LAND USE

Chapter 7: Land Use

O ur place under the sun is brief. Our actions will leave an indelible print on the face of the land. Our obligation spans across the history and future of Maui, to those who came before and those yet to come. We must remember we speak for them, as well as for ourselves, to respect their dreams and their rights as well as our own.

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West Maui Mountains and ʻĪao Valley.

The purpose of the land use chapter is three-fold: to provide an overview of Maui’s past and current land use patterns; to explore future land use challenges and opportunities; and to provide policy direction that will enhance Maui’s agricultural lands and protect the rural character and scenic beauty of the countryside. Agricultural lands are a necessary link to self-sufficiency and a diverse economy. In addition, the agricultural landscape contributes to our sense of place and is a part of our island heritage. The island’s small towns are a treasure to be protected. Residents also desire clean, safe, and livable urban environments that provide a high quality of life.

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Central Maui Sugarcane Fields. Pu`unēnē.

AGRICULTURAL LANDS

Agriculture is deeply rooted in Maui’s history and will continue to be an important industry from an economic, social, and environmental perspective. Traditional Hawaiian ahupua`a land divisions had a complete ecological system that included agriculture as a basic component. With the arrival of American and European immigrants in the eighteenth century came a new era of Hawaiian agriculture: sugarcane and pineapple. These industries drove Maui’s economy for over 90 years, having long-lasting impacts on the island’s people, land, and water. Within the past two decades, Maui has experienced a decline in sugarcane and pineapple production, and an increase in the cultivation and sale of diversified crops. Although Maui’s agriculture has evolved over the years, its importance remains constant.

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Background Information

This chapter of the MIP draws on a series of technical papers that provide background information and policy direction for the future. The following studies and reports are available at the Maui County Planning Department’s Long Range Planning Division:

1. Agricultural Resources Technical Issue Paper, September 2007 (Chris Hart & Partners, Inc.);
2. Rural Areas Technical Issue Paper, December 2007 (Chris Hart & Partners, Inc.);
3. Directed Growth Strategy—Transfer and Purchase of Development Rights Program Implementation Study, November 2007 (Chris Hart & Partners, Inc.);
4. Land Use Forecast, Island of Maui, Maui County General Plan 2030, November 2006 (PlanPacific, Inc.); and
5. Economic Development Issue Paper, PlanPacific, Inc., in association with John M. Knox & Associates, Inc., Tom Dinell, FAICP, and Chris Hart & Partners, Inc., October 2007.

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Figure 7-1. Acreage in Crop by Crop Type, 2004.

Vital Component of Economy

Agriculture creates a diversity of jobs, generates tax revenues, and produces a variety of crops for different local and export markets. While agriculture ranks behind tourism and retail business in terms of market value, its contributions to the economy are significant. In 2007, the total value of crop sales in Maui County approached $139 million and the agricultural industry provided 1,700 jobs.¹ Agriculture also benefits Maui’s tourism industry by providing green landscapes and enhancing the island’s sense of place.

Food and Energy Security

Although Maui has an ideal climate and location for crop production, according to the Hawai`i Business Magazine (April 2005) nearly 90 percent of our State’s food is imported. Diversified local food production can help buffer our food supplies by reducing our dependency on imported foods. Moreover, local agriculture can deliver fresher, and more flavorful and nutritious alternatives when compared to many mainland and foreign agricultural products. Energy crops are an emerging agricultural industry that has the potential to significantly increase Maui’s energy security and the demand for agricultural land.

Stewardship of Land and Water

Unlike urban development, agriculture protects land use options for future generations. In addition, agriculture gives residents a connection to the land and promotes the stewardship of natural resources.

Open Space Implications

A desirable attribute of agricultural land, whether in active production or not, is that it is considered to be open space, often green and scenic. It thus plays an important role in Maui's beautiful landscape. In 2006, Maui County had over 244,000 acres of land designated for agricultural use within the State Land Use District.²

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CHALLENGES AND OPPORTUNITIES

The State and County have enacted zoning laws to protect agricultural resources and promote agricultural activities; nevertheless, there remain numerous challenges within the industry.

