Needs Assessment

NA-05 Overview

Needs Assessment Overview

The Needs Assessment presents Framingham’s most significant community development needs. It is largely based on interviews conducted with local service providers and City staff and volunteers, supplemented by publicly available data sources.

Framingham belongs to the WestMetro HOME Consortium. As the HOME Consortium’s lead community, the City of Newton prepares and submits the Consortium’s Consolidated Plan, which includes an analysis of housing needs and housing market conditions in all thirteen participating communities. Accordingly, this Needs Assessment focuses primarily on other, non-housing community needs. However, the statewide housing crisis places significant pressure on Framingham’s low- and moderate-income (LMI) residents. As a result, many local service providers and City staff report housing affordability and housing stability as a major community development problem.  

As a CDBG entitlement city, Framingham develops plans and funding priorities that allocate at least 70 percent of funds to activities that benefit LMI residents. The City remains committed to identifying and implementing strategies and programs that will provide the greatest benefit with CDBG and other available funds.

The remaining part of this Needs Assessment Overview summarizes demographic data and trends related to housing, homelessness, public housing. It covers the wide range of needs that exist in Framingham today, including those of the City’s homeless, minority populations, residents with disabilities, lower-income homeowners and renters, and small businesses.  

HOUSING

Overview

The Department of Planning and Community Development (PCD) identified the following overall housing needs to the WestMetro HOME Consortium as part of its Consolidated Plan process:

• More accessible units, especially first floor units for mobility-impaired households;
• More subsidized units;
• More housing options for extremely low income (ELI), migrant, and elderly populations units;
• More diverse/ “missing middle” housing options;
• Housing affordable to people who work in Framingham; and
• Housing proximate to public transit and public service providers.

The following housing concerns were noted by service providers and City staff and board and committee members:

• Rising cost of rent and/or utilities
• Substandard or dangerous housing conditions
• Lack of resources for people at risk of/experiencing homelessness
• Low supply of rental units
• Lack of affordable family units
• Lack of housing with access to services
• Language barriers

Population and Age

In 2022, Framingham had an estimated 71,805 residents and 27,810 households.^[1] Framingham's population distribution by age mirrors that of Middlesex County and Massachusetts as a whole. However, there are some key differences in the 25 to 44 and 45 to 65 age groups. Twenty-nine percent of Framingham residents fall within the 25-44 age range, compared to 27% of the state’s population, while 24% of Framingham residents are aged 45-65, compared to 27% of the state population (Figure NA-05.1).

[3] U.S. Census Bureau’s American Community Survey, Five-Year Estimates, 2018-2022, 5 ACS, Tables B01003 and B11001.

Although Framingham's age distribution is not particularly unique, the financial challenges faced by different household types make certain populations more vulnerable. For instance, 67 percent of households with at least one person aged 75 or older are classified as low- to moderate-income (LMI), compared to 47 percent of all Framingham households (see Table NA-05.1). This disparity is even more pronounced when considering elderly non-family households (defined as one- or two-person non-family households with at least one person aged 62 or older), where 77 percent of these households are LMI.^[1]

Service providers noted the strain felt by elderly residents on fixed and limited incomes who cannot afford to stay in their current homes or assisted living and are unable to downsize due to lack of affordable smaller housing types. An adequate supply of safe, diverse, and affordable housing options for seniors is crucial to ensure the needs of these residents are met.

Housing Cost Burden

Data from HUD’s Comprehensive Housing Affordability Strategy (CHAS) (2017-2021), estimated that there were approximately 27,970 households in Framingham in 2021. Thirty-three percent of all households were considered cost-burdened – i.e., paying more than 30 percent of their income toward housing costs. Of these households, thirty nine percent were severely cost-burdened (paying more than 50 percent of their income toward housing costs), and 61 percent were moderately cost-burdened (paying between 30-49 percent of their income toward housing cost).^[2] Figure NA-05.2 indicates that LMI households are significantly more likely to be cost burdened or severely cost-burdened, a trend not unique to Framingham. In fact, sixty-two percent of the 13,130 LMI households in Framingham were considered cost burdened in 2021. Additionally, among LMI households, renters in Framingham are slightly more likely to experience cost burden, as shown in Figure NA05.3.

Of all Framingham households, approximately 17 percent earn less than 30 percent of the area median income (AMI); approximately 13 percent earn between 30 percent and 50 percent of AMI; and approximately 17 percent earn between 50 percent and 80 percent of AMI. In total, it is estimated that 47 percent of households in Framingham earn less than 80 percent of AMI and would be eligible for affordable housing programs in the City. This share is slightly larger than the share across the state, where approximately 42 percent of all households earn less than 80 percent AMI.

