanish.
Actions taken to provide assistance to troubled PHAs
Not Applicable; the Salem Housing Authority is not designated as a troubled PHA.
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34
CR-35 - Other Actions 91.220(j)-(k); 91.320(i)-(j)
Actions taken to remove or ameliorate the negative effects of public policies that serve as
barriers to affordable housing such as land use controls, tax policies affecting land, zoning
ordinances, building codes, fees and charges, growth limitations, and policies affecting the
return on residential investment. 91.220 (j); 91.320 (i)
Throughout the public participation process, the City of Salem has not found indication that housing
policies have created impediments to fair housing. In comparison with other regional towns, Salem
offers a greater diversity of housing, and a higher proportion of affordable housing overall, exceeding
the state's 10% affordable housing goal. Subsidized and affordable housing is located citywide and is
not disproportionately concentrated. Foreclosures and loan denials have also occurred proportionally in
all areas. However, some factors continue to contribute to the difficulty of increasing the availability of
affordable housing, including a shortage of land and regulatory and environmental constraints.
Salem has limited remaining developable land and, due to Salem’s industrial past, much of it is impacted
by environmental contamination. Some degree of brownfield remediation is needed for almost any
project. Some projects are also subject to Chapter 91, the Wetlands Protection Act or fall within FEMA
designated flood zones. Regulations around these natural environmental conditions establish land use
constraints and/or mitigation requirements, and necessitate further review/permitting depending on
location or scale. This process slows projects and adds to the cost of development. The City works
toward resolving permitting issues - monthly, as needed, holds “One-Stop” meetings that include project
proponents, staff of land-use boards and department representatives in order to review/coordinate
required permitting.
Salem does not have 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 many City 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 LMI households may create negative social and economic consequences for the City as a
whole. The City will continue to utilize MA Chapter 40B Comprehensive Permit program to waive local
zoning requirements (i.e. density, height, use) in order to create new affordable housing, utilize local
funding (Affordable Housing Trust Fund and CPA funds) to facilitate affordable housing development,
utilize a recently awarded $59,000 grant from MassHousing to implement the vision of the city’s
“Imagine Salem” planning process by studying neighborhood mixed use zoning, conducting a public
engagement campaign around affordable housing needs, and advancing a new inclusionary zoning
ordinance and reconvene the Affordable Housing Trust Fund Board with a renewed focus on
investigating policy changes that might help remedy housing challenges.
In early 2018, Salem was approved for a Housing Development Incentive Program (HDIP) Zone and Plan
for Downtown Salem. The HDIP is intended to help increase residential growth, expand diversity of
CAPER NARRATIVES IN IDIS
35
housing stock, support economic development, and promote neighborhood stabilization in designated
areas in Gateway Cities. The HDIP will help accomplish public or private redevelopment of vacant or
underutilized land and buildings, such as the District Court redevelopment, Superior Court and County
Commissioners Buildings and the City-owned parcel adjacent to the MBTA station.
Actions taken to address obstacles to meeting underserved needs. 91.220(k); 91.320(j)
The primary obstacle to addressing underserved needs is the lack of adequate funding. For FY18, the
City received a 3% decrease in CDBG funding , and a nearly 2% decrease in its HOME allocation over
FY17. In total, CDBG funding has been reduced by 22% since FY11, while HOME funding has been
reduced by more than 52%. In addition to CDBG and HOME funds, Salem uses CPA funds to assist with
the development of affordable housing and is active in identifying and applying for grant funds
applicable to our needs.
As noted above, Salem was recently selected to receive a $59,000 housing planning grant from
MassHousing which will be used to begin to implement the vision of the city’s recent “Imagine Salem”
planning process by studying neighborhood mixed use zoning, conducting a citywide public engagement
campaign around affordable housing needs, and advancing a new inclusionary zoning ordinance. The
project will support Salem’s efforts to meet new housing demand, estimated by the Metropolitan Area
Planning Council, of 2,700 new housing units by the year 2030.