Challenges in Agricultural Lands

When additional Urban District lands are needed to accommodate growth, it is almost inevitable that agriculturally zoned land will be converted. It is the "default" zoning or district on the island, and it most often borders our urbanized areas. While providing housing and jobs is desirable and necessary to meet the needs of our residents, there is also a corresponding loss of agricultural land.

Urbanization is not the only factor contributing to the loss of viable agricultural land. Commercial farming is a business venture where the ability to make a profit is a necessity. If the business is not profitable, it will stop operating and the assets will be used differently. Residential development and other factors within the agricultural district contribute to the loss of agricultural land productivity and profitability:

• Diminished Production Capacity. Fragmentation of agricultural parcels affects the agricultural production capacity of the land. Noncontiguous and fragmented agricultural parcels offer less economy-of-scale for production and marketing and make it more difficult to justify the cost of agricultural investment. When roads, waterlines, and other infrastructure are introduced into an agricultural area, the expansion of this infrastructure to support more development is likely. Once fragmentation begins, it leads the way to further development of agricultural land.

• Higher Land Costs to Farmers. Non-agricultural land uses are viewed by many to be a more profitable investment than agricultural land uses. This perception, coupled with expanding infrastructure, lead to elevated land costs. Those who may consider starting a farming business or expanding their current operation are often unable to afford these higher land costs, thus stifling the viability of agriculture and leaving the land available for urban or rural development.

• Conflicts with Non-agricultural Land Uses. Agricultural activities often create noise, odors, dust, and other byproducts that residential neighbors view as nuisances. With encroachment of rural and urban uses adjacent to agricultural land uses, farmers who have operated their farms for decades with few nearby neighbors suddenly find themselves in conflict with new homeowners. This situation may result in higher operating costs for farmers and a higher incidence of further land conversion.

• Social Changes. Small farms have traditionally been passed from one generation to the next. As social mores change, commercial farming may be considered by some to be a difficult occupation with an undesirable lifestyle. Where families no longer wish to pursue farming, land may be subdivided and sold.

• Affordable housing. Some small farmers desire to pass land on to their children by subdividing and thus providing them with an affordable opportunity for housing. While this directly benefits family members,

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fragmenting the original property can result in loss of agricultural productivity as described above. It is more difficult to have a viable farm on a small property than it is on a larger one.

• Water. A reliable and inexpensive source of water is particularly important to keep agricultural lands in production. Without it, farmers cannot predictably plant and harvest, and the land may be good for other uses. Other land uses also compete for available source, including urban, cultural, and conservation uses; and new source development has not kept pace with this demand. Finally, where water is available it is often expensive, as it is treated to potable standards.

Agricultural land management can be enhanced through a directed growth strategy that identifies areas appropriate for development, utilizing tools for agricultural protection such as zoning, transfer and purchase of development rights (TDR/PDR), and Conservation Subdivision Design (CSD).

The Agricultural Zoning District (Chapter 19.30A, MCC) requires a distribution of minimum lot sizes that range from two to forty acres for new subdivisions. The required distribution provides a greater diversity of lot sizes, and has decreased fragmentation of agricultural lands. The Agricultural District Ordinance could be reviewed and revised to further decrease fragmentation by considering such tools as decreasing the number of 2-acre lots, or clustering of the 2-acre lots into smaller parcels, or developing CSD provisions as described below.

Many communities have established TDR programs to protect important agricultural lands and direct development to areas suitable for development.

An Agricultural Land Protection Toolbox

TDR programs allow landowners to sever the building rights from a particular piece of property and sell them...TDR programs strive for two main goals. First, communities can use TDR programs to preserve open space, agriculture, historic buildings or housing. And TDR programs make such preservation more equitable and politically palatable by compensating landowners who lose the right to develop their property.¹

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The Farm and Ranch Lands Protection Program, or 2002 Farm Bill, is administered by the Natural Resources Conservation Service, U.S. Department of Agriculture, to help farmers and ranchers keep their land in agriculture through the purchase of conservation easements. Grants from this federal program can be used in conjunction with State Legacy Land Conservation Program grants, or other land preservation funds, to permanently protect agricultural land.