The median sales price for a single-family home was $655,000 in 2024,^[7] which is unaffordable for households earning the HAMFI — and even more so for those earning Framingham’s median family income. However, this disparity affects LMI renter households less significantly than LMI homeowner households. Framingham’s median gross rent is lower than HUD fair market rent and on par with the low HOME rent limit; rent for a 3-bedroom unit in 2022 was $2,152 in Framingham to compared to the HUD FMR ($3,266) and low HOME rent limit ($2121) for the Boston Metro Area.^[8]

Figures NA.05-04 and NA.05-05 indicate further differences between renter households and homeowners; among LMI renters, nonfamily households are most likely to be severely cost-burdened, whereas the elderly are most likely among LMI homeowners. By contrast, large family LMI households are least likely to experience any level of cost burden both among renters and homeowners.

[7] Banker and Tradesman, Framingham, MA Town Stats, 2024.

[8] ACS 2022 Table B25031, HUD 2024.

Disproportionately Greater Need

“Disproportionately Greater Need” is used to evaluate the housing needs of minorities compared to the total population. Disproportionate need for each race/ethnicity is determined by calculating the share of the total number of households with one or more housing problems from each race/ethnicity and comparing that figure to the share of all households in Framingham at that income level that experience the problem. HUD determines disproportionately greater need exists when the racial/ethnic group in an income category is 10 percentage points higher than the percentage of persons in the entire income category.

Figures NA-05.6 and NA-05.7 show that Black, Asian, Pacific Islander, and Hispanic (of any race) households are disproportionately affected with respect to the presence of a housing problem and/or a severe housing problem. HUD defines housing problems and severe housing problems as follows:

• The four housing problems include: 1. Lacks complete kitchen facilities, 2. Lacks plumbing facilities, 3. More than one person per room, and 4. Cost burden greater than 30%.
• The four severe housing problems include: 1. Lacks complete kitchen facilities, 2. Lacks complete plumbing facilities, 3. More than 1.5 persons per room, and 4. Cost Burden over 50%.

Age of Housing Stock

Seventy-seven percent of Framingham’s housing stock was built before 1980, with the largest number of homes (21 percent) built between 1950 and 1959.^[9]

  [9]ACS, Five-Year Estimates, 2018-2022, Table B25034.

See Map 1: Age of Housing Stock.   

LMI households are more likely to live in older units in need of maintenance, and Framingham is no exception. Census tract 3831.01 in South Framingham has one of the lowest median household incomes throughout the city ($57,593), and the highest percentage of units built before 1980 (91 percent). Service providers and City staff noted that many lower-income housing areas suffer from a lack of adequate maintenance.

Public Housing

The Framingham Housing Authority (FHA) operates 1,071 units (235 of which are federal), broken down into 398 family units and 673 elderly/disabled units. The FHA also provides forty- two accessible units and reports a need for accessible bathrooms and first-floor units or buildings with elevators to accommodate those with mobility impairments.

Additionally, the Framingham Housing Authority serves approximately 4,461 households through its public housing, housing choice voucher program, project-based, and tenant-based rental assistance programs. The authority administers 1,836 tenant-based rental assistance vouchers, an additional 101 Veterans Affairs Supportive Housing Vouchers, and 54 project-based vouchers.

Credit counseling, childcare assistance, work force training, medical services and personal care assistance to facilitate independent living are all common immediate needs of public housing residents in Framingham.

Homelessness

Framingham is part of the Balance of State (BoS) Continuum of Care (CoC). On December 9, 2024 when the latest PIT count was done, there were 24 unsheltered homeless Framingham residents. Under the McKinney-Vento Act, public schools must take steps to ensure that homeless students enrolled in the district have access to education. This may include providing transportation from wherever the student is staying (shelter, hotel/motel, or with another household) and other services such as tutoring, counseling, etc. School districts must designate a staff person to serve as McKinney-Vento liaison for homeless students; in most cases, this role overlaps with existing positions like Guidance Director, etc.

At the end of the academic year, schools report the number of students receiving McKinney Vento to the Massachusetts Department of Elementary and Secondary Education. In 2024, 755 students enrolled in Framingham public schools were homeless, 230 of which were in a homeless shelter, hotel/motel or unsheltered.

