FY15 5 YEAR CONSOLIDATED PLAN - MAY 15, 2015CITY OF SALEM
FIVE-YEAR CONSOLIDATED PLAN
July 1, 2015 –June30,2020
(FY16-FY20)
MAY 15, 2015
Kimberley Driscoll
Mayor
Lynn Goonin Duncan, AICP
Director of Planning &Community Development
Kathleen Winn
Deputy Director of Planning & Community Development
Jane A. Guy
Assistant Community Development Director
Contents
ES-05 Executive Summary -24 CFR 91.200(c),91.220(b)...............................................................................1
The Process .....................................................................................................................................................8
PR-05 Lead & Responsible Agencies ...........................................................................................................8
PR-10 Consultation .....................................................................................................................................9
PR-15 Citizen Participation........................................................................................................................21
Needs Assessment ........................................................................................................................................27
NA-05 Overview ........................................................................................................................................27
NA-10 Housing Needs Assessment ...........................................................................................................29
NA-15 Disproportionately Greater Need: Housing Problems ...................................................................42
NA-20 Disproportionately Greater Need: Severe Housing Problems .......................................................46
NA-25 Disproportionately Greater Need: Housing Cost Burdens.............................................................49
NA-30 Disproportionately Greater Need: Discussion ...............................................................................50
NA-35 Public Housing................................................................................................................................51
NA-40 Homeless Needs Assessment.........................................................................................................56
NA-45 Non-Homeless Special Needs Assessment ....................................................................................63
NA-50 Non-Housing Community Development Needs.............................................................................67
Market Analysis.............................................................................................................................................70
MA-05 Overview .......................................................................................................................................70
MA-10 Number of Housing Units..............................................................................................................72
MA-15 Housing Market Analysis: Cost of Housing ...................................................................................80
MA-20 Housing Market Analysis: Condition of Housing ...........................................................................85
MA-25 Public and Assisted Housing..........................................................................................................90
MA-30 Homeless Facilities and Services ...................................................................................................94
MA-35 Special Needs Facilities and Services ............................................................................................98
MA-40 Barriers to Affordable Housing ...................................................................................................102
MA-45 Non-Housing Community Development Assets ..........................................................................105
MA-50 Needs and Market Analysis Discussion .......................................................................................119
Strategic Plan ..............................................................................................................................................123
SP-05 Overview .......................................................................................................................................123
SP-10 Geographic Priorities ....................................................................................................................125
SP-25 Priority Needs ...............................................................................................................................126
SP-30 Influence of Market Conditions ....................................................................................................129
SP-50 Public Housing Accessibility and Involvement ..............................................................................144
SP-55 Barriers to affordable housing ......................................................................................................145
SP-60 Homelessness Strategy .................................................................................................................147
SP-65 Lead based paint Hazards .............................................................................................................149
SP-70 Anti-Poverty Strategy ....................................................................................................................150
SP-80 Monitoring ....................................................................................................................................155
APPENDIX ................................................................................................................................................155
Appendix 1 –Maps
Appendix 2 –Citizen Participation Plan
Appendix 3 –Public Comments
Part 1) Public Participation Process
Part 2) Review of Draft Plan
Appendix 4 –Other Resources
Appendix 5 –Monitoring Guide
Appendix 6 –Alternate/Local Data Sources
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Executive Summary
ES-05 Executive Summary -24 CFR 91.200(c), 91.220(b)
1.Introduction
Each year, the City of Salem receives federal funds for housing and community development
activities. The City uses these funds to undertake housing, community and economic
development projects and programs that assist low-to moderate-income individuals,families
and neighborhoods. In order to receive these funds, the City must prepare a Consolidated Plan
every five years, as well as annual Action Plans to implement the five -year plan. Together, the
Consolidated Plan and the Annual Action Plans provide a record of how Salem evaluated its
needs and presents a blueprint of how it will use the funds to be received from the U.S.
Department of Housing and Urban Development (HUD). The Consolidated Plan establishes a
vision for attaining a higher quality of life for low-and moderate-income residents and the
annual Action Plan outlines specific activities that work toward accomplishing that vision.
In each of the five years covered by this Consolidated Plan, Salem anticipates receiving
approximately $953,000 in CDBG entitlement funding, approximately $88,000 in HOME funds
and an estimated $115,000 in program income. These estimates are based on recent funding
levels. The total estimated five-year allocation is $4,765,000 from CDBG, $440,000 in HOME
funds and $575,000 in program income. These funds are conditional upon annual appropriations
by the federal government and receipts generated by program income.The funding is applicable
to federal (HUD)fiscal years 2015, 2016, 2017, 2018, 2019,and will be utilized during Salem’s
Fiscal Years 2016-2020.This Consolidated Plan applies to activities that will take place from July
1, 2015 through June 30, 2020.
The Consolidated Plan process identifies needs as a result of gathering information from many
sources.The outcome of this needs assessment (completed through research and compilation
of data and direct, personal consultations)is a comprehensive strategy for the use of Salem’s
federal housing and community development funds to address unmet needs.identified during
the Consolidated Plan process.
2.Summary of the objectives and outcomes identified in the Plan Needs Assessment
Overview
In 2006, HUD devised a means to uniformly measure accomplishments funded through its
housing and community development programs. In doing so, HUD determined that activities
should meet one of three specific objectives and three outcomes. They are:
Objectives
Activities must meet one of the following three objectives:
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Suitable Living Environment -In general, this objective relates to activities that benefit
communities, families, or individuals by addressing issues in their living environment.
Decent Housing -Activities found under this objective cover the wide range of housing possible
under HOME or CDBG. This objective focuses on housing programs where the purpo se of the
program is to meet individual family or community needs and not programs where housing is an
element of a larger effort. Such programs should be reported under Suitable Living
Environment.
Creating Economic Opportunities -This objective applies to economic development,
commercial revitalization, or job creation activities.
Outcomes
Activities must work to achieve one of three outcomes as follows:
Availability/Accessibility -This outcome category applies to activities that make services,
infrastructure, public services, public facilities, housing, or shelter available or accessible to low -
and moderate-income people, including persons with disabilities. In this category, accessibility
does not refer only to physical barriers, but also to making the affordable basics of daily living
available and accessible to low and moderate income people where they live.
Affordability -This outcome category applies to activities that provide affordability in a variety
of ways in the lives of low-and moderate-income people. It can include the creation or
maintenance of affordable housing, basic infrastructure hook-ups, or services such as
transportation and day care.
Sustainability -Promoting Livable or Viable Communities -This outcome applies to projects
where the activity or activities are aimed at improving communities or neighborhoods, helping
to make them livable or viable by providing benefit to persons of low-and moderate-income or
by removing or eliminating slums or blighted areas.
3.Evaluation of past performance
During the many years of Salem’s CDBG Program, the City has made significant improvements to
the City’s physical and social environment for its low-and moderate-income residents. The
CDBG program has had a strong impact in Salem, as seen through the numerous homes
rehabilitated, neighborhood facilities and infrastructure improved, businesses strengthened,
jobs created and families served through our public service agencies.
The annual Consolidated Annual Performance and Evaluation Report (CAPER) provides an
analysis of the accomplishments and progress the City has made toward meeting the goals and
objectives laid out in its Five Year Consolidated Plan. The FY15 CAPER, for the current fiscal year,
will be available by September 30, 2015. The most recent CAPER, for FY14, evaluated the fourth
fiscal year of the previous 5-Year Consolidated Plan.HUD calculated that 99.53% of CDBG funds
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spent in FY14 directly benefited low-and moderate-income persons. The FY14 CAPER is
available at the City of Salem Department of Planning and Community Development (DPCD), the
Salem Public Library and on the City’s website at www.salem.com.
The chart below illustrates FY14 spending by category, as a percentage of overall CDBG and
HOME expenditures.
4.Summary of citizen participation process and consultation process
As part of the process in developing this new Consolidated Plan, Salem’s Department of
Planning and Community Development (DPCD) sought public input from residents, businesses,
social service organizations and various stakeholders.A series of nine community meetings and
focus groups were held throughout the city. The meetings were held at the Salem Housing
Authority, at neighborhood meetings within specific wards with large low-and moderate-
income (LMI)populations, in the City Hall offices, at community organizations, and at Salem
State University to reach as broad of a population as possible. The focus groups targeted
persons with disabilities, housing providers, businesses and seniors. Individual stakeholder
interviews were conducted with city staff, social service providers, residents, business owners,
and other persons and organizations familiar with local needs. To augment the outreach
process, the City conducted an online survey in English and Spanish (also available in a hard copy
format), for which the City received 318 responses.
5.Summary of public comments
A summary of comments received in the Citizen Participation and consultation process can be
found in section PR of this Consolidated Plan. A more detailed description of the comments
received during community meetings and focus groups and the results of the survey can be
found in the Appendix.
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6.Summary of comments or views not accepted and the reasons for not
accepting them
All comments and views were taken into consideration in preparation of this Consolidated Plan.
The Appendix includes a response to written comments received.
7.Summary
The Consolidated Plan includes a Needs Assessment which considers such issues as:
Low and moderate Income Households with high housing cost burden and other
housing problems
Disproportionate needs of minority populations
Homelessness
Elderly, disabled, residents of public housing, and other special needs populations
A Market Analysis considers:
Characteristics of Salem's housing inventory
Cost of rental and ownership housing
Inventory of Public and Assisted Housing
Resources that support homeless and non-homeless special needs populations
Non-housing community development context
Geographic concentration of community development needs
Through the Needs Assessment process and Market Analysis, several priorities were identified
including housing, economic development, public services and neighborhood improvements.
Salem needs more housing that is affordable to people of all income levels
and household types,including accessible housing and housing with
supportive services.The disparity between income and the cost of housing in
the City and the region and a shortage of subsidized affordable housing units
are the two greatest challenges to meeting the needs of the constituent
population.
Salem has identified needs for social services, including transportation,
nutrition, housing advocacy, legal services, education, childcare, emergency
funds for homelessness prevention,and substance abuse prevention and
treatment,as well as program navigational guidance for seniors and new
immigrants, and greater access to continuous programs and services.
Salem residents in low-wage occupations struggle with the high cost of living,
while other residents are commuting long distances to reach higher paying
jobs. Job training, ESL classes, and other work-readiness programs would help
to match the available work-force with living-wage jobs in the region.
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Economic development initiatives will help to increase and maintain quality
employment opportunities for low-and moderate-income residents in Salem.
Business recruitment, coordination, and technical and financial assistance will
support and maintain a vibrant economy and help to build small businesses in
the city.
Improvements to streets, sidewalks, parks, and public spaces will help to
improve the quality of life in areas of the city with concentrations of low -and
moderate-income households, as well as to improve the accessibility of the
city's public realm for persons with disabilities. There is strong support for the
completion of a new senior center.
Salem’s Department of Planning and Community Development will continue to administer CDBG
funding to address these needs, and to work with nonprofit community partners to create
affordable housing, rehabilitate housing occupied by low-and moderate-income households,
provide access to homeownership for first-time homebuyers, support businesses through small
business loans, technical assistance and storefront improvement programs, provide community
services to combat poverty and promote self-sufficiency, and to improve neighborhood
infrastructure and public facilities in LMI neighborhoods and the downtown.
61 Congress Street is slated for development into affordable housing by North Shore CDC.
Photo courtesy of Google maps
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Students from the Salem Academy Charter School who volunteered at Lifebridge.Photo is courtesy of Lifebridge.
The design of McGlew Park is expected to be underway in FY16. Photo courtesy of Jessica Kane
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Mayor Kimberley Driscoll (back row; third from right) visits with participants of the “Career Gateways Program,” an
occupational skills training program for residents of Salem’s Point neighborhood that was funded with Working Cities
Challenge grant funds.The program prepared participants for careers as certified nursing assistants.Training was
conducted on-site at Spaulding Hospital North Shore in Salem. Photo is courtesy of Spaulding Rehabilitation Network.
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The Process
PR-05 Lead & Responsible Agencies 24 CFR 91.200(b)
1.Describe agency/entity responsible for preparing the Consolidated Plan and
those responsible for administration of each grant program and funding source
The following are the agencies/entities responsible for preparing the Consolidated Plan
and those responsible for administration of each grant program and funding source.
Agency Role Name Department/Agency
CDBG Administrator City of Salem Department of Planning &
Community Development
Table 1 –Responsible Agencies
Consolidated Plan Public Contact Information
For Inquiries or to send written comment contact:
City of Salem
Department of Planning & Community Development
120 Washington Street
Salem, MA 01970
Att:Jane A. Guy, Assistant Community Development Director
T:978-619-5685
E:jguy@salem.com
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PR-10 Consultation -91.100, 91.200(b), 91.215(l)
1.Introduction
In 2014, the City of Salem retained a consultant, Community Opportunities Group, Inc. (COG), to prepare
its Five Year Consolidated Plan (covering city Fiscal Years 2016-2020)and first year Action Plan. In
developing this Consolidated Plan, a series of nine community meetings and focus groups were held
throughout the city, including a public hearing.The meetings were held at the Salem Housing Authority,
at neighborhood meetings within specific wards with large low-and moderate-income (LMI)
populations, in the City Hall offices, at community organizations, and at Salem State University to reach
as broad of a population as possible. The focus groups targeted persons with disabilities, housing
providers, businesses and seniors. Individual stakeholder interviews were conducted with city staff,
social service providers, residents, business owners, and other persons and organizations familiar with
local needs.
To supplement these, COG interviewed and consulted with staff from provider agencies who serve
Salem residents, both those located in and outside of Salem. In addition, an on-line survey (in Spanish
and English) generated 318 responses. The purpose of this process was to obtain an understanding of
the population’s needs and the resources available to address the needs, as well to gain an
understanding of gaps of needed programs and services.
Beyond gaining an understanding of needs and resources, this process also served to assist the City in
determining how HUD, other federal and state and private funds could be used most effectively. Overall,
many of the various local and regional agencies have a good awareness of the existence of other
agencies and their respective programs and services. Still, the consultation process itself helped to
refresh inter-agency coordination.
A second public hearing will be held during the 30 day comment period after the release of the Draft
plans.
Provide a concise summary of the jurisdiction’s activities to enhance coordination between
public and assisted housing providers and private and governmental health, mental health
and service agencies (91.215(I)).
The City works cooperatively with private housing providers and private and governmental health,
mental health, and service agencies and other interested parties to implement its Consolidated Plan.
The DPCD leads Salem H.O.P.E. (Human Organization Partnership Effort), a networking group of human
service agencies that serves Salem residents. H.O.P.E. provides an opportunity for agencies to learn
about the services being provided by other agencies in order to fill in gaps, coordinate efforts and avoid
duplication of services. All human service agencies are invited to attend the quarterly Steering
Committee breakfast meetings held at rotating agency locations. Through this program, agency
representatives are (re-)introduced to each other and exchange information, announcements and
updates.
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Although the City does not currently use its CDBG funds to assist the Salem Housing Authority (SHA), the
DPCD coordinates with the SHA to address the housing needs of Salem’s lower-income residents.
Proposed development sites or demolition or disposition of existing public housing developments must
follow established regulatory procedures administered by City agencies. Some of these, such as the
Board of Appeal and Planning Board have staff support from the DPCD.
The City also works with nonprofit agencies to administer social service activities. The City issues an
annual Request for Proposals (RFP) for CDBG public services funding to undertake priority programs
outlined in the Consolidated Plan. Additionally, the City cooperates and coordinates with other agencies
and funding sources to support specific activities. Examples of these include MassHousing’s “Get the
Lead Out” and Massachusetts Housing Partnership’s “Soft Second Mortgage” programs.
The City of Peabody is the lead community for the North Shore HOME Consortium. Salem works with
the consortium to coordinate the implementation of its HOME-funded programs. Salem also works with
local CHDOs and CDCs to carry out priority activities.
Describe coordination with the Continuum of Care and efforts to address the needs of
homeless persons (particularly chronically homeless individuals and families, families with
children, veterans, and unaccompanied youth) and persons at risk of homelessness .
The major homeless needs in the area are primarily serviced through the
Gloucester/Haverhill/Salem/Essex County Continuum of Care (CoC)which is referred to locally as the
North Shore Continuum of Care Alliance,using McKinney-Vento funding. The lead entity for the CoC is
the City of Peabody, which also oversees the North Shore HOME Consortium, of which Salem is a
member.Through the Consortium, the CoC has received funds through the McKinney-Vento program.
The Consortium distributes these funds directly to area organizations. Salem-based Lifebridge has been
a subrecipient of these funds.
Salem’s DPCD works directly with programs that participate in the North Shore CoC, including the North
Shore Community Action Programs, Inc. (NSCAP), Lifebridge, and HAWC to support and enhance
programs that address at-risk and homeless families. The City relies on its CDBG funding to address
homeless needs and conduct homelessness prevention activities through public social services funding.
Each year, through the public services program, the City of Salem solicits proposals from nonprofit
organizations for housing and community services. Through this process, the City funds various
homeless programs which may include rental down payment assistance, homelessness prevention
emergency assistance, medical services, outreach, and transitional housing. Salem provides NSCAP ,
Salvation Army, Catholic Charities and HAWC with CDBG funding for Homelessness Prevention Programs
and provides HOME funding to NSCAP, HAWC and Citizens for Adequate Housing to assist households
with first/last/security payments for rental housing.
NSCAP coordinates the North Shore Housing Action Group (NSHAG), which is a network of social service
agencies, faith-based organizations, elected officials, and businesses who work collaboratively to
address the needs of those who are homeless or at risk of becoming homeless.The network covers the
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24 cities and towns of Cape Ann, southern Essex County, and the greater Lynn region.NSCHAG’s aim is
to enhance the level of coordination and communication among providers.
In late 2014, the Mayors of Salem and Beverly joined together to create a joint task force to better
understand and address the homelessness problem. The task force is co-chaired by the two mayors and
includes representatives from city departments, and service agencies. In February, 2015, Danvers and
Peabody were invited to join the task force. The Mayors’Task Force on Homelessness proposes to
analyze sub-populations of homeless people: the chronic homeless, homeless families, seniors, teens
and young adults, as well as those with substance abuse, mental health and/or behavioral health issues.
The group will also look at long-term needs for supportive housing, emergency shelter, day
programming, and other support systems.
Describe consultation with the Cont inuum(s) of Care that serves the jurisdiction's area in
determining how to allocate ESG funds, develop performance standards and evaluate
outcomes, and develop funding, policies and procedures for the administration of HMIS
No community or agency within Salem’s jurisdiction receives a direct award of ESG funds.
2.Describe Agencies, groups, organizations and others who participated in the process
and describe the jurisdictions consultations with housing, social service agencies and other
entities
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Table 2 –Agencies, groups, organizations who participated
Agency/Group/
Organization
Agency/Group/
Organization Type
What section of the Plan was
addressed by Consultation?
How was the Agency/Group/Organization consulted and
what are the anticipated outcomes of the consultation or
areas for improved coordination?
AIDS Action
Committee Of
Massachusetts
Services -Persons with
HIV/AIDS
Non-Homeless Special Needs Paula Linell of the AIDS Action Committee was consulted via
phone interview. She provided information that was
incorporated into the Needs Analysis.
Bass River, Inc.Services -Persons with
Disabilities
Non-Homeless Special Needs
Market Analysis
Bass River, Inc. was consulted via phone interview to obtain
information about services for persons with developmental
disabilities that was incorporated into the Market Analysis.
City of Beverly Other Government -
Local
Homelessness Strategy
Homeless Needs -Chronically
homeless, Families with children,
Veterans, Unaccompanied youth
Salem is coordinating with Beverly through the Mayors' Task
Force on Homelessness to identify and address housing needs
and services of the region's homeless population.
Caritas
Communities
Housing Market Analysis Mark Winkeller of Caritas Communities was consulted via
phone interview. Information they provided was incorporated
into the Needs Analysis and Market Analysis.
Community
Teamwork, Inc.
Regional organization Housing Need Assessment
Market Analysis
Ed Cameron of Community Teamwork Inc.(CTI)was consulted
via phone interview.CTI provided information that was
incorporated into the Needs Analysis and Market Analysis.
Town of Danvers Other Government -
Local
Homelessness Strategy Salem is coordinating with Danvers as part of the regional
Mayors' Task Force on Homelessness to identify and address
housing needs and services of the region's homeless
population.
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Agency/Group/
Organization
Agency/Group/
Organization Type
What section of the Plan was
addressed by Consultation?
How was the Agency/Group/Organization consulted and
what are the anticipated outcomes of the consultation or
areas for improved coordination?
East Gate
Christian
Fellowship
Services -Elderly
Persons
Services -Nutrition
Assistance
Housing Need Assessment
Non-Homeless Special Needs
Anti-poverty Strategy
Community Services
Paul Paulsen of the East Gate Christian Fellowship was
consulted via phone interview to discuss their capacity and
the needs of the population they are serving.
Fair Housing
Center of
Greater Boston
Service -Fair Housing Housing Need Assessment
Market Analysis
Robert Terrell of the Fair Housing Center of Greater Boston
was consulted via phone interview. Information he provided
was included in the Needs Analysis and Market Analysis.
HAWC Services -Victims of
Domestic Violence
Homeless Needs -Families with
children
Non-Homeless Special Needs
Anthony DiPietro of HAWC was consulted via phone interview,
and provided information that was incorporated into the
Needs Analysis and the Market Analysis.
Independent
Living Center Of
The North Shore
& Cape Ann, Inc.
Services -Persons with
Disabilities
Housing Need Assessment
Non-Homeless Special Needs
Market Analysis
Mary Margaret Moore of the Independent Living Center of the
North Shore and Cape Anne participated in focus groups in the
public participation process. Information provided by the
organization was incorporated in the Needs Analysis and
Market Analysis.
Journeys of Hope Services -Homeless Homelessness Needs -
Unaccompanied youth
Market Analysis
Journeys of Hope was consulted via phone interview to obtain
information about homeless youth and young adults that was
incorporated into the Needs Assessment and Market Analysis.
Lahey Behavioral
Health
Services -Health
Health Agency
Non-Homeless Special Needs
Market Analysis
Keysher Doyle of Lahey Behavioral Health Services was
consulted via phone interview. She provided information that
was incorporated into the Needs Analysis and Market Analysis
regarding behavioral health services and addiction treatment
services available to people in Salem who are homeless,
disabled, or economically insecure.
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Agency/Group/
Organization
Agency/Group/
Organization Type
What section of the Plan was
addressed by Consultation?
How was the Agency/Group/Organization consulted and
what are the anticipated outcomes of the consultation or
areas for improved coordination?
Lifebridge Services -Housing
Services -Homeless
Housing Need Assessment
Homelessness Strategy
Homeless Needs -Chronically
homeless
Market Analysis
Valerie Sweeney of Lifebridge was consulted via phone
interviews.Lifebridge provided information that was
incorporated into the Needs Analysis and the Market Analysis.
Lifebridge will continue to coordinate with the City of Salem
and the newly-formed Mayors' Regional Task Force on
Homelessness to address the needs of people who are
homeless.
Lynn Other Government -
Local
Homelessness Strategy Salem is coordinating with Lynn as part of the regional
Mayors' Taskforce on Homelessness to identify and address
housing needs and services of the region's homeless
population.
Lynn Housing
Authority &
Neighborhood
Development
PHA Market Analysis The Lynn Housing Authority was consulted via phone
interview to obtain information about regional homelessness
and housing resources that was incorporated into the Market
Analysis.
Lynn Shelter
Association
Services -Homeless Market Analysis The Lynn Shelter Association was consulted via phone
interview to obtain information about regional homelessness
and housing resources that was incorporated into the Market
Analysis.
MA -DHCD Other government -
State
Housing Need Assessment
Market Analysis
Anti-poverty Strategy
Information provided by DHCD was incorporated into the
Needs Analysis and Market Analysis. The City of Salem will
continue to coordinate with DHCD to facilitate
implementation of strategies to create affordable housing and
combat poverty, and to address barriers to the development
of affordable housing.
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Agency/Group/
Organization
Agency/Group/
Organization Type
What section of the Plan was
addressed by Consultation?
How was the Agency/Group/Organization consulted and
what are the anticipated outcomes of the consultation or
areas for improved coordination?
Main Streets
Initiative
Services -Economic
Development
Economic Development
Market Analysis Kylie Sullivan of Salem Main Streets Initiative participated in
focus groups during the public participation process. Salem
Main Streets will continue to coordinate with the City of
Salem in implementing strategies related to Economic
Development.
Massachusetts
Department of
Public Health
Other government -
State
Homeless Needs -Chronically
homeless
Market Analysis
The MA Department of Public Health, Bureau of Substance
Abuse Services was consulted via phone interview to obtain
information about incidences of substance abuse in Salem
that was incorporated into the Needs Assessment and Market
Analysis.
Metropolitan
Area Planning
Council
Regional organization Market Analysis Information provided by MAPC was incorporated into the
Market Analysis. The City of Salem will continue to coordinate
with MAPC to undertake planning related to housing and
community development, particularly in the Point
Neighborhood.
North Shore
Community
Development
Coalition
Housing
Regional organization
Planning organization
Community
Development
Housing Need Assessment
Non-Homeless Special Needs
Economic Development
Market Analysis
Anti-poverty Strategy
The North Shore Community Development Coalition provided
input through focus group meetings and interviews, and
contributed data for the Needs Analysis and Market Analysis.
NSCDC will continue to coordinate with the City of Salem to
carry out projects in implementation of the Strategic Plan.
North Shore
Moving Market
Services-Elderly
Persons
Services -Nutrition
Assistance
Housing Need Assessment
Non-Homeless Special Needs
Anti-poverty Strategy
Community Services
Linda Richards of the North Shore Moving Market was
consulted via phone interview to discuss their capacity and
the needs of the population they are serving.
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Agency/Group/
Organization
Agency/Group/
Organization Type
What section of the Plan was
addressed by Consultation?
How was the Agency/Group/Organization consulted and
what are the anticipated outcomes of the consultation or
areas for improved coordination?
North Shore
Community
Action Programs,
Inc.
Services -Housing
Services -Children
Services -Elderly
Persons
Housing Need Assessment
Market Analysis
Anti-poverty Strategy
Deric LePard of North Shore Community Action Program
(NSCAP)was consulted via phone interview. He provided
information which was incorporated into the Needs Analysis
and Market Analysis.NSCAP will continue to coordinate with
the city to implement strategies that provide community
services.
North Shore
Workforce
Investment
Board
Services -Employment Economic Development
Market Analysis
Anti-poverty Strategy
Mary Sarris of the North Shore Workforce Investment Board
was consulted through phone interview. Information they
provided was incorporated into the Market Analysis and
strategy for economic development and community services.
City of Peabody Other government -
Local
Anticipated Resources Information provided by the North Shore Home Consortium
was incorporated into the Anticipated Resources.
River House Inc.Services -Homeless Market Analysis River House Inc. in Beverly was consulted via phone interview
to obtain information about regional homelessness and
transitional housing resources that was incorporated into the
Market Analysis.
Salem Chamber
Of Commerce
Business Leaders Economic Development
Market Analysis
The consultant preparing the Consolidated Plan attended a
Chamber of Commerce meeting to discuss meeting attendees’
perspective on economic development needs. Mary Sarris of
the Chamber was further consulted via phone interview.
Salem
Community
Charter School
Services -Education Market Analysis
Anti-poverty Strategy
The Salem Community Charter School was consulted via
phone interview.It provided information that was
incorporated into the Needs Analysis and Market Analysis.
Salem Council on
Aging
Services -Elderly
Persons
Housing Need Assessment
Non-Homeless Special Needs
Staff of the Salem Council on Aging attended focus groups
during the public participation process, and were further
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Agency/Group/
Organization
Agency/Group/
Organization Type
What section of the Plan was
addressed by Consultation?
How was the Agency/Group/Organization consulted and
what are the anticipated outcomes of the consultation or
areas for improved coordination?
Other government -
Local
Market Analysis
Anti-poverty Strategy
consulted with in a meeting with several staff members. Input
provided by the Council on Aging was incorporated into the
Needs Analysis and Market Analysis. The City will continue to
utilize the Council on Aging in implementing strategies to
identify and meet the service needs of seniors and elderly
residents.
Salem Housing
Authority
PHA Public Housing Needs
Market Analysis
The Salem Housing Authority was consulted via meeting and
phone interview to determine the agency's most pressing
needs. In addition,the SHA's Comprehensive Plan must take
into account the findings of the Consolidated Plan and the City
of Salem must certify that the documents are consistent.
Information provided by the SHA was incorporated
throughout the Consolidated Plan.
Salem Police
Department
Services -Victims of
Domestic Violence
Services -Homeless
Other government -
Local
Homelessness Strategy
Homeless Needs -Chronically
homeless, Families with children,
Veterans, Unaccompanied youth
Non-Homeless Special Needs
Lt. Dennis King of the Community Impact Unit of the Salem
Police Department was consulted via phone interview. He
provided information that was incorporated into the Needs
Analysis and Market Analysis. The City will continue
coordination between the Police Department, Department of
Planning & Community Development, homelessness and
domestic violence service providers within the city, and the
Mayors' Regional Taskforce on Homelessness.
Salem Veterans
Services
Other government -
Local
Services -Veterans
Homelessness Needs -Veterans
Non-Homeless Special Needs
Kim Emberling of the Salem Veterans Services Office was
consulted via phone interview. Information he provided was
incorporated into the Needs Analysis.
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Agency/Group/
Organization
Agency/Group/
Organization Type
What section of the Plan was
addressed by Consultation?
How was the Agency/Group/Organization consulted and
what are the anticipated outcomes of the consultation or
areas for improved coordination?
Salem Health
Department
Municipal Health
Agency, Services -
Health
Housing Needs Assessment
Non-homeless Special Needs
Lead-based Paint Strategy
The Salem Health Department provided data on incidences of
lead poisoning that was used in the Housing Needs
Assessment, as well as the Needs Assessment and Market
Assessment with respect to special-needs populations.
Salem State
University
Enterprise
Center
Services –
Employment
Services –Education
Other Government -
State
Market Analysis
Economic Development
Laura Swanson of the Enterprise Center at Salem State
University was interviewed via phone. She provided
information that was used in the market analysis. They will
continue to work with the City to provide economic
development programs to increase employment opportunities
for low-income Salem residents.
U.S. Department
of Veterans
Affairs
Other government -
Federal
Homelessness Needs -Veterans
Market Analysis
The U.S. Department of Veterans Affairs was consulted via
phone interview to obtain information on veterans and
veterans services that was incorporated into the Needs
Assessment and Market Analysis.
The Salvation
Army
Services -Homeless Homeless Needs
Market Analysis
The Salvation Army provided information about the programs
they provide to address substance abuse, as well as
homelessness.
Wellspring
House, Inc.
Services -Homeless
Services -Education
Homeless Needs -Families with
children
Market Analysis
Anti-poverty Strategy
Wellspring was consulted via phone interview to obtain
information about transitional housing and workforce training
services that was incorporated into the Needs Assessment and
Market Analysis.
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Identify any Agency Types not consulted and provide rationale for not consulting
To the City’s knowledge, it consulted with all relevant agency types. There were a few individual
agencies that it attempted to contact but were unable to reach.
Other local/regional/state/federal planning efforts considered when preparing the Plan
Name of Plan Lead
Organization
How do the goals of your Strategic Plan overlap with
the goals of each plan?
Continuum of Care City of Peabody
Salem DPCD works directly with Peabody and
member agencies in implementation of the Strategic
Plan to support and enhance its existing programs
that address at-risk and homeless families.
North Shore HOME
Consortium Consolidated
Plan
City of Peabody HOME programs overlap with affordable housing-
related goals in the Consolidated Plan.
Salem Housing Authority
Comprehensive Plan
Salem Housing
Authority
The Salem Housing Authority seeks to address the
housing needs of lower-income residents in Salem.
NSWIB 2015-2017 Strategic
Plan
North Shore
Workforce
Investment
Board, Inc.
The WIB seeks to create economic opportunities that
benefit low-and moderate-income residents and
align with the anti-poverty strategy of the
Consolidated Plan.
Downtown Salem Retail
Market Strategy & Action
Plan
Salem
Redevelopment
Authority
The SRA seeks to create economic opportunities that
benefit low-and moderate-income residents and to
improve the downtown which is designated as a slum
& blight area.
Table 3 –Other local / regional / federal planning efforts
Describe cooperation and coordination with other public entities, including the State and any
adjacent units of general local government, in the impl ementation of the Consolidated Plan
(91.215(l)).
The City of Salem works with the City of Peabody, the lead community for the North Shore HOME
Consortium, to coordinate the implementation of its HOME-funded programs. Salem also works with
the North Shore Community Action Programs, Inc. and local CHDOs and CDCs to carry out priority
activities.
In December, 2014, the Cities of Beverly and Salem formed the Beverly-Salem Mayors’Regional Task
Force on Homelessness, which brings city officials and staff together with homelessness services and
housing organizations to coordinate efforts to address homelessness.
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In addition, federal and state agencies were contracted to obtain data and to determine the status of
programs or the funding resources being provided in Salem by jurisdictions or agencies other than the
City itself.
Narrative The Department of Planning and Community Development (DPCD) coordinates and
communicates with other municipal departments, local and regional agencies, and public and private
housing organizations. The DPCD coordinates the Salem H.O.P.E. effort and communicates regularly with
subcontracted agencies delivering social services and subrecipients of federal funds. DPCD also works
with the Salem Housing Authority (SHA), nonprofit organizations, and housing developers to produce
affordable housing in the City. The strength of these relationships is beneficial in streamlining housing
development and leveraging additional funds for projects.
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PR-15 Citizen Participation
1.Summary of citizen participation process/Efforts made to broaden citizen participation
Summarize citizen participation process and how it impacted goal-setting.
In developing this Consolidated Plan,the City held a series of nine community and focus group meetings
throughout the city, including a public hearing. The meetings were held at the Salem Housing Authority,
at neighborhood meetings within specific wards with large LMI populations, in the City Hall offices, at
community organizations, and at Salem State University to reach as broad of a population as possible.
The focus groups targeted persons with disabilities, housing providers, businesses and seniors, while
individual stakeholder interviews were conducted with city staff, service providers, residents, business
owners, and other interested parties. To augment the outreach process, the City conducted an online
survey in English and Spanish (also available in a hard copy format), for which the City had 318
responses. Meeting notes and a summary of survey results are provided in the appendix.All public
comment was considered during the development of the draft and final plans.Comment letters are
included in the Appendix, along with the City’s response to comments.
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Citizen Participation Outreach
Sort
Order
Mode of
Outreach Target of Outreach Summary of Response/
Attendance
Summary of
Comments received
Summary of
Comments
Not Accepted
and Reasons
URL (if
applicable)
1 Public
Meeting
Minorities
Non-English Speaking:
Spanish
Non-targeted/broad
community
Residents of Public and
Assisted Housing
Point Neighborhood
On October 20, 2014, a
public meeting was held
with the Point
Neighborhood association.
19 attendees including 1
city councilor and the city's
Latino Affairs Coordinator.
Spanish translation was
provided.
Need for more affordable housing of all kinds
(including SROs), especially to serve the
lowest income category. Many critical
services are outside the neighborhood (COA,
food pantry) so access is difficult.
Transportation is needed, as is locating more
services within the neighborhood. Need for
more affordable child care, translation
services, services for immigrant acclimation,
and ESL. Language, transportation, and
childcare are the greatest barriers to full
time/quality employment.
N/A N/A
2 Public
Meeting
Non-targeted/broad
community
Service providers and
public
On October 21, 2014, a
focus group was held with
housing services providers,
banks, developers, realtors,
social service agencies and
interested persons. There
were 7 attendees.
Affordable housing supply does not meet
the demand. Huge demand for housing by
extremely low income households and
families. Need transitional units for youth
and women and permanent housing for
homeless population, especially those
leaving foster care.
N/A N/A
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Sort
Order
Mode of
Outreach Target of Outreach Summary of Response/
Attendance
Summary of
Comments received
Summary of
Comments
Not Accepted
and Reasons
URL (if
applicable)
3 Focus
Group
Persons with
disabilities
Residents of Public and
Assisted Housing
Commission on
Disabilities
On October 21, 2014, a
focus group was held with
persons with disabilities
and their service
providers. There were 9
attendees.
Calls for a program to retrofit units
(publicly-and privately-owned) to make
them functionally accessible to occupants.
Need for more curb cuts and more
functional accessible pedestrian
infrastructure throughout the city.
N/A N/A
4 Public
Meeting
Non-targeted/broad
community
LMI neighborhood
residents and
businesses
On October 21, 2014, a
public meeting was held
with the Ward 4
Neighborhood
Association. There were
12 attendees.
Increase housing affordability for young
families. Need more vocational training.
Condition of streets and sidewalks a
concern. Improve pedestrian safety: lighting
along sidewalks, pedestrian lights,
illuminated crossings, handicapped
accessibility and curb cuts.
N/A N/A
5 Focus
Group
Non-targeted/broad
community
Economic Development
stakeholders
On October 21, 2014, a
focus group was held with
businesses, banks,
realtors, developers and
interested persons. There
were 7 attendees.
The city needs new methods of business
recruitment. Current retail mix is a challenge
-difficult to find appropriate businesses for
vacant storefronts. Funding an event
coordinator for Main Street Salem could
facilitate more downtown events. Need to
update 2007 downtown retail study.
N/A N/A
6 Focus
Group
Department Heads On October 22, 2014,a
focus group was held with
various heads of
departments of the City of
Salem. There were 15
attendees.
There has been a significant increase in
homelessness, particularly among youth.
Continued funding for walking police patrols
is desirable. Develop pedestrian routes with
corresponding wayfinding signage.
N/A N/A
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Sort
Order
Mode of
Outreach Target of Outreach Summary of Response/
Attendance
Summary of
Comments received
Summary of
Comments
Not Accepted
and Reasons
URL (if
applicable)
7 Public
Meeting
Business community On October 22, 2014,the
consultant attended a
meeting of the Salem
Chamber of Commerce to
discuss the Consolidated
Plan. There were 20
attendees.
Continue funding the Salem Main Streets
Program. Support for businesses outside of
October is a high priority. Increase support
for the programs run in partnership with the
city and civic groups such as public art, the
Farmer's market, and events.
N/A N/A
8 Public
Meeting
Non-targeted/broad
community
LMI neighborhood
residents and
businesses
On November 5, 2014, a
public meeting was held
with the South Salem
Neighborhood Association
at the Salem State
University Enterprise
Center. There were 5
attendees.
Landlords are not keeping up their
properties. Need to improve landlord
relations with their neighborhoods.
Overcrowded housing particularly those with
students sharing apartments. Affordable
after-school programs are needed,
particularly for working parent households.
Need for street lighting and street trees,
trash bins and lane and crosswalk striping.
Housing similar to SROs is needed. Encourage
programs for teen pregnancy prevention and
services for teen parents.
N/A N/A
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Sort
Order
Mode of
Outreach Target of Outreach Summary of Response/
Attendance
Summary of
Comments received
Summary of
Comments
Not Accepted
and Reasons
URL (if
applicable)
9 Public
Meeting
Non-English Speaking:
Spanish
Persons with disabilities
Residents of Public and
Assisted Housing
Elderly residents and
service providers
On November 7, 2014, a
public meeting was held
at the Salem Senior
Center. There were 25
attendees. Spanish
translation was provided.
Need affordable senior housing located
near transportation, groceries, and other
amenities. Address tripping hazards caused
by street trees, poor pavement conditions,
and curbs. Transportation program needs
expanded times.
N/A N/A
10 Public
Meeting
Residents of Public and
Assisted Housing
On November 13, 2014, a
public meeting was held
with tenants of the Salem
Housing Authority. There
were no attendees.
No comments were received.N/A N/A
11 Public
Hearing
Minorities
Non-English Speaking:
Spanish
Persons with disabilities
Non-targeted/broad
community
Residents of Public and
Assisted Housing
On November 20, 2014, a
public hearing was held
for all interested persons.
Spanish translation was
provided. There was 1
attendee.
No comments were received.N/A N/A
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Sort
Order
Mode of
Outreach Target of Outreach Summary of Response/
Attendance
Summary of
Comments received
Summary of
Comments
Not Accepted
and Reasons
URL (if
applicable)
12 Internet
Outreach
Minorities
Non-English Speaking:
Spanish
Persons with disabilities
Non-targeted/broad
community
Residents of Public and
Assisted Housing
An on-line survey was
posted on the City’s
website in English and in
Spanish. There were 318
responses.
Respondents were asked to describe their
demographic and socio-economic profile,
and then to provide insight on housing
issues, community service needs, economic
development constraints, and priorities for
neighborhood improvements. A detailed
summary of the survey results is provided in
the appendix.
N/A N/A
13 Public
Hearing
Minorities
Non-English Speaking:
Spanish
Persons with disabilities
Non-targeted/broad
community
Residents of Public and
Assisted Housing
On April 16, 2015, a public
hearing was held for all
interested persons. There
were 3 attendees.
Participants asked about specific
neighborhood improvements planned for
FY16, as well as the number of jobs in Salem
created as part of Economic Development
programs that receive CDBG funds.
N/A N/A
Table 4 –Citizen Participation Outreach
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Needs Assessment
NA-05 Overview
Needs Assessment Overview
During the needs assessment process,the City identified several priorities,including housing, economic
development, public services and neighborhood improvements.
Salem needs more housing that is affordable to people of all income levels and household types.
Throughout the public outreach and consultation process, participants i dentified the cost of housing in
the city and the region as a major concern. Cost and a shortage of subsidized affordable housing units
are the two greatest challenges to meeting the needs of the constituent population. A significant
proportion of the community is housing cost-burdened. The wait for subsidized housing can be 10 years
or longer. The greatest gaps in affordable housing are for extremely low-and very low-income
households, and disabled and elderly residents. More rental housing is also needed for families and for
persons living alone. The characteristics of Salem’s housing stock, m uch of which is in century-old, 2-4
family structures, make it difficult for families, disabled, senior, individual, and minority households to
find housing appropriate to their needs due to the presence of stairs, lead paint, code violations, and
discrimination. Many homeowners are in housing that is inadequate or doesn’t fit their needs because
they cannot afford repairs or modifications, access financing, or find alternative housing. Purchase prices
are out of reach for low-and moderate-income households trying to become homeowners.
Elderly, disabled, and homeless families have been identified by survey respondents and participants in
the consultation process as the population sub-groups needing the greatest support. There is also a
growing need for services to assist low-income young adults who are homeless or at risk of
homelessness.
Salem has identified needs for social services that include transportation, nutrition, housing advocacy,
legal services, education, childcare, and emergency funds for homelessness prevention. Input from the
public and local and regional service agencies cites the need to help seniors and other low income
individuals and households become more aware of, and to navigate, available programs and services.
Mental health issues are a concern for many of these individuals, and access to both sustained and a
continuum of care is critical. Incidences of drug addiction have been increasing, and more capacity is
needed for prevention and treatment around substance abuse, as well as HIV/AIDS.
Salem residents in low-wage occupations struggle with the high cost of living, while other residents are
commuting long distances to reach higher paying jobs. There is a need for more local or nearby living
wage jobs that provide health benefits, as well as entry-level jobs that provide a path for career
advancement. Job training and ESL classes would help to match the available work -force with jobs in the
region. Services to provide orientation to new immigrants, or financial management or life skills to those
emerging from homelessness would help these individuals gain economic independence. A lack of
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affordable childcare and after-school care is a barrier to full employment for many workers, along with
transportation constraints.
Economic development initiatives will help to increase and maintain quality employment opportunities
for low-and moderate-income residents in Salem. Business recruitment, downtown coordination, and
technical and financial assistance will support and maintain a vibrant economy in the downtown and
help to build small businesses in the city.
In surveys and public meetings, participants cited the need for public improvements, particularly streets,
sidewalks, parks, and public spaces. Facilities that provide multi-purpose space for social and civic
activities,arts, recreation, and community services are also needed. There is strong support for the
completion of a new senior center. Others suggested that a community space serving the Point
neighborhood is needed.
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NA-10 Housing Needs Assessment -24 CFR 91.205 (a,b,c)
Summary of Housing Needs
The cost of housing and the lack of availability of affordable housing for low-and extremely low-income
households represent the greatest needs, reflected both through analysis of data and through input of
the public and service providers. The lack of available housing appropriate for families and seniors is also
an issue.
Demographics Base Year: 2000 Most Recent Year: 2011 % Change
Population 40,407 41,163 2%
Households 17,477 17,690 1%
Median Income $44,033.00 $56,203.00 28%
Table 5 -Housing Needs Assessment Demographics
Data Source:2000 Census (Base Year), 2007-2011 ACS (Most Recent Year)
Salem is home to over 41,000 residents. The city has a relatively stable population, having increased by
approximately 2.3% between the 2000 and 2010 decennial Census. The rate of population growth
slightly exceeded the rate of household growth during this time, meaning that average household size,
2.31 in 2010, has edged up since 2000.
Population growth occurred primarily in the 35-64 age range. In contrast to regional trends, Salem’s
elderly population has continued to decline in absolute numbers over the past two decades, while the
number of children (<18 years)also decreased between 2000 and 2010. Children make up
approximately 19% of Salem’s population, numbering 7,728 as of 2010. As of 2010, Salem had 7,173
residents over the age of 60, comprising 17% of the population. The proportion of children and of
seniors is lower in Salem than in Essex County or Massachusetts as a whole.
Salem is one of the more diverse communities on the North Shore in terms of ethnicity and race; the
proportion of minority residents being slightly higher than Essex County or Massachusetts overall. The
Hispanic population continues to grow, while most other minority groups decreased in number between
2000 and 2010.
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Population by Race and Age
Salem Essex County Massachusetts
Number Percent Number Percent Percent
White Alone (non-Hispanic/Latino)31,377 75.9 565,035 76.0 76.1
Black or African American (non-
Hispanic/Latino)
1,450 3.5 19,566 2.6 5.9
Asian (non-Hispanic/Latino)1,083 2.6 22,864 3.1 5.3
Some other race (non-Hispanic/Latino)249 0.6 3,628 0.4 1.2
Multi race (non-Hispanic/Latino)716 1.7 10,155 1.3 1.8
White Alone (non-Hispanic/Latino)6,465 15.6 743,159 16.5 9.6
Persons < 18 years 7,728 18.7 172,089 23.2 21.7
Persons > 65 5,342 12.9 105,083 14.1 13.8
Source: 2010 Census DP-1: Demographic Profile data
More than half of Salem’s households are families. One-third of all households are married couples, and
one in four has children under the age of 18 years old. A relatively high proportion of Salem households,
36 %, consist of individuals living alone. Almost twice as many women live alone as men; among people
living alone over the age of 65, the ratio of women to men is three to one.
An online survey conducted as part of the Consolidate Plan process provides further insight into the
family composition of Salem residents. Out of 318 residents who responded to the survey, the largest
share, 40%, were single generation family households with no children under age 18 living in the home,
including couples without children, and empty-nesters. The proportion of two-parent and single-parent
households who completed the survey was similar to the American Community Survey (ACS) profile,
while fewer survey respondents (26%) lived in non-family households. The survey was notable in
reporting the portion of intergenerational households (12% in total), including parents with adult
children living at home, adults with parents aged 65 and over living in their homes, and households with
3 or more generations living together. This finding indicates that people may be doubling up because of
the lack of affordable or appropriate housing to meet their needs.
Household incomes have fluctuated over the past five years; the median household income according to
the 2009-2013 ACS was $64,214, compared with an estimated median of $61,906 in 2006 -2008. Single
parent families earn less than half as much as married couple families, while individuals living alone have
comparably low incomes. Median incomes in Salem are lower than the statewide median for most types
of households.
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Households by Type
Households Percent Median
Income
Massachusetts
Median Income
All Households 18,363 $64,214 $84,900
Families 9,680 52.7 $91,120 $102,264
Male single-parent w/ children <18 421 2.3 $44,635 $44,880
Female single-parent w/ children <18 1,861 10.1 $30,477 $28,116
Individuals living alone 7,002 38.1 $30,847 $31,716
Seniors >65 living alone 2,045 11.1 $22,968 $24,337
Households with one or more people >65 4,041 22.0 $30,869 $38,325
Source: ACS 2009-2013 5-Year Estimates B19126, B19215, S1903
Number of Households Table
0-30%
HAMFI
>30-50%
HAMFI
>50-80%
HAMFI
>80-
100%
HAMFI
>100%
HAMFI
Total Households *3,535 2,455 2,205 1,730 7,760
Small Family Households *965 725 1,040 665 780
Large Family Households *145 120 110 110 310
Household contains at least one person 62-
74 years of age 660 445 410 355 1,120
Household contains at least one person age
75 or older 705 630 235 130 330
Households with one or more children 6
years old or younger *379 335 385 280 1,165
* the highest income category for these family types is >80% HAMFI
Table 6 -Total Households Table
Data Source:2007-2011 CHAS
Nearly half of Salem’s households have incomes below 80% of the HUD Area Median Family Income
(HAMFI) for the Greater Boston/North Shore area, which was approximately $90,000 in the 2007 -2011
ACS. One in five households earns less than 30% of the median, while an additional 14% earn between
30% and 50% of median income. Seniors fall disproportionately into these lower income brackets;for
those aged 75 and over, 35% and 31% of households fall within these two income brackets, respectively.