CSD requires the preparation of a detailed site assessment to identify important natural resources, cultural sites, agricultural lands, and open space to be preserved during subdivision. Based upon the assessment, a CSD plan is prepared to minimize environmental impacts, protect agricultural land and open space for future generations, reduce the cost of infrastructure, and preserve the land's natural character. CSD plans are typically required for agricultural subdivisions that exceed a specified number of lots. CSDs should be sparingly used as so not to promote further development of agricultural lands.

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Kula agricultural park, Kula.

Encourage Locally-grown Products

The best strategy to protect agricultural lands is to prevent non-agricultural subdivisions and create an environment where agriculture can be profitable (see Chapter 4, Economic Development). Agricultural entrepreneurs require access to support services, affordable and productive agricultural land, and affordable and reliable supplies of irrigation water.

Implementation of the 2009 Maui Agricultural Development Plan will effectuate the following: the implementation of marketing support programs; the expansion of direct marketing opportunities; the identification and implementation of programs to expand access to prime agricultural lands for small- and medium-sized farmers; support for agricultural tourism; the identification of various regulatory and non-

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regulatory barriers to industry growth; and transportation of agricultural products to market. The development of additional agricultural parks and the preparation and implementation of the Agricultural Water Plan are of high importance to the viability and growth of agriculture on Maui.

Agricultural parks provide farmers with long-term access to affordable land and water resources to start or expand their operations. Although a considerable amount of agricultural land exists on Maui, much of this land is currently planted in sugar, used for grazing, or owned by developers and investors. For smaller diversified farmers, gaining affordable long-term tenancy to land and water resources can be difficult. Maui’s only agricultural park is located in Kula and provides affordable land leases to farmers. The development of additional agricultural parks would facilitate the expansion of diversified agriculture. Additional agricultural parks will be strategically located throughout the island.

Complementing the Agricultural Development Plan, a comprehensive Agricultural Water Plan will be prepared to ensure that farmers continue to have affordable access to water. The report will address the availability and distribution of non-potable water resources to potential users. The plan should compare costs across user groups and develop strategies to ensure that Maui’s agricultural water is cost competitive with irrigation water available to farmers statewide.

SUMMARY OF AGRICULTURAL LAND USE ISSUES

Preserving agricultural lands is important for the long term sustainability of Maui. A few agricultural resource protection challenges and opportunities include:

• Reduction of the conversion of prime and productive agricultural lands to non-agricultural uses
• Innovative planning and regulatory tools to reduce the loss of important agricultural lands
• Investment and incentives, from both the public and private sectors, to make agriculture more profitable

GOAL, OBJECTIVES, POLICIES, AND ACTIONS

Goal:

7.1 Maui will have a prosperous agricultural industry and will protect agricultural lands.

Objective:

7.1.1 Significantly reduce the loss of productive agricultural lands.

Policies:

7.1.1.a Allow, where appropriate, the clustering of development on agricultural lands when approved as a CSD plan or similar approval mechanism.

7.1.1.b Require, where appropriate, the review and approval of CSD plans prior to the subdivision of agricultural land.

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Implementing Actions:

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7.1.1-Action 6 Consider developing or amending regulations to: (1) Reduce the subdivision of agricultural lands by strengthening applicable zoning and subdivision ordinances, and consider the creation of Agricultural categories to better reflect agricultural uses and land use patterns; (2) Require public notification and review of the subdivision of agricultural land into four or more lots; and (3) Require the preparation of a more detailed agricultural impact assessment for changes to the Urban Growth Boundary, Community Plan Amendments, and change in zoning requests of Prime agricultural land as required by Section 19.510, MCC.

7.1.1-Action 7 Utilize farm land trust mechanisms to preserve agricultural lands and family farms.