The City will continue to support the creation of new affordable housing units, neighborhood
improvement projects, and anti-poverty strategies through partnership with non-profit entities,
supplementing state and federal subsidies with local funding, and case-by-case negotiation with private
developers. In FY16, the financial closing was completed for the Congress Street Residences, for which
the City assisted with acquisition in FY15. Rehabilitation is complete and beneficiaries are reported in
this CAPER. Funding has been set aside for Harbor-Lafayette Homes ($50,000 in HOME funds, $100,000
in CPA funds) to create 27 affordable units, with 17 for formerly homeless youth, as well as for Boston
Street Residences ($185,000 in HOME funds) to create 26 studio units for formerly homeless individuals,
along with supportive services in 2 buildings. Harbor/Lafayette is now under construction. Boston Street
Residences has completed one building and the second is nearing completion.
The City will continue to utilize tools such as the Chapter 40B Comprehensive Permit program to exempt
developments which create affordable housing from local land use regulations.
Actions taken to reduce lead-based paint hazards. 91.220(k); 91.320(j)
The Salem Board of Health disseminates information regarding the proper disclosure of lead hazards
upon selling or renting a housing unit and inspects rental units for lead paint hazards. In Salem, a
landlord is required to obtain a Certificate of Fitness inspection when an apartment becomes vacant.
Board of Health personnel conduct this inspection and enforce the State Sanitary Code for Housing.
When the information is sent to the landlord prior to this inspection, a letter describing the Federal law
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36
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.
The City actively works to reduce lead-paint hazards in pre-1978 housing occupied by lower-income
households through the City of Salem’s Housing Rehabilitation Loan Program. Through the Salem
Housing Rehabilitation Loan and Get the Lead Out Programs, the City provides loan funds for qualified
applicants for lead testing, hazard reduction and abatement activities, and temporary relocation
reimbursements. Lead-based paint hazard control measures are consistent with the federal Title X
requirements and State lead based paint regulations. MassHousing’s Get the Lead Out Program is also
available to homeowners with a lead poisoned child. In FY18, one unit was made lead free through the
City's Housing Rehabilitation Loan Program.
Finally, all participants in the First-Time Homebuyer Downpayment Assistance Loan Program are given a
copy of the EPA brochure “Protecting Your Family from Lead in Your Home.”
Actions taken to reduce the number of poverty-level families. 91.220(k); 91.320(j)
The strategy consists of four components: education, job training, affordable housing and social
services.
Education - The City has used state funding to renovate and improve its educational facilities and
provide school-age children with an environment conducive to learning. The Salem Public Schools
support bilingual classroom settings and technology-based training that will enable those with lower
incomes to improve their job opportunities. The school choice program gives residents more choices
about the school they want their children to attend, and offers education focused specific skills, such as
science and technology and communication and community service. Salem’s Parent Information Center
coordinates the school choice program designed to improve racial balance within the school systems,
and provides information about adult education programs designed to help low-income families.
The City will continue to support various educational programs for youth, adults, and the Spanish-
speaking population with CDBG funds, including Salem Public Schools, and programs administered by
non-profit agencies such as Bentley School home visits, Aspire Developmental Services, LEAP for
Education, the Boys and Girls Club, North Shore Community Development Coalition, Inversant College
Savings Program and VOCES (all funded in FY18). Child care services (Salem Community Child Care,
Salem YMCA) also include an educational component.
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37
Job Training - 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 continues to use CDBG funds to support job training and employment assistance programs such
as the Wellspring House MediClerk Program (funded in FY18).
Affordable Housing - City agencies such as the Salem Housing Authority and the DPCD are committed to
providing safe, appropriate, and affordable housing opportunities to very-low, and low- and moderate-
income family, elderly, and disabled households. In addition, many housing providers and social service
agencies work in concert to combat poverty in Salem. The City’s established partnerships with agencies
such as the NSCAP, the North Shore HOME Consortium and the North Shore Community Development
Coalition increase its success at bringing services to lower income residents and encouraging them to
participate in revitalizing their community.
Social Services - Through a competitive funding round, the City of Salem uses CDBG funds to support 20-
25 non-profit social service programs annually. These organizations provide services to help families
meet the costs of living, promote family self-sufficiency, serve special populations and/or provide crisis
intervention assistance – programs seeking to break the cycle of poverty. CDBG funds support several
programs which indirectly assist with housing in many ways such as increased pay (i.e. job training, ESL
programs) and decreased monthly expenditures (i.e. child care, food programs) so households can
better afford rent or mortgages. There are also many non-CDBG funded programs available to Salem
residents to help households overcome various obstacles to self-sufficiency. 8,846 persons were served
by CDBG funded social service programs in FY18.