Households with young children are more likely to fall into the upper three income brackets, earning
50% of HAMFI and above (2007-2011 CHAS).
A pronounced economic divide separates renters from homeowners. As of 2013, the median
homeowner household income in Salem was 2.3 times that of the city’s renter households, ($81,318
versus $35,297). This difference has grown, as the median income for Salem homeowners increased
34% between 2000 and 2013, while the median for renters increased by just 13% (ACS 2009 -2013).
Income differences between homeowners and renters often reflect differences in household type.
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Married-couple families (with or without children) constitute the largest share of homeowners –nearly
half –while non-family households comprise 39%. By contrast, more than half of renters (55%) are non-
family households, and 19% of renters are single parent households. Only 16% of renters are married-
couple households.
Salem has over six thousand residents living in poverty, representing 15% of the city’s population. The
rate of persons living near or below the definition of poverty is relatively high compared to Essex County
or the state. An estimated 3,673 households in Salem receive public cash assistance or food stamps.
Households by Poverty Status
Population/
Households
%Essex County
%
Massachusetts
%
Population with incomes below poverty 6,229 15.5 11.2 11.4
Below 50 percent of poverty 2,748 6.8 4.6 5.2
Below 150 percent of poverty 10,359 25.8 18.3 18.1
Households Receiving Public Assistance or
Food Stamps 3,673 20.0 15.8 14.7
Students receiving free or reduced lunch 59.7 38.3
Source: ACS 2009-2013 5-Year Estimates DP03,S1701; MA Department of Education (2012)
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Housing Needs Summary Tables
1.Housing Problems (Households with one of the listed needs)
Renter Owner
0-
30%
AMI
>30-
50%
AMI
>50-
80%
AMI
>80-
100%
AMI
Total
0-
30%
AMI
>30-
50%
AMI
>50-
80%
AMI
>80-
100%
AMI
Total
NUMBER OF HOUSEHOLDS
Substandard Housing -
Lacking complete plumbing
or kitchen facilities 170 55 20 20 265 20 0 0 0 20
Severely Overcrowded -
With >1.51 people per room
(and complete kitchen and
plumbing)0 0 0 0 0 0 0 0 0 0
Overcrowded -With 1.01-
1.5 people per room
(and none of the above
problems)55 0 25 10 90 0 0 0 20 20
Housing cost burden greater
than 50% of income
(and none of the above
problems)1,440 375 80 0 1,895 425 340 285 125 1,175
Housing cost burden greater
than 30% of income
(and none of the above
problems)330 860 465 150 1,805 95 285 295 380 1,055
Zero/negative Income
(and none of the above
problems)135 0 0 0 135 45 0 0 0 45
Table 7 –Housing Problems Table
Data Source:2007-2011 CHAS
The cost of housing has a significant impact on Salem’s lower income population. Renters bear the
greatest burden; nearly two thousand households pay more than half of their income on rent, while a
similar number spend between 30% and 50% of their income on housing costs. There are about 2,200
cost-burdened homeowners, more than half of whom are severely cost-burdened, paying over half of
their income on housing expenses.Overcrowding is an issue for a fairly small number of households.
Approximately 300 housing units lack complete plumbing or kitchen facilities. The vast majority of
households with housing problems are renters, particularly extremely low -income households.
Among households with extremely low incomes (below 30% of AMI), a substantial majority (58% of
renters and 69 % of homeowners) have housing problems, which primarily reflect housing cost burden.
Consolidated Plan SALEM 34
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2.Housing Problems 2 (Households with one or more Severe Housing Problems: Lacks kitchen
or complete plumbing, severe overcrowding, severe cost burden)
Renter Owner
0-30%
AMI
>30-
50%
AMI
>50-
80%
AMI
>80-
100%
AMI
Total
0-
30%
AMI
>30-
50%
AMI
>50-
80%
AMI
>80-
100%
AMI
Total
NUMBER OF HOUSEHOLDS
Having 1 or more of
four housing
problems 1,660 435 125 30 2,250 450 340 285 145 1,220
Having none of four
housing problems 1,085 1,185 1,135 735 4,140 160 500 665 820 2,145
Household has
negative income, but
none of the other
housing problems 135 0 0 0 135 45 0 0 0 45
Table 8 –Housing Problems 2
Data Source:2007-2011 CHAS
Among households with extremely low incomes (below 30% of AMI), a substantial majority (58% of
renters and 69% of homeowners) have housing problems, which primarily reflect housing cost burden.
3.Cost Burden > 30%
Renter Owner
0-30%
AMI
>30-50%
AMI
>50-
80%
AMI
Total 0-30%
AMI
>30-
50%
AMI
>50-
80%
AMI
Total
NUMBER OF HOUSEHOLDS
Small Related 680 485 295 1,460 50 140 255 445
Large Related 80 40 15 135 15 35 75 125
Elderly 359 315 80 754 355 335 149 839
Other 795 435 150 1,380 95 115 90 300
Total need by
income
1,914 1,275 540 3,729 515 625 569 1,709
Table 9 –Cost Burden > 30%
Data Source:2007-2011 CHAS
According to Table 9, there are a total of 3,729 renter households and 1,709 homeowner households
who pay between 30%and 50% of their income on housing. In total, this represents 31% of all
households in Salem. Among renters, smaller households, including families of 2-4 people and
individuals are most likely to have housing cost burden; among homeowners, the majority of cost-
burdened households are elderly.
Consolidated Plan SALEM 35
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4.Cost Burden > 50%
Renter Owner
0-30%
AMI
>30-
50%
AMI
>50-
80%
AMI
Total 0-30%
AMI
>30-
50%
AMI
>50-
80%
AMI
Total
NUMBER OF HOUSEHOLDS
Small Related 530 10 30 570 50 90 165 305
Large Related 55 10 0 65 15 35 25 75
Elderly 320 145 10 475 275 115 50 440
Other 655 235 40 930 85 100 40 225
Total need by
income
1,560 400 80 2,040 425 340 280 1,045
Table 10 –Cost Burden > 50%
Data Source:2007-2011 CHAS
Over 3,000 households in Salem are severely cost-burdened –that is, they spend over half of their
income on housing costs. Two-thirds of the severely cost-burdened households are renters, and half
(1,560 households) are extremely low income renters. Individuals living alone and small families (2-4
persons) comprise the majority of severely cost-burdened renters, while elderly homeowners are the
most likely to experience severe cost burden.
5.Crowding (More than one person per room)
Renter Owner
0-
30%
AMI
>30-
50%
AMI
>50-
80%
AMI
>80-
100%
AMI
Tota
l
0-
30%
AMI
>30-
50%
AMI
>50-
80%
AMI
>80-
100%
AMI
Total
NUMBER OF HOUSEHOLDS
Single family households 40 0 0 10 50 0 0 0 20 20
Multiple, unrelated family
households 25 0 25 0 50 0 0 0 0 0
Other, non-family households 0 0 0 0 0 0 0 0 0 0
Total need by income 65 0 25 10 100 0 0 0 20 20
Table 11 –Crowding Information –1/2
Data Source:2007-2011 CHAS
Overcrowding occurs mostly among extremely low income renters. CHAS data indicates that there are
fifty cases where overcrowded conditions occur where multiple families share one rental apartment.
Neighborhood meeting participants noted that overcrowding is a notable issue where students are
sharing apartments, although not evident in CHAS data. Many survey respondents complain that their
homes are too small, whether or not they meet the overcrowding criteria defined by CHAS.
Consolidated Plan SALEM 36
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Renter Owner
0-
30%
AMI
>30-
50%
AMI
>50-
80%
AMI
Total
0-
30%
AMI
>30-
50%
AMI
>50-
80%
AMI
Total
Households with Children Present 0 0 0 0 0 0 0 0
Table 12 –Crowding Information –2/2
Data Source Comments:Estimate by Community Opportunities Group
Describe the number and type of single person households in need of housing assistance.
Non-family households are disproportionately burdened with unaffordable housing costs. The majority
of non-family renter households are individuals living alone, and over three-quarters of non-family
households in Salem spend more than 30% of their income on housing. Over 2,000 individuals living
alone are living in rental housing they cannot afford. More than half of these households, about 1,300,
are spending more than 50% of their income on rent. About 40% of cost -burdened renters living alone
(925) are over the age of 65. The lowest income renters living alone are the most severely cost burdened
of any population group.
There are also approximately 750 homeowners living alone in Salem who pay more than 30% of their
income on housing related costs. The majority, (75%) are over the age 65, and most of these households
are severely cost-burdened, that is, paying more than 50 % of their income for housing.
Single person households in need of assistance
owners renters
0-30%
AMI
>30-
50%
AMI
>50-
80%
AMI
Total 0-
30%
AMI
>30-
50%
AMI
>50-
80%
AMI
Total
Spend 30-50% of income on housing 20 100 135 255 525 205 280 1,010
elderly live alone 20 80 125 225 385 120 45 550
non-elderly non-family 0 20 10 30 140 85 235 460
Spend >50% of income on housing 285 165 65 515 935 320 50 1,305
elderly live alone 200 65 25 290 280 85 10 375
non-elderly non-family 85 100 40 225 655 235 40 930
Total all cost-burdened non-family
households 305 265 200 770 1,460 525 330 2,315
elderly % of total 72.1%54.7%75.0%66.9%45.5%39.0%16.7%40.0%
severely cost burdened % of total 93.4%62.3%32.5%66.9%64.0%61.0%15.2%56.4%
Consolidated Plan SALEM 37
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Estimate the number and type of families in need of housing assistance who are disabled or
victims of domestic violence, dating violence, sexual assault and stalking.
There are approximately 4,403 households in Salem in which one or more household members have
disabilities, representing 24% of the city’s households. Of households with disabilities, 1,567 (36%)
receive SNAP or cash assistance benefits. (ACS 2009-2013 B22010)As with other segments of Salem’s
population, the lack of affordable housing has been identified as the highest priority need for persons
with disabilities. For persons with a mobility disability, this problem is compounded by the insufficient
supply of accessible units.
HAWC, which provides services in Salem to victims of domestic violence, provides a shelter/residential
facility that has a capacity of 7 adults and 20 children, and also assists clients in finding permanent
housing and housing assistance. In FY 2014, HAWC received requests for non-residential assistance and
services from 2,428 unduplicated clients, of whom ten percent (244)were from Salem. A record of the
services that HAWC provided on September 10, 2014, which typifies the needs of its clients, included 8
unmet emergency shelter requests.
What are the most common housing problems?
The vast majority of housing problems in Salem stem from housing cost, which has risen precipitously
over the past decade relative to household incomes. Renters, in particular, are paying a higher share of
their income on housing than they did in 2000: the median rent has increased by 51% between 2000
and 2013,while median income for renters has risen by 13% during the same period. Salem’s median
gross rent of $1,063 represented 36% of monthly household income, on average, between 2009 and
2013, while in 2000, the median gross rent represented just 27 % of monthly gross income of Salem’s
rental households. Approximately half of renter households spend more than 30% of their income on
rent. In addition, 100 rental households are living in overcrowded conditions likely due to the choice of
smaller units than needed or families doubling up in order to mitigate the cost of housing.
Homeowners as a group are wealthier than renters, having a median household income that is more
than double the median for renters, yet home values have also increased over this period at nearly twice
the rate of income growth. The median income for homeowners declined slightly (without adjusting for
inflation) between 2008 and 2013, as did the median value of owner-occupied homes. Rising home
values combined with increasing tax burden results in a considerable number of homeowners are also
paying more than they can afford for housing. Participants in the public survey and meetings also
highlight finance problems due to underwater mortgages.
Aside from housing cost, many participants in the public meetings and surveys express ed concern over
the condition of homes throughout the city, particularly where they are owned by absentee landlords.
Survey respondents noted “unsafe conditions,” which are not included in CHAS criteria, including lead
paint, mold, asbestos, faulty electrical/plumbing/ heating systems, or crime. Housing insecurity for
reasons other than insufficient income was also noted by some housing respondents, including the
potential of eviction, foreclosure, or that they lack their own housing.
Consolidated Plan SALEM 38
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Housing Costs versus Household Incomes 2000-2012
2000 2008 2013 Change:2000-2013
Median Household Income $43,580 $61,906 $55,780 28%
Owners $60,532 $82,215 $81,318 34%
Renters $31,211 $34,876 $35,297 13%
Median Value $188,700 $347,100 $304,400 61%
Median Gross Rent $705 $1,075 $1,063 51%
Median Gross Rent as % of
Median Renter Income 27.1%37.0%36.1%
Source: 2000 Census DP04, SF-3; ACS 2006-2008 DP04, B25119; ACS 2008-2012 DP04, B25119
Are any populations/household types more affected than others by these problems?
Low-income families are most severely impacted by housing costs; over 2,000 small families (2-4
persons) in Salem are burdened with unaffordable rents.For Salem families who rent,about 60%have
children under the age of 18 (2,594 families),and an estimated 1,300 of those households are cost-
burdened.
Among homeowners, elderly with very low or extremely low incomes are the most severely impacted by
rising housing costs.
Describe the characteristics and needs of Low-income individuals and families with children
(especially extremely low-income) who are currently housed but are at imminent risk of
either residing in shelters or becoming unsheltered 91.205(c)/91.305(c)). Also discuss the
needs of formerly homeless families and individuals who are receiving rapid re -housing
assistance and are nearing the termination of that assistance.
Housing is foundational for every aspect of a person’s life.However, some individuals and families are
housed precariously and cycle in and out of homelessness, or live one unexpected bill away from
eviction. The threat of homelessness is real for a growing number of Americans whose wages have not
kept pace with housing costs, especially in metropolitan Boston. A minimum wage worker earning $9.00
per hour (as of January 1, 2015), has to work more than two full time jobs (89 hours per week) to afford
an efficiency apartment at fair market rate (approximately $1,000 per month for Salem 1).Evidence of
the economic pressures and housing insecurity in Salem and the North Shore is seen by the number of
Salem and North Shore families housed by the state in motels, hotels, and scattered site transitional
housing. As of late 2014, the state was housing 30 Salem families.
Although hard data does not exist to quantify the low-income individuals and families with children who
are currently housed but at-risk of losing their housing, anecdotal reports are that many live under this
1 HUD FMR and HOME Rents 2014
Consolidated Plan SALEM 39
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threat. During public forums, focus groups and interviews, residents and service providers consistently
expressed concern over the cost of housing in Salem —cost burdens borne especially by low income
households and insufficient affordable housing options for both low-and middle-income households.
The 2007-2011 CHAS reported nearly 1,900 renter households having cost burdens of greater than 50%
of income; more than three-quarters of these had extremely low incomes. Unsurprisingly, the severity
of cost burden appears to be closely related to income level: although more than 1,800 renter
households had cost burdens between 30%and 50%, 18% of the extremely low income households fell
within that range. For homeowners, the CHAS reported that 1,175 households had a similar cost burden,
with 36% of those being extremely low income. In short, the data shows that cost burdens fall most
heavily on extremely low income households.
There is a need for all kinds of housing –particularly rental housing –to serve different types of
households, including seniors, large and small families and individuals living alone. Salem also has a
shortage of housing that is accessible for persons with disabilities.
There are long waiting lists for housing appropriate for seniors –both for market rate units and
subsidized senior housing. Meeting participants and service and housing providers point out that some
larger units are needed for seniors with special needs,in order to accommodate caregivers and/or
family members. Participants in the survey and public meetings also noted that stairs are a mobility
barrier for many seniors, which may result in a need to find more suitable housing.
The City does not have data relating to formerly homeless families and individuals who are receiving
rapid re-housing assistance and are nearing the termination of that assistance
If a jurisdiction provides estimates of the at-risk population(s), it should also include a
description of the operational definition of the at -risk group and the methodology used to
generate the estimates:
There is no uniform profile of a homeless person in Salem, nor of households at risk of homelessness.
The information provided in the response above serves as an indicator of the risks faced by many low -
and extremely low-income Salem households. These risks are supported by anecdotal comments made
by residents and representatives of provider agencies, who stated that economic insecurity is seen as
the single most important factor in homelessness or being at-risk of homelessness.
The scarcity of lower-priced housing and the decreasing trends in funding for subsidized housing have
contributed to the rise of homelessness and the length of time that homeless persons spend waiting for
permanent housing. The waiting list for obtaining a voucher or a unit in a subsidized housing
development is currently 10 years or longer, and the volume of applicants for the recent housing lottery
for the 51 units at the former St. Joseph’s housing development (20:1) underscores the magnitude of
the need for affordable housing by lower income households in the region, many of whom are having
Consolidated Plan SALEM 40
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difficulty keeping up with housing costs.2 Anecdotally, there were reports that many households are
couch surfing or doubling up with family members due to the cost of housing or the difficulty of finding
appropriate housing.
Specify particular housing characteristics that have been linked with ins tability and an
increased risk of homelessness
Hunger is a leading indicator of poverty and reflects how precariously households are living. For many
who struggle to meet housing costs, food may be one of the few variable expenses. After paying
rent/mortgage and utility bills, cost-burdened families have little money remaining. Conversely, other
low-income families may face the difficult choice of giving priority to spending limited income on food,
thereby falling behind in housing expenses. According to ACS, the number of households receiving SNAP
benefits or cash assistance rose by 35% from 2009-2013, to an estimated 3,195 in 2013.3 ACS estimates
that two-thirds of the households receiving SNAP benefits had one or more persons working, 41% have
children under the age of 18, 27% of SNAP recipients have elderly household members, and 53% have
persons with disabilities.4 Salem organizations that provide food assistance5 cited an increase in
requests. Joseph’s Storehouse is currently receiving about 125-180 visitations per week, compared to 75
three years ago; in 2014, it served 1,098 unduplicated households.6
The North Shore Housing Action Group (NSHAG), operated by North Shore Community Action Programs,
Inc. (NSCAP), is a network of provider agencies, faith-based organizations, elected officials and others
who collaborate on a regional approach to prevent and address homelessness. NSCAP’s 2014 homeless
service report provides insight to the issues faced by currently housed low-income persons in Salem and
other communities it serves (Peabody, Beverly, Danvers, and 22 other communities). It reports that 60%
of its homeless clients had incomes too low to pay for housing, by far the highest reported primary
reason for becoming homeless. The second highest reported cause was a job loss, experienced by 12%
of its clients. Economic factors are clearly a primary cause for homelessness, or risk of it. NSCAP
reported that “…many more are working than compared to two to three years ago; many more 2 parent
households are active in the shelter system. Incomes are not nearly enough to pay local rents.”7
Although federal, state and private funding exists, the funding levels for affordable housing units,
emergency and transitional shelter, and related programs benefitting the low-income and poor persons
is inadequate. This is especially true for permanent affordable housing –hence the continuing demand
for emergency shelter and transitional housing. There is also a need for resources and services to
prevent individuals and families from becoming homeless or for households trying to exit homelessness.
2 Applicants included non-Salem residents, as well as those currently residing in Salem.
3 ACS B10957, 2005-2009 and 2009-2013.
4 ACS S2201, 2009-2013.
5 These include St. Joseph’s Storehouse/East Gate Fellowship Food Pantry and the North Shore Moving Market.
6 Phone interview with Paul Paulsen of East Gate Fellowship Food Pantry on January 15, 2015.
7 Email from Laura MacNeil, NSCAP, to Jane Guy, Salem OPCD, January 13, 2015.
Consolidated Plan SALEM 41
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A National Housing Trust Fund, established as a provision of the Housing and Economic Recov ery Act of
2008, is expected to be capitalized beginning in 2016, and will provide a permanent dedicated source of
funding through a block grant program to states for affordable housing, particularly targeted toward
rental housing for extremely low income households.
Aside from increasing the supply and diversity of affordable housing, low income households would also
benefit from increased support to help prevent homelessness and to improve the quality of the housing
in which they reside. Some of the needs identified by housing service providers include legal assistance,
individualized accommodations to make units accessible; pest control and mold remediation; and
weatherization, energy efficiency and fuel assistance. There are insufficient resources to me et the
demand for existing programs. Moreover, applicants confront administrative barriers when they try to
access them, such as difficulty understanding complex eligibility requirements and application forms.In
particular, many people have difficulty obtaining assistance because of language barriers and/or CORI
records.8
8 Meeting on Tuesday, October 21, 2014 with Affordable Housing Service Providers; responses to surveys and interviews with
various providers, various dates.
Consolidated Plan SALEM 42
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NA-15 Disproportionately Greater Need: Housing Problems –91.205 (b)(2)
Assess the need of any racial or ethnic group that has disproportionately greater need in comparison to
the needs of that category of need as a whole.
Introduction
The following table highlights some of the socio-economic differences that exist between races and
ethnicities in Salem. Overall, whites and Asians are wealthier than other racial groups, with significantly
higher median incomes and rates of homeownership. Salem’s largest minority population, Hispanics
have a median household income that is approximately half that of white households, and fewer than
20% of Hispanic households own their own homes. African American households and other racial groups
have comparably lower median incomes and rates of homeownership.
Salem Households by Tenure, Race and Hispanic Origin
Total
Households
Median Household
Income
Percent
Homeowners
Percent
Renters
All Households 18,363 $55,780 47.0 53.0
White Alone (Non-Hispanic)14,949 $60,375 53.0 47.0
Black or African American
(Non-Hispanic)
872 $35,417 16.4 83.6
American Indian and Alaska Native
(Non-Hispanic)
74 $40,833 10.8 89.2
Asian (Non-Hispanic)298 $63,393 69.8 30.2
Native Hawaiian and Pacific Islander
(Non-Hispanic)
0 -
Some Other Race (Non-Hispanic)826 $24,928 8.8 91.2
Two or More Races (Non-Hispanic)422 $40,625 29.2 70.8
Hispanic or Latino Ethnicity (all races)2,155 $30,654 14.8 85.2
Source: ACS 2008-2012 5-Year Estimates S1903, B25003
The following table shows the distribution of household incomes by race and ethnicity. Hispanic
households disproportionately have extremely low (<30%)and very low incomes (30-50% AMI), while
African American households and other minorities are more likely to fall into the very low and low
income categories (50-80%AMI).
Consolidated Plan SALEM 43
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Distribution of Households by Race and Income Level
<30% AMI 30-50% AMI 50-80% AMI 80-100% AMI >100% AMI
All Households 18%14%14%9%46%
White (Non-Hispanic)16%13%14%10%47%
Black / African American (Non-
Hispanic)18%20%40%4%18%
Asian (Non-Hispanic)12%0%17%24%47%
American Indian, Alaska Native
(Non-Hispanic)20%75%0%0%5%
Pacific Islander (Non-Hispanic)-----
Hispanic or Latino Ethnicity
(all races)40%24%9%7%20%
Source:2007-2011 CHAS, Community Opportunities Group
0%-30% of Area Median Income
Housing Problems
Has one or more
of four housing
problems
Has none of the
four housing
problems
Household has
no/negative income, but
none of the other
housing problems
Jurisdiction as a whole 2,535 820 185
White 1,865 540 100
Black / African American 125 0 30
Asian 110 0 0
American Indian, Alaska Native 0 0 0
Pacific Islander 0 0 0
Hispanic 360 280 55
Table 13 -Disproportionally Greater Need 0 -30% AMI
Data Source:2007-2011 CHAS
*The four housing problems are:
1. Lacks complete kitchen facilities, 2. Lacks complete plumbing facilities, 3. More than one person per
room, 4.Cost Burden greater than 30%
Consolidated Plan SALEM 44
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30%-50% of Area Median Income
Housing Problems
Has one or more of
four housing
problems
Has none of the
four housing
problems
Household has
no/negative income,
but none of the other
housing problems
Jurisdiction as a whole 1,920 535 0
White 1,340 470 0
Black / African American 155 0 0
Asian 0 0 0
American Indian, Alaska Native 45 0 0
Pacific Islander 0 0 0
Hispanic 315 65 0
Table 14 -Disproportionally Greater Need 30 -50% AMI
Data Source:2007-2011 CHAS
*The four housing problems are:1.. Lacks complete kitchen facilities, 2. Lacks complete plumbing
facilities, 3. More than one person per room, 4.Cost Burden greater than 30%
50%-80% of Area Median Income
Housing Problems
Has one or more of
four housing
problems
Has none of the
four housing
problems
Household has
no/negative income,
but none of the other
housing problems
Jurisdiction as a whole 1,165 1,040 0
White 880 790 0
Black / African American 95 75 0
Asian 0 0 0
American Indian, Alaska Native 0 0 0
Pacific Islander 0 0 0
Hispanic 175 165 0
Table 15 -Disproportionally Greater Need 50 -80% AMI
Data Source:2007-2011 CHAS
*The four housing problems are:
1. Lacks complete kitchen facilities, 2. Lacks complete plumbing facilities, 3. More than one person per
room, 4.Cost Burden greater than 30%
Consolidated Plan SALEM 45
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80%-100% of Area Median Income
Housing Problems
Has one or more of
four housing
problems
Has none of the
four housing
problems
Household has
no/negative income,
but none of the other
housing problems
Jurisdiction as a whole 705 1,025 0
White 600 935 0
Black / African American 0 15 0
Asian 35 35 0
American Indian, Alaska Native 0 0 0
Pacific Islander 0 0 0
Hispanic 70 30 0
Table 16 -Disproportionally Greater Need 80 -100% AMI
Data Source:2007-2011 CHAS
*The four housing problems are:
1. Lacks complete kitchen facilities, 2. Lacks complete plumbing facilities, 3. More than one person per
room, 4.Cost Burden greater than 30%
Discussion
CHAS data indicates minor differences in the rate of housing problems between White and minority
households of comparable income. While a higher proportion of African-American or Hispanic
households have housing problems than the population as a whole, the rate of severe housing problems
is comparable or lower. High margins of error for the ACS data on which the CHAS data is based may
account for differences in the data, not clearly reflecting actual conditions.
Proportion of Households with Housing Problems by Race and Income Level
<30% AMI 30-50% AMI 50-80% AMI 80-100% AMI
All Households 77%73%54%38%
White 76%70%55%37%
Black / African American 100%85%50%0%
Asian 100%0%43%60%
American Indian, Alaska Native 100%100%0%0%
Pacific Islander ----
Hispanic 75%77%58%50%
Source:2007-2011 CHAS, Community Opportunities Group
Consolidated Plan SALEM 46
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NA-20 Disproportionately Greater Need: Severe Housing Problems –91.205 (b)(2)
Assess the need of any racial or ethnic group that has disproportionately greater need in comparison to
the needs of that category of need as a whole.
Introduction
CHAS data indicates minor differences in the rate of housing problems between White and minority
households of comparable income. While a higher proportion of African American or Hispanic
households have housing problems than the population as a whole, the rate of severe housing problems
is comparable or lower. High margins of error for the ACS data on which the CHAS data is based may
account for differences in the data, not clearly reflecting actual conditions.
Proportion of Households with Severe Housing Problems by Race and Income Level
<30% AMI 30-50% AMI 50-80% AMI 80-100% AMI
All Households 59%33%18%7%
White 59%35%18%8%
Black /African American 42%85%28%0%
Asian 100%43%0%
American Indian, Alaska Native 100%100%
Pacific Islander
Hispanic 58%18%2%0%
Source:2007-2011 CHAS, Community Opportunities Group
0%-30% of Area Median Income
Severe Housing Problems*
Has one or more of
four housing
problems
Has none of the
four housing
problems
Household has
no/negative income,
but none of the other
housing problems
Jurisdiction as a whole 2,110 1,245 185
White 1,555 850 100
Black / African American 110 15 30
Asian 110 0 0
American Indian, Alaska Native 0 0 0
Pacific Islander 0 0 0
Hispanic 275 365 55
Table 17 –Severe Housing Problems 0 -30% AMI
Data Source:2007-2011 CHAS
*The four severe housing problems are:
1. Lacks complete kitchen facilities, 2. Lacks complete plumbing facilities, 3. More than 1.5 persons per
room, 4.Cost Burden over 50%
Consolidated Plan SALEM 47
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30%-50% of Area Median Income
Severe Housing Problems*
Has one or more of
four housing
problems
Has none of the
four housing
problems
Household has
no/negative income,
but none of the other
housing problems
Jurisdiction as a whole 770 1,685 0
White 695 1,115 0
Black / African American 55 100 0
Asian 0 0 0
American Indian, Alaska Native 10 30 0
Pacific Islander 0 0 0
Hispanic 4 375 0
Table 18 –Severe Housing Problems 30 -50% AMI
Data Source:2007-2011 CHAS
*The four severe housing problems are:
1. Lacks complete kitchen facilities, 2. Lacks complete plumbing facilities, 3. More than 1.5 persons per
room, 4.Cost Burden over 50%
50%-80% of Area Median Income
Severe Housing Problems*
Has one or more of
four housing
problems
Has none of the
four housing
problems
Household has
no/negative income,
but none of the other
housing problems
Jurisdiction as a whole 410 1,800 0
White 300 1,375 0
Black / African American 60 110 0
Asian 0 0 0
American Indian, Alaska Native 0 0 0
Pacific Islander 0 0 0
Hispanic 55 290 0
Table 19 –Severe Housing Problems 50 -80% AMI
Data Source:2007-2011 CHAS
*The four severe housing problems are:
1. Lacks complete kitchen facilities, 2. Lacks complete plumbing facilities, 3. More than 1.5 persons per
room, 4.Cost Burden over 50%
Consolidated Plan SALEM 48
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80%-100% of Area Median Income
Severe Housing Problems*
Has one or more of
four housing
problems
Has none of the
four housing
problems
Household has
no/negative income,
but none of the other
housing problems
Jurisdiction as a whole 175 1,555 0
White 175 1,360 0
Black / African American 0 15 0
Asian 0 70 0
American Indian, Alaska Native 0 0 0
Pacific Islander 0 0 0
Hispanic 0 100 0
Table 20 –Severe Housing Problems 80 -100% AMI
Data Source:2007-2011 CHAS
*The four severe housing problems are:
1. Lacks complete kitchen facilities, 2. Lacks complete plumbing facilities, 3. More than 1.5 persons per
room, 4.Cost Burden over 50%
Consolidated Plan SALEM 49
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NA-25 Disproportionately Greater Need: Housing Cost Burdens –91.205 (b)(2)
Assess the need of any racial or ethnic group that has disproportionately greater need in comparison to
the needs of that category of need as a whole.
Introduction:
As noted earlier, minority populations in Salem –particularly African-Americans and people with
Hispanic ethnicity –have disproportionately lower incomes compared to White households. Data
indicates that disproportionate housing cost burden among minorities is related to the broad income
disparity overall, rather than racial and ethnic differences.
Housing Cost Burden
Housing Cost Burden <=30%30-50%>50%No / negative income
(not computed)
Jurisdiction as a whole 3,565 2,895 3,215 245
White 8,755 2,995 2,650 155
Black / African American 255 155 200 30
Asian 155 45 105 10
American Indian, Alaska Native 0 30 10 0
Pacific Islander 0 0 0 0
Hispanic 845 735 280 55
Table 21 –Greater Need: Housing Cost Burdens AMI
Data Source:2007-2011 CHAS
Discussion
CHAS data indicates that Hispanic households disproportionately spend 30-50% of their income on
housing,while a disproportionate share of African-American households spend more than half of their
income on housing related costs. As previously stated, the median incomes for minority households is
considerably below that for White households, and low-income and minority households are more likely
to rent their homes. The disproportionate burden of high housing costs is likely a reflection of income
and rental market conditions.
Proportion of Households with High Cost Burdens by Race
Total
Households
Proportion of Income Spent on Housing
<=30%30-50%>50%No Income
Jurisdiction as a whole 17,495 57%24%18%1%
White 14,840 60%23%17%1%
Black / African American 505 44%24%33%0%
Asian 210 62%19%14%5%
American Indian, Alaska Native 20 0%0%100%0%
Pacific Islander 0 ----
Hispanic 1,755 38%35%25%2%
Source:2007-2011 CHAS, Community Opportunities Group
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NA-30 Disproportionately Greater Need: Discussion –91.205(b)(2)
Are there any Income categories in which a racial or ethnic group has disproportionately
greater need than the needs of that income category as a whole?
Minority households have disproportionately lower incomes compared with the overall population, and
they are less likely to own their own homes. CHAS data does not indicate a significant difference in the
rates of housing problems experienced by households of specific racial and ethnic groups in comparison
with other households with similar incomes. Minor differences in the proportion of households with
housing problems may fall within the margin of error for the ACS data on which the CHAS data is based.
Anecdotally, Salem residents have experienced some discrimination in the housing market. In a very
tight rental housing market that is dominated by small-scale multifamily buildings, minority households
have an added disadvantage when seeking housing if landlords choose to select non-minority applicants,
although this is undocumented.9
If they have needs not identified above, what are those needs?
During the public consultation process, participants at the community meeting held in the Point
Neighborhood stated that there is a need for more coordinated services to help Spanish-speaking
residents navigate immigration transition. Spanish-speaking households often have difficulty accessing
services they need, including housing programs, legal assistance, job training, and financial counseling,
because they do not know about the programs or need help navigating the administrative and
regulatory requirements.
Are any of those racial or ethnic groups located in specific areas or neighborhoods in your community?
Salem has the multicultural and mixed-income population characteristics of many older industrial cities
in the Northeast. The Point, a neighborhood located directly south of Salem’s downtown, is the City’s
only racially and ethnically concentrated area where census tracts have a non -white population of 50%
or more.Sixty-three percent (63%)of the neighborhood’s 4,491 residents are non-white, more than
double the City’s non-white population of 25%. (US Census 2010) The majority of the Point’s non-white
residents are Latino immigrants and second and older generations, with some new arrivals from Haiti
and African countries. The neighborhood’s median income is $26,483, with 33%of households meeting
poverty guidelines. (Salem Point Neighborhood Commercial Corridors Revitalization Plan, 19: “ESRI and
US Census”) More than half (62%) of the Point’s renters and one -third (39%) of its homeowners are cost-
burdened, paying more than 30% of their income towards housing costs. (ACS 2007-2011)
Despite this geographic concentration, the City has not found indication that housing policies have
created impediments to fair housing. Subsidized and affordable housing is located citywide, and is not
disproportionately concentrated. Foreclosures and loan denials also occurred proportionally in all areas.
9 Phone interview with Nelly Wadsworth, Associate Director of Center for International Education, Salem State University,2/6/15
Consolidated Plan SALEM 51
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NA-35 Public Housing –91.205(b)
Introduction
The Salem Housing Authority (SHA) provides affordable housing to individuals and families in both
federally-and state-owned properties. The SHA also administers Section 8 Housing Choice Vouchers,
which subsidize the rents of tenants living in privately-owned rental units. It manages 39 federally-
owned housing units located in six properties at six different sites, as well as 676 units of state -owned
housing located in 83 buildings at 17 sites within the City. In addition to its own properties, the SHA
currently manages a total of 867 Section 8 Vouchers (9 project -based and 858 tenant-based) that
subsidize rents in privately-owned housing.
The table below shows federal units and vouchers, including those administered by other agencies than
the SHA, such as Community Teamwork, Inc. in Lowell, which administers 348 Section 8 vouchers for
residents living in Salem (169 project-based and 179 tenant-based).
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Totals in Use
Program Type
Certificate Mod-
Rehab
Public
Housing
Vouchers
Total Project -
based
Tenant -
based
Special Purpose Voucher
Veterans Affairs
Supportive
Housing
Family
Unification
Program
Disabled
*
# of units vouchers in use 0 0 39 867 9 858 0 0 0
Table 22 -Public Housing by Program Type
*includes Non-Elderly Disabled, Mainstream One-Year, Mainstream Five-year, and Nursing Home Transition
Data Source:PIC (PIH Information Center)
Characteristics of Residents
Program Type
Certificate Mod-
Rehab
Public
Housing
Vouchers
Total Project
-based
Tenant -
based
Special Purpose Voucher
Veterans Affairs
Supportive
Housing
Family
Unification
Program
Average Annual Income 0 0 16,462 16,251 11,514 16,301 0 0
Average length of stay 0 0 5 7 4 7 0 0
Average Household size 0 0 1 2 1 2 0 0
#Homeless at admission 0 0 0 3 0 3 0 0
# of Elderly Program Participants (>62)0 0 21 208 2 206 0 0
# of Disabled Families 0 0 10 220 7 213 0 0
# of Families requesting accessibility features 0 0 39 867 9 858 0 0
# of HIV/AIDS program participants 0 0 0 0 0 0 0 0
# of DV victims 0 0 0 0 0 0 0 0
Table 23 –Characteristics of Public Housing Residents by Program Type
Data Source:PIC (PIH Information Center)
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Race of Residents
Program Type
Race Certificate Mod-
Rehab
Public
Housing
Vouchers
Total Project -
based
Tenant -
based
Special Purpose Voucher
Veterans Affairs
Supportive
Housing
Family
Unification
Program
Disabled*
White 0 0 38 793 9 784 0 0 0
Black/African American 0 0 1 67 0 67 0 0 0
Asian 0 0 0 5 0 5 0 0 0
American Indian/Alaska Native 0 0 0 2 0 2 0 0 0
Pacific Islander 0 0 0 0 0 0 0 0 0
Other 0 0 0 0 0 0 0 0 0
*includes Non-Elderly Disabled, Mainstream One-Year, Mainstream Five-year, and Nursing Home Transition
Table 24 –Race of Public Housing Residents by Program Type
Data Source:PIC (PIH Information Center)
Ethnicity of Residents
Program Type
Ethnicity Certificate Mod-
Rehab
Public
Housing
Vouchers
Total Project -
based
Tenant -
based
Special Purpose Voucher
Veterans Affairs
Supportive
Housing
Family
Unification
Program
Disabled*
Hispanic 0 0 9 436 0 436 0 0 0
Not Hispanic 0 0 30 431 9 422 0 0 0
*includes Non-Elderly Disabled, Mainstream One-Year, Mainstream Five-year, and Nursing Home Transition
Table 25 –Ethnicity of Public Housing Residents by Program Type
Data Source:PIC (PIH Information Center)
Consolidated Plan SALEM 54
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Section 504 Needs Assessment: Describe the needs of public housing tenants and applicants
on the waiting list for accessible units.
Program Applicants Requesting Modified Units
State Elderly 667 47
State Family 705 20
Federal Elderly 1
Federal Family 0
Source: SHA Executive Director 2/19/2915
Most immediate needs of residents of Public Housing and Housing Choice voucher holders
Based upon the available data, Salem needs more housing that is affordable to low income families,
elders and those with disabilities.As shown in the above table entitled “Characteristics of Residents”,
the average household income of current residents of public housing and those with housing vouchers is
below 30% of area median income (Extremely Low Income), which indicates that only the poorest
individuals and families are finding rental housing sufficiently subsidized as to be genuinely affordable to
them.Fewer Very Low Income households earning between 30-50% of area median income are
receiving these scarce housing subsidies.Those with incomes that are between 31 percent and 50
percent of area median income cannot afford housing even at the lowest end of the range of private
housing market without incurring a serious cost burden. Additional accessible housing is also needed to
address the needs of an aging population.
In Salem, as is true throughout the Metropolitan Boston area, high market rate rents provide a challenge
to Housing Choice voucher holders to find units with rents that meet the program requirements.
Massachusetts now maintains a statewide Section 8 waiting list and the Salem Housing Authority draws
applicants from that statewide list, applying its own approved local preferences.
The waiting lists for all types of public housing in Salem are long and are a further indication of the need
for an increased supply -not only of more affordable housing, but for additional housing with rents
subsidized to a level that is scaled to the income of the tenants. The table below indicates the SHA
current waiting lists.
SHA WAITING LISTS
FEDERAL STATE
FAMILY 396 294
ELDERLY 229 750
CONGREGATE 1
MODIFIED 59
SECTION 8 * State Waiting List
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SHA ESTIMATED AVERAGE WAITING TIME FOR APPLICANTS
FEDERAL STATE
FAMILY 2+ YEARS 1+ YEARS –2+ YEARS
ELDERLY 1+ YEARS .5 + YEARS –3+ YEARS
SECTION 8 w Local Preference 8+ YEARS 8+ YEARS
SECTION 8 non Local 10+ YEARS 10+ YEARS
How do these needs compare to the housing needs of the population at large ?
The population at large continues to experience similar pressures related to the cost and suitability of
housing in Salem and the region. Incomes have been stagnant for a number of years, and the pressures
driving rental housing costs upward has been exacerbated over the last few years as homeowners who
lost their homes to foreclosure entered the rental housing market, increasing demand and driving prices
up further. Accessible housing will be needed by an increasing percentage of the population. This trend
is further fueled by an aging population, as the “Baby-Boomer” generation reaches retirement age.
Accessibility retrofits of older single family housing are often complex and expensive, particularly in
older, historic cities such as Salem where many homes are old, located on small lots, and not easily
adaptable. It is possible that Salem’s decline in population over age 65 between 2000 and 2010,
countering state-wide trends may reflect the difficulty that seniors face in finding appropriate housing
that allows them to stay in the community. Providing accessible units in larger rental developments
where, for example, elevators are already part of the design will be an increasing ne ed, and likely a more
cost effective one.
Discussion
The North Shore CDC and other agencies that participated in the Housing Stakeholders Focus Group
meeting observe that, aside from the excessive length of waiting lists for affordable housing,
maintaining the list is challenging because the population who seek affordable housing because of
current housing problems are often transient and difficult to contact once units become available. In
addition, many have difficulty qualifying because they have problems with credit, CORI, or other issues
that lead to disqualification.
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NA-40 Homeless Needs Assessment –91.205(c)
Introduction:
Homelessness is a complex problem that requires different solutions and interventions.10 Homelessness
happens to individuals,couples, and families with children; it can be a chronic or temporary condition.
The Commonwealth’s Department of Transitional Assistance, the Division of Housing Stabilization within
the Department of Housing and Community Development (DHCD), and the division of the Executive
Office of Health and Human Services which fund services for many homeless families and individuals,
categorize the root causes as:
structural issues such as high housing costs or low household income
personal issues such as mental illness, substance abuse or other physical and mental disabilities,
and/or
social policies such as the availability and effectiveness of assisted housing, mental health
programs, substance abuse treatments, and other service interventions.
The continuing loss of affordable housing,in conjunction with low paying jobs,has exacerbated the risk
of homelessness.In situations reported by service providers, the lowest income households and
individuals with disabilities are frequently living in overcrowded or substandard conditions that likely
serve as short-term housing solutions.Permanent housing has become increasingly out of reach for
young adults, many of whom resort to “couch surfing”, while significant number of elderly residents
reside in homes that they cannot afford to maintain in safe, habitable condition.In addition to decent,
safe, affordable housing,many homeless families and individuals also need supportive services to make
the transition to independent living,to deal with other problems such as substance abuse or mental
illness, or to become economically self-sufficient.
Tracking the number of people who are homeless or at risk of homelessness is challenging.Some who
are homeless are transient, with multiple shelter stays in one year at one o r more providers, making it
difficult to obtain an unduplicated count of people using homeless services. Other homeless individuals
and families stay with family and friends or are unsheltered, thereby resisting identification and
assistance.
Salem is one of 30 communities within the North Shore Continuum of Care Alliance (NSCoC), which
conducts annual Point-in-Time (PIT)counts,as required by HUD. Salem has two homeless shelters:
Lifebridge, an emergency shelter for both male and female adult individuals, and Healing Abuse,
Working for Change (HAWC), a domestic violence shelter for families. Both conducted their PIT count on
1/28/15. Lifebridge also coordinated with the Salem Police Department to go out into the street to
count the unsheltered homeless population. The count from the two shelters and streets totaled 70
10 HUD defines “homeless” or “homeless individual” as an individual who lacks a fixed, regular, and adequate nighttime
residence; and an individual who has a primary nighttime residence that is a) supervised publicly or privately operated shelter
designed to provide temporary living accommodations (including welfare hotels, congregate shelters, and transitional housing
for the mentally ill); b) an institution that provides a temporary residence for individuals intended to be institutionalized; or c) a
public or private place not designed for, or ordinarily used as, a regular sleeping accommodation for human beings.
Consolidated Plan SALEM 57
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homeless adults and children, of which 4 were unsheltered individuals on the street.11,This figure does
not capture homeless individuals or families temporarily staying in hotels, hospitals, drug treatment
facilities, stabilization or transitional programs, or detention facilities, nor those who are doubling up or
“couch-surfing” with other households.
Lifebridge primarily serves the chronically homeless, and reports in annual PIT counts that the three
largest sub-groups of its guests are those with mental illness, substance abuse and physical disabilities.
Lifebridge notes that for the past several years it has seen an increase in young adults who are
homeless, with this trend becoming more pronounced during the cold weather months.
Salem and area homeless service providers report that the number of homeless persons seeking
emergency shelter continues to increase for both individuals and families. Service providers distinguish
between individuals and families seeking shelter and the actual numbers that are being sheltered and
counted. While the shelters allow individuals to “overflow”during the winter, they can only serve them
if there is available space. Salem’s two shelters have a normal capacity of 53 beds; they can host an
overflow of 16 additional beds.
SALEM POINT IN TIME COUNT: January 28,2015
Homeless Count Persons
Lifebridge*49
HAWC 17
Other (Unsheltered)4
Total 70
Lifebridge HAWC**Other Total
Chronically Homeless 49 49
Seriously Mentally Ill 37 37
Chronic Substance Abuse 24 24
Veterans 1 1
Persons with HIV/AIDS 1 1
Victims of Domestic Violence 4 17 21
Unaccompanied Children (under 18)0 0
Elderly (over 60)7 .7
Youth (18-24)3 3
Physically Disabled 11 11
* Lifebridge reports that one shelter guest was hospitalized when the count was taken; if that person was present its count
would be 50.
** HAWC did not collect PIT data in 2015 for the subpopulations listed.
11Information provided by Lifebridge, and HAWC.
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In addition to the above, the Salem Community Charter School reports that 18 (30%) of its students, are
homeless as per the McKinney-Vento definition. This includes one individual under age 18, with the
others between age 18-23.
If data is not available for the categories "number of persons becoming and exiting
homelessness each year," and "number of days that persons experi ence homelessness,"
describe these categories for each homeless population type (including chronically homeless
individuals and families, families with children, veterans and their families, and
unaccompanied youth):
Homeless Persons who are Chronically Homeless.Lifebridge reports that all of its 49 guests are
chronically homeless. HAWC reported that none of the households present at the PIT count were
chronically homeless. Advocates emphasize that the chronically homeless have issues that a shelter stay
or housing subsidy cannot solve –housing with supportive services is essential in permanently housing
the chronically homeless.
Homeless Persons who are Seriously Mentally Ill.Lifebridge reported that more than three-quarters of
its clients (37) on the day of the 2015 PIT count were seriously mentally ill.12 Valerie Sweeney,
Lifebridge’s Clinical Manager, stated that most of the clients who come to the shelter are referrals being
discharged from hospitals. Ms. Sweeney’s viewpoint is that many are being discharged prematurely with
untreated mental health issues, including those whose behavior escalates to violence, which can pose
an unsafe environment to staff and other clients.13 Both Lifebridge and the Salem Police Department
report seeing an increase in younger homeless persons, and issues of mental illness and substance
abuse both among young and older adults.14 In the 2014 PIT, HAWC reported that two of its sheltered
individuals were severely mentally ill; it did not report this information for the 2015 PIT.15 Agencies and
organizations active in Salem in providing homelessness prevention and services to the homeless, as
well as those providing other social services, note the inadequacy of mental health services in the region
–both for out-patient and in-facility treatment.
Homeless Persons who are Chronic Substance Abusers.For the 2015 PIT, Lifebridge reported that 24 of
its 49 clients (50%) had chronic substance abuse issues. HAWC reported that one of its clients was a
chronic substance abuser.Homelessness service providers note the inadequacy of substance abuse
programs in the area, resulting in continued instability of clients and the inability to provide them with
needed programs and services. Lifebridge offers a ninety-day support program that includes counseling
and drug testing. Individuals who come to the shelter under the influence of a substance or use while
present are referred to either another shelter that is equipped to handle their situation or to hospitals
or detox facilities, or they are put into Salem Police Department custody.
12 Telephone Interview with Valerie Sweeney, Lifebridge,2/24/15
13 Telephone Interview with Valerie Sweeney,Lifebridge, 1/20/15
14 Telephone discussion with Lt. Douglas King, Salem Police Department, 1/23/15
15 Telephone Interview and email with HAWC staff, 1/20/15 and 2/19/15
Consolidated Plan SALEM 59
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Homeless Persons who are Veterans.Lifebridge counted 1 individual in 2015 who was a veteran,
compared to 3 in the 2014 PIT count. HAWC reported no veterans.