7.1.1-Action 8 Promote farm profitability by supporting programs or subsidies including: (1) Low-cost, reliable transportation for export agricultural products; (2) Hawaii Farm Bureau Federation, Maui County; and farmers cooperatives; (3) Promotion of locally-grown products to hotels, restaurants, or other segments of the visitor industry; (4) The expansion of marketing efforts such as Grown on Maui to the mainland or Far East markets; (5) Development of new or value-added products; and (6) Property tax incentives for commercial agricultural uses.

Objective:

7.1.2 Reduction of the island’s dependence on off-island agricultural products and expansion of export capacity.

Policies:

7.1.2.a Coordinate with the agricultural community, associations/community groups, agricultural landowners, and the State to designate IALs.

7.1.2.b Support an incentive package for productive Agricultural Lands which aims to ensure agricultural viability for small- and commercial-scale agricultural producers.

7.1.2.c Actively look to acquire land and provide infrastructure to expand the agricultural park and establish new agricultural parks.

7.1.2.d Support the designation of a research and development area within agricultural parks to help farmers stay attuned to new technology and research.

7.1.2.e Support local cooperative extension services to facilitate timely technology transfer opportunities.

7.1.2.f Support plans and programs to develop additional sources of water for irrigation purposes.

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7.1.2.g Consider appropriate subdivision requirements (gravel roads, above-ground utilities, etc.) in those subdivisions creating Agricultural Parks where lots are limited to agricultural production with no dwellings.

7.1.2.h Support the recommendations, policies, and actions contained within the Maui Agricultural Development Plan, July 2009, when consistent with the MIP.

7.1.2.i Allow water and tax discounts for legitimate farming operations on rural and agricultural land.

7.1.2.j Give priority in delivery and use of agricultural water and agricultural land within County agricultural parks to cultivation of food crops for local consumption.

7.1.2.k Support programs that control pests and diseases that affect agriculture.

7.1.2.l Support the development of training and apprenticeship programs to encourage an adequate supply of agricultural workers.

Implementing Actions:

7.1.2-Action 1 Identify and acquire productive and community Agricultural Lands that are appropriate for the development of agricultural parks and community gardens in each community plan area.

7.1.2-Action 2 Coordinate with the State Department of Agriculture, the development of an Agricultural Water Strategy, and incorporate an agricultural component in the Water Use and Development Plan.

7.1.2-Action 3 Revise the subdivision ordinance to create appropriate subdivision requirements for agricultural parks, and to promote research and development activities.

7.1.2-Action 4 Coordinate with industry stakeholders to develop alternative sources of irrigation water including wastewater reuse, recycled stormwater runoff, and brackish well water.

Objective:

7.1.3 Support and facilitate connectivity between communities.

Policies:

7.1.3.a Evaluate the impact of gated communities on interconnectivity.

7.1.3.b Discourage land use and urban design that impedes interconnectivity between adjacent communities.

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Rural Landscape. Kula.

RURAL AREAS

Rural and agricultural lands are intrinsically linked by their physical, economic, and cultural connections. Rural communities and agricultural activities evolved to form a symbiotic relationship: each land use benefits from the other. Rural areas supply agricultural operations with labor, commercial and civic services, and a local market for agricultural goods. Conversely, agricultural areas provide rural communities with employment opportunities, local agricultural products, and a connection to a rural lifestyle. The linkages between rural and agricultural land uses dictate that the consequences of policy decisions for one must consider the implications to the other.

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Background Information

Traditional rural lifestyle and settlement patterns are distinct from urban and suburban areas as a result of their strong connection to agricultural land uses. Rural settlement patterns typically consist of small towns, low-density residential development, open space, and an agricultural landscape. Rural towns are often walkable, contain human-scale buildings, cater to the everyday needs of residents, and frequently include an identifiable main street. Expanding out from the town's center, rural roads follow the natural topography of the landscape and residential development gives way to small and large scale farming and ranching operations.

Rural areas commonly possess a more flexible set of standards for infrastructure and public services. Paved roadways, traffic control, trash removal, telecommunications, emergency response, and utilities are provided at a lower-service-level standard. Reduced levels of service are not only a key characteristic of the rural lifestyle, they are important to the aesthetic and environmental objectives in the countryside.