Actions taken to develop institutional structure. 91.220(k); 91.320(j)
Under the direction of the DPCD Director, the Assistant Community Development Director oversees
Salem’s community development programs. Housing programs are administered by the Housing
Coordinator and sometimes non-profit agencies, CHDOs and CDCs. Each year, the DPCD issues a Request
for Proposals and awards CDBG funds to non-profit agencies for social service, housing and economic
development programs. The Assistant Community Development Director coordinates the management
of the public service and housing subcontracts and the Economic Development Planner manages the
economic development subcontracts. City departments undertake certain CDBG-funded activities, (i.e.
tree planting, street improvements). The departments may subcontract work thru public bidding
procedures and provide the DPCD with reimbursement requests and required documentation (i.e.
prevailing wage). In general, DPCD staff carry out the remaining activities, including the hiring of
consultants or other private businesses through established municipal purchasing procedures.
The City’s auditing firm audits the CDBG program delivery system annually. In addition, HUD staff
conduct periodic monitorings. The City promptly implements any recommendations as a result of these
reviews. Salem received an on-site monitoring by an Equal Opportunity Specialist of HUD’s Office
of FHEO in March, 2015 and there were no findings or concerns issued.
CAPER NARRATIVES IN IDIS
38
Staff periodically attend trainings - examples in FY18 include:
Cruising the Commonwealth Seminar, July, 2017, Preservation Massachusetts
Webinar- Zoning Reform in Massachusetts, August, 2017
Coastal Manual Training, September, 2017, CZM and DEP
Webinar - Historic Tax Credit Update, September, 2017
Interviewing Workers On Davis-Bacon Projects, Sept., 2017
URA and Section 104(d) Training, HUD, September, 2017
CDBG Rehabilitation Training Session, HUD, October, 2017
SNEAPA Conference, October, 2017
North Shore Housing Partnerships to End Homelessness! October, 2017, HUD
Webinar – Lending for Redevelopment Projects: November, 2017
Community Building and Economic Development through Art, November, 2017, MAPC
Webinar – Giving Dying Malls New Life, November, 2017
Webinar – Award Winning Sustainability 2017 – Part 1 & 2, November/December, 2017
Webinar – It’s Not Just a Color on the Map – Zoning in Plan Implementation, November, 2017
Webinar – Case Studies in the FTA: Manual on Pedestrian and Bicycle Connections to Transit,
December, 2017
Webinar - Does Your Vision Pencil Out? Under the Hood with Policy, December, 2017
Affordable Housing Design, January, 2018, MassHousing Partnership
MAPC Arts and Culture Discussion Series: Art and Green Infrastructure, January, 2018
Webinar – Best Practices for the Con Plan and Action Plan, March, 2018
CDBG for Economic Development, March, 2018, HUD
CNU New England Summit, March, 2018
Part 58 Environmental Review Procedures, April, 2018, HUD
Small Scale Developer Forum: Historic Meets Contemporary, ULI Conference, April, 2018
Innovative Financing for Climate Adaptation, April, 2018, Environmental Business Council
CDBG National Objective and Eligibility Training, May, 2018
IDIS for CDBG Training for New Users, HUD, May, 2018
Webinars – HUD – Building HOME Webinar Series II, June 2018
Cultural Sensitivity, June, 2018, MIIA
Webinar- Native American Tribes, Law, and Planning, June, 2018
Webinar - Hazard Mitigation and Historic Preservation, June, 2018
Actions taken to enhance coordination between public and private housing and social ser vice
agencies. 91.220(k); 91.320(j)
DPCD continues to administer Salem H.O.P.E. (Human Organization Partnership Effort), a networking
group of human service agencies that serve Salem residents, offering a forum for agencies to learn
about the services being provided by other agencies in order to fill in gaps, coordinate efforts and avoid
the duplication of services. All human service agency representatives are invited to attend the quarterly
Steering Committee breakfast meetings held at rotating agency locations. Through this program, agency
representatives are introduced to each other and exchange information, announcements and updates.
The City also works with nonprofit agencies to administer social service activities. Agencies are
CAPER NARRATIVES IN IDIS
39
encouraged to apply to the City for CDBG public services funding to undertake priority programs
outlined in the Consolidated Plan. Additionally, the City of Salem cooperates and coordinates with other
public agencies (and funding sources) to undertake specific activities. Examples include MHFA’s Get the
Lead Out Program and Mass Housing Partnership’s Soft Second Mortgage Program.