The last fifteen years has seen an increasing number of veterans in need of shelter, transitional, and
permanent supported housing. With the current numbers of returning veterans, it is expected that this
need will increase further. In addition, for the first time there is a growing number of women veterans,
both individuals and those with families, who need assistance.16 However, because of new programs
that demonstrate a collaborative effort between the Veterans Administration and HUD, we are seeing a
dramatic decrease in the incidence of homelessness among veterans –both individuals and families. A
significant increase in resources through these new programs –particularly VA Supportive Housing
(VASH)and Supportive Services for Veterans and their Families (SSVF)means some supportive services
are being made available. In the New England area –and across the country -there has been an
impressively strong push to bring the numbers of homeless veterans down to a “functional zero” by the
end of this calendar year.17
The U.S. Department of Veterans Affairs (VA) provides supportive and permanent housing to address
homelessness among veterans.The Veterans Northeast Outreach Center (VNOC)which provides
services for veterans within the North Shore region reported that of approximately 3,000 Veterans
served in the past year,about 60-70% are chronically homeless. Many suffer from PTSD, mental illness,
and/or substance abuse. VNOC participates in the NSCoC and connects qualified homeless veterans to
emergency shelters or transitional housing.18 The Bedford office of the VA reports that Community
Teamwork, Inc. (CTI) administers 4 VASH vouchers in use by Salem, one of which expire d on February
28, 2015.
Homeless Persons with HIV/AIDS.In the 2015 PIT count, Lifebridge counted 1 individual who reported
having HIV/AIDS. HAWC did not collect this information. The North Shore office of the AIDS Action
Committee of Massachusetts reports that a very small proportion of its population is homeless,
estimating 2-3 persons from Salem.
A previous study of HIV/AIDS by North Shore Community Action Programs (NSCAP) found that the
primary need of persons with AIDS is access to affordable housing. Frequently those with HIV/AIDS find
themselves unemployed and dependent on disability income. Staff at NSCAP working with persons with
AIDS have found that once an individual has adequate housing,he/she is much more likely to
successfully use other services and maintain a healthy lifestyle with proper nutrition. The need for
housing ranges from independent living to a supportive environment for those who are sickest.19
Victims of Domestic Violence.HAWC provides a range of services to families experiencing violence or
abuse within 23 North Shore/Cape Ann communities. It runs a shelter for persons in crisis or needing
16 North Shore HOME Consortium 5-Year Consolidated Plan 2015-2020
17 Email from Kevin Hurley, North Shore HOME Consortium, 5/13/15
18 VASH voucher information provided by Cheryl Coviello, Bedford,MA Office the VA,2/25/15
19 North Shore HOME Consortium 5-Year Consolidated Plan 2015-2020
Consolidated Plan SALEM 60
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refuge from domestic violence or abuse with a capacity of 7 adults and 20 children.The number of
homeless identified in the 2015 PIT count who are victims of domestic violence, including the 17
sheltered at HAWC and 4 reported by Lifebridge, are a reflection of the capacity of these shelters, rather
than the number of homeless families or individuals who have experienced domestic violence.In
addition, NSCAP reports that it assisted 30 Salem families in 2014 with temporary housing in scattered
sites or area motels.
Homeless Persons who are Young Adults (18-24 years).The Salem Community Charter School reports
that 18 (30%) of its students are homeless using the McKinney -Vento definition. Of these,17 are
between the ages of 18-23.Lifebridge reported 3 young adults present during its 2015 PIT count.
Lifebridge has seen an increasing number of clients who are young adults in their 20s and 30s, many
with mental health and/or substance abuse problems.Lifebridge does not serve youth under the age of
18.
Journeys of Hope (JoH) is a local organization that has served homeless and at-risk youth and young
adults in Salem and the region.JoH estimated that 990 homeless youth live on the North Shore,
including young people who are living in emergency or transitional homeless shelters with their parents,
or whose families have doubled up with friends or relatives due to economic hardship. JoH noted many
reasons for youth or young adult homelessness: they cannot or choose not to stay with their families in
shelters, they are estranged from their family, are runaways, or are awaiting foster care. Risk factors
associated with homelessness among youth and young adults include history of abuse, neglect, and
substance abuse/addiction, mental illness, involvement in the juvenile justice system, aging out of foster
care, and economic instability.
Unaccompanied Youth.The Salem Community Charter School reports that one of its students under the
age of 18 is homeless.20 Services or shelters that accommodate unaccompanied homeless youth under
the age of 18 are lacking in the region.Although they are not technically homeless, the Plummer Home
provides congregate housing for up to 12 boys ages 13 -18, and supported apartments for young men
ages 16-22 who are referred by the Department of Children and Families and the Department of Mental
Health.
Physically Disabled.In its 2015 PIT count, Lifebridge identified 11 homeless individuals (22% of their
clients) who have physical disabilities. Affordable housing that is accessible for people with disabilities is
extremely limited.Many people with disabilities who are not identified as homeless nevertheless lack
permanent housing.Focus group participants in the public participation process described situations in
which people with disabilities live in nursing facilities or with family members in housing that is
overcrowded and/or inadequate, due to the lack of affordable alternatives.
20 Telephone interview with Jenn Thomas, Salem Community Charter School,2/24/15
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Estimate the number and type of families in need of housing assistance for families with
children and the families of veterans.
Family homelessness is at a crisis level in the region. The PIT count for the North Shore CoC consortium
in 2015 showed a total of 2,329 persons in families, over half of whom being sheltered in motels, hotels,
or other temporary situations due to lack of shelter capacity.21 HAWC counted 17 persons in its Salem
shelter in the 2015 PIT count, including adults and children; during its 2014 PIT count,HAWC provided
shelter to a total of 24 adults and 20 children.
NSCAP reports that it assisted 212 families in 2014, 95 in its scattered sites program and 117 in the
Econolodge in Danvers. As an agency with a regional service area, NSCAP reported that 30 (14%) of the
families that it served in 2014 were from Salem.
Housing support for veteran families is provided by the Veteran’s Northeast Outreach Center. No data is
available on the number of veteran families in the region who are experiencing homelessness.CTI
administers 4 VASH vouchers in use by Salem, one of which expired as of February 28, 2015. These are
held by: 1 Black, non-Hispanic male; 1 White, non-Hispanic male; and 1 White, non-Hispanic female. The
expired voucher was held by 1 Black, non-Hispanic female with 2 children.
Describe the Nature and Extent of Homelessness by Racial and Ethnic Group.
The following is from data provided by HAWC (homeless families) from its 2015 PIT count:
Households with Children Sheltered at HAWC:6
Total Persons: 15 (10 female, 5 male; 7 White Non-Hispanic, 8 Hispanic; 4 White, 3 Asian)
Households without Children sheltered at HAWC:2
Total Persons: 2 (2 female; 2 Non-Hispanic; 1 Black/African-American, 1 Asian)
Households without Children sheltered at Lifebridge: 49
Total Persons:49 (16 female;33 Male; 38 Non-Hispanic, 4 Hispanic;38 White,7 Black/African-
American,4 Multiple Races)
Unsheltered Households:4
Total Persons: 4 (1 female, 3 male; 4 White Non-Hispanic)
Describe the Nature and Extent of Unsheltered and Sheltered Homelessne ss.
HUD considers an individual or family to be chronically homeless if that individual or family:
is homeless and lives or resides in a place not meant for human habitation, a safe haven, or is in
an emergency shelter;
21 North Shore HOME Consortium 5-Year Consolidated Plan 2015-2020
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has been homeless and living or residing in a place not meant for human habitation, a safe
haven, or an emergency shelter continuously for at least one year or on at least four separate
occasions within the last three years; and
has an adult head of household (or a minor head of household in no adult is present in the
household) with a diagnosable substance use disorder, serious mental illness, developmental
disability, post-traumatic stress disorder, cognitive impairments resulting from brain injury, or a
chronic physical illness or disability, including the occurrence of 2 or more of those conditions.
Both Lifebridge and HAWC conducted their PIT count on January 28, 2015. Lifebridge, which serves
chronically homelessness individuals, also coordinated with the Salem Police Department to go out into
the street to count Salem’s unsheltered homeless population. The count from the two shelters and
streets totaled 70 homeless adults and children, of which 4 were unsheltered individuals on the street.,
Lifebridge stated that the 49 individuals it sheltered on that date were all chronically homeless
persons.22,23
22Information provided by Valerie Sweeney,Clinical Manager,Lifebridge; and Healing Abused, Working for Change (HAWC).
23 This figure does not capture homeless individuals or families temporarily staying in hotels, hospitals, drug treatment facilities,
stabilization or transitional programs, or detention facilities, nor those who are doubling up or “couch-surfing” with other
households.
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NA-45 Non-Homeless Special Needs Assessment -91.205 (b,d)
Introduction:
Information regarding the non-homeless special needs of the community was gathered primarily
through the needs assessment sessions held in the fall of 2014, and via direct contact with service
agencies in the community. Outreach sessions focused on specific populations and topical areas, many
of which may fall under the non-homeless special needs category. The identified needs ranged from
housing to human services to public facilities improvements. Specific populations that were considered
include:
•Elderly and Frail Elderly (age 65 and over)
•Persons with mental, physical, and/or developmental disabilities
•Persons experiencing substance abuse (alcohol or drug addiction)
•Persons with HIV/AIDS and their families
•Victims of domestic violence, dating violence, sexual assault, and stalking
Describe the characteristics of special needs populations in your community:
Elderly and Frail Elderly:According to the 2010 Census, Salem has 5,324 persons age 65+, comprising
12.9% of the city’s population. Approximately 2,000 seniors (38%) live alone (ACS 2009 -2013).Within
this cohort, the ratio of women to men is 3:1. City-wide, 4,041 households include persons over the age
of 65. Seniors tend to have lower incomes. The median household income for households with one or
more seniors is approximately $31,000; for seniors living alone the median income is approximately
$23,000. Almost 40% of seniors, including both homeowners and renters, are burdened with housing
costs that exceed 30% of their income.
Frail elderly are defined as those elderly with mobility or self-care limitations. Typically, this population
requires some assistance in daily living.This assistance may include adaptive housing and/or supportive
services. ACS 2009-2013 counted 1,914 seniors with disabilities, or 37% of persons over age 65 in Salem.
Persons with Disabilities:Persons with disabilities comprise nearly 14% of Salem’s population. These
include cognitive difficulties, hearing or vision impairment, and impaired mobility. Approximately 1,000
residents have disabilities that require assistance with self-care, while twice as many are not able to live
independently. There are 4,403 households in Salem in which one or more household members have
disabilities, representing 24% of the city’s households. (ACS 2009-2013 B22010)
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Population with Disabilities, 2009-2013
All Persons Under 17 years 18 to 64 years 65 + years
Total civilian non-institutionalized
population 41,746 100%7,670 100%28,939 100%5,137 100%
With a Disability 5,700 13.65%557 7.26%3,229 11.16%1,914 37.26%
Cognitive Difficulty 2,625 6.29%424 5.53%1766 6.10%435 8.47%
Hearing or Vision Difficulty 2,092 5.01%248 3.23%888 3.07%956 18.61%
Ambulatory Difficulty 2,874 6.88%105 1.37%1529 5.28%1240 24.14%
Self-Care Difficulty 1,064 2.55%144 1.88%472 1.63%448 8.72%
Independent Living Difficulty 2,045 4.90%--1227 4.24%818 15.92%
Source: ACS 2009-2013, S1810
Domestic Violence:In addition to its emergency shelter facility, HAWC provides advocacy and direct
services to persons experiencing domestic violence or abuse. In FY 2014, 2,428 unduplicated clients
received non-residential assistance and services, 10% (244) of them from Salem. The 2,428 clients that it
served included calls to its 24-hour hotline (3,055 calls/1,033 persons), one-on-one advocacy (1,299
sessions for 584 persons), and VOCA legal assistance (1,385 clients/2,495 court appearances or
conferences). During this period, 586 persons received assistance from 6 other programs, for a total
1,116 sessions or service units. A record of the services that HAWC provided on September 10, 2014
typifies the needs of its clients: 6 court appearances, 1 walk -in, 14 hotline calls (10 females, 4 males),
and 8 unmet emergency shelter requests.
Substance Abuse:Statewide, substance abuse –particularly opiate addiction has become an increasing
concern, as public health and safety officials have observed dramatic increases in overdoses in recent
years. Over two years between April, 2012 and April 2015, the Salem Police Department reports of
medical overdoses increased by 70%, from 86 to 146. Other incidents related to substance abuse include
found used hypodermic needles, which increased by 17% over the past (one) year, and Section 35
commitments for alcohol, which doubled (from 12 to 25) over the past year.On the other hand, alcohol
related incidents decreased 27% over two years.24 Contrary to these trends, the Massachusetts Bureau
of Substance abuse Services reports that admissions of Salem residents to licensed substance abuse
treatment programs decreased from a peak of 997 in FY13 to 768 FY14. The discrepancy may reflect the
availability of treatment services, rather than the number of residents who needed them.Of the
admissions, 14% were homeless and 45% had received prior mental health treatment. Salem admissions
reporting alcohol as the primary substance abused (39%) were higher than for the state as whole (32%).
24 Lieutenant Dennis King, Salem Police Department Community Impact Unit, by email to Jane Guy, 4/17/15.
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The proportion of admissions reporting the use of heroin (47%), increased by more than 60% during a
five year period.25
What are the housing and supportive service needs of these populations and how are these
needs determined?
To determine needs, meetings and interviews were held with housing and social serv ice agencies serving
various populations. These were supplemented by publicly-available data and information from public
and private agencies.
Seniors:There is a shortage of affordable housing appropriate for seniors: units that are accessible,
located near public transportation, and near shopping and services. Many older housing structures (both
public housing and private homes) have stairs which are difficult for seniors to use. Some seniors living
with family members want to live independently, but are unable to find affordable and accessible
housing. Some larger units (2 bedrooms) are needed so seniors can accommodate caregivers. There are
long waiting lists for housing appropriate for seniors, both affordable and market rate units.
Senior Center staff expressed the need for more assistance to seniors and family caregivers to navigate
the array of available services and programs. Other needs relate to family caregivers: training, support
groups, and personal time. Increased access to transportation services, particularly on weekends and
evenings, would enable seniors to participate more in social activities, fitness programs and faith
communities.
People with Disabilities:A high priority concern is the lack of affordable, accessible housing units –
affordable or market rate. The supply of accessible units should be proportional to the households with
disabilities; the current population is approximately 20%, while the Salem Housing Authority has only 39
accessible units out of 715, or 5% of public housing units.In addition to the Housing Authority, the
Department of Developmental Services provides housing in group homes located in Salem to 65
developmentally disabled adults. Combined, the 104 units that specifically accommodate persons with
disabilities is 4% of the total subsidized housing inventory (including public housing and privately-owned
units).26
Mary Margaret Moore of the Independent Living Center of the North Shore and Cape Ann, Inc.
(ILCNSCA)reported that some disabled people are unable to be discharged from nursing facilities due to
the lack of vouchers or appropriate housing that would permit them to live independently.Vouchers are
needed for people who are seeking to leave nursing homes, or who are at risk of having to enter nursing
homes for lack of alternatives. The ILNSCA estimates that 95% of its calls are for help with housing.
25 Massachusetts Department of Public Health, Bureau of Substance Abuse Services Online,
http://www.mass.gov/Eeohhs2/docs/dph/substance_abuse/large_cities/salem_fy2114.pdf
26 DHCD Subsidized Housing Inventory, 4/21/2015
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More resources are needed to make accessibility retrofits to both public housing units and privately
owned units. Public housing buildings need retrofits such as entry door openers, flashing fire alarms and
doorbells for vision or hearing impaired tenants. People need to be made more aware of the availability
of important programs such as Project Safety Net.
Services are needed to help persons with disabilities become economically self-sufficient. Emergency
funding is needed for homelessness prevention, as well as free legal services, housing advocacy and
financial education and life skills.People with disabilities face many external barriers when trying to find
employment.Many service providers noted that improved transportation services would reduce
barriers to employment and services, as these barriers directly contribute to housing insecurity.
A comprehensive regional approach would support housing and economic needs of persons with
disabilities. A regional center for assistive technology would support the needs of this population.
Discuss the size and characteristics of the population with HIV/AIDS and their families within
the Eligible Metropolitan Statistical Area.
Salem has the third or fourth largest population in Essex County of persons living with HIV/AIDS.
According to 2013 data from the MA Department of Public Health’s Division of STD Prevention and
HIV/AIDS Surveillance, both Haverhill and Salem have 51-100 persons living with HIV/AIDS. Lawrence
and Lynn have the largest numbers; those two cities have 53% of the total cases reported for Essex
County.27
The North Shore office the AIDS Action Committee of Massachusetts (AAC), located in Lynn, served
forty-four clients from Salem in 2014. The office stated that incomes of these clients are typically
extremely low, around $750-$1,000 per month. As with other organizations, MAAC stated that
affordable and quality housing for its clientele is its single greatest need.Better transportation is also a
large need, as this would enable clients to access the array of services essential to treatment and
maintenance of their physical and mental health.
27 Massachusetts HIV/AIDS Surveillance Report for Essex County, 2013, issued October 2014.
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NA-50 Non-Housing Community Development Needs –91.215 (f)
Describe the jurisdiction’s need for Public Facilities:
There is a wide variety of needs for public facilities and services within the city. The public consultation
process cited accessibility modifications to public buildings and facilities as one of the most pressing
needs. These include the construction of ramps and elevators to and within public buildings, upgrades
for persons with visual and auditory impairments, access to public transportation, and unobstructed and
accessible routes through city streets (see discussion below under “Public Improvements”).
Additional needs that were cited included upgrades to the City’s parks and beaches: better maintenance
of existing buildings, landscaping, and pavement; additional lighting; improvements to playing fields; the
provision of public restrooms and drinking fountains; and unspecified improvements of a nature that
would make the City’s considerable public parks and beaches more pleasant to visit.
Residents also continue to strongly support the construction of a new senior center to provide services
and meeting space to serve the elder population.
Residents of the Point Neighborhood suggest the need for a community center that could provide space
for ESL, adult education, food pantry, childcare/afterschool care, and other s ervices, as well as social
meeting space.
How were these needs determined?
The needs were determined through the public outreach process including nine community meetings
and focus groups, interviews, and the online survey identified above.
Describe the jurisdiction’s need for Public Improvements:
Common themes have emerged with respect to public improvements. In a 2014 survey of residents to
evaluate City services, repairing streets and sidewalks, and keeping streets and public areas clean ranked
among the highest priorities. Survey respondents also indicated that that sidewalk and street repair,
park maintenance, and general cleanliness of the city are services for which they see the most need for
improvement. Participants in public input meetings for the Consolidated Plan commonly cited
improvements to sidewalk conditions and handicapped accessibility as a high priority. Due to Salem’s
historic nature, many of the sidewalks are constructed of cobblestone with granite curbing. Buckled
bricks in the cobblestone, whether from typical wear, maintenance, or tree roots ,can create hazards
and become impassible to those who are disabled. Steep sidewalks, sidewalks with non-compliant cross-
slopes, lack of or non-compliant curb cuts/ramps, sidewalks impeded by drainage and tree grates,
signage, signals, and other issues create additional physical barriers. While most downtown street
corners have access ramps, additional ramps are needed on street corners leading into the downtown to
make them fully accessible to people with mobility impairments. In addition, the city’s elderly say that
downtown sidewalks and pedestrian areas need further improvement, including surface repairs.
Meeting participants cited the Essex Street pedestrian mall as particularly hazardous to peo ple with
mobility limitations. A number of intersections were identified as problematic for both pedestrian and
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vehicular safety, though the reasons for these hazards varied from needs for better signage,
signalization, to the physical construction of pedestrian facilities, turning lanes, or inclusion of bicycle
lanes. In addition to the functional adequacy of the city’s surface infrastructure, residents have aesthetic
concerns as well. Beautification projects, including tree plantings, street and sidewalk improvements,
signage, and lighting programs have been implemented and continue to be a priority for many Salem
residents.
How were these needs determined?
The needs were determined through the public outreach process including nine community meetings
and focus groups, interviews, and the online survey conducted as part of the Consolidated Plan process,
and another online survey focused on City services undertaken by the City in 2014.
Describe the jurisdiction’s need for Public Services:
While many needs are related to housing, such as homelessness, elder care, and substance abuse
treatment, there were a number of other needs for public services identified related to child care, after
school programs (particularly for children with special needs), programming and services for senior
citizens and residents with disabilities (particularly outside of normal operating hours), food pantries,
and legal and financial services. While Salem currently offers many services as identified above, many
service providers stated that a large amount of needs remain unmet 1) due to income ineligibility for
those who are slightly above income but struggle to meet their expenses, 2)limited range of services,or
3) service areas for which there is very limited funding (fuel assist ance, legal services, etc.) or funding is
nonexistent.
Of the respondents who completed the online survey, 28% indicated that they or their family members
have some unmet needs for public services while two-thirds stated that there are unmet service needs
in the community as a whole. The types of service needs most frequently noted were for homelessness,
substance abuse, childcare/after school care and youth programs, as well as programs for community
engagement, recreation, and adult education. When asked which populations are most in need of
additional services, respondents were most frequently concerned for homeless families, followed by
seniors, children, and veterans. Other needs mentioned include more public transportation in general or
specifically for seniors and disabled residents, services for seniors outside of business hours, and more
capacity to deliver food to homes. Finally, some respondents indicate simply that more services are
needed, while others would like to see a shift in the distribution of funding for different services.
The need for improvement of Salem’s public schools has also received considerable concern. Since 2011,
Salem has been designated by the state as a “Level 4” school district, having performed poorly on the
Massachusetts Comprehensive Assessment System in both the Math and English Language Arts sections
over a four-year span and as a system that hasn't shown signs of "substantial improvement."
Designation as a Level 4 school requires a school district to undertake an accelerated process for rapid
and sustainable achievement within three years. A district is considered Level 4 when one or more of its
schools moves into that status; Salem has one Level 4 school, the Bentley Elementary School, and four
that are rated Level 3.According to the Department of Elementary and Secondary Education, 75% of
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Bentley’s students come from low-income families and are receiving free or reduced lunch. In addition,
37% of the school’s students reported that English is not their first language.28 Since 2013, the Salem
School District has been working with the Blueprint Schools Network, a Newton nonprofit, to run the
low-achieving Bentley Elementary School.
How were these needs determined?
The needs were determined through the public outreach process including nine public meetings, focus
groups, interviews, and the online survey identified above.
28 Boston Globe, May 22, 2015, “Nonprofit to take over troubled Salem school”.
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Housing Market Analysis
MA-05 Overview
Housing Market Analysis Overview:
Salem offers an array of housing that includes single family homes, and a range of multi-family housing
types, from smaller 2-8 unit structures, to apartment buildings and newer garden and mid-rise
complexes. Salem has approximately 2,350 subsidized units.
The city has a large inventory of historically significant buildings that contribute to its overall character
and sense of place. Half of all single family homes predate World War II. The majority of the city’s rental
housing is in small structures (2-8 units) built prior to 1930. While older homes define Salem’s character,
their age and type of construction also challenge their suitability for certain segments of the population.
They often have stairs, maintenance issues such as lead paint, or outdated heating and electrical
systems that make them unaffordable or unsuitable for many residents, such as seniors, families with
young children and persons with disabilities.
The cost of housing is a concern for Salem residents at all income levels, but increasing housing costs are
particularly hard on lower income residents. There are 6,229 households living below the poverty level
and another 4,000 living between 100%-150% of the poverty level.29 Approximately 3,700 households
with incomes below 80% of median income are paying more than 30% of their income on housing.30
For homeowners,home values rose at more than twice the rate of homeowner incomes between 2000
and 2011. Only 10% of owner-occupant housing is considered affordable to low-and moderate-income
households.31 Fluctuation in prices has resulted in “upside down” mortgages making it difficult for
owners to sell or refinance.
Average rents increased at four times the rate of incomes for renters from 2000-2011 making market
rents unaffordable for low-and moderate-income households. The 2,350 subsidized housing units, and
additional 1,000 Salem households with Section 8 rental housing vouchers, are unable to meet the
demand from housing cost burdened households for housing affordability assistance.
There are numerous organizations in the region providing support to special needs populations such as
those with disabilities, victims of domestic violence, veterans, people with HIV/AIDS, and those with
mental health and substance abuse issues.
29 ACS 2009-2013
30 CHAS 2007-2011
31 CHAS 2007-2011
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Salem is home to a diverse workforce and varied employment base dominated by the health care and
educational services industries.The city has a vibrant downtown, and robust tourism economy based on
considerable natural, historic, and cultural resources. Despite relatively low unemployment rates, a gap
exists between the skills of the available workforce and employment opportunities. As a Massachusetts
“Gateway City", Salem is part of a collaborative effort to foster economic revitalization in the state’s
older, mid-sized cities.
Salem’s Point neighborhood has the highest concentration of low incom e renter households, and is also
racially and ethnically concentrated. Point residents’ low wages, together with the neighborhood’s aging
housing stock, result in multiple housing problems, including inadequate building maintenance and
overcrowding. The City and non-governmental organizations such as the North Shore CDC have focused
recent planning efforts for economic development, infrastructure improvement, and affordable housing
development to meet the needs of this neighborhood.
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MA-10 Number of Housing Units –91.210(a)&(b)(2)
Introduction
Salem is one of the most densely settled communities in the Commonwealth of Massachusetts, with
approximately 2,314 units of housing per square mile. Housing, businesses, industries, and local
institutions are tightly concentrated near Salem’s coastline, while traditional suburban neighborhoods,
open land, and commercial and multi-family properties on fairly large footprints characterize the
western and southern sections of the city. Areas that are more densely settled include the Downtown
and the Point Neighborhood. Salem’s varied land use pattern contains a wide variety of housing types,
and a broad range of housing values.
All residential properties by number of units
The US Census building permits database indicates that there have been 1,036 new housing units
constructed between 2000 and 2013, including 243 single family and 793 multifamily units. Salem’s
housing is overwhelmingly composed of two-family and multifamily dwellings. The majority of the city’s
lower income households are concentrated in areas which have higher density housing.
Property Type Number %
1-unit detached structure 4,916 26%
1-unit, attached structure 1,383 7%
2-4 units 7,034 38%
5-19 units 2,648 14%
20 or more units 2,761 15%
Mobile Home,boat, RV, van, etc 0 0%
Total 18,742 100%
Table 26 –Residential Properties by Unit Number
Data Source:2007-2011 ACS
Salem has historically provided a large inventory of rental housing,compared to other North Shore
Communities. The rate of homeownership has fluctuated over the past 15 years around the level of
50%. ACS estimates for 2013 show a decrease in homeownership, with only 47% of households owning
their own homes, compared with 52% in 2011.
The majority of the city’s multifamily housing stock was constructed prior to 1930. Although they
constitute the predominant housing type, the median year of construction for 2-4 family homes was
around 1900,with very few having been constructed after 1920. Single family homes were built
throughout the Twentieth Century, with a peak in construction between 1950 and 1969.A surge in
multifamily ownership housing development occurred in the 1980’s.For Salem’s condominium
inventory, about half is in 2-4 unit and larger multifamily buildings constructed prior to 1930,which have
been converted to condominium ownership.
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Residential Building Type by Year Built
Single Family Condominium 2-Family 3-Ffamily 4-8 Multi 8+ Multi
Before 1900 25%19%52%37%43%17%
1900-1929 19%28%39%61%54%48%
1930-1939 4%1%3%1%2%-
1940-1949 6%<1%3%1%--
1950-1959 14%1%1%<1%--
1960-1969 17%<1%1%<1%<1%10%
1970-1979 4%2%<1%--14%
1980-1989 4%40%<1%---
1990-1999 3%6%<1%-<1%-
2000-2013 4%3%<1%-<1%10%
Source: City of Salem Assessor’s Database 2014
The federal Fair Housing Act, also known as Title VIII of the Civil Rights Act prohibits discrimination against
protected classes including race, religion, national origin, familial status, sex/gender, and disability. The
Massachusetts Antidiscrimination Law,M.G.L. c. 151B has additional protected classes, including sexual
orientation, gender identity, veteran/military status, and receipt of public and/or rental assistance.
Owner-occupant landlords of two-family homes may legally exercise wider discretion in tenant selection
with respect to several protected classes under Fair Housing laws.Approximately 1,156 rental units, or
13% of Salem’s rental housing inventory, qualify for this exemption as they are in owner-occupied two-
family structures.33 Treading boundaries of antidiscrimination law, such discretion may, in fact be
practiced by landlords with 3-and 4-family units as well, where they are owner-occupied and/or self-
marketing.
Unit Size by Tenure
Owners Renters
Number %Number %
No bedroom 60 1%577 7%
1 bedroom 606 7%2,390 28%
2 bedrooms 3,633 40%3,840 45%
3 or more bedrooms 4,854 53%1,730 20%
Total 9,153 101%8,537 100%
Table 27 –Unit Size by Tenure
Data Source:2007-2011 ACS
32 Federal law exempts landlords of buildings with 4 or fewer units from fair housing regulations, but Massachusetts limits the
exemption to owner-occupied 2-family homes, and specifies that the exemption does not apply with respect to race or receipt of
public assistance. Massachusetts also provides an exemption in limited circumstances for buildings with 3 or fewer units with
respect to households with children.
33 City of Salem Assessor’s data, Owner-occupied 2-family properties
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Salem’s housing units tend to be fairly small, reflecting the types, density, and age of the city’s housing.
About half of the city’s owner-occupied housing inventory consists of attached units –from two-family
dwellings to larger condominium properties –and overall, including single family homes, the median
number of rooms is 5.8. By comparison, the median number of rooms in owner-occupied housing in
Essex County is 6.6. Renter-occupied housing units in Salem are consistent with the size profile of rental
units in the region, with a median of 4.1 rooms per unit (ACS 2009-2013). Fewer than 20% of all renter-
occupied units in Salem are suitable for families (3 or more bedrooms), which is relatively low for Essex
County and the state. Participants in neighborhood meetings noted that many of the larger units are
being rented to groups of students, further reducing the availability of units suitable for families. The
scarcity of larger rental housing units leads to families –as well as students –living in apartments that
are too small for their needs.
On the smaller end of the housing scale, the supply of compact housing units suitable for small
households or individuals living alone is not easily identified through Census data. Compact housing units
might include studio apartments, “SRO” or single room occupancy units, rooming or lodging houses,
college dormitories, transitional “sober” housing for persons in treatment for drug or alcohol addictions,
or other types of supported housing. In addition, commercial hotels often provide primary residence for
households of any income level, whether they view their occupancy as permanent or transitional.34
Residents of hotels are not consistently identified by the Census under any category of housing.
Some of Salem’s compact housing units may be captured in the 577 “no bedroom” apartments
identified in the 2007-2011 ACS, while many compact units (including group homes) would be counted
as non-institutionalized group quarters rather than individual dwelling units. In 2010, the decennial
Census counted 1,478 residents living in student housing, and 125 living in other non-institutionalized
group quarters. Facilities that provide skilled nursing services would be classified as institutional group
quarters; in 2010, there were 153 residents over the age of 65 living in institutiona lized group quarters.
Local data provides another view of compact housing options, although it is still difficult to define or
quantify such living quarters. The Assessor’s database identifies 12 privately-owned properties
throughout the city as rooming and boarding houses, although buildings with commercial use on the
ground floor and SRO or efficiency units on upper floors (such as the Caritas development at 117
Lafayette) are classified as “mixed use”, and some buildings which house permanent residents m ay be
classified as hotels. The city has 11 licensed rooming or lodging houses (excluding Bed &Breakfasts)
which offer single or double bedrooms for rent with shared bathrooms ranging from 6 to 57 rooms each,
with a combined total of 202 rooms. These include rooms available on the open market, as well as
“sober” homes or other housing targeted to specific subgroups of the population. Some of the city’s
compact housing units are subsidized through Section 8 or other state and federal housing assistance
programs, while others rent at market rates. In addition, the Assessor identifies five charitable housing
properties which provide congregate living facilities with some form supportive services or counseling to
34 Brownrigg, Leslie A., People Who Live in Hotels: An Exploratory Overview, US Census Bureau, 2006.
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residents. The Brookhouse Home for Aged Women, for example, provides a rest home (which offers
living assistance but not skilled nursing) for up to 36 women over the age of 55, while Emmerton House
(owned by the Women’s Friend Society) provides affordable housing for 20 women of all ages who study
or work in the Salem area. The John Bertram House, a Sunrise Senior Living community, provides skilled
medical support for 25 residents, and Grosvenor Park nursing home has 123 beds offering long term
nursing care and/or short term rehabilitation. Finally, the Plummer house for boys provides a group
home or supported apartments for up to 18 youth ages 13-22.
Describe the number and targeting (income level/type of family served) of units assisted with
federal, state, and local programs.
Salem has a sizeable inventory of public housing, as well as housing that is assisted through numerous
subsidizing programs. The Commonwealth’s Department of Housing and Community Development
maintains a subsidized housing inventory (SHI) for each community. In order to be included on the SHI,
units must have a long-term affordability restriction that requires them to remain affordable to
households earning up to 80% of the area median income as determined by HUD. The inventory
includes both publicly-and privately-owned housing developments —both rental and owner-occupied
units. As of May, 2015, Salem has 2,470 housing units that qualify to be included on the SHI, including 36
rental developments with a combined total of 2,320 units, 65 units provided to individuals with
cognitive disabilities through the Department of Development Services (DDS), and 8 5 rental and owner-
occupied units that have been assisted through the Housing Rehabilitation Program.35 According to this
count, 12.98% of Salem’s housing stock (year round housing units counted in the 2010 Census) is
affordable.
In addition to housing developments owned by the Salem Housing Authority, there are many privately -
owned subsidized housing units that have been built, owned and/or managed by non-profit entities, for-
profit developers, other state agencies, or individual homeowners.
The North Shore Community Development Coalition (NSCDC),formerly the Salem Harbor CDC which
combined with affordable housing organizations in Beverly and Peabody, was established over thirty
years ago to address housing concerns. The NSCDC currently owns and maintains a total of 247 rental
housing units in 24 buildings within the City of Salem, focused in the Point Neighborhood. The CDC
acquired 10 buildings in 2014, comprising 84 units, which it plans to renovate over the next few years.
One of its properties, Salem Point Cooperative,is a scattered-site cooperative jointly owned with the
tenants, which is currently under renovation. Over the next five years, the CDC has plans to undertake
renovation of 151 additional units.All but 17 units in the CDC’s portfolio are subsidized, and in most
cases they are affordable to households at or below 60% of AMI.
35 Due to the relatively short term of affordability, units assisted through the HOR program may no longer qualify for the SHI,
although this program continue to fill a valuable need in the community.
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Subsidized Housing Inventory, DHCD
Project Name Address Type SHI Units Affordability
Expires
Subsidizing
Agency
Housing Authority
Leefort Terrace Leefort Terrace Rental 50 Perp DHCD
Bertram Terrace Bertram Terrace Rental 20 Perp DHCD
Colonial Terrace Boston and Nichols Rental 40 Perp DHCD
Norton Terrace Norton Terrace Rental 20 Perp DHCD
Bates Terrace Bates Terrace Rental 16 Perp DHCD
Pioneer Terrace Pioneer Terrace Rental 104 Perp DHCD
Charter Street 27 Charter St.Rental 110 Perp DHCD
J.Michael Ruane 3 Broad Street Rental 16 Perp DHCD
James A.Dalton Residence 205 Bridge Street Rental 35 Perp DHCD
Morency Manor 45 St.Peter St.Rental 54 Perp DHCD
Stephen Zisson Elderly 290 Essex St.Rental 14 Perp HUD
5 Barton Square 5 Barton Square Rental 16 Perp HUD
Garden Terrace North St.Rental 32 Perp DHCD
Rainbow Terrace Rainbow Terrace Rental 136 Perp DHCD
Phillips School 86 Essex Street Rental 17 Perp DHCD
Farrell Court Farrell Ct.Rental 12 Perp DHCD
Park/Prince/Congress Park/Prince/Congress Rental 14 Perp DHCD
Scattered Sites Hawthorne,Bridge,&Boston Streets Rental 9 Perp HUD
Other Affordable Developments
Federal and Boston Streets 191-193 Federal;36-38 Boston Rental 24 2015 MHP
Salem Point Rentals 98-102 Lafayette Street Rental 15 2036 DHCD
Fairweather Apartments 40R Highland Ave.Rental 127 2025 HUD
HES Housing I 403-405 1/2 Essex St.Rental 9 2037 DHCD
Loring Towers 1000 Loring Avenue Rental 250 2016 MassHousing
Lynch Street 10-14 Lynch Street Rental 11 2017 MHP
Pequot Highlands 10,12 First Street Rental 250 Perp DHCD,
MassHousingPrincetonCrossingApts12HeritageDriveRental3582017MassHousing
Residential Options 20 Central Av;1 Washington St Rental 3 2041 EOHHS, HUD
Salem Point Rentals Peabody;Prince St Pl;Prince;Palmer; Congress Rental 44 2034 DHCD
Salem Harbor CDC FTHB Scattered Sites Ownership 3 2015 DHCD
Salem Heights 12 Pope St.Rental 285 2103 DHCD, HUD,
MHP, MDFASalemPointCooperative64Harbor/Peabody/Ward Rental 77 2091 DHCD, FHLBB
104 Lafayette St 104 Lafayette Street Rental 10 2031 HUD, DHCD
Palmer Street 68-72 Palmer Street Rental 10 2020 MHP
Palmer Cove 50 Palmer St Rental 15 2056 HUD,
MassHousing,
DHCD
Lincoln Hotel/Caritas 117 Lafayette Rental 62 2018 HUD
St. Joseph’s 135 Lafayette Rental 51 2111 DHCD
North River Apartments 28 Goodhue Rental 4 Perp DHCD
Willow Avenue Willow Avenue Mix 2 2013 DHCD
DDS Group Homes Confidential Rental 65 N/A DDS
Salem HOR Program Various Ownership 68 2015-2022 DHCD, HUD,
FHLBBSalem HOR Program Various Rental 12 2023-2057 HUD
Source: DHCD, City of Salem
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The NSCDC was recently awarded state support for a project at Harbor and Lafayette Street, which will
preserve and renovate two buildings in the Point. The work will create 26 affordable apartments,16 of
which will be for tenants between 18 and 24 years old.
Redevelopment of the former St. Joseph’s Church recently created 51 units of affordable rental housing.
Initiated by the Boston Archdiocese’s Planning Office for Urban Affairs (POUA), the project utilized
HOME funds through the City of Salem and the North Shore HOME consortium, as w ell as other state
funding. POUA is beginning the process of a second phase of its redevelopment program, which is
expected to create an additional 20-30 housing units.
Caritas purchased and renovated the Lincoln Hotel, a 62 unit single room occupancy (SRO ) development
that is subsidized through project-based Section-8 vouchers. Another regional affordable housing
developer, Harborlight Community Partners of Beverly is actively seeking opportunities for developing
affordable housing in Salem.36
In addition,the City negotiates with private developers on a case-by-case basis to create affordable
units. Four additional housing units have been created at 28 Goodhue Street, known as North River
Apartments,through negotiations during the permitting process, and 10% of the units at Riverview
Place apartments and Grove Street Apartments will be affordable upon construction ,totaling an
additional 25 units of affordable housing in the future.
In addition to these subsidized housing projects, many households in Salem are assisted through Section
8 Housing Vouchers. Salem Housing Authority administers 867 units, including 858 mobile vouchers
(which are not eligible for the SHI) and 9 project based vouchers. Other agencies in the region also
administer housing vouchers –both project based and mobile –which are utilized by Salem residents.
Community Teamwork, Inc. (CTI) in Lowell provides vouchers to 348 households, including 169 project-
based vouchers and 179 mobile vouchers. Most of the developments for which there are project-based
vouchers are incorporated into projects listed above on the SHI.
Provide an assessment of units expected to be lost from the affordable housing inventory for
any reason, such as expiration of Section 8 contracts.
Salem has five privately-owned rental housing developments whose subsidies have various expiration
dates: Salem Heights, Loring Towers, Pequot Highlands, Princeton Crossing, and Fairweather
Apartments. Agreements have recently been reached that extend affordability of Salem Heights (285
units) for 100 years, while the Preservation of Affordable Housing (POAH) purchased Fairweather
Apartments, ensuring their continued affordability of these 127 units. Compromise agreements were
reached to extend affordability for all 250 units at Loring Towers, and to commit 150 project-based
vouchers for Pequot Highlands. However, 358 units at Princeton Crossing are at risk of expiring in 2017.
36 Phone interview with Andrew DeFranza of Harborlight Community Partners,2/6/15
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Owner-occupied homes listed on the SHI which are due to expire over the next five years are homes
owned by low to moderate income households that have been assisted by the City’s Home
Rehabilitation program. These homes do not have a long-term deed restriction, and the subsidy will
expire when the homeowner pays off the loan or sells the home.
Does the availability of housing units meet the needs of the population?
There is a shortage of housing to meet the diverse needs of Salem’s population. Households who
struggle to find appropriate housing include those with lower incomes, families, seniors, and individuals
living alone. There is a particular need for more rental housing of all kinds, as well as more affordable
housing. Demonstrating the extent of need for affordable housing, POUA received over 1,000
applications for a lottery for the 51 new affordable units at the former St. Joseph’s Church site in
September of 2013. However, it is important to note that these applications represent people from
many communities throughout the region, not just Salem.
In part related to the age of the city’s housing stock, there is a shortage of housing –particularly rental
housing –that is accessible to people who are handicapped or have mobility limitations. Most
apartment units in 2-to 4-family homes have stairs, and there are few units which have been designed
or retrofitted to accommodate the needs of people with disabilities.
Describe the need for specific types of housing:
•Participants in the public meetings report long waiting lists for housing appropriate for
seniors –including market rate units as well as subsidized senior housing. In addition to
age-restricted or assisted housing, seniors often seek housing that is handicapped
accessible or does not require navigating stairs. Some seniors also need housing with
more than one bedroom to accommodate caregivers or family members with special
needs. The lack of affordable and appropriate housing for seniors and the disabled leads
many to be stuck in nursing homes or to be inadequately housed while they wait for
vouchers or accessible units to become available.
•Large apartments suitable for families are in short supply. Fewer than 20% of
apartments in Salem have 3 or more bedrooms, and the majority of the city’s rental
housing stock is in older buildings which may have lead paint or other safety concerns.
Moreover, Salem’s increasing student population puts pressure on the private rental
market for larger apartments, as roommates collectively pay higher rents than families
can afford.
•More affordable homeownership opportunities are needed, particularly for middle
income families. Many respondents to the survey indicated that they face barriers to
ownership due to affordability: they would like to own a home but cannot afford a down
payment or are unable to find a home at a price they can afford.
•There is a substantial demand for more affordable housing options for individuals living
alone. The number of compact housing units in Salem –with or without supportive
services -is grossly insufficient to meet the demand for such units. Approximately 7,000
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residents in Salem live alone, including 2,000 seniors over the age of 65. As discussed in
section NA-10, approximately 3,000 non-family households (including renters and
homeowners) are cost-burdened, of which nearly half are elderly persons living alone.
The ACS and 2010 Decennial Census suggest that the city has fewer than 1,000 housing
units that serve this population.
Discussion
While Salem has diverse housing due to its historic development and ownership patterns, there are still
significant gaps in housing that meet the needs of many segments of the city’s population. A large
majority of the city’s multi-family housing (3+ units), was constructed 80-100 years ago, and lacks
handicapped accessibility or has maintenance issues such as lead paint, older heating and electrical
systems that make them unaffordable or unsuitable today for many of the city’s households.Largely,
the housing built since 1980 has been single-family homes and condominiums, thus reserving the
majority of newer housing in the city to homeowner households.
The shortage of rental housing is evident in the lack of vacancies in the rental market to accommodate
people who move into Salem or seek to relocate within the city. According to ACS (2009 -2013), the
number of vacant units available for rent comprise 3.7% of the city’s rental housing stock. A rental
vacancy rate of 5% is the generally recognized norm that is considered adequate to allow for mobility
within a rental market. Participants in public meetings reported difficulty for people to find appropriate
housing within the city, including incoming students and faculty at Salem State University, elderly
residents, families, and people with disabilities. Reasons cited were the lack of inventory of available
units, the reluctance of small-scale or owner-occupant landlords to rent to tenants who they feel could
not safely navigate their buildings, and an unarticulated bias by landlords when selecting among
multiple applicants.
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MA-15 Housing Market Analysis: Cost of Housing -91.210(a)
Introduction
The cost of housing is a significant and growing concern for Salem residents. Housing costs affect
households at various income levels, not only those at the lowest income levels. Residents find it
financially more and more difficult to keep up with rent increases. Participants in the public meetings
and survey noted that housing is becoming unaffordable, especially for renters. Anecdotally, many
households are doubling up, renting substandard apartments, and/or paying a high proportion of their
income on rent. Many condominium owners complain of living in units that are too small or inadequate
for their needs due to underwater mortgages that make it difficult to obtain financing to make
modifications or to move.
Cost of Housing
The value of owner-occupied units increased by 70% between the 2000 census and the 2011 ACS
estimate. This was more than twice the rate of income growth for homeowners during the same period
(33%). The increase in home values has not been a steady trend. According to The Warren Group data
on home sales, home prices peaked in 2005, declined over the next five to seven years, and have been
increasing again since 2012. The median price for a single family home in 2014 was $335,000, while the
median price for condos is $240,000.
Fluctuation in housing prices has had consequences for homeowners who purchased their homes during
the price bubble and subsequently owe more on their mortgages than their homes are worth. “Upside
down mortgages” make it difficult for homeowners who wish to sell their homes, which can lead to
foreclosure or abandonment if homeowners encounter financial hardship. This condition also inhibits
access to financing to enable homeowners to make improvements or modifications to their homes. This
has particularly been an issue for condominium owners, as median prices fell consistently between 2005
$0
$50,000
$100,000
$150,000
$200,000
$250,000
$300,000
$350,000
$400,000
2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011 2012 2013 2014
1-Fam
Condo
Source: The Warren Group
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and 2011, and have yet to recover to the level they were between 2003 and 2007. Indeed, nearly twice
as many foreclosures have occurred for condominiums as single family homes between 2007 and 2013,
despite the fact that single family homes outnumber condominiums by 20%. According to Assessor’s
data, 55% of condos are currently valued at less than the purchase price.Prices for single family homes
fell by about $100,000 between 2005 and 2012, but have recovered much of this value in the past 2
years. As of February, 2015, The Warren Group reports that 14% of condominium owners have negative
equity, compared with 5% of single-family homeowners.
Overall, Salem has largely recovered from the foreclosure crisis. The number of foreclosures has
decreased consistently each year since they peaked in 2008. The Commonwealth defines “distressed”
properties as those where a foreclosure petition has been filed or an auction was scheduled in the
previous year, or is bank held (up to 2 years). As of July 1, 2014, Salem’s rate of distressed housing units
was 3.7%, now lower than the state average of 4% for municipalities with 1,000 units of housing or
more.37
Foreclosures in Salem
Year 1-Family Condo All
2013 8 14 26
2012 16 20 45
2011 12 27 53
2010 18 33 64
2009 19 25 62
2008 19 32 73
2007 18 25 55
Since 2009, the Massachusetts Housing Partnership (MHP) has tracked foreclosures throughout the
state, documenting the impacts of the national foreclosure crisis. The rate of foreclosures peaked
statewide between 2008 and 2010, and has since declined. While economic recovery may have played a
role, policy changes have also been credited for a significant reduction in the number of properties that
undergo foreclosure, largely due to litigation against banks charged with predatory lending. Regulatory
changes have allowed more people to be eligible and receive assistance for refinancing their loans, and
banks are more willing to working with homeowners to avoid foreclosure.
Base Year: 2000 Most Recent Year: 2011 % Change
Median Home Value 188,300 320,400 70%
Median Contract Rent 634 938 48%
Table 28 –Cost of Housing
Data Source:2000 Census (Base Year),2007-2011 ACS (Most Recent Year)
37 Massachusetts Housing Partnership Foreclosure Monitor, August 15, 2014
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Rent Paid Number %
Less than $500 1,724 20.2%
$500-999 3,383 39.6%
$1,000-1,499 2,803 32.8%
$1,500-1,999 477 5.6%
$2,000 or more 150 1.8%
Total 8,537 100.0%
Table 29 -Rent Paid
Data Source:2007-2011 ACS
The impact of rising costs has been harder still for renters whose income grew by just 12% between
2000 and 2011, compared with a 48% increase in median rent.The table above indicates that about
1,700 households (20%) paid rent of $500 or less, and an additional 40% of households paid between
$500 and $999 per month. This would appear to indicate that 60% of apartments in Salem are
affordable to households earning $40,000 or less, when, in fact, the Census “rent paid” data includes
households who live in subsidized housing and/or receive rental housing vouchers.