With a mix of natural landscapes and productive agricultural lands, rural areas offer a high concentration of environmental and cultural resources. Streams, wetlands, floodplains, forestlands, steep slopes, and wildlife are common. Cultural resources include a mix of historic structures, archaeological sites, and important cultural lands. Table 7-1 provides a brief overview of the rural land regulatory controls.

Table 7 - 1: State and County Regulatory Controls for Rural Lands

CHALLENGES AND OPPORTUNITIES

Population growth, development pressures, and decreasing agricultural activities have initiated a shift within Maui's rural landscapes. Originally, Maui's rural areas were a

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mix of small country towns, limited residential development, productive agricultural operations, and natural lands. However, in recent decades the character of the landscape, stretching from Haikū to Ulupalakua and beyond, has experienced a marked increase in lower-density residential sprawl.

Land Use and Planning Management

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Rural, large lot residential development pattern, Upcountry.

Standards established by the State and County agricultural and rural districts could do more to protect the character of existing towns, rural resources, lifestyles, and heritage resources. Typical subdivisions utilizing the one-acre and one-half acre minimum lot sizes permitted within the County rural districts are often not compatible with the rural character of the immediate area, but often produce a landscape pattern more appropriately identified as large-lot residential. The County could consider such things as site plan review and open space requirements as a part of their standards.

Implementing a combination of rural planning tools and techniques will help influence the form of future development and mitigate its impact on the rural landscape. Below, two such techniques are summarized.

1. Low Impact Development (LID): Conventional stormwater management focuses on directing all runoff to a centrally located management system. This conventional method alters the hydrologic conditions of an area by reducing the dispersed absorption of stormwater across the landscape and channeling the water to an offsite location. Utilizing LID strategies as an alternative to conventional stormwater management encourages a decrease in land and hydrologic disturbances and the stormwater can be used for agricultural purposes and other uses. LID attempts to mimic predevelopment site hydrology by reducing offsite runoff and ensuring adequate groundwater recharge.

2. Conservation Subdivision Design (CSD): Applying conventional subdivision models to rural lands typically results in low-density residential development sprawl, which alters the natural landscape and can negatively impact community character. CSD offers an alternative approach to regulating the subdivision process on rural lands. This alternative allows for the clustering of development within a portion of a site while the remainder of the land remains undeveloped and protected. Development potential is not taken away from the developer; rather it is concentrated within a smaller portion of the parcel, allowing for the simultaneous preservation of agricultural land, environmental resources, and open space.

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Development of Rural Scale Infrastructure

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Figure 7 - 2: Conventional Subdivision Design vs. Conservation Subdivision Design. Source: Arendt, Randall. 1994. Rural By Design. American Planning Association Planners Press. Chicago, Illinois.

In addition to potential revisions to land use regulations, urban-like infrastructure standards threaten the character of rural areas. The County’s minimum road widths and sidewalk and lighting requirements may be inappropriate for rural areas. The urban-like nature of these requirements diminishes the small-scale, rugged country atmosphere. Pavement standards for roads and parking lots may increase flooding and impact the hydrologic balance. Additionally, urban-like infrastructure and public services in rural areas elevate the cost of providing these services to sparsely populated regions.

County infrastructure system and public service standards must reflect the distinct differences that exist between the needs of urban and rural areas. Creating strong policy statements, which will dictate levels-of-service for rural infrastructure, will guide development in rural areas in a manner that complements the character of the countryside. Levels-of-service standards for infrastructure and public services should protect public health and safety, preserve natural resources, and be financially supportable at rural densities; they should not sustain or encourage urban development. In addition, interconnectivity should be encouraged between rural communities using roadways, greenways, and other forms of byways.

Numerous options exist for revising the rural zoning ordinance to improve the management of rural lands and protect rural landscapes. Rural villages and town centers should be allowed to form in rural areas to provide basic goods and services to more remote areas and to offer lifestyle choices. By utilizing the Country Town Business District, and establishing a Country Residential District, future rural development could be focused into compact village centers bounded by open space, ranching, and active agricultural lands.