The South Middlesex Opportunity Council (SMOC) is the main service provider targeting homeless households. They provide wrap-around services for many of the needs faced by these clients, including weekly case management, and also provide most of beds within Framingham. There were 246 emergency beds in Framingham in 2024; 228 units were reserved for families. In addition to SMOC, the local Veteran Service Officers refer local veterans to the Bedford VA office to obtain a VASH voucher that combines a housing voucher with case management and clinical services provided by the Department of Veteran Affairs. Wayside Family Services has a program in downtown Framingham focusing on unaccompanied youth. Tempo provides transitional housing units and emergency shelter beds for unaccompanied youth. The youth living in the transitional housing units are provided case management and clinical support.

To highlight housing insecurity needs within the region, the City of Framingham, along with the MetroWest Health Foundation, facilitated the development of the MetroWest Housing Coalition. 

NON-HOMELESS SPECIAL NEEDS

Elderly and Frail Elderly

According to 2022 Census data, there are approximately 6,839 households in Framingham that include a household member that is over the age of 65, which is equal to approximately 25 percent of all households in the City. Both Framingham’s percentage of elders in households and percentage of elders living in poverty (approximately 10 percent) are largely consistent with the county and state.

The HUD CHAS data identifies approximately 976 elderly households that are severely cost burdened, 98 percent of which are LMI. Of these, 588 owner households (11 percent of all elderly homeowners) and 369 renter households (16 percent of all elderly renters) are severely cost burdened. The elderly, especially in very low-income households, face housing difficulties based upon their housing needs (size of units, and types of fixtures and amenities), and on the basis of the cost burden they bear for housing and the fact that most are limited by fixed incomes. The Frail Elderly may need additional assistance to live independently and have additional requirements for their housing, such as elevators, grab bars in the bathroom, and special types of kitchen and bathroom fixtures.

As Framingham’s elderly population continues to grow, so does the need for robust social and health-related support services for aging residents to live in their homes or have access to affordable alternatives and care. There remains an unmet need for skilled nursing facilities and resident care facilities in Framingham. Elders would also benefit from affordable rental housing programs that include supportive services, as well as homeownership program that can be implemented to help seniors remain in their homes by providing financial support for home repairs.

Populations with Special Needs

According to 2022 American Community Survey (ACS) data, 7,621 Framingham residents (11% of the City’s population) have a disability. Forty-four percent of those living with a disability are over the age of 65.^[2] Many of these residents have fixed incomes and mobility issues that prevent them from obtaining necessary services, leading to social isolation. They need for first floor units or buildings with elevators, clear path of travel, handicap accessible bathrooms, and other modifications. Many social service providers such as the Callahan Senior Center, SMOC, Advocates, and Wayside Family and Youth work in Framingham. They report that clients need funds to make ADA modifications to their homes or apartments. A large portion of the LMI population is limited English learners and need more ESL classes. Service providers and town staff highlight the need for improved accessibility of public spaces around the City including sidewalks, buildings, parks, etc.

Substance Abuse

The Bureau of Substance Addiction Services (BSAS) oversees the statewide system of prevention, intervention, treatment, and recovery support services for individuals, families, and communities affected by gambling and substance addiction. According to the Massachusetts Bureau of Substance Addiction Services (BSAS), in FY2023 there were 417 residents of Framingham seeking addiction treatment services from BSAS providers, 15 of which are located in the City. There were 46 substance-related deaths reported in Framingham in 2023. Across the MetroWest region, opioid-related overdoses have grown 237 percent since 2007 to over 870 in 2022, the highest in the last 15 years.^[3] Social service providers point to the need for specialized housing for those recovering from substance abuse issues to prevent relapse.

Poverty

In 2018-22, about 2,221 children in Framingham were living in poverty, or 15 percent of all children under 18. This rate is significantly higher than most of the rest of the communities in the MetroWest region and higher than the states as a whole (12 percent). Children raised in impoverished environments are at higher risk for a wide variety of health and social problems, including poor performance in school.^[4]

Poverty is most concentrated in the southeastern part of Framingham, near downtown. In Census Tract 3831.02, for example, 44 percent of children under 18 are living in poverty. These areas are also the most ethnically diverse and underwent the most significant changes in terms of economic activities over the years, following the moving out of two important businesses, General Motors and Dennison.[13]

[13] Housing Production Plan Draft, 2024.

This demographic clustering, predominantly in South Framingham, is a manifestation of historical urban development patterns shaped by early industrialization and transportation networks. The area’s dense, mixed-use urban fabric is characterized by a higher density of multi-family housing units and commercial activities which serve mostly local residents. This profile is in stark contrast with the predominantly suburban characteristics of the town’s northern and western regions and highlights a disparity in terms of urban equity and development.