Rental costs are considerably higher for households who occupy or seek market rate apartments in
Salem. Anecdotally, the asking price for market rate apartments generally ranges from $725 to $1,800,
with a median of $1,350. The majority of available apartments (70%) have one or two bedrooms.
Individual rooms rent for $425 to $1000; most rooms are in shared apartments or townhouses, although
one boarding house offers rooms with shared bathrooms and coin-op laundry facilities for $150 per
week (Survey of 51 apartments advertised on Craigslist on 12/12/2014). An income of $24,000 per year
would be needed to afford the most inexpensive private market housing option for a single individual.
Housing Affordability
For a median priced condo in 2014, a first time homebuyer with a 10% down payment of $24,000 would
require an annual income of approximately $55,000 to be able to afford a home (assuming 30 year
mortgage at a 4% interest rate).At $335,000, an income of approximately $75,000 is required to
purchase a single family home.
Units Affordable to
Households Earning Renter Units affordable to
Households earning Owner
under 30% HAMFI 1,870 22%under 50% HAMFI 425 5%
30-50% HAMFI 1,860 22%50-80% HAMFI 500 5%
50-80% HAMFI 3,075 36%80-100% HAMFI 1375 15%
more than 80% HAMFI 1,730 20%more than 100% HAMFI 6855 75%
Total 8,535 100%Total 9155 100%
Data Source:2007-2011 CHAS
Three-quarters of homes in Salem have values that are affordable only to households who earn more
than 100% of HUD Area Median Family Income (HAMFI), and only 10% of homes are affordable to
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households earning low and moderate incomes. The cost of renter housing is more evenly distributed
among all of the low and moderate income brackets.
The following table shows the approximate distribution of households in Salem by HUD’s income
classifications. (Note that the income categories provided by ACS do not exactly align with HUD
definitions, nor do they indicate household size.) The median family income calculated by HUD for the
Boston-Cambridge-Quincy Metro Area in 2011 was $96,500. Only 22% of households in Salem have
incomes above 100% of the median for the Boston metro area. The majority of households,between 60
and 70%, have incomes below 80% of the HAMFI.
Income Households %
< 30% HAMFI Less than $30,000 5,117 29%
30%-50% HAMFI $30,000 -$49,999 2,977 17%
50%-80% HAMFI $50,000 -$74,999 3,078 17%
80%-100% HAMFI $75,000 -$99,999 2,619 15%
>100% HAMFI $100,000 and more 3,899 22%
Source: ACS 2007-2011 B19001
Monthly Rent
Monthly Rent ($)Efficiency (0
bedroom)1 Bedroom 2 Bedroom 3 Bedroom 4 Bedroom
Fair Market Rent $1,042 $1,164 $1,454 $1,811 $1,969
High HOME Rent $1,042 $1,164 $1,408 $1,619 $1,786
Low HOME Rent $856 $917 $1,101 $1,271 $1,418
Table 30 –Monthly Rent
Data Source:HUD FMR and HOME Rents
The Fair Market Rent calculated by HUD for 2014 is comparable to the anecdotal observation of market
rents previously discussed. High and Low rent limits for HOME are within an appropriate range for rents
in Salem. Apartments at the Fair Market Rent would not be affordable to very low income and
extremely low income households.
Is there sufficient housing for households at all income levels?
There are fewer units available to households earning low or moderate incomes. While 29% of
households in the city have incomes less than 30% of HAMFI, only 11% of housing units throughout the
city are affordable to households at this income level. For households earning 30-50%, 50-80%, or 80-
100% of HAMFI, the proportion of appropriately priced housing is within range, according to ACS.
Overall, 63% of households earn less than 80% of HAMFI, while only 44% of housing i s affordable in this
range. A disproportionate share of the city’s housing is affordable to households earning more than
100% of HAMFI.
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Income Households %Housing Units %
< 30% HAMFI Less than $30,000 5,117 29%1,870 11%
30%-50% HAMFI $30,000 -$49,999 2,977 17%2,285 13%
50%-80% HAMFI $50,000 -$74,999 3,078 17%3,575 20%
80%-100% HAMFI $75,000 -$99,999 2,619 15%3,105 18%
> 100% HAMFI $100,000 +3,899 22%6,855 39%
Source: ACS 2007-2011 B19001, CHAS 2007-2011
How is affordability of housing likely to change considering changes to home values and/or
rents?
Housing affordability is becoming an increasingly significant concern, as home values and rents are rising
faster than incomes. The income disparity between renters and homeowners has also widened, as the
increase in home values (70% between 2000 and 2011) far outpaced renter household incomes (12%).
This makes it harder for renters to enter the homebuying market. The online survey indicates that many
people who currently rent would like to own their own homes, but cannot afford a down-payment or
mortgage for homes on the market.
How do HOME rents / Fair Market Rent compare to Area Median Rent? How might this
impact your strategy to produce or preserve affordable housing?
While HOME rents and Fair Market Rent are considerably higher than the median rent calculated by
ACS, the “rent paid” data collected by ACS includes households who live in subsidized housing and/or
receive rental housing vouchers, and is thus artificially low. The Fair Market Rent calculated by HUD for
2014 is comparable to an anecdotal observation of apartments advertised for rent in Salem in
December, 2014. High and Low HOME rent limits are within an appropriate range for rents in Salem.
Disparity between Fair Market Rent or HOME rent limits and the actual market rents in Salem has not
been an issue for Salem housing programs.
Discussion
According to ACS data, there are 6,229 households in Salem living below the poverty level and another
4,000 live between 100% and 150% of the poverty level. Approximately 3,700 households with incomes
below 80% of median income are paying more than 30% of their income on housing. The supply of
affordable housing is insufficient to meet the needs of cost burdened households including fam ilies and
seniors, resulting in waits of 10 years or longer for subsidized housing units or vouchers.
Housing costs have risen disproportionately faster than income for both renters and homeowners in
Salem, so that housing affordability is a concern,especially for households with low and moderate
incomes. As noted in MA-10, over 3,000 households in Salem are severely cost-burdened, paying more
than 50% of their income on housing. Half of these (1,560 households) are extremely low-income
renters. Among homeowners, the elderly is sub-group of residents who are most impacted by housing
cost burden; CHAS data indicates that 1,279 low-and moderate-elderly homeowners pay more than
30% of their income on housing-related costs.
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MA-20 Housing Market Analysis:Condition of Housing –91.210(a)
Introduction
Given the age of the city’s housing stock, the condition of housing is a significant concern for many
residents, particularly renters and homeowners with low and moderate incomes. Small, older rental
structures which comprise the majority of rental housing units, present a barrier to many households to
access housing that meets their needs due to accessibility issues, lead paint, and code violations.
Participants in neighborhood meetings also expressed concern about the maintenance of rental housing
where buildings are owned by absentee landlords. Many low-income homeowners, meanwhile, face
financial barriers to fixing up their properties, particularly when the work needed to bring the homes up
to code exceeds the value of the house.
Definitions
Standard Housing:Housing that meets one of the following definitions:
The unit meets HUD Housing Quality Standards (HQS).
The unit meets all state and local codes.
Substandard Housing:Housing that meets one of the following definitions:
Not Suitable for Rehabilitation:Housing that is in such poor condition as to be neither
financially nor structurally feasible for rehabilitation.
Suitable for Rehabilitation:Housing that is not in standard condition but is both financially
and structurally feasible for rehabilitation. This does not include units that require only
cosmetic work, correction or minor livability problems or maintenance work.
Condition of Units
Condition of Units Owner-Occupied Renter-Occupied
Number %Number %
With one selected Condition 3,423 37%3,927 46%
With two selected Conditions 27 0%228 3%
With three selected Conditions 0 0%13 0%
With four selected Conditions 0 0%0 0%
No selected Conditions 5,703 62%4,369 51%
Total 9,153 99%8,537 100%
Table 31 -Condition of Units
Data Source:2007-2011 ACS
The Housing Conditions reflected in Table 7 are the same as those described in the needs analysis,
including lack of complete kitchen facilities, lack of complete plumbing facilities, overcrowding (more
than one person per room), and cost burden, i.e., spending more than 30% of household’s income on
housing. As noted in Table 7 of Section NA-10, the most common housing condition by far is cost
burden. An estimated 265 rental units and 20 owner-occupied units lack complete plumbing or kitchen
facilities, making them substandard. In addition, an estimated 90 renter households and 20 owner-
occupant households live in over-crowded conditions.
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Participants in neighborhood meetings highlighted concerns about housing conditions that are not
reflected in CHAS data. Many are concerned about the condition of rental properties, in particularly the
lack of upkeep and maintenance and, in some cases, illegal activities taking place in investor-owned
rental properties. Many low-and moderate-income and/or elderly homeowners also have difficulty
maintaining and improving the condition of their homes due to financial barriers.
Year Unit Built
Year Unit Built Owner-Occupied Renter-Occupied
Number %Number %
2000 or later 347 4%488 6%
1980-1999 1,770 19%715 8%
1950-1979 1,805 20%1,768 21%
Before 1950 5,231 57%5,566 65%
Total 9,153 100%8,537 100%
Table 32 –Year Unit Built
Data Source:2007-2011 CHAS
More than half of Salem’s housing was built prior to 1950, lending it to have substantial maintenance
costs. Older housing may reduce the affordability of a structure because of maintenance costs and
safety issues. Over 80% of the housing structures in Salem were constructed prior to 1980, and may
contain lead paint which was prohibited for residential use in 1978.
Risk of Lead-Based Paint Hazard
Risk of Lead-Based Paint Hazard Owner-Occupied Renter-Occupied
Number %Number %
Total Number of Units Built Before 1980 7,036 77%7,334 86%
Housing Units build before 1980 with children present 400 4%779 9%
Table 33 –Risk of Lead-Based Paint
Data Source:2007-2011 ACS (Total Units) 2007-2011 CHAS (Units with Children present)
The age of the city’s rental housing stock leads to a high proportion –over 85%-of rental units having a
risk of containing lead-based paint. Children under the age of 6 are most vulnerable to lead poisoning.
An estimated 1,179 households with children under the age of 6 live in housing units constructed before
1980, representing over 90% of the city’s households with young children.More than homeowners ,
renters represent a higher share of households who have children under the age of 6, and they are more
likely to live in older buildings;significantly more children in rental housing are potentially exposed to
the hazard of lead-based paint in their homes.
In 2001, Salem was considered one of the state’s high risk communities, with 24 cases over five years,
averaging 4.8 cases per year. However, the rate of lead poisoning has improved considerably over the
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past decade. Despite the age of the city’s housing stock, the rate of lead poisoning is low: there have
been about 1-3 cases of lead poisoning per year among children screened over the past decade.38
Vacant Units
Suitable for
Rehabilitation
Not Suitable for
Rehabilitation Total
Vacant Units 1,211 52 1,263
Abandoned Vacant Units 376 52 428
REO Properties 18 0 18
Abandoned REO Properties 3 0 3
Table 34 -Vacant Units
Data Source Comments:
ACS estimates that there are 1,263 vacant units in the city, of which 835 are only temporarily vacant, as
they are currently available for sale or rent, sold but not yet occupied, or intended for seasonal use. The
remaining 428 units are assumed to be abandoned for purposes of analysis.
According to Salem’s Assessor, there are 52 housing units in poor or very poor condition. Although the
Assessor’s data does not indicate whether buildings are occupied, it provides an indication of the
number of buildings in the city in neglected condition. Of these, 20 are single family homes, 4 are condo
units, 22 are 2-3 family buildings, and 6 are 4-8 unit or mixed use properties.
The City Assessor lists 18 residential properties which are currently investor owned.(Occupancy status
cannot be determined from assessor’s data.)Of these,3 went through foreclosure more than five years
ago and are assumed to be abandoned. All of these units are reported to be in “good” to “average”
condition except for one unit listed in “very poor” condition. As this unit is a condominium in a garden
style building in which other units are listed in good condition, it is nevertheless considered to be
suitable for rehabilitation.
Between 2007 and 2013, a total of 378 residential properties were foreclosed, including single family,
multifamily, and condominiums.According to the City Assessor, 500 properties have undergone
foreclosure or bank sale since 2000. The number of foreclosures in Salem has declined steadily over the
past 5 years although it remains higher for condominiums than for single family homes.
Massachusetts Housing Partnership (MHP) defines distressed properties as all those properties where a
foreclosure petition has been filed, an auction scheduled in the previous year, or is bank held (up to two
years). Salem is one of the 26 communities in the state identified as “Gateway Communities”, which
collectively accounted for 39.5% of the state’s foreclosure crisis. Nonetheless, Salem’s rate of
foreclosure distress has improved ahead of the state as a whole. In July of 2014, Salem had 3.7
distressed housing units per 1,000, compared with 7.8 the previous year.
38 MA Childhood Lead Poisoning Prevention Program, Screening and Incidence Statistics
39 The Warren Group, “Foreclosure Stats”, www.thewarrengroup.com
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Need for Owner and Rental Rehabilitation
Aside from the issue of lead paint, the age of the city’s housing stock lends to substantially higher
maintenance costs. Weatherization and energy conservation improvements, repairs to roofing or siding
materials, mold remediation, and updates to heating, cooling, electrical, and plumbing systems may be
necessary for older housing to be safe, sanitary and to be more energy efficient. Residents who are
handicapped or have mobility limitations are challenged with stairs or other accessibility b arriers in their
homes.
Data provided through the city’s Assessor’s database (described in previous section) indicates that the
overwhelming majority of multi-family residential buildings, and close to half of single family homes and
condos, were constructed before 1930. About 5% of residential properties (630 homes) are listed by the
Assessor as being in “fair” or worse condition, of which one -third are single family homes and the rest
are multifamily or mixed use structures. This includes 52 buildings rated as “poor” or “very poor”, most
of which were built over a century ago. The median assessed value of properties that are listed in poor
condition is $157,000 for single family homes, and just over $200,000 for 2 -3 family homes.
Over the past five years, Salem’s housing rehabilitation loan program helped to improve 39 owner -
occupied units, and CDBG funds contributed to the renovation of 77 units of rental housing at Salem
Point Apartments by the North Shore CDC. Homeowners face financial barriers to maintaining and
improving the condition of their homes when the work needed to bring the homes up to code exceeds
the value of their properties. Similarly, many homeowners, especially those with condominiums, have
difficulty accessing funding to improve their homes due to lack of equity or underwater mortgages.
Estimated Number of Housing Units Occupied by Low or Moderate Income Families with LBP
Hazards
An estimated 1,179 households with children under the age of 6 live in housing units constructed befo re
1980, representing over 90% of the city’s households with young children.Because a higher share of
households who have children under the age of 6 are renters rather than homeowners, they are more
likely to live in older buildings. Thus,significantly more children in rental housing are potentially exposed
to the hazard of lead-based paint in their homes.Children in lower income households are particularly
vulnerable, as they are more likely to live in housing that has not had lead hazard reduction treatment
or abatement, or is otherwise not well-maintained. While the majority (81%) of homeowners with
children under the age of 6 have higher incomes (above 80% of AMI), the opposite is true for renters.
More than one-quarter of renter households with young children have incomes below 30% of AMI, and
more than 70% have incomes of less than 80% of the AMI.
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Lead Paint Hazard by Income Relative to AMI
Owner Renter
<30%30-
50%
50-
80%>80%Total
Children <30%30-
50%
50-
80%>80%Total
Children
Built before 1980
with children under 6 15 70 125 885 1,095 350 180 245 335 1,110
Built after 1980 with
children under 6 10 0 0 185 195 4 85 15 40 144
All children under 6 25 70 125 1070 1,290 354 265 260 375 1,254
% children under 6 2%5%10%83%28%21%21%30%
% of children at risk
of lead poisoning 1%6%11%81%32%16%22%30%
Source: CHAS 2007-2011
Discussion
Salem’s diverse housing stock represents a long span of public and private investment in housing to
meet the needs of a wide range of households and individuals of all income levels. The age of much of
the city’s housing, however, generate health and safety problems due to aging structures, outdated
mechanical systems, accessibility issues, lead paint, and code violations. These housing problems
disproportionately impact renters, in particular elderly and disabled households and families with
children, and they are more concentrated in LMI neighborhoods with denser, older housing stock.
The City of Salem has addressed the need for renovation and rehabilitation of older housing stock
through its Housing Rehabilitation Loan Program, as well as supporting the modernization and
rehabilitation of affordable housing owned by the Salem Housing Authority and North Shore CDC, and
administering or supporting programs that provide weatherization and lead paint remediation.
Moreover, the Get the Lead Out Program and the City’s Housing Rehabilitation Loan Program have de-
leaded numerous properties over the last 25 years, which has helped the city to significantly reduce the
rate of lead poisoning,
In addition to rehabilitation efforts, new multi-family development will also help to increase the
availability of rental housing that does not pose the barriers intrinsic to older structures. The City has
consistently supported efforts to create new affordable housing, and is currently at 12.98% (state
average is 9.2%), making Salem the community with the highest percentage of affordable housing of all
the 30 cities and towns in the North Shore HOME Consortium.40 Still, the supply falls short of the need
for affordable and accessible units, particularly to serve the lowest income households.In this regard,
Salem encourages other communities in the Consortium to help increase the supply of affordable
housing in the region.
40 MA DHCD Subsidized Housing Inventory, May, 2015
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MA-25 Public and Assisted Housing –91.210(b)
Introduction
The Salem Housing Authority (SHA) provides affordable housing to individuals and families in both
federally-and state-owned properties. The SHA also administers Section 8 Housing Choice Vouchers,
which subsidize the rents of tenants living in privately-owned rental units. It manages 39 federally-
owned housing units located in six properties at six different sites, as well as 676 units of state -owned
housing located in 83 buildings at 17 sites within the City. In addition to its own properties, the SHA
currently manages a total of 867 Section 8 Vouchers (9 project -based and 858 tenant-based) that
subsidize rents in privately-owned housing.
The table below shows federal units and vouchers, including those administered by other agencies than
the SHA, such as Community Teamwork, Inc. in Lowell, which administers 348 Section 8 vouchers for
residents living in Salem (169 project-based and 179 tenant-based).
Totals Number of Units
Program Type
Certificate Mod-
Rehab
Public
Housing
Vouchers
Total Project
-based
Tenant
-based
Special Purpose Voucher
Veterans
Affairs
Supportive
Housing
Family
Unification
Program
Disabled
*
# of units
vouchers
available 39 1,088 0 0 0
# of
accessible
units
*includes Non-Elderly Disabled,Mainstream One-Year, Mainstream Five-year, and Nursing Home Transition
Table 35 –Total Number of Units by Program Type
Data Source:PIC (PIH Information Center)
Describe the supply of public housing developments:
Describe the number and physical condition of public housing units in the jurisdiction,
including those that are participating in an approved Public Housing Agency Plan:
The Salem Housing Authority owns and manages a portfolio of 715 units of decent, safe and sanitary
public housing for low income elderly, family, and handicapped residents which are scattered across the
City of Salem. This includes seventeen developments with a total of 106 rental units, and nine scattered -
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site units in one-and two-unit buildings. The SHA’s portfolio includes both federal and state public
housing developments.
Of the 39 federally-assisted public housing units, 30 are elderly units in 2 developments. The remaining 9
units are family units scattered in 4 buildings at 3 sites.
Subsidized Housing Owned and Managed by Salem Housing Authority
Total Number of Bedrooms
Development Address Units SRO 1 2 3 4
ELDERLY
State
Leefort Terrace Leefort Terrace 50 50
Bertram Terrace Bertram Terrace 20 20
Colonial Terrace Boston &Nichol Sts 40 40
Bates Terrace Bates Terrace 16 16
Norton Terrace Norton Terrace 20 20
Pioneer Terrace Pioneer Terrace 104 104
Charter Street 27 Charter Street 110 110
Morency Manor 45 St. Peter Street 54 54
J. Michael Ruane 3 Broad Street 16 16
Dalton Residence 205 Bridge Street 35 35
Federal
Stephen Zisson 290 Essex Street 14 14
Power Block 5 Barton Square 16 16
Elderly Total 495 16 479
FAMILY
State
Phillips School 86 Essex Street 17 1 4 12
Garden Terrace Garden Terrace 32 4 22 6
Rainbow Terrace Rainbow Terrace 136 68 68
Park, Prince,
Congress Streets
33 Park St26 Prince St 6
117 Congress St 8
Farrell Court 17, 19, 21 Farrell Ct.12 6 6
Federal
Scattered Sites
2 Hathorne Crescent 2 2
122 ½ Boston Street 2 1 1
121 ½ Bridge Street 2 2
73 Boston Street 3 1 2
Family Total 220 5 109 105 1
TOTAL UNITS 715 16 484 109 105 1
Source: Salem Housing Authority
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In addition to the 39 federally-assisted public housing units, there are 676 state-assisted public housing
units located in 83 buildings at 17 sites. Of these, 168 are family housing units and the remainder are
elderly/disabled units. A total of 39 public housing units in Salem are handicapped accessible.
The rent structure varies depending on the original funding source. In all of the elderly housing
developments, tenants pay 30 percent of their monthly income for housing costs, including rent and
utilities. For 32 of the family housing units, the same 30 percent standard applies. In the other 188
family units, however, tenants pay 27 percent of their monthly income for rent and utilities. Federally
subsidized units and Section 8 vouchers are offered to tenants with incomes at or below 50 percent
AMI, and the state-subsidized units are offered to tenants with incomes at or below 80 percent AMI.
Thirty-six of the SHA’s units are accessible to people with disabilities, including 21 in elderly
developments and 15 in family developments. Of the 12 elderly developments, one is a congregate
residence.
Public Housing Condition
Public Housing Development Average Inspection Score
Federal Public Housing Units 92
Section 8 97
Table 36 -Public Housing Condition
Describe the restoration and revitalization needs of public housing units in the jurisdiction:
The SHA received a 92 of possible 100 points on its most recent PHAS (Public Housing Assessment
System) scoring in the FY ending 9/30/2012.The 8 points the SHA did not receive were based on the
physical condition of the properties. The Authority recently received a HUD Capital Fund Program Award
to use for federal public housing units.
The Commonwealth of Massachusetts has recently implemented a Capital Improvement Program that
provides housing authorities with a five year capital allocation for making repairs to state subsidized
housing units in order to better plan for capital needs.The list of current projects in Salem is below.This
change to a five year allocation for housing authorities is an improvement over the annual system of
submitting a list of all needed improvements to the state and waiting for them to individually appr ove
specific projects because it provides the housing authorities with a better way to predict the funding
that will be available and plan for capital projects.However, the funding level for capital needs at both
the state and federal level remains inadequate to the needs of these generally aging properties.
Federally-assisted public housing developments have been better funded and thus more easily
maintained over the years, and are in generally good condition.
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Describe the public housing agency's strategy for improving the l iving environment of low-
and moderate-income families residing in public housing:
Salem Housing Authority is pursuing an active modernization program to maintain and update its public
housing portfolio, both state-and federally-funded.For state-funded developments, the
Commonwealth has moved to a 5 year capital improvement funding plan which provides better ability
to local housing authorities to plan and budget their capital improvements. While funding is still more
limited than what is needed to maintain units in excellent condition,the plan provides for a predictable
income stream for capital improvements and repairs. This recent change is preferable to the previous
system of annual applications to the state with all housing authorities competing for limited funding.
In addition to routine maintenance and repair work, the following modernization work is currently
either underway or in design at the following SHA developments:
$1.4 million window and door replacement at Pioneer Terrace elderly housing;
$135,000 emergency generator installation at Morency Manor;
$11,000 water conservation program of replacement of 26 toilets at various units;
67,600 walkway paving at Rainbow Terrace.
The SHA also recently received notification of a $40,906 award from HUD’s Capital Fund Program, which
will be used for maintenance and administration operation costs for the SHA’s 39 units of federally
funded public housing.
Community Teamwork, Inc. (CTI) administers the MA Department of Housing and Community
Development’s Family Self-Sufficiency Program which provides employment incentives to Section 8
voucher households. There are currently 7 DHCD FSS participants in the City of Salem.
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MA-30 Homeless Facilities and Services –91.210(c)
Introduction
To compete for federal funding (from the McKinney Homeless Assistance Act administered by HUD), a
community or a group of communities must develop a continuum of care system.By HUD definition, “a
continuum of care system is designed to address the critical problem of homelessness through a
coordinated community-based process of identifying needs and building a system to address those
needs.”41 Salem is part of the Continuum of Care Alliance under the aegis of the North Shore HOME
Consortium, led by the City of Peabody.The Consortium serves 30 communities in the region, excluding
Lawrence and Lynn. As homeless persons are often transient, services should be examined from a
regional perspective, and most of the service providers in the Salem area serve people throughout Essex
County, not just the city or town in which they are based. For example, Salem families at risk of
homelessness and other special needs populations, such as those living with HIV/AIDS, access services
based in Peabody and Danvers. Social services in Salem are most closely linked with those in the
surrounding communities of Peabody, Lynn, Danvers and Beverly. The purpose of the Continuum of Care
Alliance is to join resources, heighten awareness of existing resources, and increase cooperation
between homeless and homeless prevention service agencies in Essex County.
Several types of facilities in Salem and on the North Shore are dedicated to serving the homeless. In
general, homeless assistance facilities encompass emergency shelters, including domestic violence
shelters, transitional housing, and permanent supportive housing. Emergency shelters address the basic
human needs of food, shelter and safety. Additionally, many of these facilities directly provide services
that address secondary needs such as medical care, counseling, substance abuse, mental health
treatment and case management on a limited basis. Also, these organizations make referrals to other
North Shore social service agencies for more intensive or specialized assistance such as job training,life
skills training, and English as a second language (ESL) classes, as well as for transitional and permanent
supportive housing.
In late 2014, the Mayors of Salem and Beverly came together to create a joint task force to better
understand and address the homelessness problem. The task force is co-chaired by the two mayors and
includes representatives from city departments and service agencies. In February, 2015, Danvers and
Peabody were invited joined the task force. The Mayors’Task Force on Homelessness proposes to
analyze sub-populations of homeless people: the chronic homeless, homeless families, seniors, teens
and young adults, as well as those with substance abuse, mental health and/or behavioral health issues.
The group will also look at long-term needs for supportive housing, emergency shelter, day
programming, and other support systems.
41 U.S. Department of Housing and Urban Development Online, “Homeless Assistance Programs,” Community Planning and
Development, <http//www.hud.gov/offices/cdp/homeless/programs/index.cfm>.
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Facilities and Housing Targeted to Homeless Households
Emergency Shelter Beds Transitional
Housing Beds
Permanent Supportive
Housing Beds
Year Round
Beds (Current
& New)
Voucher /
Seasonal /
Overflow Beds
Current &
New
Current
& New
Under
Development
Households with
Adult(s) and Child(ren)54 0 0 0 0
Households with Only
Adults 34 16 0 22 0
Chronically Homeless
Households 34 16 0 22 0
Veterans 0 0 3 0 0
Unaccompanied Youth 0 0 0 0 0
Table 37 -Facilities and Housing Targeted to Homeless Households
Data Source Comments:Data provided by Lifebridge and HAWC
Describe mainstream services, such as health, mental health, and employment services to the
extent those services are use to complement services targeted to homeless persons
Lifebridge’s services (see next section below) address medical, supportive service and other needs.
Under Lifebridge’s auspices,Partners Home Care provides medical care to homeless persons, and
nursing students from Salem State University (SSU) assist homeless individuals with frostbite care at the
shelter as part of their training. Lifebridge also provides case management services that directly con nect
clients who need access to mental health care and substance abuse treatment. Also, Lifebridge acts as a
clearinghouse, referring people to other area service providers such as the North Shore Career Center,
The Salvation Army, HAWC and North Shore Community Action Programs. SSU also provides classes at
Lifebridge. In addition, Lifebridge’s staff actively conducts outreach on the streets to homeless persons.
Through a CDBG sub-grant to Lifebridge, the City partially funds a licensed nurse who provides onsite
and community based health assessments to the homeless population, including wound care, blood
pressure monitoring, nutrition and general health education. The nurse also provides outreach services
via random patrols in order to help connect unsheltered homeless individuals with needed services and
to liaise with local businesses. The Salem Police Community Impact Unit works closely with Lifebridge.
HAWC provides a wide range of services including a 24-hour crisis hotline, legal assistance and advocacy,
support groups, one-on-one counseling for women and men, and play therapy groups for children. In
FY14,HAWC’s Salem and satellite offices served 2,428 individuals from 23 North Shore/Cape Ann
communities, providing more than 4,900 units of service, not including the hotline. The hotline itself
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received and returned more than 3,000 calls. Salem residents represented 10% of the clients served and
a generally proportionate share of all of the services provided. In addition, HAWC collaborates with the
North Shore Medical Center to provide services for patients who suffer from domestic abuse.42
The City’s Veterans Services Office is the main local contact point for veterans seeking assistance. MGL c.
115 mandates programs and services to assist veterans, including financial support to low income
veterans. Financial support can take a variety of forms, including fuel and utility assistance, emergency
funds and short-term rental assistance to prevent homelessness. Chapter 115 can also provide
assistance for housing “start-up” costs, i.e., first and last month’s rent and security deposits. If resources
of other agencies are not available, Salem will provide assistance, including paying for a hotel stay if
necessary.
From 2010-2015,Journeys of Hope (JoH)ran a day program for homeless and at-risk youth ages 18-23,
based at the First Universalist Church in Salem. JoH’s program provided clients with basic hygiene needs,
a meal at breakfast, and one-on-one case sessions to define and work towards individual goals. It also
partnered with schools to provide summer programs and counselling for at-risk students,and continues
to offer vocational training in culinary arts through the Salem Charter School.
List and describe services and facilities that meet the needs of homeless persons, particularly
chronically homeless individuals and families, families with children, veterans and their
families, and unaccompanied youth. If the services and facilities are listed on screen SP-40
Institutional Delivery Structure or screen MA -35 Special Needs Facilities and Services,
describe how these facilities and services specifically address the needs of these populations.
Emergency Shelter for Individuals in Salem.Lifebridge offers 3 programs: community meals, emergency
shelter, and services. Referrals are by word of mouth, from other social service agencies, or the MA
Department of Transitional Assistance (DTA). The shelter is open 24 hours to individuals aged 18+. It has
34 beds (24 males, 10 females), and 16 additional beds during the winter. The shelter has been at or
over-capacity year-round for several years. Because of a bed shortage area-wide, staff tries to shelter as
many as is reasonable.
Lifebridge also seeks to place homeless individuals in permanent housing. Its Seeds of Hope campus has
22 congregate units (18 subsidized) of supportive permanent housing, 5 for females and 17 for males. In
2014, Lifebridge exceeded its goal by placing 64 homeless individuals into permanent housing.
Regional Facilities for Individuals.Throughout the North Shore region, the North Shore HOME
Consortium reports a total of 123 year round beds for households with only adults, 73
voucher/seasonal/overflow beds, 39 transitional housing beds, and 369 permanent supportive housing
beds.43 The nearest shelter outside of Salem is River House in Beverly,an emergency shelter for up to 34
men. Within the same facility it provides 5 residents with affordable, suppor tive housing in a congregate
42 Information provided by Nikki Whittaker-Velasque, Director of Programs, HAWC,2/25/15
43 North Shore HOME Consortium 5-Year Consolidated Plan 2015-2020
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setting. Each tenant has a private bedroom and shares a living room, kitchen, bathrooms and laundry.
Tenants receive case-management services.
The Lynn Shelter Association (LSA) operates emergency shelter, transitional and perm anent supportive
housing facilities and programs. It runs an emergency shelter at 100 Willow Street that provides beds for
up to 50 adults, with expanded capacity of 80 beds during winter. Housing and case management
programs are based at its Great Hill Residence: a veterans’stabilization program, a group home for
chronic substance abusers, and a scattered site program for persons with HIV/AIDS. LSA provides a
Women’s Transitional Housing program for 14 females, and a “Transitions” program for 30 homeless
individuals. Its Shelter + Care program provides 30 units of supportive housing for chronically homeless,
disabled individuals.
Emergency Shelter for Families in Salem.Healing Abuse Working for Change (HAWC), is an emergency
shelter for families fleeing domestic violence. It has capacity for 7 adults and 20 children. Adults
complete a 3-month program before moving to transitional housing. This stay may be extended if no
other housing options are available. HAWC provides a range of non-residential services,including a 24-
hour crisis hotline. Other services include court representation/legal services, advocacy, support groups
and 1-on-1 counseling, housing search, and child counseling and playgroups. Clients receive help with
parenting and life skills and building self-esteem.
Regional Facilities for Families.Throughout the North Shore region, the North Shore Home Consortium
reports a total of 355 year round beds for households with adults and children, 734
voucher/seasonal/overflow beds, 76 transitional housing beds, and 67 permanent supportive housing
beds.44 In addition to HAWC’s satellite facilities around the North Shore, homeless families are served by
organizations in the region, including North Shore Community Action Program (NSCAP). NSCAP provides
scattered-site emergency shelter regionally for 47 families. It leases apartments in Salem to families and
pays the rent and utilities.
The Lynn Shelter Association operates the Bridge House Shelter (11 families), Green House Shelter (21
families), and provides subsidies and supportive services to 6 families through Shelter + Care funding.
Citizens for Adequate Housing, Inc. (CAHI) provides emergency shelter and services for up to 6 homeless
families and another 4 transitional family units through its Inn-Between program. It also operates Inn-
Transition, a 6-month sober-living transitional housing facility, offering 8 units for families with
substance abuse and mental health problems. It offers parenting and basic living skills training.
Lahey Health Behavioral Services manages H.A.R.T. House, a residential program for women with
substance abuse problems and their families. Wellspring House in Gloucester also serves families
regionally, with 5 emergency family shelter units.45
44 North Shore HOME Consortium 5-Year Consolidated Plan 2015-2020
45 http://www.wellspringhouse.org
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MA-35 Special Needs Facilities and Services –91.210(d)
Introduction
Various subpopulations of Salem residents have specific housing needs and may also require special
attention due to their current or prospective service needs, including elderly, frail elderly, persons with
disabilities,substance abusers, and persons with HIV/AIDS.
An array of public, non-profit and charitable organizations provide services to Salem residents, located
both in Salem and throughout the region. Some of these organizations offer services in multiple areas
(multi-service agencies); others focus in specialized areas, such as domestic violence/abuse, youth
services, or housing.Following is a discussion of services that provide support to Salem residents with
special needs.
Including the elderly, frail elderly,persons with disabilities (mental, physical, developmental),
persons with alcohol or other drug addictions, persons with HIV/AIDS and their families,
public housing residents and any other categories the jurisdiction may specify, and describe
their supportive housing needs
Elderly and Disabled:Salem’s Counsel on Aging provides programs, activities, and services for Salem
residents who are age 60 and over and/or disabled. Services include transportation for medical
appointments and shopping, safety awareness and support programs, weekday meals, health clinic,
social and wellness programs, and a range of social services.
The North Shore Moving Market has delivered groceries to home-bound elderly and disabled persons
since 2011. They serve 170 people per month who cannot get to a food pantry on their own. (In addition
to elderly, they increasingly get requests from younger households who are out of work or need to
supplement their SNAP benefits; the North Shore Moving Market encourage s those who are capable to
visit a stationary food pantry.) The Moving Market typically obtains supplies from the food bank in
Lowell, but when they are not sufficiently stocked to fill the need, the Moving Market has to buy
groceries to bring to their clients. They are funded through CDBG, ESSP and, occasionally, small grants
from private foundations.
CAB’s Outpatient Clinic in Salem (see “Substance Abuse Services”) provides special programs for senior
and older adults.
Persons Living With HIV/AIDS:The North Shore office of the Aids Action Committee (AAC), in Lynn, is
the primarily organization that serves persons with HIV/AIDS. It provides both direct services, and client
advocacy/case management and referrals to other agencies throughout the region. Among its many
services, it provides emergency housing assistance, housing search assistance, as well as transitional,
permanent, and congregate and scattered site housing, both with and without supportive services.
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NSCAP in Peabody also provides housing-related services to persons with HIV/AIDS in the region. Of
these, 10 persons are in Salem, 6 individuals and two 2-person households.46 NSCAP coordinates its
assistance with other agencies,e.g., the AAC and the Lynn Housing Authority (LAND), whose service area
includes Salem. The services provided include housing search, rental start -up (1st month’s rent and
security deposits) and transitional (short-term) rental subsidy assistance. LAND estimates that it is
currently providing housing subsidies to 4-6 Salem households.47
Substance Abuse Services:The Salem Police Department is coordinating with the City’s Public Health
Department and service providers to address the opiate addiction crisis,seeking ways to provide access
to care for those who overdose, as well as training and prevention initiatives.Two of the region’s
substance abuse support networks, CAB Health and Recovery Services and Health & Education Services,
Inc. (HES) merged and then joined with Lahey Health in 2013. Lahey’s behavioral health services include
outpatient mental health clinics; inpatient and outpatient treatment and prevention for drug and
alcohol problems; school-based programs; and community education and prevention. A clinic in Salem
provides outpatient services and treatment for substance abuse and addiction, mental health, and for
family youth and children. Lahey also offers inpatient treatment, residential, and transitional support
programs in several facilities on the North Shore, serving both men and women, men only, adolescent
boys only, and women with children.The Salvation Army’s Salem office also refers clients to its 80 bed
Adult Rehabilitation Center in Saugus, which provides a six to nine month residential support program
for clients struggling with addiction.
Victims of Domestic Violence:HAWC provides services including a 24 hour hotline, support groups,
individual advocacy, community education, and a parent-child trauma recovery program. HAWC
collaborates with the North Shore Medical Center to provide further community education, crisis
intervention, and safety planning services. HAWC also operates a residential facility that provides
emergency shelter to individuals and families experiencing domestic violence and abuse.
Describe programs for ensuring that persons returning from mental and physical health
institutions receive appropriate supportive housing
Mental Health Services:Since the merger with CAB and HES, support services on the North Shore are
provided by Lahey Health Behavioral Services. For those in Salem who are leaving mental health facilities
or are at-risk of psychiatric hospitalization, Lahey offers in-and outpatient support programs to assist
persons with mental illnesses. The programs include addiction counseling,as well as job training and life
skills.
Part of the Lahey network, the CAB office at 41 Mason Street is a community -based Emergency Services
Program (ESP), providing a continuum of care to clients with co -occurring substance abuse and mental
health disorders. An Assertive Community Treatment (ACT) Team operates from this office and is
46 Interview with Heidi Williams, HOPWA Director, NSCAP,2/24/15.
47 Telephone interview with Harry MacCabe, Lynn Housing Authority and Neighborhood Development,2/24/15.
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available 24 hours a day for persons that require intensive outreach, assistance with medication, or
general support.
Assistance for Persons with Cognitive and Physical Disabilities:The Independent Living Center of the
North Shore and Cape Ann (ILCNSCA) provides a variety of assistance programs ,primarily focused on
independent living skills,for persons in the region with cognitive and physical disabilities. ILCNSCA offers
educational and advocacy programs,partially funded with CDBG funds,which provide information and
referral services, counseling, housing skills training and housing advocacy.
Morgan Memorial Goodwill Industries serves people with cognitive and physical disabilities by referral
from the Department of Developmental Services (formerly Department of Mental Retardation) or the
Massachusetts Rehabilitation Commission. Its clients range in age from 22 to 72 years of age. Goodwill
provides job and vocational training, and job readiness counselling. For people with severe mental
retardation, Goodwill provides a day program with job simulation activities.
Bass River Day Activity Program, Inc. offers day programs in Salem and Beverly for adults with
developmental disabilities, providing mental health care and counseling, support groups, job training
and job coaching programs.
Other regional programs include Anchor to Windward, which provides assistance to disabled adults
transitioning to independent living, particularly focusing on socialization skills and jobs education. This
program receives no public funding. Wellspring House, located in Gloucester, provides assistance
directed to assisting families and individuals (primarily those living on Cape Ann)to move out of poverty.
Wellspring also serves disabled adults referred by the Massachusetts Rehabilitation Commission.
Specify the activities that the jurisdiction plans to undertake during the next year to address
the housing and supportive services needs identified in accordance with 91.215(e) with
respect to persons who are not homeless but have other special needs. Link to one -year
goals. 91.315(e)
Salem will continue to provide grants to nonprofit agencies for social services programs s uch as
homelessness and foreclosure prevention, housing education, food distribution, homeless services, job
training, senior transportation, childcare, crime prevention, immigrant services (cultural orientation and
acclimation), ESL and citizenship education, youth activities, senior services, adult education (financial
literacy, computer training, etc.), and substance abuse prevention, and other programs that advance
self-sufficiency, reduce household financial burdens, or improve the quality of life, as well as other
special services (legal assistance, program navigation).
Examples of services the City funds with CDBG that support non-homeless special needs are food
pantries, homelessness prevention programs provided by HAWC, Catholic Charities,The Salvation Army,
and NSCAP, the North Shore CDC Family Stability Program, HAWC Children’s Program, Cerebral Palsy
Association Preschool Program, Lifebridge Medical Support Services Program, North Shore Moving
Market, Salem Community Child Care, Salem YMCA child care, Independent Living Center Accessible
Housing Education Services Program, and the Salem Council on Aging Transportation Program.
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For entitlement/consortia grantees: Specify the activities that the jurisdiction plans to
undertake during the next year to address the housing and supportive services needs
identified in accordance with 91.215(e) with respect to persons who are not homeless but
have other special needs. Link to one-year goals. (91.220(2))
See above.
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MA-40 Barriers to Affordable Housing –91.210(e)
Negative Effects of Public Policies on Affordable Housing and Residential Investment
Throughout the process of gathering input through public meetings and interviews with service
providers, business associations, and housing professionals, the City of Salem has not found indication
that housing policies have created impediments to fair housing. Subsidized and affordable housing is
located citywide, and is not disproportionately concentrated. Foreclosures and loan denials also
occurred proportionally in all areas. Moreover, Salem has not experienced neighborhood objection and
zoning practices that limit development of supportive housing for persons with disabilities. In
comparison with other towns in the region, Salem offers a greater diversity of housing, and a higher
proportion of affordable housing overall, exceeding the state's 10% affordable housing goal. Moreover,
a concentration of health and social service providers in Salem draws a disproportionate share of
persons with disabilities to seek affordable and accessible housing in the city.
Some of the factors identified in the previous Consolidated Plan in 2010 continue to contribute to the
difficulty of increasing the availability of affordable housing, including a shortage of land, lack of
regulatory tools to require affordable housing in new developments, and local government’s
dependence on the property tax to finance City services. Like other communities, Salem is no t in control
of all of these barriers, and as a result its ability to solve them is constrained by financial resources and
legal requirements.
Regulatory and Environmental Constraints
As a mature coastal city of only eight square miles, there is limited remaining developable land, and the
remaining developable land is limited by environmental constraints and regulated by zoning and other
state and federal land regulations.
Much of Salem’s developable or underdeveloped land is located in the following zoning districts:
R1 is a single family residential zone with a minimum lot size of 15,000 sf and frontage
and lot width requirement of 100 feet. These dimensions are difficult to achieve where
many of the lots are narrow.
The RC zone has a minimum lot size of 80,000 sf, minimum frontage and lot width of
200 feet, and front yard setback of 40 feet. While these dimensions are appropriate in a
conservation zone, it preserves land at the expense of development opportunities.
The R2 district allows for single and two-family dwellings on lots as small as 7,500 sf.
The R3 district allows for the construction of multi-family housing, with maximum
building height of 45 feet and required distance between buildings of 40 feet.
Multifamily dwellings in R3 on lots held under a single ownership and consisting of a
minimum of 200,000 sf may be built to a maximum height of 50 feet or 4 stories.
Downtown, the B5 district encourages urban density, scale and form appropriate for a
city of Salem’s size. Residential density is controlled by variable floor to area ratios of
3:1 to 6:1, and maximum height of 70 feet, or six stories.
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The City’s other business districts are governed by more suburban-like height and
coverage regulations, and only allow residential development in the B1 district, except
that Planned Unit Developments (PUDs) are allowed in the B2, B4, B5, Industrial,and
BPD districts.
Recent residential development has primarily been focused in the North River Canal Corridor (NRCC)
and in the downtown. Overall, the City has positioned itself to absorb redevelopment inside its
traditional core areas, consistent with smart growth principles. If Salem’s land use regulations were too
prescriptive in these locations, the City would not be able to adapt to changing market conditions and
residential preferences of changing demographics.
Due to Salem’s industrial past, most of its land –particularly in the areas that are zoned for higher
density development –is impacted by environmental contamination. Some degree of brownfield
remediation is required for almost any project throughout the city, under the oversight of MassDEP. This
impacts public projects such as park improvement, as well as private development. The requirement for
environmental clean-up increases the cost of development. The city has utilized federal and state
funding programs in the past to address brownfield sites.
Many areas throughout the city are subject to state environmental regulation through Chapter 91,
which protects the public use of tidelands and waterways, and the Wetlands Protection Act. Many
potential redevelopment areas also fall within flood zones identified by FEMA. Regulations around all of
these natural environmental conditions establish land use constraints and/or mitigation requirements,
and necessitate further levels of approval in the permitting process for proposed development projects,
depending on their location and scale. These permitting processes slow development projects and
considerably add to the cost of development. Two major housing developments currently in the pipeline
which combined would create over 250 new rental units in Salem are awaiting resolution of
environmental permitting issues.
Lack of Development Finance
While Salem has been working extensively to allow for larger mixed-use and multi-family residential
projects within its downtown area and the North River Canal Corridor, the recent recession hindered
(although not completely stopped) the development of such projects. The recession had several impacts
related to construction: first, it has caused severe constrictions in construction spending. One outcome
of this is that there are fewer developers remaining with the financial resources and access to capital,
staffing capacity and skills required to perform large scale construction projects. Second, changes in
federal regulations with respect to lending, which have remained relatively favorable toward the
construction of multi-family residential projects, have also made it more difficult for developers to cross-
leverage their existing projects in order to secure construction financing and take out loans. Third, with a
weaker market, building more expensive projects (such as those that require the construction of costly
underground parking as well as extensive design review) have become less profitable. All of these issues,
combined with high land values, and sites that entail high development costs have created b arriers to
the construction of affordable residential development at the scale needed to respond to the need.
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Public Finance and Housing Affordability
Salem has seen the value of its residential stock generally increase in the post-recession years, however
at the same time, tax rates have also been raised. In the past decade, the residential tax rate has
increased from $11.38 per $1,000 in 2005 to $16.41 per $1,000 in 2015.Two factors affect property tax
bills: the cost of municipal and school services, and the sources and amounts of revenue used to pay
them. In Salem,the increase in homeowner tax bills has less to do with growth in local spending than a
decline in nonresidential tax revenue and the amount of local aid as a percentage of the City’s budget.
Of the 348 cities and towns in Massachusetts the Department of Revenue collects data for, Salem’s
average single-family tax bill ranked 126 in the state in 2014, which is an improvement since 2009 when
it was ranked 119.Decreases in the commercial and industrial tax base have contributed to the problem
of high tax bills,along with increases in fixed costs such as health care.Salem has plainly experienced a
growing shortfall in local aid, forcing property tax payers to make up the difference.
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MA-45 Non-Housing Community Development Assets –91.215 (f)
Introduction
Since 2009, Salem has been designated as one of Massachusetts 26 “Gateway Cities”, which are
identified as mid-sized urban centers that anchor regional economies around the state and face
"stubborn social and economic challenges while retaining many assets with unrealized potential.”48
Gateway cities have been defined by the State Legislature as having a population between 35,000 and
250,000, with an average household income below the state average and an average educational
attainment rate below the state average. Since 2008, Gateway Cities have been the focus of a
collaborative effort of municipal and state leadership to research and implement innovative strategies
for economic development and revitalization.
Salem is home to a diverse workforce and varied employment base. Several economic sectors dominate
the employment opportunities within the city, like health care and educational services, while several
additional emerging industries such as local food and the creative economy need support to continue
growing and providing additional economic opportunities. Salem has a vibrant traditional downtown,
robust tourism economy based on its considerable natural, historical, and cultural resourc es, active and
growing manufacturing and construction sectors, a stable financial services sector, and a lively and ever -
growing restaurant and entertainment scene. Its workforce, which experiences lower unemployment
rates than the state and national averages, is generally well-educated across most age cohorts, but gaps
exist between the skills of the available workforce and employment opportunities, particularly within
the medical and durable goods manufacturing fields.