SUMMARY OF RURAL LAND USE ISSUES

Large portions of the island are rural in identity and lifestyle. Maintaining that identity requires us to address certain challenges and opportunities:

• Low density rural sprawl
• Revision to our land use and planning management
• Development of rural-scale infrastructure in rural areas

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GOAL, OBJECTIVES, POLICIES, AND ACTIONS

Goal:

7.2 Maui will have a rural landscape and lifestyle where natural systems, cultural resources and farm lands are protected and development enhances and compliments the viability and character of rural communities.

Objective:

7.2.1 Reduce the proliferation and impact of residential development outside of urban, small town, and rural growth boundaries.

Policies:

7.2.1.a Focus development to areas inside urban, small town, and rural growth boundaries to preserve natural, cultural, and agricultural resources.

7.2.1.b Encourage cluster development with a mandatory buffer requirement/clear edge at the interface of country towns, agricultural uses, and surrounding rural landscapes.

7.2.1.c Encourage or require, where appropriate, CSDs and the use of green spaces/natural separations to protect the character of rural landscapes.

7.2.1.d Encourage basic goods/services in business country towns.

7.2.1.e Allow for mixed uses, including residential uses, within Business Country Town Districts.

7.2.1.f Encourage the use of alternative stormwater management techniques that minimize land disturbance and preserve natural drainage features.

7.2.1.g Encourage green belts, open space buffers, and riparian zones to minimize conflicts between agriculture and residential uses.

7.2.1.h Evaluate the impact of gated communities on inter-connectivity.

Implementing Actions:

7.2.1-Action 1 Coordinate with the State to develop and revise regulations for rural development, within the State Rural District, to encourage creative design and sustainable communities.

7.2.1-Action 2 Revise the Country Town Business District Ordinance to allow mixed uses including small-scale residential uses.

7.2.1-Action 3 Create new Country Town Business zoning sub-districts and design guidelines that reflect the unique character and land use patterns of Maui’s Country Towns and that recognize rural villages.

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7.2.1-Action 4 Revise subdivision regulations to permit clustering and CSD within the Rural Districts and extend Hawaii Right to Farm Act protections to rural subdivisions.

Objective:

7.2.2 More appropriate service/infrastructure standards to enhance and protect the island’s rural character and natural systems.

Policies:

7.2.2.a Minimize impermeable surfaces within rural areas.

7.2.2.b Protect and support the character, economic viability, and historic integrity of Maui’s small towns.

7.2.2.c Use infrastructure, public service, and design standards that are appropriate to rural areas.

7.2.2.d Discourage land use and urban design that impede interconnectivity between adjacent communities.

Implementing Actions:

7.2.2-Action 1 Develop and adopt regulations to establish rural infrastructure and public facility LOS standards.

7.2.2-Action 2 Revise stormwater management regulations to allow for LID techniques and potential irrigation uses.

7.2.2-Action 3 Develop and adopt appropriate procedures and standards for the public to review development in County rural zones.

7.2.2-Action 4 Amend Chapter 19.36B, MCC, as it relates to pavement and parking requirements in rural areas.

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Vineyard Street. Wailuku.

URBAN AREAS

Urban areas are characterized by a convergence of housing, jobs, civic activities, commercial services, and shopping. Less than five percent of Maui’s lands are within the State Urban District. Prudent planning and managed development within these areas will determine future growth. The character, design, and timing of future growth within Maui’s urban areas will have significant consequences for agricultural lands, rural communities, natural resources, and overall quality of life. Sustainable urban development will be accomplished by supporting infill development, enabling mixed-use development, assuring mobility (especially including alternate modes of transportation) and circulation, and clearly defining town edges. As a result, the MIP will promote vibrant and sustainable communities, economize on infrastructure, and protect open space.

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Background Information

Existing urban, rural, and agricultural landscapes are a result of major transformations in the island’s economy, technology, demographics, and population.¹ Over the last half century, Maui’s settlement patterns have become significantly more centralized due, in part, to the mechanization of plantation agriculture and rapid population growth, both of which helped to supply workers for the tourism and resort development industries.