The City of Salem works with the City of Peabody, the lead community for the North Shore HOME
Consortium, to coordinate the implementation of its HOME-funded program. Salem also works with
local CHDOs and CDCs to carry out priority activities.
Identify actions taken to overcome the effects of any impediments identified in the
jurisdictions analysis of impediments to fair housing choice. 91.520(a)
Salem examined issues pertaining to fair housing during consolidated planning processes in 2005, 2010
and 2015, through a series of public meetings and interviews with neighborhood groups, service
providers, business associations and housing professionals. Participants were asked to comment on fair
housing and discrimination in the city.
Salem continues to work to overcome impediments through the following activities:
The Housing Coordinator attended Know Your Rights fair housing training in Boston in January,
2016 to further understand the Fair Housing Law and to educate others.
The City maintains a page on its website for Fair Housing and Housing Discrimination. The page
explains housing discrimination and fair housing laws and is designed to assist consumers, real
estate professionals and lenders. The page also lists resources available to victims of
discrimination.
The City provides public service and housing assistance funding to agencies whose activities
assist specific populations with improving their quality of life. Provider assistance may include
locating appropriate and, if needed, accessible housing, as well as a range of human services.
Providers regularly interact with minority, disabled and low-income populations. These
interactions present opportunities for providers to understand their clients’ housing concerns
and to assist them in cases of discrimination. So that providers understand the fair housing laws
and available resources for addressing fair housing issues, the City’s community development
staff provide technical assistance and guidance to local housing and service providers. The City
also directs its CDBG funding to programs that promote fair housing through the provision of
their services, such as the Independent Living Center’s Accessible Housing Education Services
Program. Furthermore, the city requires all sub-recipients to comply with the Fair Housing Act.
The City encourages people, organizations and agencies to work together to address housing
issues. One of CHAPA’s Spring Regional 2018 meetings was held in Salem in March, 2018, to
which staff attended. Salem also administers Salem HOPE, a networking group of social service
providers that meets quarterly at rotating public service agency locations. It is a forum to share
insights and concerns, to work toward filling gaps in services and to coordinate efforts.
The City’s housing staff regularly participate in housing fairs held by lending institutions and real
CAPER NARRATIVES IN IDIS
40
estate professionals. At these fairs, the City provides information regarding its first-time
homebuyer, rehabilitation and deleading programs. In addition, staff disseminate information
regarding the fair housing law, including protected classes, typical violations and resources
available to victims of discrimination. This is an opportunity for staff to talk one-on-one with
residents who may be victims of discrimination in lending and/or victims of steering. By
speaking with people first-hand, staff are able to learn about the fair housing climate in the city
and identify fair housing issues.
The City provides financial assistance to North Shore CDC, a nonprofit organization that runs a
Family Resource Center, which periodically conducts CHAPA-certified, first time homebuyer
educational courses (held in the Point Neighborhood, where Salem has its highest concentration
of racial and ethnic minorities). Among other things, courses inform participants about their
rights when working with real estate agents and lenders. The program covers fair housing issues
and what to do if someone is a victim of discrimination. In addition, the program covers the
responsibilities of landlords under fair housing laws.
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41
CR-40 - Monitoring 91.220 and 91.230
Describe the standards and procedures used to monitor activities carried out in furtherance
of the plan and used to ensure long-term compliance with requirements of the programs
involved, including minority business outreach and the comprehensive planning
requirements
The DPCD monitors all projects to ensure compliance with applicable Federal, State and local regulations
and program requirements. A Monitoring Guide is included in the Appendix of the Consolidated Plan.
Public service contracts include performance measurement indicators. As part of ongoing monitoring,
sub-recipients submit monthly reports that include income, race and ethnic information on clients
served and programmatic accomplishments. In addition, public service sub-recipients are monitored on-
site periodically. Agencies submitting reimbursement requests must include proof of expenditure of
funds, as well as documentation that the pre-determined benchmark or goal was attained.