48 MassINC Gateway Cities Innovation Institute, http://www.massinc.org/Programs/Gateway -Cities/About-the-Gateway-
Cities.aspx
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Economic Development Market Analysis
Business Activity
Business by Sector
Number
of
Workers
Number
of Jobs
Share of
Workers
%
Share
of Jobs
%
Jobs less
workers
%
Agriculture, Mining, Oil & Gas Extraction 43 177 0.2%1.0%-134
Arts, Entertainment, Accommodations 2,739 2,791 12.6%16.4%-52
Construction 816 714 3.7%4.2%102
Education and Health Care Services 6,346 8,129 29.2%47.7%-1,783
Finance, Insurance, and Real Estate 1,809 696 8.3%4.1%1,113
Information 708 171 3.3%1.0%537
Manufacturing 1,419 754 6.5%4.4%665
Other Services 1,086 872 5.0%5.1%214
Professional, Scientific, Management Services 2,201 1,021 10.1%6.0%1,180
Public Administration 979 1,103 4.5%6.5%-124
Retail Trade 2,531 2,221 11.6%11.6%310
Transportation and Warehousing 887 179 4.1%1.0%708
Wholesale Trade 204 274 0.9%1.6%-70
Total 21,768 17,049 100%100%2,666
Table 38 -Business Activity
Data Source:Massachusetts Executive Office of Labor and Workforce Development (EOWLD)
In 2013, Salem was home to 1,318 establishments that combined for an average monthly employment
of 19,288 workers.49 Due to the seasonal nature of some sectors of Salem’s economy, the average
monthly employment experiences an uptick during the fall for the duration of the Halloween season and
a low point during January and February after the holiday season, when inclement weather and reduced
retail employment impacts the overall employment. Over the past five years, the number of
establishments and workers in Salem has remained relatively constant wi th less than a 1% increase in
the number of jobs. However, during the same time period, the average weekly wage has increased by
approximately 7.5% from $837 a week to $897.50
Table 45 reflects that there is currently a surplus of approximately 2,666 worke rs for positions in Salem;
most notably, large surpluses exists within the Finance, Insurance, and Real Estate business sectors as
well the Professional, Scientific, and Management business sectors. As these tend to be higher wage
occupations, the surplus of professionals generally employed within those sectors could impact other
industries. However, it should also be noted that there are a number of business sectors that are
49 Massachusetts Executive Office of Labor and Workforce Development, ES-202, 2013. Note: Figure presented is higher than
figure shown in table as the employment categories used by the ACS are more limited than those used by the Massachusetts
Executive Office of Workforce Development and do not fully capture the industries located within Salem.
50 Massachusetts Executive Office of Labor and Workforce Development, ES-202, 2013.
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experiencing a shortage of workers, particularly within the Education and Health S ervices Sector. The
following table denotes the largest employers in Salem for every business that employs in excess of 100
employees. The largest employers correspond to the significant numbers of jobs in health care and
education, but also demonstrate the broad range of employers within Salem including in the tourism,
retail, manufacturing, and financial services industries. However, it should also be noted that Salem, and
downtown Salem in particular, is home to many microenterprises which employ five wo rkers or fewer
and provide a large share of jobs in the city.
Largest Employers
Company Name Nature of Business Total Employees
North Shore Medical Center Health Care 3,100
City of Salem Municipal Government 1,780
Salem State University Higher Education 1,443
Spaulding Hospital for Continuing Medical Care, North Shore Health Care 576
Market Basket Food Market 475
Commonwealth of Massachusetts State Government 420
Salem Five Savings Bank Banking 320
Peabody Essex Museum Cultural/Tourism 255
Grosvenor Park Nursing Center Health Care 241
Home Depot Retail 185
Salem Glass Retail 165
Salem YMCA Social Service Agency 150
Hawthorne Hotel Lodging 150
Northeast Behavioral Health Services
Health Services
Health Care 146
Wal-Mart Retail 120
Excelitas Technologies Corp.Manufacturer 112
Jacqueline’s Gourmet Cookies Manufacturer 112
Middle-Oak Insurance Co.Insurance 110
Target Retail 110
Groom Construction Service 100
Harbor Sweets Retail 100
Shaw’s Supermarket Food Market 100
Crosby’s Food Market 100
TJ Maxx Retail 100
Thermal Circuts Manufacturer 95
Waterfront Hotel Lodging 80
Data Source:City of Salem, 2015
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Labor Force
Total Population in the Civilian Labor Force 24,509
Civilian Employed Population 16 years and over 22,007
Unemployment Rate 10.21
Unemployment Rate for Ages 16-24 28.29
Unemployment Rate for Ages 25-65 7.51
Table 39 -Labor Force
Data Source:2007-2011 ACS
While the size of the labor force has remained relatively constant since 2010, it has grown marginally by
1.4%, representing an increase of 402 employed members of the workforce.51 The unemployment rate
has also improved significantly; while the ACS 2007-2011 reported that the unemployment rate
averaged 10.2% during that time period, local data provided by the Executive Offices of Labor and
Workforce Development (EOLWD) reports that the overall unemployment rate was 8.1% in 2010,
slightly lower than the overall unemployment rate in the State of Massachusetts of 8.3% during the
same year. Unemployment has steadily decreased between 2010 and 2014; however, there was with a
slight uptick in unemployment in 2012. During the same period of time the number of business
establishments in Salem constricted. The unemployment rate subsequently decreased in both 2013 and
2014. The unemployment is currently 6% in Salem, which is on par with a 6% unemployment rate in
Massachusetts in 2014. In contrast to the overall workforce, the unemployment rate for youth was
reported by ACS at 28.3% during 2007-2011, and likely remains high.
Occupations by Sector Number of People
Management, business and financial 5,804
Farming, fisheries and forestry occupations 646
Service 2,599
Sales and office 5,492
Construction, extraction, maintenance and repair 1,229
Production, transportation and material moving 716
Table 40 –Occupations by Sector
Data Source:2007-2011 ACS
The above table reflects that there are approximately 16,486 median income workers in Salem,
representing 74.9% of the civilian workforce with the majority of remaining workers represented in low
income occupations and a minority of workers represented in high income occupations. Of those
workers, 35.2% are employed in management, business, and financial occupations; 33.3% are employed
in sales and office occupations; 15.8% in service occupations (which is notable because service
51 Massachusetts Executive Office of Labor and Workforce Development, LURR Report, 2010 -2014.
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occupations represent nearly ¼ of all jobs in Salem, meaning that roughly 10% of those jobs do not
provide median income wages)52; construction, extraction, maintenance, and repair, represent 7.5% of
occupations; production, transportation, and material moving represents 4.3% of occupations; and
finally, farming, fisheries, and forestry occupations represent 3.9% of employment. Of the latter, the
Salem Farmer’s Market is integral to helping local farmers bring their goods and products to market and
it is likely to see some increase in those occupations in upcoming years; while maritime occupations,
once a mainstay in Salem’s economy continue to experience difficulties due to economic conditions
resulting from federal regulations. With the introduction of cruise ships to Salem’s harbor,as well as the
development of trade schools and maritime programs within the North Shore Community College
system, there may be an increase in service and technical occupations related to the maritime economy
in upcoming years.
Travel Time
Travel Time Number Percentage
< 30 Minutes 12,358 59%
30-59 Minutes 5,082 24%
60 or More Minutes 3,521 17%
Total 20,961 100%
Table 41 -Travel Time
Data Source:2007-2011 ACS
During the public outreach process and within interviews, Salem’s geographic location and access issues
were repeatedly mentioned as a concern. Many of Salem’s residents live and work within Salem or
within close proximity to the city, as reflected by the table above which shows that nearly 60% of Salem
residents commute for less than 30 minutes to work. Still, access to jobs outside of the North Shore
region, particularly those in high-tech or financial service occupations which tend to be located within
Boston, Cambridge, or the northwest suburbs, remains problematic.This is due in part to the nature of
public transportation options offered by the Massachusetts Bay Transit Authority (MBTA) which links
Salem to Boston by commuter rail or ferry, but not as conveniently to other suburban locations, leading
to poor east-west transportation connections along those corridors. Further, due to high and frequently
unpredictable traffic volumes on Route 128, accessing locations to the west can create significant
commute times to high skilled jobs. Local Routes 107 and 114, which provide access to larger arteries
and highways such as Route 128, Route 1A, and Interstate 95, are frequently plagued by traffic
congestion and have many signalized intersections that lengthen commute times, contributing to the
perception of access issues in Salem. With 41% of Salem residents commuting more than 30 minutes to
work, and a full 17% commuting more than 60 minutes, transportation to work remains a challenge to
52 Massachusetts Executive Office of Labor and Workforce Development, ES-202, 2013.
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Salem residents. In addition, 68% of residents drove alone to work, 8% car pooled, 11% took public
transit, 7% walked, 4% worked from home, and the remaining 2% arrived to work by other means.53
Education:
Educational Attainment by Employment Status (Population 16 and Older)
Educational Attainment In Labor Force
Civilian Employed Unemployed Not in Labor Force
Less than high school graduate 1,292 141 827
High school graduate (includes equivalency)3,397 518 741
Some college or Associate's degree 4,944 539 762
Bachelor's degree or higher 8,034 510 1,004
Table 42 -Educational Attainment by Employment Status
Data Source:2007-2011 ACS
Forty-two percent (42%)of Salem’s workforce holds a bachelor’s degree or higher. Salem’s workforce
has a higher educational attainment than Massachusetts overall, wherein 39% of the workforce has
completed a bachelor’s degree or higher.54 Within that cohort, the unemployment rate was 2.2%, while
4.4% are not in the labor force. Twenty-eight% of the population has received some college or an
Associate’s degree; with an unemployment rate of 2.4%, this cohort experiences the highest
unemployment rate. High school graduates or equivalent represent 21% of the labor force while those
with less than a high school diploma represent 10%.[2] The lowest unemployment rate is among those
who do not have a high school diploma or equivalency, with an unemployment rate of 0.6%, and a non-
participation rate in the labor force of 3.6%. These rates are on par with all other cohorts, with the
exception of those with a bachelor’s degree or higher who are more likely to not be participating in the
labor force by will rather than necessity.
Although workers with lower educational attainment experience less unemployment, interview data
and survey responses suggest that marginal employment, leading workers to have to hold multiple jobs
in order to afford basic necessities, is routinely experienced by this cohort. This issue is especially
pronounced for members of the labor force with limited English language proficiency who find their
employment options to be limited. As many low wage earners are employed in service occupations,
instability due to the seasonal nature of Salem’s tourism economy is particularly impactful on these
populations.
53 American Community Survey, 2007-2011,DP03.
54 American Community Survey, 2007-2011, DP03.
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Educational Attainment by Age
Age
18–24 yrs 25–34 yrs 35–44 yrs 45–65 yrs 65+ yrs
Less than 9th grade 93 129 209 710 583
9th to 12th grade, no diploma 452 416 152 644 580
High school graduate, GED, or
alternative 1,851 918 1,076 2,662 2,253
Some college, no degree 2,155 1,244 1,027 2,021 708
Associate's degree 267 376 569 1,019 187
Bachelor's degree 293 2,060 1,733 2,417 493
Graduate or professional degree 79 1,116 733 1,504 489
Table 43 -Educational Attainment by Age
Data Source:2007-2011 ACS
The 24-35 year age cohort is the most well educated cohort in Salem, with 51% of residents in that age
group having attained a bachelor’s degree or higher, and 77% having attended some college or attained
an associate’s degree. Residents between 35 and 44 years of age had similar educational attainment
levels to residents in the 24-35 year age cohort, with 74% having attended college and 45%having
completed a bachelor’s degree or higher. Within both cohorts, roughly one quarter of residents had
attained a high school education or less. The least educated cohort in Salem are residents 65 years or
older; 22% did not complete high school and 65% did not attend college. This reflects cultural shifts and
economic necessities within the United States, wherein the necessity of a college education or some
post-high school specialized training is typically now a prerequisite for entry level employment.
Interestingly, within the 18-24 age cohort, 46% of residents hold a high school diploma or less and have
not attended college; while 54% of residents in that cohort have completed some college. Although
traditional students attend college during the ages represented by that cohort, it is possible this
generation will have lower educational attainment levels than previous generations, or wait longer to
further their education.
Educational Attainment –Median Earnings in the Past 12 Months
Educational Attainment Median Earnings in the Past 12 Months
Less than high school graduate 23,977
High school graduate (includes equivalency)36,898
Some college or Associate's degree 36,464
Bachelor's degree 50,076
Graduate or professional degree 63,951
Table 44 –Median Earnings in the Past 12 Months
Data Source:2007-2011 ACS
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Educational attainment has a strong impact on income earning potential, as workers with less than a
high school education earn a median income that is 38% of the median income of workers with a
graduate or professional degree. Comprising 10% of the workforce, these workers earn a median
income of $23,977. Workers with some college or associate’s degrees had median earnings that were
marginally lower than those who were high school graduates (or equivalent), which may in part be
explained by the slightly higher unemployment rate that cohort experiences. Workers with a bachelor’s
degree or higher (42% of the workforce) earn considerably more than workers with less than a
bachelor’s degree (58% of the workforce).
However, educational attainment is not the only indicator which impacts median income; household
type and marital status also has a strong correlation to median income. In 2011, married-couple family
households had a median income of $90,269 (representing 34% of all households), while family
households including married-couple households had a median income of $64,769 (representing 55% of
all households). Non-family households had the lowest incomes, with a median income of $40,630
(representing 45% of all households). The overall median household income in Salem was $56,203,55
which is significantly lower than the Area Median Income (AMI) for the Boston-Quincy-Cambridge
HMFA, which is $94,400.
Based on the Business Activity table above, what are the major employment sectors within
your jurisdiction?
By far, the largest employment sector in Salem is Education and Health Care Services, employing nearly
30% of workers and representing almost half the jobs within the city. The health care sector is
composed of 246 establishments employing 5,454 workers on average, with an average weekly wage of
$1,059, and is expected to expand in upcoming years due to need for increased medical services related
to demographic changes and planned investments.56 Subject to legal proceedings with Partners Health
Care, the North Shore Medical Center is currently planning to consolidate its in -patient care services
within Salem and construct a new emergency room, 72 private in-patient rooms, a parking garage, and a
new main entrance providing additional jobs for a diverse workforce within in an already significant
sector.Meanwhile,Spaulding Hospital for Continuing Care will be closing as of September 30, 2015 due
to a decline in occupancy.In addition to health care services, there are 22 establishments offering
educational services within Salem employing 2,675 workers on average, with an average weekly wage of
$960.57 Salem State University, a public university located in South Salem, is currently the recipient of
significant investment and is undergoing substantial construction of new residential facilities, a parking
garage, and new science labs, in addition to ongoing construction at Viking Hall and the Sophia Gordon
Center for Performing Arts. Additional investments are occurring within public, charter, and private
educational facilities within the city and the North Shore region.
55 American Community Survey (2007-2011), S1901.
56 Massachusetts Executive Office of Labor and Workforce Development, ES-202, 2013.
57 Massachusetts Executive Office of Labor and Workforce Development, ES-202, 2013.
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The second largest sector, when grouped together, is Arts, Entertainment, Accommodations, and Retail
Trade, representing 185 establishments, employing 24% of workers, and providing 28% of jobs in Salem.
Salem’s vibrant downtown, tourism industry, and reputation as a culinary destination all contribute to
the size and success of these sectors. However, these sectors tend to provide low wage occupations,
with average weekly wages of $711 for arts, entertainment, and recreation workers; $467 for retail
workers;and $355 for accommodations and food service workers; all of which fall below the $897
average weekly wage in Salem.58
Based on a significant interview process including area bankers, real estate agents, managers and
brokers, government officials, construction company executives, and rep resentatives of non-profits, a
study by the North Shore Alliance for Economic Development (commissioned by the North Shore
Workforce Investment Board) has identified the following clusters as dominant economic clusters within
the region:59
1.Health care
2.Construction
3.Life sciences/Bioscience
4.Manufacturing
5.Financial Services
6.Creative Economy
7.Tourism
8.Local Food
Investments in these sectors have been identified by local stakeholders as having great importance to
the region in providing employment, business development opportunities, and economic growth. The
sectors are widely varied and represent opportunities for individuals with diverse skills and educational
attainment levels.
Describe the workforce and infrastructure needs of the business community:
Salem’s workforce of approximately 24,509 workers spans a diverse array of industries and occupations.
Nearly eighty percent (79%or 17,126) of workers in Salem are private wage and salary workers, while
15% (3,253) of workers are employed by government and 6% (1,295) are self-employed. Less than 1% of
workers are unpaid family workers. Salem’s residents are generally well-educated, with over 42% of the
workforce having obtained a degree from a four-year college. High educational attainment is especially
pronounced within the 25-34 and 35-44 year old age cohorts (see discussion above). However, in spite
of high educational attainment levels, median incomes in Salem remain lower than the Area Median
Income (AMI) for the region. While nearly half the residents are employed in relatively well paying
occupations in health services and education, many of the other jobs offered in Salem are in lower wage
58 Massachusetts Executive Office of Labor and Workforce Development, ES-202, 2013.
59 North Shore Alliance for Economic Development.North Shore Investment Snapshot: An Economic Development Perspective.
Dec. 2014.
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occupations, such as retail or food service and accommodations. Although Salem enjoys relatively
affordable housing prices for the region, the cost of living is still a major obstacle to economic stability
for many residents working in low or moderate wage occupations.
Unemployment in Salem is lower than the state average, with residents with some college education or
an associate’s degree experiencing the highest rates of unemployment and residents with a high school
education or less experiencing the lowest rates of unemployment (see discussion above). Interview and
survey data indicate that many workers with lower levels of education work at two or more jobs
frequently for more than forty hours a week in order to be able to afford a minimum standard of living.
While the unemployment rates may be lower within that cohort, their needs are not necessarily met by
the jobs and wages offered in Salem.
When surveyed, 82 respondents (36%) felt that Salem’s local economy does not provide the types of
jobs its residents need, compared with 46 respondents (21%) who feel that it does. (43% selected “I
don’t know” in response to this question.) Most of all, respondents are concerned about the balance of
too many tourism-related or seasonal jobs in the city, and would like to see more stable year -round jobs
that provide a living wage and benefits to their employees. Respondents would li ke to see more “blue
collar” jobs such as manufacturing, engineering, or high tech industry jobs, as well as “white collar” jobs
that offer a career path for those starting at the entry level. Finally, those who complain of long
commutes to well-paying professional jobs would like to see more opportunities for “knowledge-based”
professional employment closer to home.60
Describe any major changes that may have an economic impact, such as planned local or
regional public or private sector investments or initi atives that have affected or may affect
job and business growth opportunities during the planning period. Describe any needs for
workforce development, business support or infrastructure these changes may create.
There are several critical projects occurring within Salem that may impact local employment and growth
opportunities in upcoming years. A new MBTA parking garage was recently completed in Salem which
expanded parking opportunities for both the commuter rail station and Salem’s downtown area. The
new parking facility helps provide overflow parking during evening and seasonal events, while also
providing easy access to Boston and other points on the commuter rail system. Implementation of key
recommendations of the North River Canal Corridor Plan to improve transportation safety and flow is
ongoing, which increases commercial potential of the dilapidated and underutilized structures within
that corridor. In addition, ongoing improvements to the Essex Street Pedestrian Mall should improve
retail opportunities within the corridor as perceptions of a lack of parking decrease (due in part to
“smart parking” rates and the construction of new parking garages with less expensive rates than on-
street parking) and increases in year round pedestrian activity. Finally, there are a number of large
mixed use complexes in the development pipeline allowing an increase in the residential population as
well as new commercial space to come onto the market, including a proposed mixed-use development
60 Online survey by Community Opportunities Group, Inc., November -December 2014
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to be built at the southern edge of Salem’s downtown and additional redevelopment at the “Old Salem
Jail”.Implementation of key recommendations of the North River Canal Corridor Transportation Study
to improve the roadway system is underway with the improvement of Grove Street, which will increase
commercial potential of the brownfield sites within that corridor. In addition, ongoing improvements to
the Essex Street Pedestrian Mall should improve retail opportunities within the corridor due to
increased pedestrian activity. The implementation of a new parking management system is creating
available on-street parking and decreasing the perception of a lack of parking in downtown. This will
lead to increased economic development activity downtown.
When surveyed, residents ranked infrastructure improvement to gas, sewer, water, multi -modal
transportation networks, electrical, fiber optics, and parking as the most important priority for the city’s
economic development. The next highest priority was streetscape improvements and business
retention. There is also substantial support for workforce training through schools and other existing
resources. Some respondents would like to see a shift in the types of events and programming and the
focus of business recruitment in the downtown to attract more stable, year -round activity.61
The City is dedicated to economic development through efforts to revitalize the downtown and
neighborhood commercial districts, improve exterior building facades, and assist local business owners.
Economic development funds are used to fund the Business Loan Program, Storefront Improvement
Program, and Technical Assistance Programs. An Economic Development Planner administers the City’s
financial assistance programs and provides administration to the Salem Redevelopment Authority,
which oversees the Urban Renewal Area. The Economic Development Planner has also been a point -
person coordinating all aspects of grant administration and programming with partners such as the
North Shore Work Investment Board, the North Shore Community Development Coalition, the North
Shore Medical Center, and Salem State University as part of the $105,000 “Working Cities Challenge”
grant from the Federal Reserve Bank of Boston to address poverty, unemployment, and civic
engagement in its lowest income and majority immigrant neighborhood, “the Point”. As a complement
to this program, the city continues to collaborate with partner agencies to provide technical assistance
to entrepreneurs in the Point neighborhood.
How do the skills and education of the current workforce correspond to employment
opportunities in the jurisdiction?
Educating and training residents for ever-evolving employment opportunities can be complex. Many
businesses are challenged by succession planning for the retiring workforce where it is difficult to find a
younger generation of workers with the skills necessary to take their places. In some industries,
contractions in employment and downsizing during the recent recession have shown employers they
can perform the same tasks with fewer workers; thereby reducing overall employment opportunities,
particularly within entry level positions. This has contributed to issues with succession planning as there
are fewer opportunities for entry into career paths for younger workers. Further, some industries such
61 Online survey by Community Opportunities Group, Inc., November -December 2014
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as manufacturing are experiencing labor shortages due to the lack of an adequately trained workforce.
This is in part due to technological changes, an aging workforce, and perceptions of instability which
discourage younger workers from pursuing training and employment in skilled manufacturing
occupations. Construction professionals noted that there is shortage of qualified engineers, estimators,
and construction project managers. Those working in the life sciences and biotechnology observe
difficulties in attracting businesses in that industry sector unless a busin ess owner already has ties to the
North Shore region, due to competition from Boston, Cambridge, Waltham, and surrounding suburbs.
For those working in banking, there are concerns about the future of community banks due to changes
in banking regulations and technology expenses, particularly with respect to websites. Further, it is
anticipated that bank branches will continue to close and locate farther apart as banking is increasingly
being performed online. While there are labor shortages in specific industries and technological shifts
continue to occur, the City of Salem has a well-developed economic development infrastructure to assist
business owners with a range of needs from technical assistance to accessing labor markets, maintaining
a vibrant downtown, educating and training their residents, and connecting business owners for cross -
promotion, marketing, and skill sharing.
Describe any current workforce training initiatives, including those supported by Workforce
Investment Boards, community colleges and other organizations. Describe how these efforts
will support the jurisdiction's Consolidated Plan.
The $105,000 Working Cities Challenge grant, funded through the Federal Reserve Bank of Boston
focuses workforce training, economic development, and leadership development in the Point
neighborhood, Salem’s lowest income neighborhood. The program is a partnership among the
Workforce Investment Board, North Shore Community College, Spaulding Rehabilitation Center, North
Shore Medical Center, the City and the CDC. Training focuses on the healthcare industry. Its goal is to
provide job opportunities to participants upon completion of their training. The City hopes to create a
sustainable initiative to support the job training and economic development goals and objectives.
Several organizations work with Salem on workforce development including the Enterprise Center at
Salem State University, the North Shore Workforce Investment Board (NSWIB) and the Salem Main
Streets program, among others. The Enterprise Center and NSWIB are the agencies primarily responsible
for workforce training. In addition, Destination Salem and the Salem Chamber of Commerce promote
economic development in the city to ensure a diversity of employment opportunities.
The Enterprise Center at Salem State University supports workforce and economic development through
initiatives such as business breakfasts, workshops, business plan competition, CEO groups, Million Dollar
Women, 128 Venture North Investment Boot-camp, The Growth Program, Local Food Initiative, and
non-profit programs. The Center offers certificate programs for professional development, promotes
economic development via the North Shore Alliance for Economic Development, and operates the
regional office of the MA Small Business Development Center.
The NSWIB is composed of business and community leaders from the nineteen communities that make
up the North Shore region. The board is the oversight and policy-making body for federally funded
employment and training services in the region. Its annual operating budget is $6-8 million. The board
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develops strategic partnerships with the K-12 and higher education system, government agencies,
chambers of commerce and community-based labor organizations. The NSWIB offers job training and
readiness programs that help the business community fill positions, and also administers the Career
Gateways portion of the Working Cities grant to address youth employment in the Point Neighborhood.
Partially funded by CDBG, the Salem Main Streets Program coordinates, promotes, and markets,
businesses in Salem’s downtown area, and provides technical assistance and workshops. Main Streets
follows a national model that focuses on business retention and attraction, physical design of the
downtown, promotion and marketing, and creating collaborations across business and residents. Salem
Main Streets coordinates downtown events, including Salem Arts Festival, Salem’s Farmer’s Market,
Salem Heritage Days, Salem Winter Market, Salem Holiday Happenings, and New Year’s Eve Salem. The
program is looking to increase its capacity to provide technical and financial assistance to local
businesses.
Salem supports economic development through CDBG-funded programs: the small business loan
program to support commercial revitalization and job creation for low-or moderate-income individuals;
the storefront improvement program; and the business technical assistance program which funds Salem
Main Streets. CDBG also funds public service programs that provide job training, ESL or college success
programs working toward career exploration, improved access and better skills.
The North Shore CDC’s youth jobs program recently became an affiliated member of YouthBuild USA.
YouthBuild North Shore commits to empowering young adults with the compe tency and desire to
transform their lives and improve their communities through education, employment and leadership
development.
Does your jurisdiction participate in a Comprehensive Economic Development Strategy
(CEDS)?
No
Discussion
Salem’s economy is not large or diverse enough to support all of the needs of its labor force, and there is
a less than optimal fit between labor force skills and the composition of the employment base. Salem’s
unemployment rate in 2013 was 6.9%,which was lower than the state average. The rate has
consistently declined since 2009, but remains higher than the 2000 unemployment rate of 2.5%. The
jobs-to-labor force ratio is 0.80, which means that for every person in the local labor force, the city has
0.80 jobs.62 This is an improvement from 2010, when the ratio was 0.78, but still represents a gap in
employment potential. As a result, a large number of Salem residents do not work locally.
While a decline in manufacturing has affected all regions of the state, a much smaller po rtion of Salem’s
employment base is in manufacturing than Essex County or the state as a whole. There has recently
62 Executive Office of Labor and Workforce Development, ES-202 and Unemployment Data
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been an uptick in manufacturing, which is seen as an area of growth in the local economy. The
construction trades weakened during the recession, but have also seen recent growth, largely due to
investment in educational facilities. Educational services and health care remain very strong in Salem
and are expected to continue to grow. Hospitality, food services, and entertainment also employ a la rge
number of people. Skilled workers are lacking to fill certain occupations, particularly within
manufacturing, life sciences and biotechnology, engineering, and construction.
Fewer than half the jobs available in the city pay high enough wages to support a household, even with
two workers, and the resulting mismatch is a barrier to housing affordability -particularly for those who
need to work locally because of transportation and child care constraints. The departure of large
employers has caused significant changes in Salem’s tax base. In 1983, the first year for which complete
data is available, Salem’s tax base was 49% residential, 51% commercial, industrial, and personal
property (CIP). For FY 2015, the tax base is now 84% residential, and 16% CIP.63 This shifts the burden
on residents to make up for the decline in commercial and industrial activity. Industrial property
valuation in FY 2015 is the lowest it has been since 1986, while commercial properties have fared better ,
having recovered their pre-recession value and continuing to increase in value.
Salem is well-positioned to sustain economic growth and diversification of its tax base. However, some
residents experience hardship with respect to long commutes, seasonal or unstable employment, low
wages, and linguistic and other employment barriers, while some employers have concerns about
securing well trained and reliable employees, and accessing funding for job training, capital investments
or improvements, and other financial obstacles. The city and the region have a well-developed economic
development infrastructure to promote, create, and develop opportunities, but funding remains a
continuing problem limiting their ability to assist businesses and residents at the capacity required. In a
2014 survey by the City to evaluate municipal services, Salem residents overwhelmingly rank supporting
business growth as “important” or “very important”. The Consolidated Plan will help guide investments
in economic development; however, these interests compete for very limited funding with many other
critical needs with respect to housing, infrastructure, neighborhood activity, and overall quality of life.
63 Department of Revenue, “Assessed Valuation by Class,” Municipal Data Bank.
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MA-50 Needs and Market Analysis Discussion
Are there areas where households with multiple housing problems are concentrated?
(include a definition of "concentration")
According to HUD, a “housing problem” exists when at least one of the following is true: 1) more than
30% of a household’s monthly gross income is spent on housing costs; 2) the housing unit is
substandard; or 3) the housing unit is too small to reasonably accommodate the number of household
members (more than one person per room). City-wide, many homeowners and renters face housing
problems, with the high cost of housing presenting the greatest housing problem. The Point
neighborhood is an area where a concentration of multiple housing problems exist, including high
housing cost burdens, substandard housing conditions and overcrowding.
The Point neighborhood was entirely rebuilt after the Great Salem Fire of 1914 with a mix of single-and
multi-family structures and apartment buildings on small lots. The Point is the City’s densest residential
neighborhood with approximately 33 people per acre (the City average is only 8 people per acre). Most
housing units in the Point are rental (64%), with only 17% of the units occupied by owners, significantly
lower than the City’s average of 49% owner-occupied.(Census 2010)Almost 90% of the residential
properties in this neighborhood are 2-8 family structures, compared with 21% citywide.64 The
neighborhood continues its historic tradition of providing affordable housing options for working
families. According to the Assessor, the Point’s average value of a single family property ($171,900) is
30% lower than the city-wide average ($248,650), while according to the Salem Point Neighborhood
Commercial Corridors Revitalization Plan completed in December, 2014, the average gross rent is 13%
lower than City average. However, Point residents' household incomes (median $38,635) are 31% lower
than the citywide median ($56,203)city-wide. Despite the Point’s relative affordability, 62% of
neighborhood renters and 39% of homeowners are cost-burdened, paying more than 30% of their
wages for housing costs. Moreover, neighborhood residents and advocates have observed an influx of
students living in the Point neighborhood, due to the proximity to the Downtown and to Salem State
University, placing further pressure on the housing market for traditional families.
64 Salem Assessor, FY 2014, using “EP” neighborhood boundary defined by the Assessor.
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Residents’low wages,combined with the Point’s older housing stock,result in multiple housing
problems in the neighborhood. Three out of four (75%) of the neighborhood’s housing units were built
before 1940 (compared to 57% of units city wide) and the neighborhood has a high rate of absentee
landlords, which contributes to housing maintenance concerns. Review of fire, building, and health code
violations between 2008 and 2012 indicates that 46% of absentee properties were in violation of at least
one of the three aforementioned codes.65 Common concerns include missing smoke detectors,
obstructed exits, exposed sewerage, and excessive trash/hoarding. Building department violations
include disregard for proper zoning, construction and building codes. For the Point’s lower-income
homeowners, the neighborhood’s low property values can hinder their ability to qualify for financial
assistance for home repairs since the cost of the work needed often exceeds the value of their property.
Participants in a meeting held in the neighborhood in developing this plan also indicated that
overcrowded housing conditions are occurring due to low wages.
Are there any areas in the jurisdiction where racial or ethnic minorities or low -income
families are concentrated? (include a definition o f "concentration")
As shown on the Low to Moderate Income Areas map (see Appendix), Salem has several areas (11
census blocks) where low-and moderate-income (LMI) families are concentrated. However, several of
these areas are influenced by the location of subsidized housing developments in areas that otherwise
have a fairly low density of LMI residents. One LMI area, the Point neighborhood, located directly south
of Salem’s downtown, is the City’s only racially and ethnically concentrated area where census tracts
have a non-white population of 50% or more. (See Appendix,Race/Ethnicity –Areas of Concentrated
Non-White Population map.)Nearly two-thirds (63%)of the Point’s 4,491 residents are non-white, more
65 Salem Point Neighborhood Commercial Corridors Revitalization Plan, MAPC, 2014
7%
$171,90
26%
$217,500
30%
$249,30
33%
$364,85
0%
3%
42% of residential
properties
median value = $248,650
14%
$268,00
5%
$286,45 2%
$404,900
35%
2%
0.00%
5.00%
10.00%
15.00%
20.00%
25.00%
30.00%
35.00%
40.00%
45.00%
Single Family 2-family 3-family 4-8 family condo other residential
Residential Properties Point Neighborhood
City-wide
Source: Salem Assessor, FY2014
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than double the city’s non-white population of 25%. (US Census 2010) The majority of the Point’s non-
white residents are Latino immigrants and second and older generations from the Dominican Republic,
with some new arrivals from Haiti and African countries. Approximately 35% o f Point residents do not
speak English as a primary language, compared with 26% city-wide.(ACS estimates 2006-2010) The
neighborhood’s median income is $26,483, with 33% of the households meeting poverty guidelines.
(Salem Point Neighborhood Commercial Corridors Revitalization Plan, 19: “ESRI and US Census”) While
housing units in the Point are the city’s most affordable (the average gross rent is 13% lower than City
average (ACS 2007-2011), more than half (62%) of renters and one-third (39%) of homeowners are cost-
burdened.
What are the characteristics of the market in these areas/neighborhoods?
The 195-acre Point neighborhood is distinguished by its geography, density, high proportion of multi-
family housing and masonry apartment blocks, grid-like street pattern with oversized street blocks, and
high concentration of immigrants. The neighborhood was almost completely rebuilt within the decade
after the Great Salem Fire of 1914, resulting in an architecturally -cohesive neighborhood of single and
multi-family wood frame dwellings interspersed with multi-story, multi-unit masonry apartment
buildings.Today, the neighborhood has the City’s largest concentration of multi-family buildings (only
7% of buildings are single-family dwellings) and its smallest lots (most at less than one-tenth of an acre).
The neighborhood has a high rate of non-resident owned buildings and property values in the
neighborhood are lower than elsewhere in the city.
Are there any community assets in these areas/neighborhoods?
The Point neighborhood is recognized for its rich architectural assets, significant supply of affordable
housing, immigrant–owned small businesses, access to Salem Harbor and public transportation and
close proximity to Salem State University. There are numerous community assets in the Point. The
neighborhood contains four public parks –Mary Jane Lee, Palmer Cove, Lafayette Park, and the Peabody
Street Waterfront Park. Due to the Point’s dense development pattern, most properties have very
limited outdoor space, thus the neighborhood’s public parks provide vital recreational options and
community gathering spaces. Lafayette Park allows for passive recreation with benches and pathways,
while Mary Jane Lee, Peabody Street and Palmer Cove parks all contain playground equipment for
children. Peabody Street Park also includes seating and a performance canopy, while Palmer Cove
contains basketball courts, baseball diamonds and a community garden. The City has invested in
improvements to several of these parks in the past five years. Other community assets in the Point
include the entrance to the Salem Harborwalk, which connects the neighborhood to the South River,
and the OnPoint Teen Resource Center, which provides safe recreation alternative for neighborhood
youth. The North Shore CDC recently completed renovations to its building at 104 -106 Lafayette Street,
creating space for local programming, including YouthBuild North Shore, Community English Classes,
and other local partners, like the Salem Public Schools and the Point Neighborhood Association.
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Are there other strategic opportunities in any of these areas?
Based on the concentration of LMI and minority residents in the Point neighborhood, the area is eligible
for area-wide improvements through the City’s CDBG programs, and might in the future be considered
for designation as a Neighborhood Revitalization Strategy Area which would facilitate the investment of
human and economic capital, and economically empower low-income residents through partnerships
among federal and local governments, the private sector, community organizations and neighborhood
residents.The Point was listed on the National Register of Historic Places in 2014, providing another
opportunity to access State and Federal funding programs.
In the past five years, the City has invested both CDBG and HOME funds in the Point, including funds for
housing rehabilitation, affordable housing creation and first-time homebuyer assistance. The City has
also completed infrastructure improvements to neighborhood sidewalks and streetscapes. The City is
committed to improving the Point neighborhood, recently completing several planning initiatives,
including a 2013 “Vision and Action Plan” and a “Commercial Corridors Revitalization Plan” with
assistance from the Metropolitan Area Planning Council. These plans identified numerous action items
to improve conditions in the Point, including more job training and improved access to multi-lingual
services. During community meeting held in support of this plan, neighborhood residents expressed the
need for more job training and the need for the creation of more affordable housing, citing the long
waiting list for subsidized housing units. Residents of the Point Neighborhood also suggest that a
community center for their neighborhood could provide space for ESL, adult education, food pantry,
childcare/afterschool care, and other services, as well as social meeting space.
As a means of supporting commercial and housing diversity, as well as providing housing affordable to
households of varying income levels, Actions 2.1 and 5.1 (page 57 and 59) of the Commercial Corridors
Revitalization Plan, call for the “Adopt(ing) a 40R Smart Growth Overlay District (SGOD) that will
facilitate mixed use development at higher minimum densities. This removes the need to approve
higher densities and certain commercial uses on a special permit basis;” and “…to ensure inclusion of a
minimum of 20% affordable units in residential and mixed use redevelopment projects.” Salem has
received a $30,000 award of state funds through the Massachusetts Department of Housing and
Community Development Planning Assistance Toward Housing (PATH) grant program to facilitate the
process of developing a 40R SGOD in 2015.
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Strategic Plan
SP-05 Overview
Strategic Plan Overview
The Strategic Plan outlines the City of Salem’s goals and anticipated accomplishments for th e next five
years. As required by HUD, the City has established objectives and measures for each major program
area to address the needs identified in this plan. This section also describes the City’s strategies for
removing barriers to affordable housing,reducing lead-based paint hazards and reducing the incidence
of poverty, as well as the institutional structure through which the City will implement its Consolidated
Plan.
Through the Needs Assessment process and Market Analysis,the City identified several priorities in the
areas of housing, economic development, public services and neighborhood improvements.
•Salem needs more housing that is affordable to people of all income levels and
household types, including accessible housing and housing with supportive services. The
disparity between income and the cost of housing in the city and the region and a
shortage of subsidized affordable housing units are the two greatest challenges to
meeting the needs of the constituent population.
•Salem has identified needs for social services, including transportation, nutrition,
housing advocacy, legal services, education, childcare, emergency funds for
homelessness prevention,and substance abuse prevention and treatment,as well as
programmatic navigational support for seniors and new immigrants, and access to
continuous programs and services.
•Salem residents in low-wage occupations struggle with the high cost of living, while
other residents are commuting long distances outside of Salem to reach higher paying
jobs. Job training, ESL classes, and other work-readiness programs would help to match
the available work-force with living-wage jobs in the region. Economic development
initiatives will help to increase and maintain quality employment opportunities for low-
and moderate-income residents in Salem. Business recruitment, coordination, and
technical and financial assistance will support and maintain a vibrant economy and help
to build small businesses in the city.
•Improvements to streets,sidewalks, parks, and public spaces will help to improve the
quality of life in areas of the city with concentrations of low -and moderate-income
households, as well as to improve the accessibility of the city’s public realm for persons
with disabilities.There is strong support for the completion of a new senior center.
In each of the five years covered by this Consolidated Plan, Salem anticipates receiving approximately
$953,000 in CDBG entitlement funding, approximately $88,000 in HOME funds and an estim ated
$115,000 in program income, based on recent funding levels. The total estimated five-year allocation is
$4,765,000 from CDBG, $440,000 in HOME funds and $575,000 in program income. Except for the
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projected amount of program income, these funds are conditional upon annual appropriations by the
federal government.
Salem's Department of Planning and Community Development will continue to administer CDBG funding
to address the needs identified in this Consolidated Plan, and to work with other city departments and
nonprofit community partners to create affordable housing, rehabilitate housing occupied by low -and
moderate-income households, provide access to homeownership for first-time homebuyers, support
businesses through small business loans, technical assistance and storefront improvement programs,
provide community services to combat poverty and promote self-sufficiency, and to improve
neighborhood infrastructure and public facilities in LMI neighborhoods and the downtown.
CDBG,
$952,642
HOME,
$88,295
Program
Income,
$115,000
FY16 Community Development Funding
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SP-10 Geographic Priorities –91.215 (a)(1)
General Allocation Priorities
Describe the basis for allocating investments geographically within the jurisdiction (or within the
EMSA for HOPWA)
The City of Salem typically supports programs that benefit low-and moderate-income households or
specific populations such as senior citizens, disabled persons and minorities. Although some programs
support the needs of these populations throughout the city, many activities are targeted to specific
neighborhoods that have a concentration of low-and moderate-income households. When prioritizing
activities, the City pays special attention to those low-and moderate-income neighborhoods where the
greatest needs have been identified and whose public facilities and infrastructure are in the worst
condition.In addition, the City has also undertaken improvements in the Downtown Urban Renewal
Area, which is designated as a Slums and Blight District.
A map of the 2010 Census block groups (see Appendix)is used to identify low-to moderate-income
areas. According to the 2010 Census, areas of low-to moderate-income concentration are the Point
Neighborhood, the neighborhoods along Boston Street, the area bordered by Jackson and Wilson
Streets and Jefferson and Highland Avenues, South Salem between Lafayette and Washington and Canal
Streets, a neighborhood bordered by North Street, School Street, Balcomb Street, Cushing, and Highland
Streets, and the neighborhood bordered by Winter, Bridge, Arbella and Briggs Streets and encompassing
Lee Fort Terrace,Szetela Lane and Settlers Way in Salem Neck. There is overlap between the Downtown
and the Point neighborhood, which also has the highest concentration of minority residents.
In accordance with CDBG regulation, the City can undertake specific activities,such as street, sidewalk
and playground improvements in the low-and moderate-income neighborhoods or in neighborhoods
meeting the definition of “slums and blight”. However, 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 Loan Program, and the Small Business Loan Program are offered city-wide to
allow any low-to moderate-income individual or household to take advantage of their availability.
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SP-25 Priority Needs -91.215(a)(2)
Priority Needs66
Table 45 –Priority Needs Summary
1 Priority Need
Name Affordable Housing
Priority Level High
Population Extremely Low-, Low-, Moderate-Income Households
Large Families; Families with Children; Individuals;
Elderly; Frail Elderly;
Public Housing Residents; Victims of Domestic Violence
Persons with Mental Disabilities;Persons with Physical Disabilities
Persons with Developmental Disabilities; Persons with Alcohol or Other Addictions
Persons with HIV/AIDS and their Families
Geographic
Areas Affected City-wide
Associated
Goals Affordable Housing
Housing Rehabilitation Programs
Description Preserve, expand and improve the City’s supply of affordable housing and increase
availability of decent housing that meets the needs of lower income seniors,
families, individuals, and people with disabilities, as well as transitional and
supportive housing for homeless and non-homeless with special needs.
Basis for
Relative
Priority
There is a high unmet need for decent affordable housing to serve low-and
moderate-income households who are cost-burdened or have other housing
problems, are at risk of homelessness, or trying to exit homelessness.
2 Priority Need
Name Homeownership Assistance
Priority Level Low
Population Extremely Low-, Low-, Moderate-Income Households
Large Families; Families with Children;Elderly
Public Housing Residents
Geographic
Areas Affected City-wide
Associated
Goals First Time Homebuyer Program
66 HUD’s reporting system only allows for High or Low Priority, and not Medium. Therefore a Low Priority rating
means that a need is not a high priority, but is still a priority.
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Description Increase homeownership opportunities for low-to moderate-income households.
Basis for
Relative
Priority
This continues to be a moderate priority, as the number of prospective
homeowners in Salem who qualify for assistance under a primary lender is
relatively small.
3 Priority Need
Name Economic Development
Priority Level High
Population Extremely Low-, Low-,Moderate-Income Households
Non-housing Community Development
Geographic
Areas Affected City-wide
Associated
Goals Business Technical Assistance
Small Business Financial Assistance Programs
Description Provide financial and technical assistance, design assistance, training, and location
assistance to potential or existing local businesses, including microenterprises, that
create or retain jobs for low-and moderate-income residents of Salem and
contribute to the vitality and diversity of Salem’s econo my.
Basis for
Relative
Priority
This is a high priority because creating and sustaining economic opportunity is
critical to improving the lives of low-and moderate-income residents in Salem.
4 Priority Need
Name Public Services
Priority Level High
Population Extremely Low-, Low-, Moderate-Income Households
Large Families; Individuals; Families with Children; Elderly; Frail Elderly
Public Housing Residents; Chronic Homelessness
Mentally Ill; Chronic Substance Abuse; Persons with HIV/AIDS
Veterans; Victims of Domestic Violence; Unaccompanied Youth
Persons with Mental Disabilities; Persons with Physical Disabilities
Persons with Developmental Disabilities; Persons with Alcohol or Other Addictions
Persons with HIV/AIDS and their Families
Geographic
Areas Affected City-wide
Associated
Goals Community Support Services
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Description Support community development needs by targeting resources to support the
social service needs of low-to moderate-income households and special needs
populations through anti-poverty, self-sufficiency, quality of life, enrichment and
instruction programs, including programs for immigrants, non-English speaking
residents, youth and seniors, homeless individuals and families, as well as
specialized education programs for adults.
Basis for
Relative
Priority
The Needs Analysis identified as a high priority need Community Services that
support efforts to reduce poverty, increase self-sufficiency, and improve the quality
of life for low and moderate income residents and special needs populations.
5 Priority Need
Name Neighborhood Public Facilities and Infrastructure
Priority Level High
Population Extremely Low-, Low-, Moderate-Income Households
Non-housing Community Development
Geographic
Areas Affected City-wide
Associated
Goals Neighborhood Improvements Activities
Description Focus neighborhood improvements on activities that are located in low-to
moderate-income areas and/or benefit people with disabilities.
Basis for
Relative
Priority
Improving the quality of life in neighborhoods with a high concentration of LMI
residents, and improving safety and accessibility for people with disabilities is a high
priority.
6 Priority Need
Name Downtown Public Facilities and Infrastructure
Priority Level Low
Population Non-housing Community Development
Geographic
Areas Affected City-wide
Associated
Goals Downtown Improvements
Description Focus public improvements on activities that are located in Salem’s Urban Renewal
area and/or benefit people with disabilities.
Basis for
Relative
Priority
Improving infrastructure in the Downtown continues to be a moderate priority and
will complement economic development initiatives and increase safety and
accessibility for people with disabilities.
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SP-30 Influence of Market Conditions –91.215 (b)
Influence of Market Conditions
Affordable
Housing Type
Market Characteristics that will influence
the use of funds available for housing type
Tenant Based
Rental Assistance
(TBRA)
As rental costs have been increasing faster than incomes, the supply of decent
apartments that meet housing quality standards and are affordable to low-and
moderate-income households is insufficient.
TBRA for Non-
Homeless Special
Needs
The supply of rental housing units that are appropriate for seniors, persons with
disabilities, or large families is insufficient to meet the needs of households at any
income level. People with special needs who receive tenant-based rental
assistance may have difficulty finding decent and appropriate housing that meets
their needs.
New Unit
Production
All kinds of affordable rental units are needed in Salem. Limited availability of
developable land and high development costs constrain new production of
affordable housing. Three non-profit organizations are actively seeking to build
and/or renovate buildings to increase the supply of affordable rental housing,
while the City has successfully worked with private developers to secure a
number of affordable units within major new development projects.
Rehabilitation A substantial portion of Salem’s housing is in older single-family and owner-
occupied 2-4 family homes. Many homes occupied by LMI households need
improvements to make them safe, accessible, and structurally sound. In some
cases, homeowners have difficulty accessing financing to make improvements
due to having mortgages that exceed the value of the home, or the excessive cost
of improvements needed to bring their homes up to code.
Acquisition,
including
preservation
At least two non-profit organizations are actively seeking to acquire and renovate
existing buildings in Salem to increase the supply of affordable rental housing,
and to improve the quality and condition of buildings occupied by LMI individuals
and families. Approximately 358 privately-owned affordable rental housing units
are scheduled to expire over the next five years, and may revert to market rate
unless an arrangement is made to extend their subsidies.
Table 46 –Influence of Market Conditions
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SP-35 Anticipated Resources -91.215(a)(4), 91.220(c)(1,2)
Introduction
The City of Salem receives Community Development Block Grant (CDBG) funds from HUD to benefit low -
and moderate-income persons or to prevent or eliminate slums or blight in Salem through a variety of
community development programs. CDBG is a formula-based program designed to develop viable urban
communities by providing decent housing, a suitable living environment, and expanded economic
opportunities for persons of low-and moderate-income.