Maui’s existing urban communities are characterized by a mix of commercial, industrial, civic, and residential land uses that support our economy and lifestyle. According to the U.S. Census Bureau, 2010 Census, Maui’s urban communities and their populations are as listed in Table 7-2.

Table 7-2: Maui's Primary Urban Communities

The three primary urban centers on Maui, measured by the regional distribution of commercial jobs, are Wailuku-Kahului (44 percent), Kīhei-Mākena (18 percent), and West Maui (28 percent). Together, these three communities represent 90 percent of all commercial jobs. The island’s primary commercial airport, harbor facility, and hospital are located in Kahului. Kahului also supports the island’s primary industrial zones, large retail centers, and shopping malls. The island’s civic center is located in nearby Wailuku. Kīhei-Mākena and West Maui hold the island’s major resort destination areas.

CHALLENGES AND OPPORTUNITIES

There are challenges and opportunities that transcend Maui’s urban communities. Key issues include:

• Building compact, efficient and pleasant communities that meet the affordable housing needs of island residents;
• Fostering self-sufficient, sustainable communities that respect the island’s “sense-of-place”;
• Ensuring the development process is transparent and efficient; and
• Adequately protecting natural and cultural resources within Urban areas.

Maui’s future urban growth will take place in four different physical forms: 1) as infill development; 2) within urban expansion areas; 3) as new towns and settlements; and 4) as orderly infill and expansion of existing country towns and villages. Each development pattern has benefits and costs that will determine the extent and location of their use.

Infill Development

In The Next American Metropolis (1993), Peter Calthorpe states: “infill and redevelopment should always be a central part of a region’s growth policy. It represents the best utilization of our existing infrastructure and the best opportunity to preserve open space.”²

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Compact, Efficient, Human-scale Communities

Infill development offers an alternative to conventional development patterns that extend the perimeter of an urban area. Infill development focuses growth into already urbanized areas and creatively utilizes vacant or underdeveloped property. Many of the most successful infill projects provide a mix of uses, are designed to be pedestrian-oriented, and incorporate alternative modes of transportation. The benefits of such projects can be the provision of housing near job centers and transit, increased support for businesses, utilization of established public infrastructure and services, and preservation of urban-fringe natural areas and agricultural land. Infill development can also revitalize a struggling urban area, enhance daily convenience for residents, and foster a sense of place. As illustrated in the following pictures, successful infill development can transform an underused shopping center into a vibrant urban village.

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Infill development of an underutilized shopping center allows for creative and beneficial recycling of land.

There are numerous infill opportunities on Maui. Throughout the island’s urban areas, particularly in Kahului, Wailuku, Lahaina, and Kīhei, vacant or underutilized lots could be developed to meet community needs. Future growth can be focused inward to enhance community identity, provide affordable housing, promote convenient access to transit and services, and protect natural areas and agricultural lands.

Urban Expansion Development within urban expansion areas represents one alternative for accommodating future growth on Maui. Urban expansion generally involves the conversion of urban fringe agricultural lands to urban use. These lands typically lie in the path of development, are proximate to existing urban infrastructure and services, and offer favorable topography, which makes development cost-efficient. When developed in a manner that promotes pedestrian and vehicular connectivity, open space, and compact mixed-use development, urban expansion can help strengthen the character and vibrancy of the community.

While urban expansion is oftentimes the most efficient and cost-effective means of accommodating growth, it should be done carefully to prevent sprawl. The location and character of potential urban expansion should be closely scrutinized to prevent land use patterns that consume valuable farmland and open space, and blur the separation between existing communities.

Key areas on Maui, including lands abutting Kahului, Waikapū, Lahaina, and northeast Kīhei, provide opportunities for expanding outward from current urban

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settlement. With innovative design and appropriate scale, these urban expansion areas can enhance community identity and address some of Maui’s housing needs.