All First-Time Homebuyer Downpayment Assistance Loan Program properties and Housing
Rehabilitation Loan Program properties receive on-site inspections. Rehabilitation projects must meet
current housing codes and non-emergency projects must meet Housing Quality Standards (HQS). All
tenant based rental assistance provided with HOME funds requires an inspection with a HQS
report. Housing staff maintain a comprehensive written manual detailing program procedures and
policies, as well as a master spreadsheet that tracks all loan details for the First-Time Homebuyer
Downpayment Assistance Loan Program and the Housing Rehabilitation Program, including period of
affordability, discharge dates, rent restrictions and monitorings. The City monitors HOME-funded
rehabilitation projects with rental affordability restrictions annually for the duration of the affordability
period.
Monitoring of job creation is determined by the time period in the funding Agreement.
A quarterly report is provided to the City’s Finance Department on new loans issued, loan status and
loan discharges. There is also a Loan Management Policy for dealing with delinquent or in default
housing or economic development loans. The DPCD reconciles its general ledger to IDIS monthly.
Economic Development and Neighborhood Improvement projects use a checklist developed by the
DPCD to ensure that floodplain management, environmental review, Section 3, minority outreach,
procurement and debarment regulations are identified for applicability and documented.
The DPCD also annually reviews its performance in meeting its goals and objectives set for in the
Consolidated Plan during the development of the annual CAPER.
Payments to agencies are made on a reimbursement basis to ensure compliance with expenditure
requirements. The Assistant Community Development Director encourages timely submission of
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42
reimbursement requests by subrecipients and reviews timeliness status weekly until the annual 1.5
draw ratio is met.
Additionally, the City ensures long-term compliance with program requirements, including minority
business outreach and comprehensive planning requirements, in several ways. In particular, the DPCD
has a Monitoring Plan, Section 3 Plan and Minority Outreach Procedures in place that allows the City to
track whether long-term goals are being met.
Citizen Participation Plan 91.105(d); 91.115(d)
Describe the efforts to provide citizens with reasonable notice and an opportunity to
comment on performance reports.
The Citizen Participation Plan included in the 5-Year Consolidated Plan is the framework we use to solicit
public comment, as well as to provide guidance on our response to citizens’ comments on our programs
throughout the year. The goals and purpose of the Citizen Participation Plan is to encourage residents,
agencies, and other interested parties to participate in the development of our 5-Year Consolidated Plan
and Annual Action Plans and to comment on our accomplishments. We encourage feedback from our
citizens in order to improve our efforts to provide decent, safe and sanitary housing, improved
community facilities and infrastructure, needed human services and expanded economic opportunities,
that all work toward revitalizing our neighborhoods and improving our living environment.
The CAPER is made available to the public throughout the 15-day comment period and efforts to solicit
citizens’ comments include posting bilingual (English/Spanish) notices on the availability of the report in
the Salem Evening News, the City of Salem Official Bulletin Board at City Hall and at the City Hall Annex
through the Clerk’s Office, Salem Public Library, Salem Housing Authority and on the City’s
website. Copies are available for review at the DPCD, Salem Public Library and Salem Housing Authority
and on the City’s website (a copy of which is available for download). The notice is distributed via email
to the Salem HOPE distribution list which reaches non-profit social service agencies that serve various
populations including minorities, non-English speaking persons, persons with disabilities and Point
Neighborhood residents. In addition, the most recent CAPER is made available during our two annual
public hearings.
The FY18 CAPER's comment period ran from 8/29/18-9/14/18. There were no comments received.
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43
CR-45 - CDBG 91.520(c)
Specify the nature of, and reasons for, any changes in the jurisdiction’s program objectives
and indications of how the jurisdiction would change its programs as a result of its
experiences.
In general, there are no anticipated changes in Salem's program objectives. As noted in FY17's CAPER,
for one project, Affordable Housing Development, the funding source was changed from CDBG to
HOME. Because HOME activities are reported through the lead community, Peabody, this will result in
IDIS showing Salem not completing one of its CDBG goals of 27 units, even though the units will still be
created. When the activity has been completed, we will make this notation in the appropriate CAPER.
Does this Jurisdiction have any open Brownfields Economic Development Initiative (BEDI)
grants?
No
APPENDIX
Financial Summary Report (PR26) for FY18 (HUD’s Program Year 2017)
Please note:
The PR26 for FY17 erroneously used Line 45 (instead of using Line 16) from the FY16 PR26
as Line 1 of the FY17 PR26, resulting in Line 8 (Total Available) and Line 16 (Unexpended
Balance) of FY17 PR26 to be in error. This correction has been reflected in the FY18 PR26.