In addition, Salem is a member of the North Shore HOME Consortium and receives an allocation of
Home Investment Partnership (HOME) funds from HUD. HOME funds are dedicated solely for housing
programs, and can be used to fund a wide range of activities that build, buy and/or rehabilitate
affordable housing for rent or home ownership. The City of Salem is one of 30 member communities in
the North Shore HOME Consortium. The Consortium, through its lead community of Peabody, submits a
Consolidated Plan for operating the HOME program. The City of Salem will not use HOME funds to
refinance any existing debt secured by multi-family housing developments.
Along with HUD funds, Salem's housing and economic loan programs generate program income, which
the City directs to existing or new programs as needed. Income is generated as loans are repaid or
recaptured from an assisted property or business. The City typically receives program income funds each
year and they help extend its ability to support CDBG-eligible activities.
The Federal funding that Salem will receive for FY16 includes $952,642 in CDBG entitlement funds.
Additional funds include an estimated $88,295 in HOME funds and approximately $115,000 in program
income (from housing and ED loans).
In addition to these resources, many activities leverage funding from other government and private
sources to maximize the impact of the federal dollars the city receives.
The Community Preservation Act (CPA) was adopted by Salem voters in 2012. It established a local
dedicated fund for the purpose of open space, historic preservation, outdoor recreation and community
housing projects. It is financed by a property tax surcharge of 1%, along with annual matching funds
from the statewide CPA Trust Fund. These funds can be used for a variety of purposes, including
activities that acquire, create, preserve, support and rehabilitate/restore housing for low -and
moderate-income households. An appointed committee recommends how the funds will be utilized
each year, with the City Council approving the actual funding commitments. Massachusetts CPA
regulations require that a minimum of 10% of annual CPA revenues be set aside or spent for each of the
program areas, including affordable housing, open space and recreation, and historic preservation, and
the remaining 70% may be dedicated to any eligible program area. In 2014, the first year for which the
surcharge was collected, the city raised $539,788 in local funds, and received $167,707 in m atching
funds, for a total of $709,495. In future years, the city anticipates an estimated $531,000 annually from
both local and matching funds (based on FY16 funding estimates).
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Several housing and community development programs are carried out by non -city agencies that
operate through a variety of funding resources. Together, these resources fund a wide range of activities
designed to develop and maintain affordable housing, improve neighborhood public facilities, provide
economic opportunities, improve access for people with disabilities, provide critical public services,
assist people who are homeless, and prevent homelessness. The City will continue to work with
community and regional partners to identify further funding opportunities that can be used t o support
affordable housing and other objectives served by CDBG programs, such as the anticipated National
Housing Trust Fund which will be available through the Commonwealth of Massachusetts sometime in
2016.
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Anticipated Resources
Program
Source
of
Funds
Uses of Funds
Expected Amount Available Year 1 Expected Amt
Available
Reminder of
ConPlan
$
Narrative DescriptionAnnual
Allocation:
$
Program
Income: $
Prior Year
Resources:
$
Total:
$
CDBG
Public -
Federal
Acquisition,
Admin and
Planning,
Economic
Development,
Housing,
Public
Improvements,
Public Services
$952,642 $115,000 0 $1,067,642 $3,818,568
CDBG is a formula-based program that provides
decent housing, a suitable living environment,
and expanded economic opportunities for
persons with low-and moderate income.
Housing
Trust
Fund
Public -
Federal
Acquisition,
Housing,
Other
0 0 0 0 0
Housing Trust Fund -Salem anticipates that
funding from the National Housing Trust Fund
will become available through the State
sometime in 2016. Salem would consider using
these funds for real property acquisition, site
improvements and other development hard
costs, related soft costs, or if eligible, for
supportive services for housing previously
homeless individuals or persons or households
with special needs.
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Program
Source
of
Funds
Uses of Funds
Expected Amount Available Year 1 Expected Amt
Available
Reminder of
ConPlan
$
Narrative DescriptionAnnual
Allocation:
$
Program
Income: $
Prior Year
Resources:
$
Total:
$
Other
Public -
Federal
Acquisition,
Housing $88,295 0 0 $88,295 $353,180
HOME -Estimated distribution of Home
Investment Partnership (HOME) funds through
North Shore HOME Consortium. Funds are
dedicated solely for housing programs, and can
be used to fund a wide range of activities that
build, buy, and/or rehabilitate affordable
housing for rent or home ownership.
Other
Public -
Local
Acquisition,
Housing,
Public
Improvements
$531,000 0 0 $531,000 $2,124,000
Community Preservation Act -A surcharge on
the local property tax will generate
approximately $450,000 annually with an
estimated State match of $81,000 annually,
which will be dedicated for affordable housing,
open space, recreation, and historic
preservation projects.
Other Public -
Local
Admin and
Planning $400,000 0 0 $400,000 $1,600,000 City funds for Administration & Planning
Other Public -
Local
Public
Improvements $150,000 0 0 $150,000 $600,000 City of Salem Capital Improvement Program
(based on average of prior 4 years’projects)
Other
Public -
State
Public
Improvements $275,000 $275,000
Grants from Massachusetts Office of Coastal
Zone Management for “coastal green
infrastructure” improvements to mitigate
Salem’s vulnerability to storm surges and sea
level rise.
Table 47 -Anticipated Resources
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Explain how federal funds will leverage those additional resources (private, state and local
funds), including a description of how matching requirements will be satisfied
CDBG funds will combine with local CPA funding, as well as funds from numerous other sources in order
to make projects feasible and to fulfill the goals of community development programs. In FY14, CDBG
funds leveraged an estimated $8.07 in funds from other sources for every dollar of CDBG funding. Listed
below is a summary of funds typically leveraged by each program area:
Housing
For the First Time Homebuyer Program, homebuyers provide matching funds and obtain
financing from a primary lender. Salem anticipates matching funds and financing of
approximately $131,500 in FY16, and $675,500 over the next five years.
Housing development projects undertaken by POAH and NSCDC have combined Low -
Income Housing Tax Credits and other state and federal funding, as well as private
fundraising, grants, financing, and program fees. North Shore CDC’s 77 unit Salem Point
II project to be completed in 2015 entails $18M total development cost, of which
$450,000 comes from CDBG and HOME. 27 SRO Units at Harbor-Lafayette Street are
expected to be completed in 2016, with total development cost of $4.9M, of which
$50,000 is CDBG. Additional affordable housing development projects in the pipeline
that may be completed in 2017 and 2018 will entail $35.5M total development cost,
creating more than 80 units of affordable housing.
State programs such as Get the Lead Out and MassSaves have been used to assist in
home rehabilitation.
The National Housing Trust Fund is anticipated to provide an additional resource to
support the creation of affordable rental housing. These funds are expected to be
available through the State sometime in 2016.
Economic Development
The Salem Main Streets Program leverages funds through business contributions and
donations, as well as program income from events. Annually, this program generates
approximately $20,000-$50,000 in contributions and program income, or $100,000-
$250,000 over the next five years.
The City will continue to pursue future grant opportunities such as the Working Cities
Challenge to support economic development and job training.
Neighborhood Improvements
The City’s Capital Improvement Program has contributed an average of $150,000
annually on CDBG-funded projects, resulting in a $600,000 projected spending over 5
years. Other leveraged sources include the City's General Fund, and various federal,
state and private grant or loan programs for brownfields, parks, and infrastructure
improvements. Examples have included Parkland Acquisitions and Renovations for
Communities (PARC), Environmental Protection Agency, National Endowment for the
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Arts, MassDevelopment Brownfields Assessment Program, MassWorks, and the
Massachusetts Preservation Projects Fund. The City may also seek state grants including
Green Communities, the Cultural Facilities Fund, and the Gateway Cities Park Program.
Public Services
Most of the public service agencies funded use CDBG as a portion of their overall activity
budgets. Examples of several major agency funding sources are provided in the
appendix. Other funding sources include federal and state grants, private grants and
donations, and program income.
Planning & Administration
Planning and administration funds are combined with city funds of about $400,000
annually ($1.6M over 5 years).
Additional planning funds and technical assistance have been obtained through
Massachusetts Historical Commission and Metropolitan Area Planning Council.
A listing of anticipated leveraged funds for FY16 is found in the Appendix, including anticipated funding
resources for the City of Salem as well as several key organizations.
If appropriate, describe publically owned land or property located within the jurisdiction that
may be used to address the needs identified in the plan
None have been identified at this time.
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SP-40 Institutional Delivery Structure –91.215(k)
Explain the institutional structure through which the jurisdiction will carry out its consolidated plan
including private industry, non-profit organizations, and public institutions.
Responsible Entity Responsible
Entity Type
Role Geographic Area
Served
Salem Government Economic Development
Ownership; Rental
Public Housing
Homelessness
Non-homeless special needs
Neighborhood Improvements
Public Facilities
Public Services; Planning
Jurisdiction
Bentley Elementary School Public institution public services Jurisdiction
Boys & Girls Club of Salem Subrecipient Public Services Region
Catholic Charities Subrecipient Public Services Region
Cerebral Palsy Association Subrecipient Public Services Region
Community Teamwork Inc.Non-profit
organizations
Rental
Public Services
Region
East Gate Christian Fellowship Subrecipient Public Services Region
Enterprise Center at Salem State
University
Public institution Economic Development Region
Haven From Hunger Subrecipient Public Services Region
HAWC Subrecipient Homelessness
Rental
Public Services
Region
Independent Living Center of the
North Shore & Cape Ann, Inc.
Subrecipient Public Services Region
Lahey Behavioral Health Continuum of
Care
Homelessness
Public Services
Region
Leap For Education Non-profit
organization
Public Services Region
Lifebridge Continuum of
care
Homelessness Jurisdiction
MA -DHCD Government Ownership
Rental
State
Main Streets Initiative Subrecipient Economic Development Jurisdiction
Metropolitan Area Planning
Council
Government Planning Region
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Responsible Entity Responsible
Entity Type
Role Geographic Area
Served
North Shore Community Action
Programs, Inc.
Subrecipient Rental
Public Services
Region
North Shore Community
Development Coalition
Subrecipient Rental
Neighborhood Improvements
Public Services; Planning
Region
North Shore Home Consortium Government Ownership;Rental Region
North Shore Moving Market Subrecipient Public Services Region
North Shore Workforce
Investment Board
Regional
organization
Economic Development Region
Salem Access Television Subrecipient Public Services Jurisdiction
Salem Community Child Care Subrecipient Public Services Jurisdiction
Salem Council On Aging Departments
and agencies
Public Services Jurisdiction
Salem Housing Authority PHA Public Housing Jurisdiction
Salem Police Department Departments
and agencies
Homelessness
Public Services
Jurisdiction
Salem YMCA Subrecipient Public Services Region
Salvation Army Subrecipient Public Services Region
Voces Subrecipient Public Services Region
Wellspring House, Inc.Subrecipient Public Services Region
Table 48 -Institutional Delivery Structure
Assess of Strengths and Gaps in the Institutional Delivery System
Salem’s Department of Planning and Community Development (DPCD) administers the City’s
Community Development Program as well as the formula funding received by the North Shore HOME
Consortium. Under the direction of the Director of Planning and Community Development, the Assistant
Community Development Director manages and monitors Salem’s community development programs.
Salem’s housing programs are administered by the DPCD Housing Coordinator under the direction of the
Director of Planning and Community Development. In addition, local non-profit agencies, CHDOs and
CDCs administer certain housing activities. Many housing activities leverage funds through private
lender financing.
City departments undertake certain CDBG-funded activities, such as the tree planting program, sidewalk
replacement, street paving and curbcut installation. These departments may subcontract work under
public bidding procedures and provide requests for reimbursement and any required documentation
(i.e., prevailing wage documentation) to the DPCD.
Each year the City issues a Request for Proposals to nonprofit organizations that offer social service,
housing or economic development programs. CDBG funds are awarded to organizations that
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demonstrate programmatic needs and the capacity to administer the proposed program. The City’s
Assistant Community Development Director coordinates the management of the public service and
housing subcontracts and the Economic Development Planner coordinates the management of the
economic development subcontracts.
In general, DPCD staff carries out the remaining activities, including the hiring of consultants or other
private businesses through established municipal purchasing procedures.
The City’s auditing firm audits Salem's CDBG program delivery system annually. In addition, HUD staff
conducts periodic reviews and monitorings. The City promptly implements recommendations arising as
a result of these reviews. The DPCD continuously works to improve upon its methods and procedures
for the administration of its programs.
Availability of services targeted to homeless persons and persons with HIV and mainstream
services
Homelessness Prevention
Services
Available in the
Community
Targeted to
Homeless
Targeted to People
with HIV
Homelessness Prevention Services
Counseling/Advocacy X X X
Legal Assistance X X X
Mortgage Assistance X
Rental Assistance X X X
Utilities Assistance X X X
Street Outreach Services
Law Enforcement X X
Mobile Clinics
Other Street Outreach Services X X
Supportive Services
Alcohol & Drug Abuse X X X
Child Care X X
Education X X X
Employment and Employment
Training X X
Healthcare X X X
HIV/AIDS X X X
Life Skills X X
Mental Health Counseling X X X
Transportation X X X
Other
Food Distribution/Nutrition X X X
Table 49 -Homeless Prevention Services Summary
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Describe how the service delivery system including, but not limited to, the services listed
above meet the needs of homeless persons (particularly chronically homeless individuals and
families, families with children, veterans and their families, and unaccompanied youth)
As described in the Needs Assessment section (NA-40), homelessness is a complex problem that
requires different solutions and interventions. It is rooted in many different and often co-occurring
causes: physical and mental illness, domestic violence and abuse, disability, substance abuse/addiction,
and economic conditions.The table above shows nearly every service type is available in Salem and/or
the region. This array of services assists in addressing immediate, short-term and long-term needs of
homeless individuals and families. Beyond providing shelter and services that provide immediate
assistance, various agencies provide case management and referrals to connect ho meless persons to the
spectrum of services that can aid in their exit from homelessness and entry into a more stable life.
Supportive services are part of transitional and permanent housing programs serving homeless and
formerly homeless individuals and families.
Lifebridge’s services address medical, supportive service and other needs. Partners Home Care provides
medical care to homeless persons. Lifebridge also provides case management services that directly
connect clients who need access to mental health care and substance abuse treatment. Lifebridge acts
as a clearinghouse, referring people to other area service providers such as the North Shore Career
Center, the Salvation Army, HAWC and North Shore Community Action Programs. Salem State University
also provides classes at Lifebridge. In addition, CDBG funding provides for nursing services through
Lifebridge, and Lifebridge’s staff actively conducts outreach on the streets to homeless persons.
HAWC provides a wide range of services including a 24-hour crisis hotline, legal assistance and advocacy,
support groups, one-on-one counseling for women and men, and play therapy groups for children.
The City’s Veterans Services Office is the main local contact point for veterans seeking assistance.
The Salem Community Charter School provides educational services to unaccompanied homeless youth,
and North Shore CAP provides services targeted to the homeless population as well as the mainstream
population, and help people who are homeless to access mainstream servic es.
Describe the strengths and gaps of the service delivery system for special needs population and
persons experiencing homelessness, including, but not limited to, the services listed above
Through Lifebridge, the City partially funds a licensed nurse who provides onsite and community based
health assessments to the homeless population, including wound care, blood pressure monitoring,
nutrition and general health education. The nurse also provides outreach services via random patrols in
order to help connect unsheltered homeless individuals with needed services and to liaise with local
businesses. The Salem Police Community Impact Unit works closely with Lifebridge in its outreach to
homeless individuals, especially those on the street.
The City continues to support and administer Salem H.O.P.E. (Human Organization Partnership Effort), a
network of human service providers that meets quarterly at rotating social service agency locations.
Agency representatives meet, exchange information, announcements and updates to enhance
Consolidated Plan SALEM 140
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coordination of programs. They work to fill gaps in services, avoid duplication of services, and
coordinate efforts. DPCD administers this program and produces the Salem H.O.P.E. digital newsletter
quarterly.
In late 2014, the Mayors of Salem and Beverly joined together to create a joint task force to better
understand and address the homelessness problem. The task force is co-chaired by the two mayors and
includes representatives from city departments, and service agencies. In February, 2015, Danvers and
Peabody were invited joined the task force. The Mayors’ Task Force on Homelessness proposes to
analyze sub-populations of homeless people: the chronic homeless, homeless families, seniors, teens
and young adults, as well as those with substance abuse, mental health and/or behavioral health issues.
The group will also look at long-term needs for supportive housing, emergency shelter, day
programming, and other support systems.
The primary strengths of the service delivery system is that it is comprehensive (i.e., there are public and
private agencies providing services of every type) and that the agencies are staffed by qualified and
experience personnel, as well as dedicated volunteers. In general, the private non -profit providers
receive strong community support. The major weaknesses relate to resources: inadequate funding for
programs, services and facilities; and the intractable issue of high housing costs.
Despite the comprehensive network of services available to Salem residents, numerous agencies
identified three major factors that complicate making greater progress in solving homelessness: 1) an
insufficient supply of affordable housing, 2) a lack of capacity of substance abuse/treatment programs,
and 3) inadequate access to mental health/illness facilities and programs, due to treatment policies and
funding.
Provide a summary of the strategy for overcoming gaps in the institutional structure and
service delivery system for carrying out a strategy to address priority needs
Salem and its community partners will continue to seek additional sources of funding to leverage CDBG
and HOME funds in addressing community needs. One of the objectives of the Salem-Beverly Mayors’
Task Force is to identify strategies that could potentially reduce the i ncidence of homelessness.
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SP-45 Goals Summary –91.215(a)(4)
Goals Summary Information
Sort
Order
Goal Name Start/End
Year
Category Geographic
Area
Needs Addressed Funding Goal Outcome
Indicator
1 Housing
Rehabilitation
Programs
2015-
2019
Affordable
Housing
Affordable
Housing
CDBG:
$660,000
Homeowner
Housing
Rehabilitated:
20 Household
Housing Units
2 Affordable
Housing
2015-
2019
Affordable
Housing
Public
Housing
Affordable
Housing
CDBG:
$375,000
Rental units
constructed:
56 Household
Housing Units
3 First Time
Homebuyer
Program
2015-
2019
Affordable
Housing
Homeownership
Assistance
CDBG:
$218,375
Direct Financial
Assistance to
Homebuyers:
25 Households
Assisted
4 Small Business
Financial
Assistance
Programs
2015-
2019
Non-Housing
Community
Development
Economic
Development
CDBG:
$200,000
Jobs created/
retained:15 Jobs
Businesses
assisted:
5 Businesses
Assisted
5 Business
Technical
Assistance
2015-
2019
Non-Housing
Community
Development
Economic
Development
CDBG:
$735,000
Jobs created/
retained:10 Jobs
Businesses
assisted:
50 Businesses
Assisted
6 Community
Support
Services
2015-
2019
Homeless
Non-
Homeless
Special
Needs
Public Services CDBG:
$801,250
Public service
activities other than
Low/ Moderate
Income Housing
Benefit:
45,000 Persons
Assisted
Consolidated Plan SALEM 142
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Sort
Order
Goal Name Start/End
Year
Category Geographic
Area
Needs Addressed Funding Goal Outcome
Indicator
7 Neighborhood
Improvements
Activities
2015-
2019
Non-
Homeless
Special
Needs
Neighborhood
Public Facilities
and
Infrastructure
CDBG:
$1,225,000
Public Facility or
Infrastructure
Activities other than
Low/ Moderate
Income Housing
Benefit:
8,265 Persons
Assisted
8 Downtown
Improvements
2015-
2019
Non-Housing
Community
Development
Downtown
Public Facilities
and
Infrastructure
CDBG:
$56,085
Public Facility or
Infrastructure
Activities other than
Low/ Moderate
Income Housing
Benefit:
5,055 Persons
Assisted
Table 50 –Goals Summary
Goal Descriptions
1 Housing
Rehabilitation
Programs
Offer financial and technical assistance to eligible homeowners and investor-owners to improve
housing units, including improvements for accessibility, for low-to moderate-income renters
through the Housing Rehabilitation Loan Program.
2 Affordable
Housing
Support local non-profit housing organizations and CHDOs seeking to acquire, create, preserve,
and/or renovate affordable units.
3 First-Time
Homebuyer
Program
Offer financial assistance to eligible households in the form of loans for downpayments and
closing costs through the First-Time Homebuyer Downpayment Assistance Program.
4 Small Business
Financial
Assistance
Programs
Provide a Business Loan Program and a Storefront Improvement Program for new, emerging or
expanding small businesses that create or retain jobs for low-and moderate-income workers,
address building code violations, handicapped access, and/or leverage private investment.
5 Business
Technical
Assistance
Offer technical assistance, training, design guidance, location service, and referrals for owners
of microenterprises or businesses that create or retain jobs for low-and moderate-income
workers. Provide program delivery for the business loan program, oversight of the Salem
Redevelopment Authority, and funding for the Salem Main Streets and other economic
development programs.
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6 Community
Support
Services
Provide grants to nonprofit agencies for social services programs such as homelessness and
foreclosure prevention, housing education, food distribution, homeless services, job training,
senior transportation, childcare, crime prevention, immigrant services (cultural orientation and
acclimation), ESL and citizenship education, youth activities, senior services, adult education
(financial literacy, computer training, ect.), and substance abuse prevention, and other
programs that advance self-sufficiency, reduce household financial burdens, or improve the
quality of life, as well as other special services (legal assistance, program navigation). Also
support programs that provide supplemental education and/or engagement programs to
increase public school students’ academic achievement.
7 Neighborhood
Improvements
Activities
Undertake public facility and infrastructure improvements that enhance the quality of life in
eligible neighborhoods, such as, parks/playgrounds, tree planting, lighting, signage, bike paths,
streets, sidewalks, crosswalks, pedestrian safety, trash receptacles, traffic calming, accessibility,
senior center, fire stations, schools, etc.
8 Downtown
Improvements
Undertake infrastructure improvements to support Salem’s Urban Renewal Area (downtown)
and complement ongoing Economic Development activities. Projects may include street &
sidewalk improvements, tree planting, trash receptacles, traffic improvements, lighting, signage
and open space improvements, as well as improvements to public facilities and public
infrastructure.
Estimate the number of extremely low-income, low-income, and moderate-income families
to whom the jurisdiction will provide affordable housing as defined by HOME 91.315(b)(2)
Affordable housing projects currently in the pipeline will create at least 56 new units to serve low-and
moderate-income families and individuals in the next five years.
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SP-50 Public Housing Accessibility and Involvement –91.215(c)
Need to Increase the Number of Accessible Units (if Required by a Section 504 Voluntary
Compliance Agreement)
Not applicable –The SHA is not subject to a Section 504 Voluntary Compliance Agreement.
Activities to Increase Resident Involvements
The City has actively worked to involve public housing residents and tenants with Section 8 subsidies in
the development of the Consolidated Plan and to consider their needs and comments as part of the
planning process. One of the public participation meetings held to elicit public comment regarding the
Consolidated Plan was held at one of the SHA’s larger public housing buildings and was coordinated with
the Resident Advisory Board. Public housing residents and Section 8 Voucher holders were also involved
in other public meetings, including those held at the Salem Senior Center. In addition, the DPCD staff
dropped flyers at Joseph’s Storehouse Food Pantry, and to each unit at two of SHA’s larger family
subsidized housing developments to encourage residents to take the online poll. All public notices are
provided to the SHA in English and Spanish for posting and to encourage the involvement of public
housing residents.The SHA is also provided with copies of all Consolidated Plans, Annual Action Plans,
and CAPERS.The Resident Advisory Board is actively engaged with management of the Salem Housing
Authority. A member of the RAB sits as a member of the SHA Board of Commissioners and the RAB
actively encourages resident involvement in management issues.
Is the public housing agency designated as troubled under 24 CFR part 902?
No
Plan to remove the ‘troubled’ designation
Not Applicable. The Salem Housing Authority is a well-managed public housing authority.Over the last
ten years, the SHA has received an average SEMAP (Section 8 Management Assessment Program) score
of 96.8, receiving a score of 100 in 8 of the last 10 years (2002-2012) for which data is available for its
management of its Section 8 program. The most recent PHAS Score (Public Housing Assessment System)
for the Salem Housing Authority was a 92 of a possible 100 points for FY 2012.[i]
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SP-55 Barriers to affordable housing –91.215(h)
Barriers to Affordable Housing
Throughout the process of gathering input through public meetings and interviews with service
providers, business associations, and housing professionals, the City has not found indication that
housing policies have created impediments to fair housing. Subsidized and affordable housing is located
citywide, and is not disproportionately concentrated in certain geographic areas. Foreclosures and loan
denials also occurred proportionally in all areas. Salem has not experienced neighborhood objections or
zoning practices that limit development of supportive housing for persons with disabilities. In
comparison with other cities and towns in the region, Salem offers a greater diversity of housing, and a
higher proportion of affordable housing overall, exceeding the state's 10% affordable housing goal.
Moreover, a concentration of health and social service providers in Salem draws a disproportionate
share of persons with disabilities to seek affordable and accessible housing in the city.
Some of the factors identified in the previous Consolidated Plan in 2010 continue to contribute to the
difficulty of increasing the availability of affordable housing, including a shortage of land, lack of
regulatory tools to require affordable housing in new developments, and local government’s
dependence on the property tax to finance City services. Like other communities, Salem is not in control
of all of these barriers, and as a result its ability to solve them is constrained by financial resources and
legal requirements.
Strategy to Remove or Ameliorate the Barriers to Affordable Housing
Redevelopment of obsolete residential and commercial space for new condominium or rental housing
has produced higher-end units that are not affordable to a large percentage of the City’s existing
residents. While the infusion of more people and disposable income in the downtown area supports
local economic development goals, a lack of a sufficient supply of housing for low -, moderate-, and
middle-income households may create negative social and economic consequences for the City as a
whole. The City has negotiated the inclusion of affordable housing in developments as deemed feasible
with some notable successes. Inclusionary zoning could provide a more permanent strategy to achieve
this goal, but would offer less flexibility to negotiate the best feasible public benefits.
The City is looking to adopt a 40R Smart Growth Overlay District (SGOD) within the Point Neighborhood.
Adoption of a 40R district would help encourage commercial and housing diversity in mixed-use
developments at high minimum densities, by being allowed as-of-right rather than on a special permit
basis. Under state law, a 40R SGOD district requires a minimum of 20% deed -restricted affordable
housing units. In order to fund and facilitate the process of developing a 40R SGOD, the City has
received a $30,000 award from the MA Department of Housing and Economic Development’s Planning
Assistance Toward Housing (PATH) grant program. The PATH program supports multi-family housing
proximate to existing infrastructure, community services and public transportation, as well as projects
containing ancillary commercial facilities that are secondary to the residential use of properties. The
goal of PATH is to increase the supply of multi-family, mixed-income housing across the Commonwealth
by encouraging community-based planning activities that will lead directly to housing production.
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Funding will go toward the facilitation of public meetings, solicitation of community input, and the
development and approval of ordinance language. The City envisions this process taking place in 2015.
Salem has also utilized Massachusetts’ Chapter 40B Comprehensive Permit program which enables the
City to waive local zoning requirements including density, height, and use, for developments to create
new affordable housing. For example, the City approved a “friendly 40B” proposal to facilitate
redevelopment of the former St. Joseph’s church site to create 51 units of affordable housing.
Finally,in passing the Community Preservation Act,Salem has committed locally-raised funds to
contribute to meeting affordable housing needs. These funds may be used in combination with funding
from other sources to help overcome financing barriers to facilitate affordable housing development by
public, non-profit, and private entities.
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SP-60 Homelessness Strategy –91.215(d)
Reaching out to homeless persons (especially unsheltered persons) and assessing their
individual needs
The City intends to continue funding programs that serve homeless individuals and families during the 5
Year Consolidated Plan period.
Through Lifebridge, the City partially funds a licensed nurse who provides onsite and community based
health assessments to the homeless population, including wound care, blood pressure monitoring,
nutrition and general health education. The nurse also provides outreach services via random patrols in
order to help connect unsheltered homeless individuals with needed services and to liaise with local
businesses.
The Salem Police Department, both through its normal staff complement and its Community Impact Unit
work directly with the homeless in Salem, as well as coordinating with Lifebridge to provide outreach to
homeless who may be unsheltered. CDBG provides funding via sub-grants to local and regional
organizations that provide direct services and outreach.
Addressing the emergency and transitional housing needs of homeless persons
The City expects to continue to provide CDBG funding to local and regional non-profit entities such as
Lifebridge, HAWC, NSCAP, Catholic Charities, and the Salvation Army to assist in addressing emergency
shelter and transitional housing needs, and to prevent households from becoming homeless. These
organizations 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, and housing “start -up” costs), as well as food
assistance.CDBG funding assistance is provided as a result of a Request for Proposals (RFP) process
issued by the DPCD.
Salem will also continue to participate in the Continuum of Care and lend its support to expanding
emergency shelter and transitional housing, whether in Salem or elsewhere in the region.
Helping homeless persons (especially chronically homeless individuals and families, families
with children, veterans and their families, and unaccompanied youth) make the tra nsition 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 indivi duals and families who were
recently homeless from becoming homeless again.
The DPCD both directly administers programs and provides funding to local and regional organizations
that provide programs and services to respond to or prevent homelessness. In addition to programs
described above that provide emergency shelter and transitional housing, the City awards sub-grants to
other agencies that serve specific sub-populations, such as at-risk youth, seniors, persons with
disabilities, or to residents who need ESOL, job readiness and skills training, or other anti-poverty
initiatives. Although these activities do not target homelessness per se, they aid in stabilizing individuals
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and families, thereby reducing the risk of homelessness or its recurrence. Salem intends to continue
funding these types of programs under the first and subsequent years’ Annual Action Plans. The City
makes public social services sub-grant awards via an annual Request for Proposals (RFP) process.
The Salem Community Charter School (soon to be New Liberty Charter School) reports that 30% of their
students are unaccompanied youth. The school provides academic skill, employability and personal
stability programs for these and other at-risk students, as well as partners with North Shore CDC to
provide a YouthBuild program.Since 2010,Journeys of Hope (JoH) has run a day program for homeless
and at-risk youth ages 18-23, based at the First Universalist Church in Salem. JoH’s program provides
clients with basic hygiene needs, a meal at breakfast, and one-on-one case sessions to define and work
towards individual goals. It also partners with schools to provide summer programs and counselling for
at-risk students, as well as offering vocational training in culinary arts. These programs help students
transition to independent living.
Help low-income individuals and families avoid becoming homeless, especially extremely
low-income individuals and families who are likely to become homeless after being
discharged from a publicly funded institution or system of care, or who are receiving
assistance from public and private agencies that address housing, health, social services,
employment, education or youth needs
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 lower income individuals and
families. 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 organizations report that a significant number of the persons they serve are receiving services
from agencies that 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 funded included food pantries,
child care, health screening and education, ESOL, job readiness and skills training, financial education
and budgeting, and individual counseling and support groups. The City intends to continue funding these
types of programs during the 5 Year Consolidated Plan period.
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SP-65 Lead based paint Hazards –91.215(i)
Actions to address LBP hazards and increase access to housin g without LBP hazards
The Salem Board of Health disseminates information regarding the proper disclosure of lead hazards to
property owners 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 conducts this inspection to enforce the State Sanitary Code for
Housing. When the information is sent to the landlord prior to this inspection,a letter describing the
Federal law is included, as is a copy of the Tenant Notification Form in English and Spanish. Also, the
Board of Health periodically sends notification of regulations regarding lead-based paint to area realtors.
In addition, Board of Health personnel are trained Lead Determinators.Should the Board receive a call
from a tenant who is concerned that there may be lead-based paint in his/her apartment, potentially
affecting their children under six years of age, the Board is able to sen d out a Sanitarian to conduct a
Lead Determination. If lead paint is detected, an order is sent to the landlord requiring compliance with
the State Lead Law. The Board ensures compliance with the order. The State Lead Program is notified of
the results of all Lead Determinations.
In cooperation with the State of Massachusetts and other municipal departments, the City, through the
DPCD, 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 City’s CDBG-
funded Housing Rehabilitation Loan and the State-funded Get the Lead Out Programs, the City provides
loan funds for qualified applicants for lead testing, hazard reduction and abatement activities, and
temporary relocation reimbursements. Lead-based paint hazard control measures are consistent with
the federal Title X requirements and State lead based paint regulations. MassHousing’s Get the Lead Out
Program is also available to homeowners with a lead poisoned child.
Finally, all participants in the First-Time Homebuyer Downpayment Assistance Loan Program are given a
copy of the EPA brochure Protecting your Family from Lead in Your Home.
How are the actions listed above related to the extent o f lead poisoning and hazards?
More than 80 percent of the housing structures in Salem were constructed prior to 1980, and may
contain lead paint,which was prohibited for residential use in 1978.Despite the age of the city’s housing
stock, the rate of lead poisoning in Salem is low.Over the past decade, there have been about one to
three cases of lead poisoning per year among children who were screened. The rate of lead poisoning
has improved considerably since 2001 when Salem was considered one of the state’s high risk
communities, with 24 cases over five years, averaging 4.8 cases per year.67
How are the actions listed above integrated into housing policies and procedures?
See above.
67 MA Childhood Lead Poisoning Prevention Program, Screening and Incidence Stati stics
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SP-70 Anti-Poverty Strategy –91.215(j)
Jurisdiction Goals, Programs and Policies for reducing the number of Poverty -Level Families
This Anti-Poverty Strategy describes programs and policies the City is supporting in its efforts to reduce
the number of households living below the poverty level. Some public service agency representatives
state that Salem residents in poverty stay in poverty because they lack adequate skills for better
employment opportunities. As a result, they work multiple jobs to pay for housing, utilities,
transportation expenses, and childcare. Providing adequate job training and educational opportunities
will enable them to enter the workforce at a more competitive level. Salem uses CDBG and other funds
to pursue an anti-poverty strategy carried out by the City and a variety of social service sub-recipients.
The City’s anti-poverty strategy is comprehensive and it consists of four components: education, job
training, affordable housing and social services.
Education
The Salem School Department has been participating in a voluntary desegregation program since 1987
in an effort to give residents more choices about the school system they want their children to attend.
The City has used state funding to renovate and improve its educational facilities and provide school-age
children with an environment conducive to learning. Many of Salem’s schools focus on particular
subjects. The school choice program is ideal for educating children with specific skills that will enable
them to obtain employment when they graduate. For example, the Saltonstall School is a magnet school
that focuses on science and technology. It is equipped with 140 computers for its 400 -plus students. Like
many of Salem’s schools, the Saltonstall School provides transitional bilingual classes, which integrate
English and Spanish speaking students within the classroom. This approach helps Spanish speaking
students to become proficient in English. Encouraging youths to attend service -oriented schools will
provide the future workforce with the skills necessary to find employment and reduce poverty. In
addition, the Horace Mann Laboratory School focuses not only on academics but also attempts to teach
students important social skills that will help them communicate in the working world. The school also
encourages community service by offering programs to its students within nursing homes and helping
needy families. Activities such as these help students at an early age see the importance of working and
encourage them to obtain jobs after they finish their education.
Salem’s Parent’s Information Center provides parents with information to help make educational
decisions for their children. It provides interpretation and written translation services, resources for
school information, and adult education programs. The center also provides school placement services.
The Information Center coordinates the City’s school choice program designed to improve racial balance
within the school systems. The City of Salem’s Title 1 Program provides programs such as Computers for
Beginners for parents of school-age children. This type of program is designed to help low-income
families who may not otherwise have access to computer training. The City’s attention to its public
schools is part of a larger strategy to help children succeed academically and in the work place. An
adequate school system is crucial to reducing poverty in future generations. The Salem Public Schools
support bilingual classroom settings and technology-based training that will enable those with lower
incomes to improve their job opportunities.
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In FY15, the City supported various educational programs with CDBG funds, including the Bentley
School’s After School Enrichment Program that requires a mandatory 20 -30 minutes of homework time
followed by other educational and/or physical activities. Programs administered by non -profit agencies
include Salem Cyberspace’s CyberYouth Academic Program (College Success Program), a program that
assists lower income youth with career exploration and college preparation. The Boys and Girls club
offers one-on-one homework help each day after school. North Shore Community Development
Coalition provides a Family Stability Program that provides workshops on ESL, tax return preparation
and FTHB education to a mainly Latino population. VOCES provides GED and Citizenship classes to lower
income Latino residents.It is anticipated that these or similar programs will be assisted over the next
five years.
Job Training and Employment Resources
The North Shore Career Center helps potential employees to improve their skills and meet the needs of
the job market. The Career Center receives funding from federal, state and local resources to provide
free job placement, job training and job readiness. With the continued support of the City of Salem, the
Career Center helps economically disadvantaged populations receive specific skills to obtain better
paying jobs.
Salem is home to Training Resources of America (TRA)-formerly Mass. Job Training, Inc.-a private non-
profit organization funded by various state and federal agencies. TRA offers programs such as basic adult
education, GED preparation and ESL classes. TRA also has programs to help young parents receive an
education that they might otherwise not be able to receive because they are disadvantaged. The
program offers a basic education and pre-vocational skills training to help adults obtain better
employment and reduce dependence on public assistance. Job training and ESL classes help to
strengthen and diversify the City’s labor force by providing opportunities for lower-income people to
advance in employment.
The City is the lead community for the North Shore Workforce Investment Board (NSWIB), representing
19 surrounding communities. The DPCD has a seat on the Board and represents the economic
development sector on the North Shore. The NSWIB directs federal, state and local employment and
training funds so that job seekers can find training and employment, and businesses can find employees
that are skilled and ready to work.Through partnerships with schools, colleges, training providers, public
organizations and businesses, the NSWIB builds and supports a workforce development system that
serves all members of the North Shore community.68 The NSWIB assists over 14,000 employers, schools
and agencies, adults, and youths each year with job screening services, labor needs programs, job
training, career training and other services. The NSWIB is also responsible for administering the
F1rstJobs Summer Employment initiative for North Shore Teens. F1rstJobs places North Shore youths in
jobs that will provide them with important job training and skills that will be useful in the future when
68 North Shore Workforce Investment Board, “Mission Statement,” <http://www.northshorewib.com/>
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applying for employment. Other programs include Training for Employed Workers, Training for
Displaced Workers, School to Career, Welfare to Work and Workforce Investment Act.
In early 2014, Salem was awarded a $105,000 Working Cities Challenge grant, a groundbreaking effort to
support cross-sector collaboration in the state’s small to midsize Gateway Cities. The Working Cities
Challenge is an initiative led by the Federal Reserve Bank of Boston with a twofold goal: to advance
collaborative leadership in Massachusetts smaller cities and to support ambitious work to improve the
lives of low-income people in those cities. Salem’s funds are being used to bring the Point
neighborhood's economic indicators in line with rest of the city by focusing on four issue areas:
economic development, small business development, workforce development, and leadership
development.
Through its CDBG funds, the City of Salem also supports job training and employment assistance
programs, such as the Wellspring House MediClerk Program which trains eligible participants for clerical
positions in the medical field.
Affordable Housing
Through cooperative efforts with state, federal and local organizations, the City has taken a
comprehensive approach to preventing poverty. Providing adequate, affordable housing for Salem’s
low-and moderate-income residents is critical to the success of any anti-poverty strategy. High housing
costs and low-wage jobs continue to hinder the efforts of some to climb out of poverty.Agencies such as
the Salem Housing Authority and the DPCD are committed to providing safe, secure, suitable, and
appropriate 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
together 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.
The North Shore HOME Consortium’s goal is to expand the regional supply of affordable housing
through the acquisition, rehabilitation, and new construction of rental units, homeownership assistance
and housing rehabilitation, and housing options for special needs populations and the homeless. The
DPCD is one of thirty member communities receiving a formula allocation of HOME funds. Salem is
committed to distributing its HOME funds to programs that provide assistance to those in need of
affordable housing. Some examples of HOME assistance in Salem include funds for the City’s own
Housing Rehabilitation Loan Program,acquisition and redevelopment of affordable housing by the
North Shore Community Development Coalition (a CHDO) and rental down payment assistance
programs provided by NSCAP, Citizens for Adequate Housing, Salvation Army and HAWC. In addition to
funds allocated to individual communities, the Consortium financially supports activities that contribute
to affordable housing in the region.
Salem provides significant funds to community housing development organizations (CHDOs), specifically
North Shore CDC and NSCAP. CHDOs are focused on changing the social and environmental factors that
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foster poverty and in motivating low-income residents to take control of their future and the future of
their neighborhoods. North Shore CDC works to increase the supply of affordable housing through
acquisition and rehabilitation projects. The CDC works closely with public and private agencies to
improve the quality of life for Salem’s low-and moderate-income residents.
NSCAP is an anti-poverty agency providing services to Salem, Peabody, Beverly and Danvers. The goal of
NSCAP is to help low-income people empower themselves as they move toward self-sufficiency, and to
motivate the larger community to be more responsive to the needs of low-income people. This agency
provides an array of services, such as assistance with home heating bills, ESOL and citizenship classes,
home care for senior citizens, weatherization, a housing assistance program, and a transition to work
program with job training, financial management services, scattered sites shelter, and job-readiness
workshops, as well as immigration, housing and welfare advocacy. These programs are designed to help
the poor become self-reliant and less dependent on public assistance.
Salem's Housing Coordinator periodically participates in regional workshops and forums to address
issues around fair housing, equal access, housing rights, and first time homebuying, and other housing
concerns that impact low income residents, sponsored by agencies such as the Metropolitan Area
Planning Council, North Shore CDC, North Shore United Way, CHAPA, NSCAP, and the Aging and
Disability Resource Consortium of the Greater North Shore, Inc.
Social Services
According to the 2010 U.S. Census, 1,656 female single parents have dependent children under 18.69 The
challenges facing this population are inadequate, affordable childcare choices, a lack of jobs that provide
“mother’s hours” and insufficient transportation opportunities. The Massachusetts Office of Child Care
Services’ Region 3 office is located in Salem. It provides childcare referrals and financial assistance. The
agency provides a way for lower-income families to obtain adequate daycare so they can obtain
employment and improve their quality of life.
Through CDBG, the City funds 20-25 non-profit social service programs annually. Through an annual
competitive funding round, Salem financially supports programs that provide services to he lp families
meet the costs of living, promote family self-sufficiency, serve special populations and/or provide crisis
intervention assistance –in essence, programs that work to break the cycle of poverty. Along with the
many programs that help directly with housing and household expenses, 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 and 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.
Salem H.O.P.E. is a networking group of social service agencies that me et at rotating public service
agency locations. Open to all social service agency representatives serving Salem residents, it is a forum
69 U.S. Census, 2010 SF1 100% Data: Households and Families: 2010 -American Fact Finder, http://factfinder.census.gov.
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to work toward filling gaps in services and avoiding duplication of efforts. DPCD staff coordinates the
quarterly meetings and distributes the Salem H.O.P.E. digital newsletter quarterly.
In addition to the above, based on the concentration of LMI and minority residents in the Point
neighborhood, the area might in the future be considered for designation as a Neighborhood
Revitalization Strategy Area which would facilitate the investment of human and economic capital, and
economically empower low-income residents through partnerships among federal and local
governments, the private sector, community organizations and neighborhood residents.
How are the Jurisdiction poverty reducing goals, programs, and policies coordinated with this
affordable housing plan
See above.
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SP-80 Monitoring –91.230
Describe the standards and procedures that the jurisdiction will use to monitor act ivities
carried out in furtherance of the plan and will use to ensure long -term compliance with
requirements of the programs involved, including minority business outreach and the
comprehensive planning requirements
The DPCD monitors all projects to ensure compliance with applicable Federal, State and local regulations
and program requirements.
As part of ongoing monitoring, public service sub-recipients submit monthly reports that include
income, race and ethnic information on clients served and programmatic accomplishments. In addition,
public service sub-recipients are monitored on-site each year (exceptions are noted in the Monitoring
Plan in the Appendix). 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 HQS. All tenant based rental assistance
provided with HOME funds requires an inspection with a HQS report. Monitoring of affordable housing
loan activities undertaken with CDBG or HOME funds for compliance with affordability requirements
and/or other programmatic requirements is discussed in full in the Monitoring Guide, included in the
Appendix of the Consolidated Plan. Monitoring of economic development activities undertaken with
CDBG funds for compliance with Davis-Bacon and job creation is discussed in full in the Monitoring
Guide. There is also a Loan Management Policy for dealing with delinquent or in default housing or
economic development loans.
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
reimbursement requests by subrecipients and reviews timeliness status weekly until the annual 1.5
draw ratio is met.
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Appendix –Table of Contents
Appendix 1 –Maps
Appendix 2 –Citizen Participation Plan
Appendix 2 –Public Comments
Part 1) Public Participation Process
Part 2) Review of Draft Plan
Appendix 3 –Other Resources
Appendix 4 –Monitoring Guide
Appendix 5 –Alternate/Local Data Sources
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Appendix 1 –Maps
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CPD Maps -Consolidated Plan and Continuum of Care Planning Tool
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Appendix 2 –Citizen Participation Plan
Rev. March 13, 2014
A Citizen Participation Plan sets forth the policies and procedures for citizen participation in the
development of the five-year Consolidated Plan,annual action plans and annual end of year
reports.The Citizen Participation Plan is designed especially to encourage participation by low-and
moderate-income persons,particularly those living in areas where Community Development Block
Grant (CDBG)funds will be used,as well as minorities, persons with disabilities,residents of public
housing and other interested citizens.
Salem’s first Citizen Participation Plan was adopted in March,2000,following a training session
conducted by the Coalition for Low-Income Community Development,Inc.This plan is based on
information collected during that training,as well as the following sources:U.S.Department of
Housing and Urban Development (HUD)or National Community Development Association (NCDA)
sponsored trainings/meetings ;24 CFR 91.105 in the Consolidated Plan Regulations;and
recommendations from other communities and HUD representatives.
The Citizen Participation Plan is typically reviewed and updated prior to the start of the five-year
Consolidated Plan process.It was revised in March,2005 and again in October,2009. A not less than
fifteen-day comment period is advertised whenever the Citizen Participation Plan undergoes
significant amendments.
A comment period for the Citizen Participation Plan updated in March,2014 was advertised on March
20, 2014.
The Citizen Participation Plan is arranged as follows:
1.Assessment of priority needs
a.Consolidated Plan
i.Factual Data Collection
ii.Community input
b.Action Plan
2.Advertisement,location and format of public hearings &meetings
3.Preparation of the Plan
4.Availability of Documents
5.Draft plans -Consideration of comments
6.Citizens Advisory Committee
7.Application for Federal Funds Approval
8.Funding Requests
9.Technical Assistance
10.Action Plan Amendments
11.Consolidated Plan Amendments
12.Consolidated Annual Performance and Evaluation Report (CAPER)
13.Additional Efforts
14.Complaints
The tasks outlined in this plan may be undertaken by staff of the City of Salem Department of
Planning and Community Development or by a consultant hired during the Consolidated Plan process.
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1.ASSESSMENT OF PRIORITY NEEDS
a.Consolidated Plan
Salem undertakes a housing and community development needs assessment every five
years as part of the Consolidated Plan process in order to identify and prioritize the
housing,community and economic development needs of the city’s residents.The City
specifically targets the following groups for intensive outreach and involvement in the
development of the Consolidated Plan:
Low and moderate income persons;
Persons with HIV/AIDS and HIV/AIDS service providers;
Homeless and homeless service providers;
Senior citizens and senior service providers ;
Minorities;
Non-English speaking residents;
Residents of public assisted housing and the Salem Housing Authority;
Community Development Corporations and residents served;
Mental &physical health agencies;
Substance abuse prevention agencies;
Salem Health Department;
Youth advocacy groups;
Persons with disabilities and service providers for persons with disabilities;
Economic development/job creation agencies;and
Banks,realtors and other community businesses.
Specific types of data to be collected through the needs assessment shall include:
Elderly and non-elderly homeowner and renter needs;
Special needs of the elderly,frail elderly,persons with alcohol/other drug
addiction,disabled persons,persons with disabilities (mental,physical,
developmental,persons with HIV/AIDS and their families);
Homeless needs for individuals and persons in families with children including;
Needs for emergency,transitional and permanent housing;
Estimated supportive services slots for job training,case management,
substance abuse treatment,mental health care, housing placement and
life skills training;
Estimated needs of chronic substance abusers,seriously mentally ill,
dually-diagnosed,veterans, persons with HIV/AIDS,victims of substance
abuse and youth;
Community needs including anti-crime programs,economic development,
infrastructure, public facilities,public services, senior programs and youth
programs;
Poverty;and
Barriers to affordable housing.
Factual data collection and community input methods will include:
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i.Factual data collection
Factual data to be used in the needs assessment will include information found in
the most recent U.S.Census and other available publications including, but not
limited to,Home Mortgage Disclosure Act, State Unemployment Insurance,
property assessments, building permits, National Low Income Housing Coalition’s
annual Out of Reach report,Dun and Bradstreet,real estate transactions and the
N.S.Home Consortium (Analysis to Impediments, Continuum of Care and any
available Consolidated Plan data).
ii.Community input
Whenever possible,citizen participation will include presentations at:
Public hearing(s);
Neighborhood Association meeting(s);
Salem Housing Authority Tenant’s Association;
Commission on Disabilities;
Affordable Housing Trust; and
Focus groups (i.e. Economic Development,social service groups).