If the PJ will establish a preference for a HOME TBRA activity for persons with a specific category of disabilities (e.g., persons with HIV/AIDS or chronic mental illness), describe their unmet need for housing and services needed to narrow the gap in benefits and services received by such persons. (See 24 CFR 92.209(c)(2) (ii))

Not applicable.

NA-50 Non-Housing Community Development Needs

Describe the jurisdiction’s need for Public Facilities:

The City of Framingham has a pressing need for continued investment in public facilities to enhance accessibility, safety, and community well-being. Previously, Community Development Block Grant (CDBG) funds have been effectively utilized to improve public spaces, supporting critical upgrades to the Framingham Public Library, community center, and public parks that ensure these facilities remain valuable resources for residents. However, ongoing challenges highlight the necessity for further investment. For example, the City’s schools are aging and may require renovations, while parks and playgrounds must be upgraded to improve safety and accessibility for all residents.

The City continues to work to address inequities in open space and recreational facilities within environmental justice neighborhoods. Framingham is currently working to remediate and redevelop Mary Dennison Park, located in the heart of Framingham’s south side environmental justice community. This park is one of the City’s three historic waste sites. transform the park into a modern, vibrant space that caters to the social, physical, and economic needs of the community residing in this environmental justice neighborhood. There remain additional opportunities to provide and improve public facilities in Framingham's environmental justice communities.

Framingham’s commitment to roadway, pedestrian, and recreational improvements reflects its broader vision for sustainable growth and inclusivity. Climate initiatives and accessibility enhancements will help address the needs of environmental justice communities, ensuring that all residents can benefit from improved infrastructure.

Public facility priorities have typically included park and recreational facilities, capital improvements for community organizations, and removal of architectural barriers that impede access for people with disabilities. Continued investment in public facilities is crucial for fostering a more resilient and equitable city.

How were these needs determined?

These needs were determined primarily by referencing Framingham’s capital planning efforts, especially the current Capital Improvement Plan. Focus group conversations with City staff and other stakeholders also informed Framingham’s public facilities needs.

The City of Framingham regularly projects capital improvement needs by updating its Capital Improvement Plan (CIP). According to the CIP for fiscal years 2026-2030, the City anticipates spending about $414 million over the next five years including repair and maintenance of municipal buildings, infrastructure improvements, park maintenance, and replacing City vehicles. Major public facility improvements forecasted by the CIP include structural renovations to the Barbieri and McCarthy Elementary Schools, the Framingham Public Library, and the Framingham Police Department.

Describe the jurisdiction’s need for Public Improvements:

Framingham faces significant public improvement needs, particularly in its downtown area and Environmental Justice (EJ) neighborhoods, where aging infrastructure, accessibility challenges, and economic revitalization efforts are pressing concerns. The city has identified downtown revitalization as a key priority to enhance workforce development, promote connectivity, and create a more inviting and functional urban space. Addressing vacant storefronts, improving safety measures, and expanding green spaces are essential steps in fostering a thriving business and residential community. Additionally, improving wayfinding signage and pedestrian and bicycle access will help better integrate downtown with surrounding neighborhoods, encouraging greater use of public spaces and supporting local businesses.

Infrastructure upgrades remain a critical need, especially in South Framingham, where aging streets, sidewalks, and underground utilities are in disrepair. Frequent water main breaks and deteriorating pipes pose ongoing challenges, requiring substantial investment in reconstruction efforts. Enhancing stormwater and wastewater management systems will help mitigate flooding and environmental concerns, while brownfield remediation projects will ensure that formerly contaminated sites can be repurposed for community use. Additionally, the city must continue efforts to improve public transit accessibility, including extending the Rail Trail to the south side to strengthen connectivity and transportation options.

Accessibility and safety improvements are also a priority, particularly for residents with limited mobility and vision. The city needs to invest in brighter street lighting, curb cuts, and ADA-compliant sidewalks to create a more inclusive and navigable environment. Furthermore, improving access to essential services, such as medical facilities, pharmacies, and fresh food markets, will support residents' well-being and help stabilize neighborhoods. In addition to infrastructure repairs, Framingham must focus on the demolition of unsafe and abandoned buildings, preserving historic structures, and investing in streetscape improvements to enhance the city's overall appeal and functionality.

How were these needs determined?

These needs were determined through focus group interviews with City staff, volunteers, and community stakeholders. Respondents were asked about Framingham’s most pressing infrastructure needs and priorities. Top priorities related to public improvements included:

• Improving downtown Framingham;
• Improvements to streets and sidewalks;
• Improving accessibility of City of Framingham buildings;
• Maintenance of aging waste and stormwater infrastructure; and
• Rehabilitation and maintenance of neglected housing, particularly in Southeast Framingham.