Line 14 adjustment is $13,217 from voucher #6167753 that was drawn on 7/2/18, but was
unable to be changed to HUD year 2017 in IDIS. Of that $7990.29 is
Planning/Administration.
Line 40 adjustment is $7990.29 in Planning/Administration from voucher #6167753 that
was drawn on 7/2/18, but was unable to be changed to HUD year 2017 in IDIS.
Maps
Low to Moderate Income Areas
Geographic Distribution of Entitlement Funds Expended FY18
Section 3 Report
46 PERCENT FUNDS OBLIGATED FOR PA ACTIVITIES (LINE 41/LINE 45)17.46%
43 CURRENT YEAR PROGRAM INCOME 128,794.55
44 ADJUSTMENT TO COMPUTE TOTAL SUBJECT TO PA CAP 0.00
45 TOTAL SUBJECT TO PA CAP (SUM, LINES 42-44)1,094,343.55
40 ADJUSTMENT TO COMPUTE TOTAL PA OBLIGATIONS 7,990.29
41 TOTAL PA OBLIGATIONS (LINE 37 + LINE 38 - LINE 39 +LINE 40)191,052.92
42 ENTITLEMENT GRANT 965,549.00
37 DISBURSED IN IDIS FOR PLANNING/ADMINISTRATION 198,786.93
38 PA UNLIQUIDATED OBLIGATIONS AT END OF CURRENT PROGRAM YEAR 7,459.25
39 PA UNLIQUIDATED OBLIGATIONS AT END OF PREVIOUS PROGRAM YEAR 23,183.55
35 TOTAL SUBJECT TO PS CAP (SUM, LINES 32-34)1,078,678.71
36 PERCENT FUNDS OBLIGATED FOR PS ACTIVITIES (LINE 31/LINE 35)14.90%
PART V: PLANNING AND ADMINISTRATION (PA) CAP
32 ENTITLEMENT GRANT 965,549.00
33 PRIOR YEAR PROGRAM INCOME 113,129.71
34 ADJUSTMENT TO COMPUTE TOTAL SUBJECT TO PS CAP 0.00
29 PS UNLIQUIDATED OBLIGATIONS AT END OF PREVIOUS PROGRAM YEAR 39,426.96
30 ADJUSTMENT TO COMPUTE TOTAL PS OBLIGATIONS 0.00
31 TOTAL PS OBLIGATIONS (LINE 27 + LINE 28 - LINE 29 + LINE 30)160,720.00
PART IV: PUBLIC SERVICE (PS) CAP CALCULATIONS
27 DISBURSED IN IDIS FOR PUBLIC SERVICES 170,538.00
28 PS UNLIQUIDATED OBLIGATIONS AT END OF CURRENT PROGRAM YEAR 29,608.96
24 CUMULATIVE NET EXPENDITURES SUBJECT TO LOW/MOD BENEFIT CALCULATION 0.00
25 CUMULATIVE EXPENDITURES BENEFITING LOW/MOD PERSONS 0.00
26 PERCENT BENEFIT TO LOW/MOD PERSONS (LINE 25/LINE 24)0.00%
22 PERCENT LOW/MOD CREDIT (LINE 21/LINE 11)99.62%
LOW/MOD BENEFIT FOR MULTI-YEAR CERTIFICATIONS
23 PROGRAM YEARS(PY) COVERED IN CERTIFICATION PY: PY: PY:
19 DISBURSED FOR OTHER LOW/MOD ACTIVITIES 998,429.69
20 ADJUSTMENT TO COMPUTE TOTAL LOW/MOD CREDIT 0.00
21 TOTAL LOW/MOD CREDIT (SUM, LINES 17-20)1,041,411.34
PART III: LOWMOD BENEFIT THIS REPORTING PERIOD
17 EXPENDED FOR LOW/MOD HOUSING IN SPECIAL AREAS 0.00
18 EXPENDED FOR LOW/MOD MULTI-UNIT HOUSING 42,981.65
14 ADJUSTMENT TO COMPUTE TOTAL EXPENDITURES 13,217.00
15 TOTAL EXPENDITURES (SUM, LINES 11-14)1,257,396.27
16 UNEXPENDED BALANCE (LINE 08 - LINE 15)831,288.65
11 AMOUNT SUBJECT TO LOW/MOD BENEFIT (LINE 09 + LINE 10)1,045,392.34
12 DISBURSED IN IDIS FOR PLANNING/ADMINISTRATION 198,786.93
13 DISBURSED IN IDIS FOR SECTION 108 REPAYMENTS 0.00
PART II: SUMMARY OF CDBG EXPENDITURES
09 DISBURSEMENTS OTHER THAN SECTION 108 REPAYMENTS AND PLANNING/ADMINISTRATION 1,045,392.34
10 ADJUSTMENT TO COMPUTE TOTAL AMOUNT SUBJECT TO LOW/MOD BENEFIT 0.00
06a FUNDS RETURNED TO THE LOCAL CDBG ACCOUNT 0.00
07 ADJUSTMENT TO COMPUTE TOTAL AVAILABLE 0.00
08 TOTAL AVAILABLE (SUM, LINES 01-07)2,088,684.92
05 CURRENT YEAR PROGRAM INCOME 128,794.55
05a CURRENT YEAR SECTION 108 PROGRAM INCOME (FOR SI TYPE)0.00
06 FUNDS RETURNED TO THE LINE-OF-CREDIT 0.00
02 ENTITLEMENT GRANT 965,549.00