Citizen participation will be encouraged through a variety of methods,including
but not limited to:
Legal advertisement in the Salem News;
Posted flyers at the Salem Public Library,Salem Council on Aging,Salem
Housing Authority, Salem City Hall and Salem City Hall Annex;
Flyers sent to social service agencies,civic groups,the N.S.Home
Consortium,as well as other Salem locations;
Salem H.O.P.E.distribution list;
Notification to the Salem City Council;
The City’s official website,www.salem.com;
Press release to local media;and
Salem Access Television community calendar.
Citizen Participation will also include interviews with representatives of various
local agencies,such as but not be limited to those serving the elderly,non-
English speaking, homeless,substance abusers,veterans,youth,persons with
disabilities (mental,physical, developmental, persons with HIV/AIDS and their
families), and agencies that provide job training and placement,Lifebridge,the
North Shore CDC,Salem Council on Aging, Salem Housing Authority,Salem
Health Department,municipal inspection service departments (i.e. building &
fire)and local businesses.
b.Annual Action Plan
At the commencement of the Annual Action Plan process (during each of the four years
between the Consolidated Plan process),citizen participation efforts will be undertaken in
order to evaluate how Salem’s housing and community development needs and priorities
have changed since the completion of the prior Consolidated Plan and to assess any new
information received.Citizen participation will be encouraged through a public hearing,
legal advertisements in the Salem News,Salem Access Television notice and posted
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flyers at the Salem Public Library, Salem City Hall,Salem City Hall Annex,
www.salem.com and the Salem Housing Authority,as well as other locations.In addition,
citizen participation efforts may include neighborhood meetings and/or focus groups and
notification in newsletters (i.e.Salem Chamber of Commerce, Salem H.O.P.E.).
2.ADVERTISEMENT,LOCATION AND FORMAT OF PUBLIC HEARINGS &MEETINGS
Public hearings will be advertised in the Salem News,on Salem Access Television,through
English/Spanish notices posted at the Salem Public Library,Salem Housing Authority,Salem
Council on Aging,Salem City Hall and Salem City Hall Annex,and on www.salem.com.Salem
News legal ads and SATV ads shall be provided to these media approximately two weeks prior
to the hearing.In addition,advertisement may include one or more of the following:notices in
various community newsletters (e.g., Salem Chamber of Commerce)and through a press release
distributed to the Salem News,Salem Gazette and/or Salem Patch.Public hearings will be held at
120 Washington Street,which is accessible to people with disabilities and located on or near
the bus lines and MBTA train station.Whenever possible,a Spanish translator will be present.
One public hearing will be held at least 30 days prior to the completion of the Draft Consolidated
Plan or Annual Action Plan (usually at the start of the annual process).During this hearing,
citizens will be given opportunity to review prior year program performance.One public hearing
will be held at least 30 days prior to the submission of the final Consolidated Plan or Annual
Action Plan.
Forums and focus group meetings will be held at various locations and times appropriate to the
type of group,population or neighborhood. Forums,focus groups and other meetings may be
adve rtised in the Salem News,on Salem Access Television,through notices posted at the Salem
Public Library,Salem Housing Authority,Salem Council on Aging,Salem City Hall and Salem City
Hall Annex,and on www.salem.com.In addition, advertisement may include one or more of the
following:posted flyers at elderly and public assisted housing,notices mailed to nonprofit
social services agencies,notices in various community newsletters (e.g.,Salem Chamber of
Commerce)and/or through a press release distributed to the Salem News,Salem Gazette and/or
Salem Patch. Forums and focus groups targeted to specific neighborhoods may include
distribution of flyers to those targeted populations.Such flyers intended for Point Neighborhood
residents shall also be provided in Spanish.Neighborhood meetings in the Point Neighborhood
will be conducted by bilingual staff.
Senior transportation is available by contacting the Transportation Coordinator of the Salem
Council on Aging at least two days in advance.Persons with other special needs should contact
the DPCD for reasonable accommodation and provide ample time for the request to be arranged.
3.PREPARATION OF THE PLAN
Following the Needs Assessment,the Consolidated Plan and/or Annual Action Plan will be
drafted.The Draft will set priorities and will provide for the development of funding decisions
based on plan priorities.Included in the plan will be the required HUD forms, data,maps,
narratives,illustrations and photographs.The plan will include the amount of assistance that
Salem expects to receive,including grant funds and program income,the range of activities
that may be undertaken and an estimate of the low and moderate income persons to benefit
from the proposed activities.
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4.AVAILABILITY OF DOCUMENTS
All public documents are available for viewing at the Department of Planning &Community
Development (DPCD).A copy of the Citizens Participation Plan,Draft and Final Consolidated
Plan,Draft and Final Annual Action Plan and Draft and Final Consolidated Annual Performance and
Evaluation Report (CAPER)will be provided to the Salem Public Library and the Salem Housing
Authority.Notice of the availability of these documents will be included with the notice of
their respective comment periods,and with notice of any public hearings or meetings,and will be
published in the Salem News.Additional notice will be posted at Salem City Hall,Salem City Hall
Annex,the Salem Public Library,the Salem Council on Aging and the Salem Housing Authority.
Copies of any CDBG or HOME related public document exceeding 10 pages will be provided
upon request at a cost of 20¢per page,free for documents under 10 pages.Full copies of
documents are available free by e-mail,as well as on computer disks when the disks are provided
by the requester.In addition,copies of these documents will be available for download at no
charge on www.salem.com.Final copies of all plans and reports shall be provided to HUD.
5.DRAFT PLANS –CONSIDERATION OF COMMENTS
All comments received will be reviewed by the Director of the De partment of Planning and
Community Development,Assistant Community Development Director and the city’s consultant (if
one has been engaged),but may also be reviewed by the Citizen’s Advisory Committee and the
Mayor.The City of Salem will consider any comments or views of citizens received in writing,or
orally at any public hearing in preparing the final Consolidated Plan.All comments suggesting
amendments to the drafts that are considered reasonable,feasible and consistent with HUD
regulations will be incorporated into the final plans.A summary of public comments or views,and
a summary of any comments or views not accepted and the reasons therefore,shall be attached
to the final Consolidated Plan.
6.CITIZEN ADVISORY COMMITTEE
The Citizens Advisory Committee (CAC)is a group of individuals appointed by the Mayor.The CAC
usually includes one City Councilor and one or more of the following:representative(s)from
low/mod neighborhoods,representative of a non-profit agency,disabled person, elderly person,
minority person,representative of a Salem business,person on public assistance,and/or
public employee (i.e.police officer,teacher).The group reviews the funding requests (see Section
8)received by nonprofit social services agencies and makes funding recommendations.The CAC
also reviews and comments on the draft Consolidated Plan.
7.APPLICATION FOR FEDERAL FUNDS APPROVAL
Prior to submission to HUD,copies of the Consolidated Plan and/or Annual Action Plan will be
provided to the City Council,along with a copy of the Application for Federal Funds. The City
Council will vote to approve the submission of the Application for Federal Funds.The Application
for Federal Funds will be signed by the Mayor and included in the submittal to HUD.
8.FUNDING REQUESTS
Annually,the City of Salem will issue a Request for Proposals (RFP)for funding applicatio ns.
RFPs issued may be to solicit public services, housing and/or economic development funding
requests.Awards are conditional upon available funding.
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Funding assistance for Public Services is awarded on a competitive basis in annual funding
rounds,which are advertised in the Salem News.Guidelines for the Public Services Program are
provided in a separate document.Proposals will be reviewed by the Citizens Advisory
Committee and awards are made on approval of the Mayor.
Applications for city-administered programs (First Time Homebuyers Loan Program,Housing
Rehabilitation Loan Program and Economic Development Loan Program)are available at the
DPCD and may be submitted at any time.Guidelines for these programs are provided in a
separate document.Approval of these loans is contingent upon meeting eligibility requirements
and the availability of funding.Applications may be placed on a waiting list,if necessary,to
accommodate current staffing or funding levels.
Persons, businesses or agencies seeking assistance for other types of assistance (i.e.housing
development, or redevelopment)should contact the DPCD.
9.TECHNICAL ASSISTANCE
Individuals,businesses or agencies needing technical assistance to apply for CDBG or HOME
funds or for other assistance regarding CDBG or HOME funded programs may contact the DPCD
for consultation.First Time Homebuyer and Housing Rehabilitation Loan Program technical
assistance will be provided by DPCD housing staff.New applicants should meet with DPCD
housing staff after reviewing the application guidelines.
Business establishment and business loan application assistance will be provided by the
Economic Development Planner.Any person may request a free copy of the Doing Business in
Salem Guide,which explains how to open a business in Salem and provides other helpful
information for businesses and developers.
Assistance to public service agencies will be provided by the Assistant Community Development
Director.Agencies receiving CDBG public services funding are required to attend a brief
training meeting prior to the start of the funded program.
All other questions or requests for information or assistance should be directed to the
Community Development Director or Assistant Community Development Director.
10.ACTION PLAN AMENDMENTS
Amendments proposed for the HUD-approved Annual Action Plan will be evaluated and
addressed as follows:
Minor amendments:Minor amendments will be undertaken as necessary with no public
comment. Examples of minor amendments include but are not limited to:
Increase of the budgeted funds for an existing activity in the Annual Plan;
Cancellation of an activity that was determined ineligible,infeasible or no longer a priority;
Addition of emergency activities (interim assistance);
Decrease of the budgeted funds for a loan program activity for which there have been
few or no applicants;or
Addition of an activity that meets the established goals of the Annual Plan and whose
proposed budget is under $50,000.
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Substantial amendments:Legal advertisements will be placed in the Salem News for all
significant amendments, providing 15-day comment period. Examples of significant amendments
include but are not limited to:
Addition of an activity with a proposed budget of over $50,000.
11.CONSOLIDATED PLAN AMENDMENTS
Amendments proposed for the HUD-approved Consolidated Plan will be informally reviewed by
Community Development staff with staff of the HUD field office ,after which a course of
action for citizen participation will be determined.At a minimum,substantial amendments
shall provide for a public hearing and shall allow for a period of not less than 30 days to receive
public comment on the substantial amendment before the amendment is implemented.A
substantial amendment to the Consolidated Plan shall include but not be limited to,the addition
of a set of goals or an activity not previously included in the plan whose proposed budget is over
$200,000 and/or the addition of a Section 108 Loan Guarantee application for an activity not
previously included in the plan.The City of Salem will consider any comments or views of
citizens received in writing, or orally at public hearings,if any,in preparing the substantial
amendment to the Consolidated Plan. A summary of public comments or views, and a summary
of any comments or views not accepted and the reasons therefore,shall be attached to the
substantial amendment to the Consolidated Plan.
12.CONSOLIDATED ANNUAL PERFORMANCE AND EVALUATION REPORT (CAPER)
The CAPER must be submitted to HUD within 90 days after the end of the program year (June
30th), providing a detailed description of CDBG and HOME funds used during the fiscal year
and to what extent they benefited low and moderate income people.Legal notice of the
availability of the draft CAPER and 15-day comment period is advertised in the Salem News
and is posted at Salem City Hall and Salem City Hall Annex and onwww.salem.com.The City of
Salem will consider any comments or views of citizens received in writing or orally at public
hearings,if any,in preparing the CAPER.A summary of public comments or views,and a
summary of any comments or views shall be attached to the final CAPER.
13.ADDITIONAL EFFORTS
Citizen participation in CDBG activities is not limited to the formalized procedures noted above.
Various CDBG activities include separate public comment opportunities as well as public
participation (e.g. neighborhood and school groups are often recruited to design and build
playground equipment installation projects).In addition,City administrators (Mayor,City
Councilors and/or DPCD staff)are often in attendance at various neighborhood association
meetings where needs and proposed or planned activities are discussed.In fact,City Councilors
have been instrumental in the formation of new neighborhood associations and groups,and
the DPCD has been involved in the formation of neighborhood master plans,revitalization plans
and strategies.City representatives are available to meet with residents and business or agency
representatives on an individual basis to receive input on needs and ideas for CDBG activities.
Additionally,there are various organizations,committees and groups from which input is
gathered.These are particularly important forums where one voice may represent many
individuals or population groups.Included are Salem H.O.P.E.,the Homeless Outreach Program
Advisory Committee,the Commission for Disabilities,Neighborhood Improvement Advisory
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Council,the Salem Partnership, Salem Main Streets Initiative and the Salem Chamber of
Commerce:
Salem H.O.P.E.:Salem H.O.P.E.(Human Organization Partnership Effort)is a networking
group of human service agencies that serve Salem residents.It is an open public 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 that serve Salem residents 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 DPCD provides staff administration and produces a Salem
H.O.P.E. quarterly newsletter,which is distributed via e-mail.Salem’s Assistant Community
Development Director attends all Salem H.O.P.E.meetings.Agencies wishing to be included
on the Salem H.O.P.E.mailing list should contact the Assistant Community Development
Director.
Homeless Outreach Program Advisory Committee:This forum provides another opportunity
for input on Salem’s social service needs.The Committee meets once per month during
April,July and September at 120 Washington Street.This group is an advisory group to
Lifebridge’s Street Advocate,who outreaches to homeless individuals encountered in the
Salem Central Business District. The Street Advocate works with the individuals to alleviate
homeless-related problems with pedestrian,visitor and commercial activity (panhandling,
public drunkenness,etc.)and to connect these individuals to shelter,transitional housing,
substance abuse treatment and other services.The Committee includes representatives
from the DPCD,downtown business community,Lifebridge,Salem Main Streets
Initiative,the Salem Police Department and other interested individuals.Salem’s Assistant
Community Development Director attends all Steering Committee meetings.
Commission on Disabilities:The Commission on Disabilities is a Mayor-appointed,City
Council-confirmed board whose seven members meet monthly to advise the City on issues
relative to persons with disabilities.
Neighborhood Improvement Advisory Council:The Neighborhood Improvement Advisory
Committee works to identify and review issues that affect Salem neighborhoods and to work
for the City to address them and improve the overall quality of life.NIAC is comprised of the
President (or designee)of each neighborhood organization with the City of Salem.
Salem Partnership:The Salem Partnership is a public/private sector coalition of local leaders
who contribute time,energy and special resources to revitalize Salem.The Salem
Partnership sponsors, supports and encourages the creation of programs and events that
help promote new business development,the growth of Salem’s tourist industry and unity
within the community.The DPCD’s Director is on the Executive Committee of the Salem
Partnership.
Salem Main Streets Initiative:The Salem Main Streets Initiative is a preservation-based,
volunteer-driven strategy for downtown and neighborhood retail business revitalization.The
mission of the Salem Main Streets Initiative is to help plan and direct those activities that
preserve, develop and enhance the economic,social and cultural quality of the city's
downtown and neighborhood commercial districts. A representative of the DPCD attends
Main Streets board meetings and various subcommittee meetings.
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Salem Chamber of Commerce:The Salem Chamber of Commerce is an independent
association of business and professional people which offers business referrals,networking,
participation in cooperative business building events, updates on local business issues
through a monthly newsletter and breakfast meetings.The DPCD’s Director is a member of
the Chamber’s Board of Directors.
To keep the public informed of CDBG activities,the City of Salem periodically advertises the
availability of loan funds as well as publicizes successful projects and programs through press
releases,brochures,flyers and/or newsletters for specific CDBG sponsored projects,programs
and events.
The City of Salem makes every effort to minimize displacement of persons and to assist any
persons displaced.A copy of the City of Salem’s Optional Relocation Assistance Policy for persons
utilizing the Housing Rehabilitation Program is available at the DPCD.
14.COMPLAINTS
Complaints should be addressed to the Director of Planning and Community Development ,
City of Salem,120 Washington Street,Salem,MA 01970,978 619-5685,Fax:978 740-0404.
The City of Salem will provide a written response to written complaints within 15 working days,
where practicable.
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Appendix 3: Public Comments
Part 1 –Public Participation Process
Notes from Public Meetings
As part of the process to update the Consolidated Plan, public input was sought from residents,
businesses, social service organization and various stakeholders.A series of nine community meetings
and focus groups were held throughout the city. The meetings were held at the Salem Housing
Authority, at neighborhood meetings within specific wards with large LMI populations, in the City Hall
offices, at community organizations, and at Salem State University to reach as broad of a population as
possible. The focus groups targeted persons with disabilities, housing providers, businesses and seniors.
Individual stakeholder interviews were conducted with city staff, social service providers, residents,
business owners, and other persons and organizations familiar with local needs. Below is a summary of
each meeting.
MEETING ON MONDAY,10/20, 6:00 PM, WITH POINT NEIGHBORHOOD ASSOCIATION
19 attended,including 1 city councilor,the city’s Latino Affairs Coordinator and at least one
representative from NSCDC.
Meeting Description:Presentation by COG with translation, followed by question &comment period.
Note cards were provided for those who did not have a chance to express all of their comments.
(Comments that received the strongest endorsement among meeting participants are highlighted in
bold.)
Housing:
Need for more rental housing –more affordable housing of all kinds (including SROs).
Especially to serve the lowest income category.Waiting list for Housing Authority is 5-7 years
or longer. Issues with supply and affordability.
Housing conditions: Overcrowding due to high rents. Old housing stock is not adequate for
needs of disabled.
Financial barriers to homeownership and to fixing up properties. Work needed to bring homes
up to code exceeds value of house.
Fair housing: Salem has concentrated areas of poverty and race
Difficulty of accessing programs due to regulations and lack of awareness. Not enough
capacity/funding for the amount of need.
Public Services:
Many critical services are outside the neighborhood (COA, food pantry). Access is difficult.
Transportation is needed, as is locating more services within the neighborhood.
Loss of local food pantry (moved to Highland Ave) left a void in the community. Loss of holiday
assistance –turkeys, gifts, coats and winter gear, backpacks. Need for more volunteer/vehicle
capacity for food delivery to homebound residents.
Lack of access to health care –facilities are too small.
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Need for more affordable child care, translation services, and ESL –Long waiting lists for these
programs.
Orientation/immersion classes, cultural transition support for new immigrants
Alcohol and drug addiction services needed.
Economic Development:
Neighborhood/City has mostly small businesses, offering little in the way of employment. Large
employers have left.
Language, transportation, and childcare are the greatest barriers to full time/quality
employment.There are long wait-lists for existing ESL and childcare services. Non-English
speaking residents also have difficulty accessing career services such as North Shore Career
Center.
Neighborhood Improvement:
Neighborhood infrastructure needs improvements, including parks, tree planting, lighting,
sidewalk repairs, curbcuts and accessibility improvements. Bricks popping up. CDC is awaiting
trash barrels to be provided by City.
Environmental contamination is present throughout the City.
A community center is a major need for meeting space and to provide services such as ESL,
immigration transition assistance,social club meeting space,childcare and after school play
space.
Note Cards
1) Housing for elderly people with very low income. Too long waiting list for Section 8 or housing.
2) Community Center to help people came from other country and teaching English, CDBG, and all other
class that can help for the future.
3) Social club for people to play in winter time.
4) Community Center will help the community resident to attend and help with language. It will also
help with the need of
-Food pantry
-ESL
-Social meeting space
-How to integrate into the community situation and can go to the center to expres s their situation.
-Affordable housing for single individual who is now doubling up.
5) People looking to expand lunches etc. for lads (used to work with Ms. Campbell) Friends of Mary Jane
Lee Park: Doreen Thomas, Linda Locke. Toy drives too, backpacks.
6) Food Pantry close to the very-low income area (Point).
7) (in Spanish) I applied for an apartment in this building, 135 Lafayette, and they said that I was not
eligible. I have Section 8. Then they said I was on the waiting list.
8) (in Spanish) 62 years and I am waiting for an apt. I do not have a job nor anything [I have been waiting
one year]
9) (in Spanish)We need a place to live. The waiting list is very long.
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MEETING ON TUESDAY,10/21, 1:30 PM /AFFORDABLE HOUSING SERVICE PROVIDERS FOCUS GROUP
7 attended, including 1 from NSCDC, 2 from ILC, 1 NSCAP, 1 resident, and the City’s Housing
Coordinator
Meeting Description:Brief presentation by COG, followed by question & comment period. Attendees
were asked to indicate priority concerns using 4 red dots per person, and funding priorities using 4 green
dots per person. Comments in bold received 4 or more dots.
Changes over the past 5 years:
Some affordable housing has been developed, but supply does not meet the demand.
Increases in families with children and adults with disabilities. (1 green dot)
Increase in lower middle income households.
Increased sensitivity to housing as a civil right, and the need for individualized accessibility.
Increasing issues with bed bugs, mold, etc, problems related to aging buildings, and persons
with multiple chemical sensitivity.
More students moving into the Point neighborhood, due to landlord marketing and improving
perception of neighborhood. (1 red dot and one green dot)
Housing needs:
Huge demand for extremely low income.
Homeless youth (ages 16-23)–especially teenagers with disabilities and LGBT (4 red dots and
3 green dots)
Priority housing vouchers for people stuck in nursing homes –lack of vouchers and lack of
appropriate housing (3 red dots, one green dot)
Eviction prevention and rent assistance (currently working) (3 red dots, 3 green dots)
Weatherization, energy efficiency, & fuel assistance –currently insufficient to meet demand,
and people don’t know about the programs or need help with application process. (1 red dot, 1
green dot)
Administrative barriers for both private financing & refi, as well as subsidized housing programs;
need for interagency communication. Example –people who lack secure housing cannot be
contacted when they are offered a unit or voucher after 7-10 or 10-15 year waiting lists.
Gap in services for people who are “moderate” income. Gap in fair market rents for
low/moderate income.
Transitional housing & homelessness
o Additional units. Housing First. (4 red dots)
o More opportunities for support -job/skill training (2 green dots)
o Diminishing access to acute care for adults and children may increase need for
transitional and permanent housing.
o Need for transitional units for youth & women (1 red dot, 2 green dots)
Need for 2 bedroom units, especially for seniors who do not live alone (have spouse and/or
caregiver). Design issues with 1 bedroom/studio units –mandate to live alone. (3 green dots)
Family housing & extremely low income units; Permanent housing for homeless population –
especially those leaving foster care. Adolescents and adults. (3 red dots, 5 green dots)
Deleaded 3-4 bedroom units extremely rare in Salem
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Fair Housing:
City of Salem tries harder and is more inclusive than some other places in the region. (2 red
dots, 1 green dot)
Perceived landlord discrimination against people with mental illness, vouchers or subsidies,
children, disabled, LGBT populations.
Perceived discrimination & generally bad treatment by some housing-and social service-
providing agencies.
Public Services:
Access to legal assistance (discrimination, housing issues, etc.)
Substance abuse (4 red dots)
MEETING ON TUESDAY,10/21, 4:00 PM WITH COMMISSION ON DISABILITIES
9 attended,including a City Councilor and the City’s HR director.
Meeting Description:Brief presentation by COG, followed by question & comment period.(Comments
that received the strongest endorsement among meeting participants are highlighted in bold.)
Housing:
Need accessibility accommodations in Housing Authority units –flashing fire alarms and
doorbells for blind or deaf tenants, and door openers to get into the buildings.
Program to retrofit units (public and privately-owned) to make them functionally accessible to
occupants. Individual customization.
Approximately 20% of City is disabled; should have commensurate proportion of accessible
housing units (Housing Authority and affordable housing.) More units are needed.
Fair Housing:
Shortage of appropriate housing for the disabled.
Public Facilities and Services:
Need for more curbcuts and more functional design of handicapped accessible pedestrian
infrastructure throughout the city (especially in places where there have not been recent or
planned major street improvements). Talking signals, tactile curb cuts, & s ignage.
Maintenance of accessibility features on City properties. Ensure that elevators are functioning
and correctly labeled in braille. Safety strips on stairs.
More accessible equipment in playgrounds. Picnic tables are under discussion. (l acking an
inventory of specific needs.)
Project Safety Net [Project Lifesaver] is an important program –need to do more to get the
word out about it. Probably underutilized because people aren’t aware of it.
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MEETING ON TUESDAY,10/21 AT 7:00 PM, WITH WARD 4 NEIGHBORHOOD ASSOCIATION
12 attended, including 2 city councilors
Presentation by Police Chief preceded CDBG discussion
Talked with residents about crime and traffic safety in the neighborhood.
Need for more drug prevention education in school-aged population. Drug problems increasing
significantly among teens and young adults.
Meeting Description:Brief presentation by COG, followed by question & comment period. Attendees
were asked to indicate priority concerns using 4 red dots per person, and funding priorities using 4 green
dots per person.Comments in bold received 6 or more dots.
What brought them to this neighborhood:
Family-oriented, sense of community, long-time residents.
City’s history, opportunity to live in historic home, quality of housing stock.
Changes in recent years:
Increased absentee landlords owning multifamily properties –related to increase in property
values.
Less maintenance –especially by absentee landlords
Increased traffic, need for street & sidewalk maintenance
Housing needs:
Affordability for young families (4 red dots, 4 green dots)
Lack of housing diversity, unaffordable.
Elderly people can’t afford to move (1 red dot)
Condition of housing owned by absentee landlords; owner occupants are caring for their homes.
(2 red dots, 1 green dot)
Overcrowding by multigenerational households and unrelated individuals –i.e. students/young
adults. (2 red dots)
Code violations, illegal units (sometimes the only ones that are affordable). (2 red dots)
Need to address homelessness –especially young, also older men and women. People are
camping out in the woods. Panhandling. (1 red dot, 1 green dot)
Fair Housing
City is relatively welcoming; receiving regional population of at risk communities through
homeless shelters, group homes, rehab, health services, and gateway communities programs. (1
red dot, 1 green dot)
Landlords take advantage of people in poverty of all races –a class issue, rather than targeted
discrimination.
Economic Development
Poor job prospects locally –most people have long commutes to Waltham, Boston, etc. Less
quality employment in town. (1 red dot, 1 green dot)
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Need for more vocational training for trades,especially young adults, such as for medical
support staff, technicians.Vo-tech school in Peabody has limited capacity, and there is lack of
apprenticeships to complete training in trades. (2 red dots, 3 green dots)
Some training programs offered by Workforce Investment Board and Wellspring House. Student
demand fluctuates seasonal (due to relative availability of low-skill jobs in the summer.) (1 red
dot, 1 green dot)
Neighborhood Improvements
Thank you for Gallows Hill Gazebo. Rest of park needs help. (Upper Gallows Hill) Playground
equipment is unsafe.
Sidewalks and streets are in poor condition. Previous tree planting program on Boston Road
did not succeed. (7 red dots, 6 green dots)
Pedestrian safety: lighting along sidewalks, pedestrian lights, illuminated crossings,
handicapped accessibility, curb cuts (4 red dots, 3 green dots)
Bike lanes (1 green dot)
Public Services
Code enforcement and health department –important, doing a good job
Daycare, preschool, after school care; affordable and skilled (4 red dots,3 green dots)
o Especially for children with disabilities,special needs, or health issues (3 red dots, 7
green dots)
Senior center –elder services, transportation, public health, meal delivery, activities, etc. (3
red dots, 4 green dots)
Public health & disease control (1 red dot, 4 green dots)
Services for adolescents with mental health issues (1 red dot, 2 green dots)
MEETING ON WEDNESDAY,10/22,8:00 AM, SALEM CHAMBER OF COMMERCE
Approximately 20 Chamber of Commerce Members attended.
Meeting Description:Regularly scheduled COC meeting with short presentation by COG followed by 20
minute question & comment period.
Economic Development:
Current economic development activities funded by CDBG in the City of Salem were well
supported by the Chamber of Commerce.
Continued and sustained funding in the Main Streets program is critical to the business
community and was the highest priority for the group.
Ongoing and increased support for the programs run in partnership by the city and civic groups
such as public art, the Farmer’s market, events, and other activities is well supported.
Increasing support for businesses outside of October was named as a high priority.
There was some disappointment expressed that the City has been successful in funding large
projects but not the ongoing maintenance, which was particularly troubling in areas where
character is being lost when maintenance does occur –such as cobblestone sidewalks in poor
repair being repaved with asphalt or street trees needing maintenance.
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MEETING ON WEDNESDAY,10/22, 8:30 AM /ECONOMIC DEVELOPMENT FOCUS GROUP
Attendees included 3 staff from Salem Department of Planning & Community Development, and
Director of Main Street Salem.
Meeting Description:Brief presentation by COG, followed by question & comment period.
Business Environment in Downtown Salem
Downtown has grown more stable over past 5 years. Steady foot traffic.
Was attracted to Salem by strength of local economy. Outside perception that Salem is thriving.
Concerned by vacancies on Essex Street walking mall. Front Street is a stronger location, more
visible.
Recent discussion regarding reopening of traffic on Essex Street, question about revising signage
versus wayfinding.
City administration and Chamber of Commerce are supportive of Main Street organization.
Employment/Hiring
Challenge for restaurants to find/keep good staff.
A lot of businesses are owner-staffed.
Aspirations for Downtown
City’s goal is lifting quality of retail available in Downtown through improving quality of retail
tenants.
Looking for suggestions on recruitment. Current retail mix is a challenge –difficult to find
appropriate businesses for open storefronts.City has tried to work selectively with businesses to
encourage them to relocate or establish in the downtown.
2007 downtown retail study, City is looking to update. Point Retail study recently completed by
MAPC. Need more data on the number of businesses in downtown, job creation and loss
numbers, and information on second-story businesses.
Part-time event coordinator for Main Street could facilitate more downtown events.Has
(unsuccessfully) sought funding for an additional part time position to work with Main Street
organization.
Several business groups in Salem, including Chamber of Commerce, Destination Salem, and Salem
Partnership. Effort needed to brand Main Street organization.
MEETING ON WEDNESDAY,10/22,10:30 AM, CITY OF SALEM STAFF & DEPARTMENT HEADS
11 attendees from City of Salem departments.
Meeting Description:Brief meeting with city staff and department heads. Featured short verbal
presentation and question/answer portion.
Housing:
Housing values are increasing as are deferred tax payments.Rents are also noticeably increasing.
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Significant increases in homelessness, particularly among youth, has been seen in Salem.
Another shelter is needed to handle overflow, provide transitional housing, and serve currently
underserved homeless populations (youth, women –with or without children).
Public Services:
Continued funding for walking police patrols is desirable.
Salem serves as a receiving area for social services and continued and increased support for
those services will be necessary.
Neighborhood Improvement:
Development of pedestrian routes & corresponding signage could be desirable.
Handicap accessibility and improving park features (water access, electrical, facilities
maintenance) are desired.
MEETING ON WEDNESDAY,11/5, 6:00 PM,WITH SOUTH SALEM NEIGHBORHOOD ASSOCIATION AT
SALEM STATE UNIVERSITY
5 attended,including Salem State staff liaison for international community
Meeting Description:Brief presentation by COG, followed by question & comment period. Attendees
were asked to indicate priority concerns using 4 red dots per person, and funding priorities using 4 green
dots per person. Comments in bold received 3 or more dots.
Housing:
Absentee landlords are not keeping up their properties. Need to improve landlord relations with
their neighborhoods. (2 green dots)
Housing is becoming less affordable, especially for renters. This affects households at various
income levels, not only low income.People can’t keep up with rent increases.(1 red dot)
Overcrowding is an issue, especially where students are sharing apartments. (1 red dot and 1
green dot)
Long waiting lists for appropriate housing for seniors –not only subsidized housing. Also market
rate units.
Lack of short term housing for people moving to Salem. (1 green dot) Short age of rental housing
in general –not enough vacancies in the rental market. This is particularly a problem for Salem
State faculty who cannot find housing when they come to the university.
Discrimination on the basis of race. Landlords less willing to rent to international students of
African descent seeking rental housing off campus.
Some landlords hesitant to rent to families with children because of quality/condition of housing
units (i.e., number of bedrooms, fire escape egress)
More housing similar to SRO’s are needed.(1 red and 2 green dots)
Public Services:
Affordable afterschool programs are needed. Seeing an increase in “latchkey” kids, with both
parents working. (1 red and 1 green dot)
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The city needs to provide more education about service programs.For example, marketing
directly to landlords programs to improve housing. (1 red dot)
Programs for new immigrants
Drug/Alcohol/substance abuse treatments (1 green dot)
Sex education and programs for teen pregnancy prevention (2 red and 1 green dot)
Services for teen parents (2 red dots)
Economic Development:
Many Salem residents commute long distances for jobs. Best employers locally are North Shore
Medical Center, and Salem State.
Many local jobs are low-paying service sector jobs.
Limited English proficiency is a barrier for new immigrants.The city will need to address growth
of other language populations besides Spanish.ESL education is needed.Parent education
through schools can also help.(1 red dot)
Skills training and education are important –as currently being provided by community colleges
and vocational programs. (1 red dot)
Transportation is needed.
Neighborhood Improvement:
Street lighting is needed (2 red dots)
Forest River Park (which is outside of eligible neighborhoods) is used by people throughout the
city. (1 green dot)
Pot holes (1 green dot)
Need for street trees –especially appropriate plantings on Lafayette Street.(3 red dots and 3
green dots)
Trash bins everywhere, but especially Lafayette and Canal Streets; litter is a p roblem, especially
in Point Neighborhood, where there are absentee landlords, and around sub shops and
convenience stores. (1 green dot and 1 red dot)
Need for streets to be striped –especially Lafayette, Linden, and the bridge going to
Marblehead. (1 green dot and 1 red dot)
Pedestrian safety, especially on Loring. Need for striped crosswalks. (2 green dots)
Online Survey results
To augment the outreach process, the City conducted an online survey in English and Spanish (also
available in a hard copy format),available between October 21, 2015, and November 22, 2015. Overall,
315 people completed the survey in English, and 3 people completed it in Spanish. (One of the Spanish-
speaking respondents did not complete the survey past the Demographics sectio n, and a second only
competed through the Housing section.)
Demographics
257 respondents identified themselves as residents of Salem. 53 people skipped the question, and 5
people were not Salem residents. All of the Spanish language respondents were Salem residents.
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Most of the respondents (75%) have lived in Massachusetts for 20+ years. 84 respondents have lived in
Salem for 20+ years, while 100 replied that they have lived in Salem for less than 5 years. 115 have lived
in the same house for 1-5 years, while only 50 have lived in the same house for more than 20 years. The
Spanish-speaking respondents all lived in Salem for 1-5 years.
Neighborhoods where Respondents Live
Neighborhood English Spanish
Bridge Street Neck 7 2%
Castle Hill 12 4%
Derby Street Neighborhood 41 13%
Downtown Salem 19 6%
Gallows Hill 9 3%
Greater Endicott Street Area 16 5%
Highland Avenue 14 6%
Mack Park 5 2%
McIntire Historic District 39 13%
North Salem 33 11%
Salem Common 28 9%
Salem Willows 7 3%1
South Salem 41 13%
The Point Neighborhood 14 5%1
Vinnin Square 7 2%
Witchcraft Heights 7 2%
Other/Unsure/Skipped 16 6%1 (Salem Heights)
The largest proportion of respondents (100, or 30 percent) were aged 41-55, followed by 69 aged 56-65,
and 59 ages 31-40. About 15 percent of respondents were younger than 30, and 13 percent were older
than 65. 60 percent of respondents were women, while 3 respondents identified their gender as
“other”. Of the Spanish-speaking respondents, two were men and one was a woman.
Race/Ethnicity of respondents:
Race/Ethnicity English Spanish
White 280 94%1
Black/African American 3 1%
Multi-Race 7 2%1
Prefer Not to Say 8 3%1
Hispanic 14 5%3
Not Hispanic 242 90%
Prefer Not To Say 14 5%
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Household Composition
Respondents were asked to describe their households. The largest share were single generation family
households with no children under age 18 living in the home. These included couples without children
(95), empty nester parents (29), totaling 40 percent o f respondents. 74 households, or 24 percent, are
families with children under the age of 18. 13 percent of those with children indicated that they are
single parents. Of the Spanish-speaking respondents, two are families with children under the age of 18,
both of whom are two-parent households.
Nonfamily households comprised 26 percent of respondents, including 71 who live alone, and 8
unrelated people living together.
A notable portion of intergenerational households (12 percent in total) indicate people who may be
doubling up because of the lack of affordable or appropriate housing to meet their needs. This includes
20 parents with adult children living at home, 4 adults with parents 65 and over living in their homes,
and 5 households with 3 or more generations living together. One of the Spanish-speaking families has
adult children living at home.
Most respondents live in small households. In addition to those who reported living alone, 134
respondents (43 percent) listed 2 persons in their households, while 91 respondents listed 3-4 persons
(29 percent). 13 respondents (4 percent) live in large households with 5 or more persons. Of the
Spanish-speaking respondents, two have 3-4 person families, and one has 5 or more persons.
53 respondents (17 percent) indicate that there are people over the age of 65 in their households, while
14 respondents (5 percent) include persons with disabilities. One of the Spanish-speaking households
has seniors, while two have minors.
Household Income
31 respondents, or 12 percent indicated that their household income is under $30,000, while 28 percent
(75 respondents) have incomes between $30,000 and $75,000. 116 respondents, or 44 percent, have
incomes above $100,000, while 40 households (15 percent) have incomes between $75,0 00 and
$99,999. Of the Spanish-speaking respondents, one has a household income of less than $20,000, one is
between $20,000 and $40,000, and the third preferred not to say.
Housing
80 percent of respondents own their own homes, while 53 respondents (20 p ercent) are renters. Both of
the Spanish-speaking respondents are renters. (The third respondent did not complete any more of the
survey from this point.)
Those who rent were asked to indicate their reasons for renting (respondents could choose more than
one reason). Many indicated barriers to ownership due to affordability or the availability of appropriate
housing: that they would like to own a home but can’t afford a down payment (30), can’t find a home to
purchase at a price they can afford (16), or can’t find appropriate housing that meets their needs for
purchase (9). Some respondents offered open ended answers that they cannot afford down payment or
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mortgage, are strapped with student loans, or are disabled. Other renters are renting by choice because
they are not ready to own a home (11), prefer to rent rather than to own (13), prefer housing that does
not require property upkeep (11), or have recently relocated and are renting short term (6). 2
respondents receive rental subsidies. One of the Spanish-speaking respondents indicates that they
cannot afford to buy a home, while the other reports that they have recently relocated and are renting
temporarily.
30 English-speaking respondents and 1 Spanish-speaking participant indicated that their current housing
does not meet their needs and provided open-ended explanations of their housing problems. The
largest number, 15 respondents, indicate that they would like more space –many wish to have more
bedrooms and/or more square feet. One respondent indicated that they cannot upgrade from their tiny
condo because their mortgage is under water. Another indicated that they are doubling up with their
adult child. Four respondents would like to have fewer stairs to navigate, while three complain of the
lack of off-street parking, and one is troubled by their neighborhood. Finally, 5 respondents note that
there are not sufficient jobs nearby and that they suffer long commutes.
About 60 percent of respondents spend more than 30 percent of their income on housing. 40
respondents (16 percent) are severely cost-burdened –that is, they spend more than 50 percent of their
income on housing. Another 47 respondents (18 percent) spend between 40 and 50 percent of their
income on housing. Of the Spanish-speaking respondents,one pays 30-39% of their income on housing,
while the other pays more than 50%. 9 English-speaking respondents receive some form of housing
assistance, while neither of the Spanish-speaking participants does.
The types of homes in which respondents live reflects the city’s housing stock overall. 41 percent live in
single family homes, while 39 percent live in small multifamily homes with 2 -4 units. 11 percent live in
buildings with 5 or more units, and 4 percent are in mixed use structures. Of the Spanish -speaking
respondents, one lives in a single family home and the other in an apartment building with more than 5
units. 67 percent of homes were built before 1940, while 5 percent were built after 2000 and 6 percent
were built between 1980 and 2000. 14 percent were built between 1940 and 1979, while 9 percent
didn’t know the age of their home.
Most respondents (including both Spanish-speaking respondents) describe their homes as being in good
or excellent condition. 35 respondents (13 percent indicated that their homes are in fair condition, while
1 person said that the condition of their house is poor. The most common reasons people cited for their
homes being in fair to poor condition were because they cannot afford the repairs (22) or the landlord is
unresponsive. Some open ended responses complain of unresponsive landlords (2), condo associations
(3), old houses which require major repairs (2), damage from previous homeowners (1), and damaged
caused by city maintenance of streets or sidewalks (2).
Asked to identify types of problems with their homes, 20 indicated that there were unsafe conditions
(including mold, lead, asbestos, faulty electrical/plumbing heating systems, or crime). 11 respondents
complained that their homes are inaccessible, 9 are inadequate (lacking in bedrooms or in-law
apartments, etc.), and 3 are overcrowded. 6 respondents described their housing as “insecure”, that is,
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they are concerned with eviction, foreclosure, or they do not have their own housing. One of the
Spanish-speaking respondents reports that their home has problems with accessibility.
9 English-speaking respondents (but neither of the Spanish-speaking ones) indicate that they or a family
member has experienced housing discrimination in Salem. The most common barrier to fair housing that
respondents perceive is a lack of understanding of fair housing rights/laws by landlords (47 of 158) and
unlawful discrimination in the rental market (21). Many also note that prospective residents are steered
away from or into certain neighborhoods (36), and that minorities experience high rates of home
mortgage denial (27). Some respondents point to regulatory barriers (14) and inadequate code
enforcement for unsafe conditions (27) as barriers to affordable and fair housing. Open ended
responses highlight high housing costs and lack of available housing to meet demand as being the
principle barriers to fair and affordable housing in the city (about 25 responses). Some respondents
point specifically to discrimination against families by landlords of older rentals because of lead paint
hazard, or the challenge of obtaining housing with CORI issues. One of the Spanish-speaking
respondents observes that they sometimes see higher rents being charged (although they do not
indicate which population this affects). Also, some middle income households who do not qualify for
housing assistance complain of being squeezed out of the market.
Respondents were asked to rank housing concerns in the city. Housing affordability received by far the
highest ranking (composite ranking of 10/10), followed by homelessness, a lack of variety of housing to
meet residents’ needs, and the physical condition of housing units in the city (7 -8). Racial/ethnic
segregation, availability of housing for seniors, people with disabilities, and for young families ranked
next on the list (6-7). Respondents were least concerned with the availability of housing for people with
mental/cognitive disabilities, young adults, or large families (4-5). The highest priority concerns of
Spanish-speaking respondents include condition of housing stock, homelessness, and segregation,
followed by the need for senior housing and concern about housing diversity in general.
Public Services
28 percent of respondents indicate that they or their family members have some unmet needs for public
services. Two thirds of respondents feel that there are unmet service needs in the community as a
whole. The types of service needs most frequently noted were for homelessness, substance abuse,
childcare/after school care and youth programs, as well as programs for community engagement,
recreation, and adult education. From this point, only one Spanish-speaking respondent completed the
survey. They did not identify any unmet needs in their own families or the community as a whole.They
rated food programs, adult education, and homeless services as “medium priorities”.
Asked which populations are most in need of additional services, respondents were most highly
concerned for homeless families, followed by seniors, children, and veterans. The Spanish-speaking
participant felt that seniors are most in need of services. In open ended responses, respondents
frequently noted that employed parents with children have difficulty finding affordable childcare or
after school care, and cannot afford market rate apartments. Many are concerned about residents “in
the grey area”, who are not low income, but are nevertheless struggling with housing costs or need
assistance with legal or financial issues. Some would like to see more bilingual information and support
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for low income residents to access housing and other services, while others feel that too many services
are targeted for minorities. Other needs mentioned include more public transportation in general or
specifically for seniors and disabled residents, services for seniors outside of business hours, and more
capacity to deliver food to homes. Finally, some respondents indicate simply that more services are
needed, while others would like to see a shift in the balance of funding for services.
Economic Development
The majority of respondents (65 percent, including the Spanish-speaking participant) are employed full
time. 32 respondents (14 percent) are retired, while 15 (7 percent) are employed part time. 16
respondents have multiple full or part time jobs, and 7 respondents are unemployed or underemployed.
Of people who are otherwise not employed, 4 choose not to work, 1 is a student, and 3 do not work
because they are disabled.
Asked about issues that affect their employment, the most frequent concerns are childcare/eldercare
issues, transportation, and the lack of high enough paying jobs (each with 23 responses). “Jobs not
available in my field” or “overqualified for available jobs” affect 11-16 respondents. Language barrier
and discrimination are cited by 2 and 4 respondents, respectively. The Spanish -speaking respondent
reports that they need more education or training. Open responses mention further employment issues
including age discrimination, mental health disability, and non-family-friendly work hours required by
employer.
81 English-speaking respondents (36 percent) and the Spanish-speaking participant feel that Salem’s
local economy does not provide the types of jobs its residents need, compared with 46 respondents (21
percent) who feel that it does. (43 percent selected “I don’t know” in response to this question.) Most of
all, respondents are concerned about the balance of too many tourism-related or seasonal jobs in the
city, and would like to see more stable year-round jobs that provide a living wage and benefits to their
employees. Respondents would like to see more “blue collar” jobs such as manufacturing, engineering,
or high tech industry jobs, as well as “white collar” jobs that offer a career path for those sta rting at the
entry level. Finally, those who complain of long commutes to well-paying professional jobs would like to
see more opportunities for “knowledge-based” professional employment closer to home.
Asked what kind of economic development services they would support the city assisting, respondents
rank most highly “infrastructure improvements to support business activity”, such as sewer, water gas,
electrical, fiberoptic/cable, roadways traffic management, parking, etc. Streetscape improvements and
business retention and improvement receive the next highest priority ranking. Workforce training
through schools and other existing resources is well supported. The Spanish-speaking participant ranks
“events to support and promote local businesses” as a medium priority. Some respondents would like to
see a shift in the types of events and programming and the focus of business recruitment in the
downtown to attract more stable, year-round activity.
Neighborhood Activity
85 English-speaking respondents (36 percent) and the Spanish-speaking participant report that the
infrastructure in their neighborhood is in fair to poor condition. In open responses, a number described
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specific issues with streets, sidewalks, pedestrian crossings, street trees, lighting, and handicap
accessibility in their neighborhoods. Asked to prioritize public facilities’needs, respondents ranked most
highly parks and playgrounds and senior center. The Spanish-speaking participant supported investment
in libraries and an arts center. Other types of facilities, including parking, recreation, public safety,
performing arts, and neighborhood community centers all averaged a “medium priority” ranking.
Respondents commented about the need for repairs to the senior center building, whether it continues
to serve as a senior center or is dedicated to another use, as well as the need for space for arts or indoor
fitness. Strengthening transportation and parking, and improving traffic and bike safety are also
concerns.
Overall Quality of Life
Respondents overwhelmingly rate the quality of life in Salem as “above average” or “excellent”. Only 15
out of 228 who answered this question felt that the quality of life is “below average” or “poor”. The
most commonly noted improvements were street paving, pedestrian and bicycle improvements, and
public and private investment in rehabilitating or redeveloping blighted buildings. Respondents also
complemented the quality of policing and other city services such as curbside composting and recycling,
lighting, and street cleaning. Many appreciate increased community engagement and communication,
as well new businesses and farmers market. They see the city attracting new residents such as families
and young adults, enhancing the diversity and character of the neighborhoods. Several people who are
newer to the city view positively the redevelopment of the power plant, the improvements to the ferry
wharf and train station, and the senior center development.
The most common observations of negative changes to Salem neighborhoods pertain to traffic, crime,
vandalism, trash, and disorderly conduct. Many note an increased visibility of homelessness in certain
neighborhoods. Streets and pedestrian infrastructure can use improvement in some areas, as well as
planting and care of street trees. Some respondents are concerned about absentee landlords and an
increasing population of students in their neighborhoods, as well as the deteriorating condition or lack
of upkeep of buildings and homes.
Respondents were invited to offer final comments on housing, community, and economic development
needs and priorities. Many comments focused on the need for further neighborhood investment
(including the Point neighborhood, specifically), cleanliness, and safety. Others propose that housing
and jobs should be the highest priority. Several feel that too much emphasis is placed on low income
and luxury housing, while middle class residents struggle with increasing costs. Finally, there were many
comments that focused on the need for quality education and programs for children and families as the
key to improving the city’s future.
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Public Comment Letters Received During Citizen Participation (Fall, 2014)
October 8,2014
Mayor Kimberley Driscoll
City of Salem
93 Washington Street
Salem,MA 01970
Attn:Jane Guy,Office of Planning &Community Development
Dear Mayor Driscoll:
Thank you for the opportunity to comment on the proposed 5-Year Consolidated Plan and One-Year
Action Plan under the City of Salem’s Community Development Block Grant (CDBG)Program.On
behalf of North Shore CDC, I submit the following comments and requests for priorities.