Supplemental data from the US Census Bureau and other sources and previous City plans were consulted to inform these needs, including the City’s most recent Capital Improvement Plan, Hazard Mitigation Plan 2023 Update, Downtown Framingham 2019 Annual Report, the 2023 Annual Report, and the Economic Development Strategy, Phase I Report (2019) and Phase II Data Update (2021).

Describe the jurisdiction’s need for Public Services:

While City Staff, community stakeholders, and service providers highlighted distinct public service challenges, every service provider asked about the relative demand for their services over the last five years indicated that demand for their services has increased, sometimes dramatically. For example, a representative from Family Promise Metrowest stated that demand for their services had increased by 62 percent in just two years. Since the pandemic, rising costs and rents have led to an increase in housing instability in Framingham. Service providers report more people living in unsuitable housing and experiencing homelessness, more unemployment and underemployment, and more people experiencing financial hardship. As a result, there is increased demand for housing services and adjacent social services, such as food assistance and childcare.

Another common theme was the need for better coordination among service providers and with the City. Many residents struggle to navigate available resources, making collaboration essential to ensuring they receive comprehensive support. The sections below detail specific public service needs identified throughout the public outreach process.

Adult ESL and Literacy Programs: Stakeholders noted recent increases in the number of undocumented and immigrant populations which has increased the need for interpretation and ESL services. Language barriers are a major obstacle for people in need of services. All of the service providers interviewed for this plan work with immigrant communities, and for many, a majority of clients have Limited English Proficiency. While some organizations have adequate in-house interpretation services, others struggle to provide non-English speakers with the level of service they require. The City has access to translation services, but some City officials report that members of immigrant communities still often do not feel comfortable interacting directly with municipal government due to the language barrier, concerns over immigration status, and general distrust of government.

Framingham Adult ESL, for example, serves 1,300 students but cannot accommodate all applicants, highlighting the need for expanded English literacy and citizenship support services. The local library and other literacy programs also have long waitlists.

Mental Health Services: Access to mental health care in Framingham remains a significant challenge. The demand for providers, particularly those who can serve BIPOC youth and individuals who speak a second language far exceeds availability. Additionally, service providers against each other and state agencies for the same limited pools of funding. The demand for mental health services spans all levels of care, yet the available resources fail to meet the growing and diverse needs of Framingham residents.

Childcare: Framingham has a growing need for childcare services, especially those with extended hours to accommodate families with non-traditional work schedules. Many residents are motivated to pursue education and career growth, but the lack of affordable and accessible childcare remains a significant barrier.

Economic Development: Framingham’s economic development efforts face challenges that require stronger support services to help businesses thrive. Small businesses, many of which are immigrant-owned, struggle with language barriers, navigating city regulations, and accessing funding. The lack of a dedicated marketing strategy and limited City staffing further hinder downtown revitalization efforts. Business owners also report difficulties in securing permits and redevelopment approvals, which discourages investment.

Emergency Shelter Services: Framingham's emergency shelter system faces numerous limitations, including a lack of winter protocols and restricted capacity, leaving many without suitable accommodations. Family shelters have strict eligibility criteria, often excluding adult children who require full-time care and limiting opportunities for families to stay together. Older adults with medical conditions face additional housing challenges, as municipal departments lack the financial resources or capacity to provide emergency assistance. The shelter system, originally developed in the pre-1980s era, remains outdated and ill-equipped to address the needs of today’s population, particularly those dealing with medical conditions or substance use issues. Many shelters still require individuals to vacate the premises during daytime hours, leaving vulnerable populations without adequate daytime support. Domestic violence shelters also lack resources for trans and gender-diverse individuals.

Transportation: Areas of Framingham have very limited public transit service. Together with unsafe streetscapes, this impacts the ability of residents to get to work, school, medical appointments, supermarkets and recreational opportunities. LMI households, the elderly, and people with disabilities face even greater challenges.

Housing Assistance: The instability caused by the lack of affordable housing, tenant-based rental assistance, and shelters exacerbates all of the other previously discussed community needs. For example, service providers operating homeless shelters and domestic violence assistance programs said that they often do not have anywhere to house clients on a long-term basis or access to deeply affordable, permanent housing for the population they serve.

How were these needs determined?

These needs were determined through focus group interviews with City staff, volunteers, and community stakeholders. Focus group sessions were themed around needs related to human services and homelessness and domestic violence were the most relevant to this section. Additional information was obtained from local service providers via an online feedback form that was distributed in December 2024 through January 2025.