03 SURPLUS URBAN RENEWAL 0.00
04 SECTION 108 GUARANTEED LOAN FUNDS 0.00
PART I: SUMMARY OF CDBG RESOURCES
01 UNEXPENDED CDBG FUNDS AT END OF PREVIOUS PROGRAM YEAR 994,341.37
PR26 - CDBG Financial Summary Report
Program Year 2017
SALEM , MA
Metrics
Office of Community Planning and Development
U.S. Department of Housing and Urban Development
Integrated Disbursement and Information System
Section 3 Summary Report
Economic Opportunities for Low- and Very Low-Income Persons
U.S. Department of Housing and Urban Development
Office of Fair Housing and Equal Opportunity
OMB Approval No. 2529-0043
(exp. 11/30/2018)
Disbursement Agency
City of Salem, MA
120 Washington Street, Salem, MA 01970
04-6001413
Reporting Entity
City of Salem, MA
98 Washington Street, Salem, MA 01970
Dollar Amount $1,118,861.86
Contact Person Jane Guy
Date Report Submitted 09/11/2018
Reporting Period
Program Area Code Program Area Name
From To
7/1/17 6/30/18 CDB1 Community Devel Block Grants
Part I: Employment and Training
Job
Category
Number
of New
Hires
Number of New
Hires that Are Sec.
3 Residents
Aggregate
Number of Staff
Hours Worked
Total Staff Hours
for Section 3
Employees
Number of
Section 3
Trainees
Professional 2 0 0 0 0
Youthbuild
Laborer 6 6 0 0 0
Total New Hires 8
Section 3 New Hires 6
Percent Section 3 New Hires 75.0%
Total Section 3 Trainees 0
The minimum numerical goal for Section 3 new hires is 30%.
Part II: Contracts Awarded
Construction Contracts
Total dollar amount of construction contracts awarded $291,937.86
Total dollar amount of contracts awarded to Section 3 businesses $0.00
Percentage of the total dollar amount that was awarded to Section 3 businesses 0.0%
Total number of Section 3 businesses receiving construction contracts 0
The minimum numerical goal for Section 3 construction opportunities is 10%.
Non-Construction Contracts
Total dollar amount of all non-construction contracts awarded $39,044.95
Total dollar amount of non-construction contracts awarded to Section 3 businesses $0.00
Percentage of the total dollar amount that was awarded to Section 3 businesses 0.0%
Total number of Section 3 businesses receiving non-construction contracts 0
The minimum numerical goal for Section 3 non-construction opportunities is 3%.
Part III: Summary
Indicate the efforts made to direct the employment and other economic opportunities generated by
HUD financial assistance for housing and community development programs, to the greatest extent
feasible, toward low- and very low-income persons, particularly those who are recipients of
government assistance for housing.
Yes
Attempted to recruit low-income residents through: local advertising media, signs
prominently displayed at the project site, contacts with community organizations and public
or private agencies operating within the metropolitan area (or nonmetropolitan county) in
which the Section 3 covered program or project is located, or similar methods.
No Participated in a HUD program or other program which promotes the training or
employment of Section 3 residents.
No Participated in a HUD program or other program which promotes the award of contracts to
business concerns which meet the definition of Section 3 business concerns.