Housing
We request that the highest priority for funding in this category be for affordable housing production
and/or renovation.The shortage of affordable housing in our city,region and state impacts families in
a myriad of ways. New production of restricted affordable housing is the most sustainable way to
address this shortage.Projects seeking state and federal resources require a local match.
Additionally,we respectfully request that the City of Salem prioritize housing programs under CDBG
which minimize the need for administrative support and implementation.The First-Time Homebuyer
program,while a laudable public policy goal and eligible under CDBG,serves a limited number of
homebuyers each year and requires heavy administrative capacity.Affordable housing production
and homelessness prevention programs rely upon private partners such as North Shore CDC, NSCAP,
HAWC, etc. and require significantly less staff oversight on the part of the City, saving precious
resources to spend on programming.
Economic Development
We respectfully request that all funds spent under economic development be prioritized for business
or business owners who live or do business in Salem’s low income census tracts.Consistent with the
Point Neighborhood Vision &Action Plan,the Point Neighborhood Retail Market Study and the Point
Neighborhood Commercial Corridor Revitalization Plan, small business development is central to the
redevelopment and investment into the Point,particularly along Lafayette and Congress Streets.
Priorities identified by business owners in the Point could be accomplished if paired with Public
Services being directed towards community engagement and outreach and/or programming which is
directly connected to this priority.While store front improvements, business loans,etc.to businesses
in the rest of downtown are advantageous to Salem in a general sense,they do not have a direct
correlation to the improvement of quality of life for the low-income population of Salem.
Additionally,we feel that small business technical assistance, namely the use of CDBG funds to
support the operation of Salem Main Streets, is a positive program for the City of Salem,but absent a
requirement that this program work in our city’s lowest-income census tract,the impact is again not
directly related to the low-income population of Salem.Instituting a requirement such as this could
also be paired with resources for community engagement and would incentivize Salem Main Streets to
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come up with programming steered to low-income and/or Latino-owned businesses in Salem.
Certainly these businesses and business owners are part of the broader downtown Salem business
community and are largely unengaged in the work of Salem Main Streets currently.If the program is
funded via CDBG,we believe strongly there should be a requirement to steer these resources to the
areas of greatest need.
Neighborhood Investments
In FY 2014, approximately 29%of the infrastructure improvements made using CDBG resources were
spent on projects in the Point neighborhood.We respectfully request that going forward,75%or
more of each year’s infrastructure improvement resources under CDBG be prioritized for
improvements in the city’s lowest-income neighborhood.
Consistent with the Point Neighborhood Vision &Action Plan,the Point Neighborhood Retail Market
Study and the Point Neighborhood Commercial Corridor Revitalization Plan,the single largest barrier
to market rate investment and economic development is the need for infrastructure improvements in
the Point neighborhood.Business owners have expressly noted that “investment stops at Derby
Street.” Investing 75%or more of each year’s CDBG neighborhood improvement budget would provide
financial capacity to address long-standing sidewalk and curb repairs, street re-paving, lighting
upgrades,signage upgrades,etc.which would all improve the appearance of the neighborhood, bring
it more in line with the rest of downtown Salem and promote further private investment.Absent the
use of CDBG,we will be reliant upon state grants or general funding to implement this work.
Additionally,we do not feel that neighborhood improvement projects in non-low-income areas are
consistent with the priorities of the CDBG program.
Public Services
We respectfully request that the City of Salem invest in two areas in addition to the many
quality services which it already invests in through public services programs:
1)Community Engagement –in order to reach the lowest-income population in Salem and
those who are amongst the most vulnerable,community and civic engagement is critical to
the success of many of the program funded to a myriad of agencies under CDBG.North
Shore CDC and others who invest in direct engagement have a strong track record of success
of reaching the most difficult to reach,as evidenced through the widespread community
participation in the creation of the Point Neighborhood Vision and Action Plan.A small
amount of investment yields a large increase in public participation which ultimately better
informs all of these processes.
2)Family Resource Center /Family Stability Program –North Shore CDC’s program supports
a myriad of local agencies and programming which are designed to directly engage the
lowest income residents of Salem in a concentrated, bundled and efficient manner.
Respectfully submitted,
Mickey Northcutt
CEO
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Part 2 –Review of Draft Plan
The Draft Plans were made available for public comment from April 3, 2015 through May 4,
2015.
Public Hearing, 6:00 PM, April 17, 2015
5 Year Consolidated Plan (FYs 2016-2020), One-Year Action Plan (FY16)
Staff Present:Lynn Duncan,Director, Office of Planning and Community Development
Jane Guy, Assistant Director, Office of Planning and Community Development
Attendees:Jason Williams, student; Kathy Harper, member of Citizens Advisory Committee;
Jennifer Firth, resident
Peter Sanborn and Roberta Cameron, Community Opportunities Group, Inc.
Ms. Duncan opened the hearing at 6:06 PM and welcomed all present. She explained the purpose of the
hearing and introduced Ms. Guy. Ms. Guy provided a brief overview of the hearing’s agenda and said
that the purpose of the hearing was to provide an opportunity for the public to ask questions and
comment on the drafts of the HUD Consolidated Plan (ConPlan) and One-Year (FY16) Action Plan. She
said that the work on the plan has been underway since September 2014. This Plan outlines how the
City will use its expected HUD funding for the next five years --specifically, CDBG and HOME funds and
Program Income. She introduced the City’s consultants, Roberta Cameron and Peter Sanborn, from
Community Opportunities Group, Inc., and turned the presentation over to them.
Ms. Cameron led the presentation, which was supplemented with a PowerPoint presentation. She
provided a general explanation of the contents of the ConPlan, which include an analysis of need s, and a
strategic plan that includes goal and objectives. The One-Year Action Plan (AP) carries out the ConPlan’s
strategic objectives through specific programs and projects, with defined funding amounts for each. She
presented a breakout of the expected funding that will be available for FY16.
Ms. Cameron summarized the earlier public input process that occurred during the latter part of 2014.
This involved a series of meetings in different neighborhoods and with different segments of the
population, as well as focus groups and interviews, including those with social service providers. This
input and consultation process also included an on-line survey (in English and Spanish) and interviews
with various stakeholders.
Ms. Cameron also explained how each project that is funded with CDBG, the City’s largest source of HUD
funding, needs to meet one of three National Objectives. She referred to a map of the city that showed
areas where a majority of the population is lower income and the part of the city where the urban
renewal area is located. She explained the significance of each.
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She provided a list of the types of projects that are currently or have been funded recently among the
menu of eligible activities.
Jason Williams asked what is meant by public improvements. Ms. Duncan, Guy and Cameron each gave
examples. They elaborated that these may occur either in neighborhoods or in the downtown. Kathy
Harper asked what improvements were planned in the downtown. Ms. Duncan gave some examples.
Mr. Sanborn said that the ConPlan is a general document that does not identify specific projects but,
instead, provides the framework that enables the City to fund specific projects through each of the
annual Action Plans during the next five years. Specific projects have not yet been identified beyond
FY16.
Jennifer Firth asked for clarification regarding leveraged funds in the Point neighborhood shown in the
draft FY16 Action Plan, for which she received clarification. Ms. Duncan and Ms. Guy provided
information about housing units currently being developed as well as those that are planned. They
noted that these were not new construction but existing units that were being renovated and would
now become affordable units.
Jennifer Firth also asked what the City is doing to assist in job creation for which Ms. Guy provided an
overview. Ms. Duncan and Mr. Sanborn added that using CDBG funds specifically for job creation was
complicated due to reporting and compliance requirements. Ms. Guy stated that the City also uses
CDBG funds to support business development and improve commercial vitality; these funds will
hopefully result in creating jobs, but they are not intended to create jobs per se.
Jason Williams asked if students going through Salem State University’s Enterprise Center opened
businesses in the city. Ms. Duncan said that she did not have that data.
Ms. Guy stated that the comment period on the draft Plans is open until May 4 and she encouraged
written comments.
The hearing was adjourned at 6:53 PM.
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Comment Letters Received During Public Comment Period on Draft Plan (April, 2015)
From Jill Bowen, via email, 4/16/19
I still feel that homeless prevention is an extremely important service. I have seen over and over again
how difficult it becomes to re-enter a safe, secure world once you’ve lost your housing. And I have also
done family therapy with parents and kids who have gone through homelessness (and a couple of
families who were in shelters) and seen what effect it has had on them.
As always, I thank you for your support all these years!!!
Jill
From Deric LePard, via email, 4/24/2015
I'm so sorry to have missed the Public Hearing meeting.
Is there any way we can be of assistance here at NSCAP?
The monies we receive from Salem Home and Salem CDBG allow us to help many struggling families
move into affordable housing and maintain their housing.
As well, based on the extensive Community Needs Assessment NSCAP did last April, Housing was the
number one need chosen by the 750 respondents.
Again, sorry for my absence and delayed response.
Best-Deric
Deric C. LePard
Director of Planning and Advocacy
North Shore Community Action Programs (NSCAP)
119 Rear Foster Street, Bldg 13
Peabody MA 01960-5933
978-531-0767 x125
Fax:978-531-1012
www.nscap.org
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City of Salem Response to NSCDC Comment Letter
The City of Salem applauds the North Shore CDC for advocating on behalf of the Point Neighborhood
residents. We offer the following response to its letter of April 22, 2015.
We disagree that infrastructure improvements have disproportionately been spent in investments in the
Downtown. A review of completed neighborhood improvement projects (utilizing the Point Neighborhood
Boundaries in the Point Vision Plan) in CAPER’s for the last 8 years (7/1/06 -6/30/14, not including general
street improvements, tree planting, housing or economic development) shows the following expenditures –
resulting in 66.76% of neighborhood improvement expenditures being spent in the Point Neighborhood:
Point
NSCDC acquisition of 15 Ward St.$23,143.38
Palmer Cove Park $31,651.16
Harbor and Lafayette PWED $405,222.15
Neighborhood History Signs $3868.45
Teen Resource Center $87,666.28
Bile Lane (includes LMI areas in/out)$38,284.31
South River Harborwalk $325,303.19
MaryJane Lee Playground $8,008.00
Peabody St. Park $128,634.23
Congress/Peabody/Ward intersection $297,947.19
Lafayette Park $3,081.87
Peabody Street wall replacement $28,695.14
$1,381,505.35 –66.76%
Downtown
Congress/Derby Pedestrian Lights $174,381.03
(note: this project is located on the edge of the Point Neighborhood and was
requested by Point Neighborhood representatives)
South Harbor Garage environmental $16,736.77
Pedestrian mall Fountain $3,100.49
City Hall elevator (handicap access)$216,446.60
Old Town Hall fire safety upgrades $5,743.95
Pedestrian mall tables/chairs/barrels/benches$8,457.92
Salem YMCA handicapped access equip.$9,085.00
Signage $30,958.40
$464,910.16 –22.47%
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Non-Point/Downtown (other low/mod areas)
Gallows Hill Park $9,472.52
Memorial Park $4,413.60
High Street play structure $59,070.78
Derby Street Wheel Chair Ramps $4,372.00
K of C handicapped access $8,873.84
Splaine Park $45,189.90
Witch House handicap access $28,548.54
Neighborhood History Signs $3,868.45
Loring Ave. Firehouse $46,878.29
Pioneer Village accessibility $5,683.75
Guardrail replacement, Pioneer Terrace $6,475.00
$222,846.67 –10.77%
The two census block groups in the Point Neighborhood indicate that the Point has 2,845 persons, of
whom 2,270 are LMI. One block group has 88.89% LMI (the highest in the City), while the second has
68.5% LMI (the 3rd highest in the City). The remaining 31 block groups in the City (37,005 persons)
contain 16,125 LMI persons (43.6%). This means that 14% of the City’s LMI persons live in the Point
Neighborhood, which is the area with the highest LMI concentration. However, the City also
acknowledges that the remaining 86% of the city’s LMI persons are in the remaining 9 LMI block groups
(ranging from 51.17% to 70.8% LMI), which also have infrastructure and other needs.
For street improvements (street paving, sidewalks, curbcuts and crosswalks), the City acknowledges that
approximately 22% (approximately $103,400) of this funding has been spent in the Point Neighborhood,
while 78% (approximately $366,600) has been spent in other LMI neighborhoods or the downtown.
However, downtown street improvements have primarily been handicapped access related (curbcuts,
crosswalks). When added into the above figures, neighborhood improvement spending has exceeded
58% in the Point Neighborhood. Please note that the City will carry over any unspent FY15 funds that
were dedicated to Point Visioning projects and Point Neighborhood park/playground improvements,
which will be available in addition to FY16 funds proposed for Point Neighborhood improvements.
For tree planting, the City acknowledges that approximately 16% (approximately $9,000) of this funding
has been spent in the Point Neighborhood, while 84% has been spent in other LMI neighborhoods or the
downtown. In addition, it is also important to consider non-infrastructure improvements undertaken,
specifically housing, which also improves neighborhoods. With the exception of HOME funds provided
to Lifebridge for new supportive housing for chronically homeless individuals, all HOME and CDBG
funding expended has been for affordable housing located in the Point Neighborhood –approximately
$700,000. Please note that First Time Homebuyer, Housing Rehabilitation Loan Program and Rental
Assistance funds are based upon individual household income and are not geographic; therefore these
were not included in this calculation. In addition, due to confidentiality and programmatic limitations, it
is also not possible to break down public service spending by households geographically. However,
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please note that all social service awards are made to programs that primarily benefit LMI persons (a
HUD requirement) and each program reports monthly on program beneficiaries.
In November, 2013, the City of Salem conducted a slums & blight assessment of the downtown. HUD
concluded that the downtown continues to meet the slums/blight standard for utilizing CDBG funds.
Many of the funds spent have been for handicapped access improvements, which benefit all of Salem’s
residents with mobility handicaps. Nevertheless, the City is of the opinion that any investments in the
downtown are an investment in economic development, which in turn helps to create new jobs that are
available to Salem’s LMI residents.
The City acknowledges that Economic Development funds have not been specifically targeted to the
Point Neighborhood, such as the Main Streets Program. However, the Main Streets Program is required
to report on jobs and LMI jobs created (which may or may not be Point Neighborhood residents). While
Point Neighborhood businesses are able to participate in Salem Main Streets events and programs, they
don’t always do so. Therefore, in FY16, we are funding a small business program that will establish a
presence in the Point Neighborhood one day a week for drop-in and scheduled appointments with bi-
lingual staff through Salem State University’s Enterprise Center.
Annually, HUD identifies each community’s low to moderate income credit for total spending (excluding
program administration and Section 108 repayments). Over the last 8 full years, Salem has averaged
89.64% benefit to LMI persons. This includes housing, job creation, public service programs and
infrastructure improvement in LMI census tracts. The City will continue to maintain a high percentage of
benefit to LMI persons (exceeding the minimum of 70%).
In the past, it has been difficult to efficiently map total expenditures by census tract. However, as HUD
improves its mapping program, we are willing to work toward mapping total expenditures by census
tract for housing and infrastructure improvements and any additional categories available through the
software.
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Appendix 4: Other Resources
This section describes the anticipated resources that assist Salem residents in addition to CDBG and
HOME funds. These include leveraged funding for Salem’s CDBG and HOME activities, financial resources
for Salem’s community partners and other services and resources available to Salem residents.
Financial/Leveraged Resources
Many activities leverage funding from other sources to maximize the impact of the federal dollars the
City receives. In addition to the City, several housing and community development programs are carried
out by non-city agencies that operate through a variety of resources. The tables below include
anticipated funding resources for the City of Salem Department of Planning & Community Development,
as well as several key organizations, including the Salem Housing Authority, North Shore Community
Action Programs, Inc., Lifebridge and North Shore Community Development Coalition. While it is not
possible to anticipate every source of funding, the table below indicates some of the sources of funds
that CDBG and HOME will likely leverage during FY16. The dollar amounts are best estimates and do not
indicate a minimum or maximum amount that will be leveraged.
City of Salem FY16 funding resources/anticipated leveraged funds (includes full amounts applying for,
applied for, awarded or awarded and partially spent):
Source Amount
Federal Sources
CDBG $952,642
HOME $88,295
Program Income $115,000
Subtotal Federal $1,155,937
Federal Sources (Non-CDBG or HOME):
Environmental Protection Agency -Revolving Loan Fund (awarded with
Peabody, MA -for use over 5 years)
$950,000
Subtotal Federal $950,000
State Sources:
MA Office of Coastal Zone Management –Coastal Community Resilience
Program (awarded)
$200,000
MA Office of Coastal Zone Management –Green Infrastructure for Coastal
Resilience Program (awarded)
$75,000
MassDevelopment –Remediation Program (applying)$500,000
MA Cultural Council –Cultural Facilities Funds (awarded)$20,000
DHCD Planning Assistance Toward Housing Program (awarded)$30,000
EOHED -MassWorks Infrastructure Program 2013 (awarded for Grove St.
project)
$1,475,000
EOHED -MassWorks Infrastructure Program 2014 (awarded for
Washington/Dodge project)
$2,535,000
Seaport Advisory Council (awarded)$4,050,000
MA Dept. of Energy Resources Green Communities (applied)$250,000
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Executive Office of Energy and Environmental Affairs –Parkland Acquisitions and
Renovations for Communities (awarded for Winter Island Trail)
$192,404
Massachusetts Historical Commission –Survey & Planning Grant (awarded for
Fort Pickering)
$12,500
Massachusetts Historical Commission -Massachusetts Preservation Projects
Fund (applied for Salem Common Fence)
$50,000
Subtotal State $9,389,904
Local/City Sources:
Capital Improvement Program $50,000
Community Preservation Act (total applications recommended for funding)$650,975
General Fund (Conservation Commission, Historical Commission, Planning
Department, Planning Board, Market Place)
$766,148
Subtotal Local/City $1,1,467,123
Private/Other Sources:
Homebuyer matching funds $37,500
Business matching funds (Main Streets)$57,471
Subtotal Private/Other $94,971
TOTAL $13,057,935
Note: Other sources of funds that may be leveraged, but for which no dollar estimate can reasonably be determined, are
MA Get the Lead Out funds, private mortgages and private donations.
Salem Housing Authority funding sources/anticipated leveraged funds (for year ending September 30, 2014):
Source Amount
Federal Sources
U.S. Department of Housing and Urban Development Housing
Assistance Payments
$10,159,521
HUD Capital Fund Program 2014 $40,906
HUD FY14 Federal Public Subsidy $162,394
Subtotal Federal $10,362,821
State Sources:
MA Dept. of Housing & Community Development 4001 $485,255
MA Dept. of Housing & Community Development MRVP $9,880
MA Dept. of Housing & Community Development Formula Funding $281,582
Subtotal State $776,717
Local/City Sources:
$0
Subtotal Local/City $0
Private/Other Sources:
$0
Subtotal Private/Other $0
TOTAL $11,139,538
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North Shore Community Development Coalition 2014-2015 funding sources/anticipated leveraged funds:
Source Amount
Federal Sources
LIHTC $4,521,000
HOME Funds $400,000
CDBG $59,075
Federal Historic Credits $1,832,000
DOL -YouthBuild $437,327
Subtotal Federal $6,812,075
State Sources
MA Dept. Elementary Secondary Education -YouthBuild $125,998
State Historic Credits $1,221,750
Brownfield Redevelopment Fund $166,513
Subtotal State $1,469,263
Local/City Sources
CDBG Salem $9,075
CDBG Peabody $10,000
Subtotal Private/Other $17,075
Private/Other Sources
Grants/Foundations $111,750
Events $92,849
Contributions $76,000
Community Investment Tax Credit $200,000
Federal Home Loan Bank $400,000
Eastern Bank Mortgage $2,000,000
Fees (development, asset mgmt., property, resident services,
development overhead)$358,766
Subtotal Private/Other $12,125,880
TOTAL $24,165,058
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Real Estate Development Source Summary 2009-2017, North Shore CDC
Project Name Palmer Cove Salem Point II
Harbor-Lafayette
Street
Congress, Dow &
Ward
47 Leavitt
Street
34 Peabody
Street
Affordable Housing Units 15 77 27 63 15 n/a
Year Completed 2009 2015 est. 2016 est. 2017 est. 2018 est. 2018
Federal LIHTC $$ 5,151,000 $ 1,412,000 $4,082,569
City/Consortium HOME $846,995 $ 450,000 $ 50,000 $ 250,000
Community Development Block Grant (CDBG)$ 50,000
Tax Credit Assistance Program (TCAP)$-$-$-
Federal Historic Tax Credits (FHC)$-$ 1,811,000 $1,986,985
State Affordable Housing Trust (AHT)$1,211,922 $-$ 1,000,000 $1,144,061
CATNHP $-$-$-$ 500,000
Housing Stabilization Fund (HSF)$1,211,923 $-$ 700,000 $1,000,000
HPSTF $-$-$ 1,000,000 $-
Facilities Consolidation Fund (FCF)$548,580 $-$-$-
State HOME $-$-$-$ 756,260
Housing Innovations Fund (HIF)$573,081 $ 1,400,000 $-$-
Danvers State Preservation Fund $182,000 $-$-
State Low-Income Housing Tax Credits (STC)$-$-$2,688,000
State Historic Tax Credits (SHC)$-$ 1,221,750 $ 212,500
Green Aff Hsg Dev Program $-$-$-
MassHousing Design Grant $-$-$-
Brownfields Redevelopment Fund $-$55,750 $-
Local Community Preservation Act (CPA)$-$-$ 171,005
Private Debt $650,000 $-$-
Tax Exempt Bonds $-$ 2,100,000 $ 350,000 $5,262,500
Federal Home Loan Bank-Boston $-$ 400,000 $ 250,000 $-
Enterprise Foundation Grant $-$-$-
Energy Rebates & Utility Grants $-$-$-
Other LP Contributions $-$-$-
Other GP Contributions/Developer Equity $-$93,000 $-
Deferred Developer Fee $244,529 $-$-
Accrued Interest $-$ 104,440 $-
Other-Seller Note $-$ 5,015,405 $ 381,567 $-
Other-Rollover of Reserves $-$ 247,000 $-
Other-Commercial Condominium Sale $-$-$-
Total Development Cost:$5,469,030 $18,049,345 $ 4,859,939 $ 18,353,880 $6,500,000*$9,600,000 *
TDC / Unit:$364,602 $ 234,407 $ 179,998 $ 291,331
Hard Construction Cost:$ 7,040,000 $ 1,616,990 $7,170,460
Hard Cost / Unit:$-$91,429 $ 59,889 $ 113,817 $-
* estimated
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North Shore Community Action Programs, Inc.FY16 funding resources/projected revenues:
Source Amount
Federal Sources
F.E.M.A.$12,800
Fuel Assistance $1,942,275
Federal Indirect
Salem Home Fund $35,000
Salem Trust Home Fund $40,000
DOE –Action $13,455
DOE $379,440
VITA Grant: EITC Tax Prep $7,900
Subtotal Federal $2,430,870
State Sources
CSBG $146,432
DHCD -Housing $2,125,455
CSBG -Advocacy $101,710
DHCD -EITC $5,386
CDBG Housing $248,665
CPSS $18,000
DOHE $75,000
CDBG (ABE)$265,273
DHCD/LHAND Weatherization $170,160
HOPWA $8,900
CSBG Housing Law $27,338
Subtotal State $3,192,319
Local/City Sources
Salem CDBG $9,600
ASOST-Q $31,794
Subtotal Local/City $41,394
Private/Other Sources
Donations $284,783
Private Contracts & Grants $1,685,671
Tuition & Service Fee $1,333,510
Subtotal Private/Other $3,303,694
TOTAL $8,968,547
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Lifebridge FY15 funding sources/anticipated leveraged funds:
Source Amount
Federal Sources
HUD -McKinney Funds $98,000
Subtotal Federal $98,000
State Sources:
DHCD $387,515
Subtotal State $387,515
Local/City Sources:
CDBG $9,800
Subtotal Local/City $9,800
Private/Other Sources:
Donations $250,000
Private Contracts & Grants $60,000
Commercial Income $425,000
Private Client Fees 0
Subtotal Private/Other $735,000
TOTAL $1,230,315
Services
In addition to financial assistance provided to Salem residents through the City and its community
partners,there are numerous programs and services available to Salem residents.Some are
funded through CDBG.Some non-CDBG funded resources not previously mentioned in this plan
include,but are not limited to:
Greater Lynn Senior Services -THE RIDE
THE RIDE paratransit service provides door-to door,shared-ride transportation to eligible
people who cannot use fixed-route transit (bus,subway,trolley)all or some of the time
because of a physical,cognitive or mental disability.THE RIDE is operated by the
Massachusetts Bay Transportation Authority (MBTA)in compliance with the federal Americans
with Disabilities Act (ADA).They provided 29,875 trips for Salem residents in FY13.
Independent Living Center of the North Shore and Cape Ann,Inc.
The ILCNSCA is the North Shore and Cape Ann service and advocacy agency for all persons
with disabilities. The agency is located at Shetland Properties in the Point Neighborhood and is
available to assist with completion of SSI/SSDI,food stamps and various housing applications.
ILCNSCA advertises monthly times that are set aside where staff are available in a group
setting to offer guidance on completing the Universal Housing application for subsidized
housing across Massachusetts.They assist approximately 30 people annually with completing
the UHA,Section 8 centralized waiting list or regional Section 8 waiting list.
North Shore Community Development Coalition
The North Shore CDC invests in neighborhoods to create thriving communities,striving to
provide quality affordable housing and foster economic empowerment and community
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development on the North Shore.Located in the Point Neighborhood,its residents make up
the majority of their clients.North Shore CDC continues to advance quality programming that
offers residents in the region basic life skills to aid in achieving economic stability and a self -
sufficient life. Programming includes YouthBuild North Shore,Homeownership Training and
Counseling,Community English Program and Family Stability Program.Along with its
programming,North Shore CDC provides bilingual assistance to complete various applications.
Annual numbers for FY14 include:
•VITA -51
•Housing applications -35
•Job applications -5
•Other -45
Catholic Charities
Catholic Charities North began more than 95 years ago with initial sites in Salem and Lynn.The
programs at Catholic Charities North strive to prevent hunger and homelessness for local
families in a financial emergency;engage youth in education and employment programs
focused on long term solutions to poverty;and support families in their effort to build safe,
nurturing environments for children.The Salem office,in the Point Neighborhood,offers Basic
Needs, Family Support and Counselling services.Just over 50%of Catholic Charities Salem
Basic Needs clients reside in the Point Neighborhood.Budgeting and financial education are
offered to all Basic Needs clients.The agency will also assist with providing information and
assistance with applications upon request.
HAWC
HAWC provides free services and support to victims of domestic abuse residing in 23 cities and
towns on Massachusetts’North Shore.HAWC services include a 24-hour hotline,support
groups,individual advocacy,legal advocacy,and hospital advocacy,children’s services,a
shelter program,community education,and a Parent-Child Trauma Recovery Program.
Advocates meet with individuals one-on-one to support them with identifying their needs and
accessing resources.They also provide financial literacy specifically to clients living in their
shelter. The agency is located at Shetland Properties in the Point Ne ighborhood.
Citizens for Adequate Housing
Citizens for Adequate Housing,Inc.ends homelessness one family at a time by providing a
dignified,nurturing,and supportive environment that empowers each family to reach its social
and economic potential.They provide a temporary home for homeless families and permanent
affordable housing to low income families.18%of their residents are from Salem and are
placed with CAH for temporary family shelter.They provide one-on-o ne financial literacy
training (using DVDs)and are considering partnering with a local bank to do a more in-depth
training in FY15.
North Shore Community Action Program Inc.
North Shore Community Action Programs,Inc.(NSCAP)provides social services that enable
low-income families and individuals to obtain the skills and knowledge they need to become
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economically self-sufficient,civically engaged,and to live in dignity and decency.To achieve its
mission,they provide a range of programs and services in five key areas:Education and
Training,Economic Stabilization,Housing and Homelessness Prevention,Energy Services,and
Home Care.
Under Energy Services,NSCAP provides Fuel Assistance to 939 eligible households in Salem.As
of 5/20/15,the agency has provided $530,410.67 in fuel assistance for the 2014 -15 season.
NSCAP also provides tax preparation services for low income households whose gross income
may qualify them for the Earned Income Tax Credit.The program is free and runs from January
through April at three sites.In 2014,the Peabody site served 194 Salem residents,the Beverly
site served 12 Salem residents and the Salem site (held at North Shore CDC in the Point
neighborhood) served 96 Salem residents.
NSCAP will also assist clients that have case management (i.e.r ep payee’s,shelter clients,
HOPWA clients,ABE clients,etc.)with preparation of applications for Social Security Disability,
food stamps/SNAP or other applications.
Other agencies/collaborations
At Salem High School,students have the option to choose an elective course that allows them
to build their knowledge of money and how investing works.
New Liberty Charter School provides academic skill, employability and personal stability
programs for homeless and at-risk students, and partners with North Shore CDC to provide
a YouthBuild program, as well as Journeys of Hope to offer vocational training in culinary
arts.
The Boys and Girls Club of Greater Salem (steps from the Point Neighborhood), periodically
provides a financial literacy program to its teens through local banks, most recently Salem
Five.
Salem State University offers many programs that are open to residents, teachers and Salem
High School students. Along with non-credit classes and programs, the community can
enjoy an award-winning theatrical performance, take advantage of the print and
electronic resources of the library, or bring the family to an exciting athletic event. There
are athletic camps and clinics, a Center for the Arts, the Explorers Institute for Learning &
Retirement, along with part-time degree programs.
Salem is fortunate to also host many State offices, several of which are located in or near the
Point neighborhood. Agency offices in Salem include, but are not limited to, the Salem
Juvenile Court,Probate and Family Court,Transitional Assistance Department, Division of
Unemployment Assistance,North Shore Career Center and MA Rehabilitation
Commission.
Links to social service agency websites are located at
http://www.salem.com/Pages/SalemMA_DPCD/dpcdlinks.
The Independent Living Center also provides an on-line “yellow pages”of resources.It is located at
http://www.ilcnsca.org/yellowpages.php
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Appendix 5
MONITORING GUIDE
This following describes the standards and procedures that the City of Salem will use to monitor
activities carried out in furtherance of the City of Salem’s Consolidated Plan and Community Action
Plan and will use to ensure long-term compliance with requirements of the programs involved.As
the grantee of Federal funds, the City is responsible for managing the day-to-day operations of its
grants and sub-grant supported activities.Monitoring review is conducted and administered to
ensure conformity with all applicable program requirements, statutes and acts and comprehensive
planning requirements.
General
Typically,monitoring consists of:
Start up assistance to review agreement requirements, policies and procedures (see below)
Payment processing -Review of payment documentation for compliance prior to issuance of
payment (see below)
Ongoing monitoring during the program period -periodic reporting and the provision of
technical assistance as-needed to ensure compliance
On site visits -Annual or semi-annual monitoring visit for public service activities; as needed
for other activities
Long-term monitoring (if applicable for job creation, rental agreement compliance, etc.)
Internal monitoring -Procedures used by City staff to keep track of activity status.
Start Up Assistance
At the onset of any sub-contract activity, staff of the Department of Planning and Community
Development (DPCD) review program and record-keeping requirements with the person(s), agency
or business being assisted with Federal funding.All sub-recipients are required to enter into a
written Agreement that outlines the activities to be undertaken, levels of accomplishment and
period of performance.
Payment Processing
With each payment request all sub-recipients must supply back-up documentation which may
include time sheets, certified payroll records, affordable housing restrictions, income
documentation, corresponding bills and/or cash receipts and/or other documentation determined
to be required.No reimbursement requests are processed if required documentation is not
included, if income or area eligibility has not been proven or if monthly reports (in the case of public
service activities) are outstanding. No funds are disbursed beyond the end date of the Agreement
without prior written consent.
The following pages describe the ongoing monitoring, on site visits, long-term monitoring and
internal monitoring for Public Service, Economic Development and Affordable Housing
programs/activities.
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PUBLIC SERVICE PROGRAMS
Ongoing Monitoring
All public service program sub-recipients are required to submit monthly reports (provided by the DPCD)
which indicate program progress and activities, number of low to moderate income Salem residents
benefited and their race, ethnicity and head of household information.
On-Site Monitorings
On site monitorings are conducted by the DPCD to certify that all activities being assisted with Federal
funds are administered and enforced appropriately and carried out in a timely manner; to assist in
improving the management or technical performance of the responsible recipient; and to assure the
capacity of the recipient to carry out the activity.In general, all public service programs are monitored
once annually utilizing the Community Services Monitoring Guide.
The Assistant Community Development Director may elect to skip an on-site monitoring for agencies
that have been assisted with CDBG funds for more than three years and have not had any co ncerns (see
definition below).In such cases, monitoring will be conducted every other year, provided there remain
no concerns.Should a concern arise, the agency will be required to have an on-site monitoring for at
least three consecutive years following the concern before a monitoring may be once again skipped.An
on-site visit to an assisted agency by Salem’s HUD representative who finds no concerns may also be
justification to skip an annual monitoring.
Monitoring compliance of sub-grantees is achieved by utilizing the following procedures:
1.The City's CDBG administrator will send a letter to the recipient at least 30 days after the recipient
has been issued its first reimbursement payment for eligible expenses incurred. The letter will
instruct the recipient as to the areas of the program to be inspected and will request that th e
recipient compile all pertinent documentation.After the monitoring notice letter is sent, the City’s
administrator will contact the recipient and set a time for the monitoring visit.
2.Areas reviewed as part of the monitoring review include program management, (Section 3
requirements, nondiscrimination, policies, outreach efforts, publications, etc.), program progress
(monthly reports, low/mod income compliance, etc.)and financial record keeping.The City’s
administrator will utilize the Community Services Monitoring Guide as a checklist for areas to be
monitored.
3.Following a consultation and review with the recipient, a letter is sent to the appropriate agency
designee with the results of the monitoring review.The letter covers the scope of review, activities
monitored, monitoring conclusions, steps to correct or resolve any areas of concern and a due date
by which all corrective action, if any, should occur.Recipients are provided the opportunity to
comment on the monitoring or its findings.
The following are the definition of the levels of non-compliance being applied to monitoring findings
and the criteria used to determine the level of non-compliance:
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REMINDER -Used when a requirement does not specifically apply to the recipient at this ti me, but
may in the future (i.e. when there were no positions advertised or filled during the program period to
date, a reminder would be given that they must follow the employment/volunteer policy for future
positions that may be advertised).This is used when areas of the Community Services Monitoring
Guide are filled in as Non-Applicable and the agency is a new recipient or, when the agency if not a
new recipient, the agency has new responsible staff, who have not previously had to administer the
requirement.
RECOMMENDATION -Used when the method the recipient utilizes for a specific requirement does
not constitute non-compliance, but the City’s administrator can suggest an improved method.
REQUIRED ACTION -Used when the recipient is found in non-compliance for a specific requirement
but the material weakness is minor in nature and/or constitutes a first-time material weakness (i.e.,
missing deposit receipt, monthly reports occasionally late, entitlement number missing/incorrect on
invoice, etc.).
CONCERN -Used when the recipient is in non-compliance of a particular requirement that is not
minor in nature.Used when the recipient is in repeated non-compliance of a particular requirement
that is minor in nature.
CORRECTIVE ACTION -Used following a CONCERN to recommend a course of action to be followed
to resolve the concern.
First time recipients whose finding letters have REQUIRED ACTIONS shall be required to provide
written response.All recipients whose finding letters have CORRECTIVE ACTIONS shall be required
to provide written response.
A follow up monitoring will be required when documents needed to assess compliance are not
available for review and cannot be faxed or mailed to the City (i.e.,client confidentiality).A follow-
up monitoring may be required at the discretion of the City’s administrator when there are two or
more CONCERNS.
4.Should a recipient fail to perform corrective action within the prescribed due date, the City’s
administrator will send a reminder letter.Should the recipient fail to respond again, the City’s
administrator shall contact the agency representative by telephone.No reimbursement payments
shall be made to recipients who have not undertaken required and/or corrective action and/or who
have not provided written response,if required.Repeated CONCERNS (3 program periods or more)
shall place the agency in jeopardy of receiving additional CDBG funding.
Internal monitoring
The Assistant Community Development Director maintains a spreadsheet of all agencies who are under
agreement to provide Public Service Programs.The spreadsheet tracks the receipt of monthly reports
and the status of on-site monitorings.
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AFFORDABLE HOUSING PROGRAMS
Housing Rehabilitation and First Time Homebuyer Programs
It is required that income eligibility documentation be provided to the DPCD prior to the execution of
any loan documentation or funding expenditures.First Time Homebuyer funds are disbursed only
following a unit inspection by housing staff for compliance with Housing Quality Standards.For
rehabilitation projects, funds are disbursed following periodic and final inspections for which the work
has been deemed satisfactorily completed.The Housing Programs Coordinator follows the Loan
Management Policy for review of existing loans and process to address delinquent, default or
uncollectable loans.
First Time Homebuyer Programs:
CDBG -Repayment of the loan, in full, is due upon sale or transfer of the property or if the property
ceased to be the principal residence.
American Dream Downpayment Initiative (ADDI)–A minimum ten year period of affordability is
required for all housing assisted with these funds.If the home is sold before the end of the
affordability period or does not continue to be the principal residence of the household for the
duration of the affordability period, then the entire amount of assistance will be recaptured.To
ensure affordability, DPCD staff will annually check available municipal records and/or send a
certified mail receipt letter to the owner to confirm residency.
Activities Assisting Rental Units
The City of Salem requires that subrecipients utilizing federal funds enter into and comply with a Rental
Restriction or Affordability Agreement.These Agreements require that the units remain affordable
during a set period of time.The minimum period of affordability is 15 years.If the unit occupied by the
owner is rehabilitated, the rental restriction does not apply to that unit.
Verification of Household Income:
Full source documentation is required for each new tenant, along with submission of the City of
Salem Tenant Survey.Full source documentation includes copies of twelve (12) weeks-worth of pay
stubs, current evidence of receipt of other income such as social security, pension, disability
benefits, public assistance or unemployment assistance most recent three (3) months of all account
statements for checking, savings, IRA, etc. or a Notarized Statement of No Assets.For CDBG funded
projects, in lieu of full documentation, the City will accept a letter f rom an agency (i.e.,Salem
Housing Authority, NSCAP, Citizens for Adequate Housing, etc.) that has income-qualified the
household for another HUD program, provided that the letter is on agency letterhead, includes the
date that the household income was verified (no more than six months past) and includes the
household income and family size.
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Income Recertification:
For HOME-funded Housing Rehabilitation Loans the owners of one to four unit dwellings agree to
provide information on rent levels and tenant gross incomes annually during the rental restriction
period.Monitoring compliance is achieved by utilizing the following procedures:
1.The Housing Programs Administrator will send an annual monitoring letter to the owner
instructing him/her to update the income and rent information for the tenant(s) occupying the
rehabilitated units.Copies of HUD’s most recent income and rental limits and the current Utility
Allowance will be included, along with information that the landlord may provide to the tenant
explaining the landlord’s commitment to affordable housing.The owner will have thirty days to
return the required documentation:
Verification of Compliance with Rent Limits:
Lease Agreement
Rent Agreement
Verification of Household Income for Subsequent Years:
Owners have two options:
Obtain from the family a written statement (City of Salem Self-Certification Form) of the
amount of the family's annual income and family size, along with a certification that the
information is complete and accurate. The certification must state that the family will
provide source documents upon request.
Obtain a written statement from the administrator of a government program under
which the family receives benefits and which examines each year the annual income of
the family. The statement must indicate the tenant's family size and state the amount of
the family's annual income; or alternatively, the statement must indicate the current
dollar limit for very low-or low-income families for the family size of the tenant and
state that the tenant's annual income does not exceed this limit.Because Section 8
income and rent levels are the same as the Housing Rehabilitation Loan Program, which
is funded by HOME and CDBG, families with Section 8 vouchers are in compliance.
Landlords must provide a copy of the Section 8 contract.
Note: An owner of a multi-family project with an affordability period of 10 years or
more must examine and submit the source documents evidencing annual income for
the family (e.g., wage statement, interest statement, unemployment compensation
statement) every sixth year of the affordability (from ss92.252).
2.Information received within that thirty-day period will be reviewed to insure compliance
with the regulations.Once a determination is made, the homeowner will receive
notification if the unit is not in compliance.Owners with non-compliant units will receive a
letter stating that:
The unit is in violation;
Reasons why the unit does not comply; and
Action(s) required to bring the unit into compliance.
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3.Owners with units that are not in compliance must do one of the following:
Make the necessary changes to bring the unit into compliance within sixty (60) days;
or,
Send a letter to the Housing Programs Administrator,explaining why the unit
cannot be brought into compliance within 60 days.(If a unit were not compliant
because a tenant’s income increased over the year, the homeowner would be
unable to make the unit compliant; however, the homeowner would have to agree
to rent to income eligible households, should the current tenant vacate the unit.)
4.If the homeowner fails to respond and/or the unit is not compliant after sixty days, the loan
balance becomes payable in full.
On-site inspections:Upon request, homeowners must allow a staff member from the
Department of Planning and Community Development to conduct onsite inspections to verify
compliance with property standards and the information submitted by owners on tenants’
incomes, rents and other rental requirements during a project’s period of affordability.Rental
units assisted with HOME funds shall be inspected for Housing Quality Standards no less than
every 3 years for projects of 1 to 4 units; every two years for projects containing 5 to 25 units;
and every year for projects containing 26 or more units (92.504(d)(1)).
For Affordable Housing Activities completed by Community Development Corporations or Community
Housing Development Organizations,affordability restrictions for rehabilitation projects will be for a
minimum of 15 years; new construction or acquisition of newly construction housing will be fo r a
minimum of 20 years.In order to enforce affordability, funding is typically provided as a loan and
discharged after the period of affordability has expired.Monitoring compliance will be achieved using
the same procedures as the Housing Rehabilitation Program (above).All project files must contain
documentation on accomplishments achieved and income-eligibility of persons benefited prior to
closing out activities in IDIS.Documentation may be submitted by the agency or collected during an on-
site inspection,at the discretion of the DPCD.
Tenant Based Rental Assistance(TBRA)
With HOME funds, the City of Salem provides TBRA through Rental Downpayment Assistanc e Programs
with non-profit agencies who assist with one-time first/last month’s rent and security deposits.TBRA
may only be provided to low and very-low income families and at least 50% of the families assisted must
meet one of three Federal preferences:
Families that occupy substandard housing (including families that are homeless or living in a
shelter)
Families that are paying more than 50% of their annual income for rent
Families that are involuntarily displaced
If the household is currently residing in Salem and meets one of the three preferences, they are eligible
to move outside of Salem and still receive TBRA assistance.Security deposits cannot exceed the
equivalent of two month’s rent for the unit.Additional requirements include:
The agency must supply a copy of the letter that was provided to the landlord committing to the
funding assistance and a copy of the TBRA set-up report (household income, race, etc.) for the
HOME program before funding is released.
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The agency receiving funding is responsible for conducting a HQS inspection prior to providing
assistance, utilizing 24 CFR 982.401. The agencies must include a completed HUD HQS form
(HUD-52580-A) in each TBRA household file.However, for many items on the HUD HQS Form,
they can use the Salem Board of Health Certificate of Fitness,as proof that an inspection was
undertaken per Code of Massachusetts Regulation 105 CMR 410.000 (Department of Public
Health).In other words,they can simply check off any items on the HUD HQS form that were
already inspected by the Salem Board of Health and attach the Certificate of Fitness to the back
of the HQS form.It is not necessary to document that the unit is lead safe; however, if peeling
paint is found during the initial inspection, it will warrant a lead test.A unit that does not meet
HQS or has a failing lead test cannot be assisted with HOME funds.Housing inspections are an
eligible program delivery cost (we have set the reimbursement cost at a not to exceed amount
of $70 per inspection, one inspection per unit).No additional HQS inspection is required after
the initial inspection.
An on-site monitoring of the funded agency is conducted once during the program period to
review landlord/tenant rental agreements, HQS documentation, maximum rent limits,etc.,
utilizing the Rental Downpayment Assistance Program Monitoring Guide.
Internal monitoring -Housing Program staff maintain a spreadsheet of all active rehabilitation projects
(Project List) and a spreadsheet of all housing-related loans.The Project List tracks the status of projects
by address from receipt of preliminary application to the filing of loan documents.The loan spreadsheet
tracks all loan details including period of affordability, discharge dates, rental restriction and next
monitoring date.Housing Staff also maintain a comprehensive manual detailing policies and procedures
for the Housing Rehabilitation Loan Program.
ECONOMIC DEVELOPMENT &NEIGHBORHOOD IMPROVEMENT ACTIVITIES
For each activity, documentation required (i.e. job creation,prevailing wages, Section 3, other reporting,
etc.) is determined prior to the start of the activity.
Davis-Bacon Prevailing wages are required for construction projects over $2000 involving laborers or
mechanics.The DPCD staff person assigned to manage the activity is responsible for providing a copy of
the wage decision to the business being assisted or contract or hired to complete the work.The DPCD
staff person is also responsible for collecting certified documentation of wages paid and for reviewing
the documentation for compliance.If the business or contractor is not in compliance, the DPCD staff
person will notify the business or contractor and will require proof that the underpayment has been
made to the appropriate laborers/mechanics.
Long term monitoring/Job Creation -Monitoring of job creation is determined by the time period in the
funding Agreement.Monitoring consists of verification that the goals for low/moderate income jobs to
be created and/or retained have been met. A standard monitoring form is used.
Internal monitoring -The Assistant Community Development Director maintains a spreadsheet of
economic development public benefit. This includes jobs required and jobs created for each Special
Economic Development projects.The Economic Development Planner follows the Loan Management
Policy for review of existing loans and process to address delinquent, default or uncollectable loans.
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Appendix 6 -Alternate/Local Data Sources
1 Data Source Name
2007-2011 CHAS
2 Data Source Name
ACS 2007-2011
3 Data Source Name
Assessor's Data, 2014
List the name of the organization or individual who originated the data set.
City of Salem Assessing Department
Provide a brief summary of the data set.
Value, physical characteristics, and ownership information pertaining to all real property in the city.
What was the purpose for developing this data set?
The Assessors are required by Massachusetts law to value all real and personal property within the
City.
How comprehensive is the coverage of this administrative data? Is data collection concentrated in one
geographic area or among a certain population?
Data covers all real property throughout the city.
What time period (provide the year, and optionally month, or month and day) is covered by t his data set?
The data is for FY 2014.
What is the status of the data set (complete, in progress, or planned)?
Complete
4 Data Source Name
ACS 2009-2013
5 Data Source Name
2013 Average Employment
List the name of the organization or individual who originated the data set.
Massachusetts Executive Office of Labor and Workforce Development (EOLWD)
Provide a brief summary of the data set.
Average Employment by Industry
How comprehensive is the coverage of this administrative data? Is data collection concentrated in one
geographic area or among a certain population?
City of Salem
What time period (provide the year, and optionally month, or month and day) is covered by this data set?
2013
What is the status of the data set (complete, in progress,or planned)?
complete
6 Data Source Name
Consolidated Plan Survey
List the name of the organization or individual who originated the data set.
Salem Department of Planning and Community Development
Provide a brief summary of the data set.
This survey was undertaken as part of the public participation process for preparation of the FY2016-
2020 Consolidated Plan.
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What was the purpose for developing this data set?
The purpose of the survey was to obtain input on housing, economic development needs, and
quality of life for Salem residents and businesses.
Provide the year (and optionally month, or month and day) for when the data was collected.
The survey was collected from November 1 through December 5, 2014.
Briefly describe the methodology for the data collection.
The online survey was provided in English and Spanish.
Describe the total population from which the sample was taken.
The survey targeted people who live or are employed in Salem. It was publicized directly to
participants in neighborhood meetings and focus groups, through posting on City of Salem website,
and distributed through social service providers & neighborhood associations to their members and
stakeholders.
Describe the demographics of the respondents or characteristics of the unit of measure, and the number of
respondents or units surveyed.
Overall, 315 people completed the survey in English, and 3 people completed it in Spanish. The vast
majority of respondents are Salem residents from neighborhoods thro ughout the city, representing
a broad range of incomes and household types.
7 Data Source Name
Drug Use Characteristics
List the name of the organization or individual who originated the data set.
Massachusetts Department of Public Health, Bureau of Substance Abuse Services Online
Provide a brief summary of the dataset.
Primary Substance of Use and past-year Substance Use as reported by clients on admission
to substance abuse treatment programs
8 Data Source Name
Subsidized Housing Inventory
List the name of the organization or individual who originated the data set.
Massachusetts Department of Housing and Community Development
Provide a brief summary of the dataset.
List of qualifying subsidized housing units in each community in Massachusetts
9 Data Source Name
Municipal Databank
List the name of the organization or individual who originated the data set.
Massachusetts Department of Revenue Division of Local Services
Provide a brief summary of the dataset.
Property tax valuation, tax rates, and property tax levy data for each community in
Massachusetts