Yes Coordinated with Youthbuild Programs administered in the metropolitan area in which the
Section 3 covered project is located.
No Other; describe below.
New Hires:
The City of Salem Department of Planning and Community Development (DPCD) filled three vacant
positions, two of which are partially funded with CDBG. Of these two, one was a transfer from a
temporary job in another department. The second did not certify when applying that they were a
Section 3 resident.
Job notices for positions available in the DPCD are posted at the Salem Housing Authority, North
Shore CDC and the North Shore Career Center, as well as the City’s website and internally to
current city employees. As appropriate, notices are sent to Salem State University, UMass
Amherst, Umass Boston, Harvard School of Design, Harvard Kennedy School, Boston College,
Boston University, Cornell University, University of Pennsylvania, Columbia University, University at
Buffalo, Carnegie Melon, Rutgers, MassAPA, NCDA (website, email and LinkedIn), Tufts,
MassDevelopment, Massplanners listserv, MMA’s Beacon, to representatives of HOME Consortium
communities and the Salem HOPE distribution list. The City’s Section 3 Resident Certification
Application is located on the City’s website, on the Human Resources webpage at http://www.salem.
com/sites/salemma/files/uploads/section_3_resident.pdf
Contracting:
The City committed to HOME (October, 2014, $50,000) and CPA funds (May, 2015, $100,000) for
an affordable housing project that closed in March, 2018. The non-profit agency adopted a MBE
/WBE and Section 3 Hiring Plan with numerical goals. The N.S. HOME Consortium will be
reporting on Section 3, once construction is complete and the contractor report has been submitted.
Bids for CDBG funded activities:
McGlew Park Improvements ($724,970 of which CDBG is $162,659) – The project was bid during
the reporting time period. The invitation for bids and legal notice indicated that the project was
subject to Section 3. The Section 3 clause was included in the bid documents and bidders were
required to sign an affidavit that they would comply. An email dated 7/11/17 was sent to a list of
general contractors list in the HUD Section 3 Registry. After the bid, the Section 3 requirements
were reviewed with the awarded contractor at the start-up meeting on 8/23/17 They submitted their
Section 3 report indicating that they had no new hires. They had three subcontracts (all under
$100,000) and reported that none were Section 3 businesses. The project is not yet complete and
it is expected that there will be a Youthbuild component by the end of 2018.
Lafayette Park Improvements ($296,888 of which CDBG is $171,888) – The project was bid during
the prior reporting period. The invitation for bids and legal notice indicated that the project was
subject to Section 3. Bidders were required to sign an affidavit that they would comply. After the
bid, the Section 3 requirements were reviewed with the awarded contractor at the start-up meeting
on 8/3/17. They submitted their Section 3 report indicating that they had no new hires. They had
two subcontracts (all under $100,000) and reported that none were Section 3 businesses. The
project also included some work completed through a Youthbuild program, of which 6 YouthBuild
members completed some carpentry for the project, which is reported in this year’s report.
On Call Vendors:
There was one street improvement project conducted using an existing on-call contractor.
Other Efforts
The City’s Section 3 Business Affidavit is located on the City’s website, on the Purchasing
Department webpage at http://www.salem.com/sites/salemma/files/uploads/section3_business.pdf
YouthBuild North Shore CDC is the only YouthBuild in the region. YouthBuild North Shore CDC
partners with Salem High School, and Catholic Charities to graduate our members with either a
diploma or GED. YouthBuild North Shore CDC focuses on low-income young people ages 16 to 24
working toward their high school equivalency diplomas, while learning job skills by building
affordable housing in their communities. YouthBuild North Shore CDC empowers young adults with
the competency and desire to transform their lives and improve their communities through
education, employment, and leadership development. The program serves approximately 50 youth
annually from Salem, Lynn, and surrounding North Shore communities. The City of Salem often has
utilized Youthbuild for components of our park projects funded with CDBG, as well as other non-
CDBG projects.
The Section 3 clause is and has always been included in CDBG contracts generated by the
Department of Planning & Community Development, regardless of the contract amount. In addition,
for more than 20 years, social service agencies receiving CDBG public services funding have been
required to provide copies of their agency’s hiring and purchasing policies and these policies have
been reviewed to ensure outreach efforts are made to lower income, as well as minority Salem
residents. Public service agencies’ funded programs are monitored on an annual basis to ensure
that the policies are followed.