New Towns Creating new towns in appropriate locations can offer several advantages: 1) protect the unique identity and character of the island’s towns by directing growth away from, rather than adjacent to, existing communities; 2) provide flexibility through the master planning process to design for mixed land uses, interconnectivity, and greenways; and 3) mitigate against sprawl conditions by defining a strong urban boundary and permanently preserving abutting agricultural lands.

While there are many advantages associated with new town development, it can be prohibitively expensive to create a new community. High infrastructure costs associated with new towns can require the development of larger communities to generate the economy-of-scale necessary to make a project feasible. High infrastructure costs may also discourage the development of affordable housing. Additionally, unless developed in response to a primary supporting industry, new towns often become bedroom communities, thus requiring long commutes to employment, and placing considerable strain on nearby public facilities and regional roadways. The development of new towns in remote locations can also facilitate urban sprawl, and impact important environmental and agricultural resources. The Hawai‘i State Plan notes that new urban lands should be adjacent to existing urban lands. In The Next American Metropolis (1993), nationally recognized planner Peter Calthorpe states: “new towns should only be planned if a region’s growth is too large to be directed to infill and adjacent New Growth Areas.”¹

Due to the potential challenges, new towns should be carefully analyzed to compare the benefits and costs of new towns to alternative forms of growth. The impact of new towns should be assessed in terms of environmental impact, infrastructure costs and agricultural land conversion. If a new town is created, the physical extent of the town should be defined with clear edges and an urban core should be planned to provide the new community with a distinct identity. Land uses within the new town should be mixed to promote self-sufficiency and a jobs/housing balance.

Country Town Infill and Expansion Existing country towns and villages also have the ability to absorb future growth. The potential for these areas to grow must be weighed carefully against the impacts that both infill and moderate expansion will have on their unique sense of place. In addition, growth and expansion should be carefully reviewed for housing balance, commercial and service availability, and infrastructure impacts.

All four forms of future growth should avoid steep slopes, wetlands, riparian areas, native species habitat, and other environmentally important lands. Many of these areas are separated from existing development and infrastructure and are highly sensitive to disturbance.

The design of the built urban environment will greatly influence the sustainability of all communities and the overall quality of life. The following urban design and physical form principles will play a significant role in shaping growth on Maui:

• Defining town edges and greenbelts;

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• Enabling mixed-use, livable communities;
• Facilitating a jobs/housing balance;
• Assuring mobility and circulation, emphasizing alternate modes of transportation; and
• Designing pedestrian-oriented streets.

Clearly defining the edges of Maui’s towns is essential to guide and shape future growth. As towns expand outward they can grow into other towns and the entire region can become one large urban mass, compromising the unique identity of each individual town and community as a whole.

Maui is home to a number of large and small towns, each with its own history and character. As these towns grow it will be critical to define the physical limits of each town, and restrict growth outside of these limits, to maintain a sense of identity for each individual community while protecting agricultural land, natural resources, and recreation areas.

Respect the Island’s “Sense of Place”

The majority of Maui’s future growth will be directed into already urbanized areas or proximate to existing urban areas. Therefore, quality design and composition of Maui’s urban centers will be vital for ensuring walkable, bikeable, livable communities.

During the public planning events WalkStory & PlanStory and other recent design charettes, Maui residents expressed a preference for focusing future growth in existing towns and increasing population densities in appropriate locations as the best way to accommodate growth. The support for urban living was based on neighborhoods that are attractive, safe, user-friendly, and have convenient access to parks and green space. Maximizing livability is vital to making “urban living” an accepted and desired lifestyle on Maui.

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Mixed-use communities bring together our everyday needs into a setting which is scaled to the pedestrian

The first step in promoting the livability of an urban area is to enable mixed-use commercial, retail, employment, civic, recreational, and educational uses into a pedestrian-scaled community. The mix of uses creates an integrated and multidimensional built-environment that reflects our way of life. Rather than creating an automobile-dependent lifestyle, mixed-use communities bring together our everyday needs into a setting that is scaled to the pedestrian. Mixed-use communities also provide for mixed housing types, lot sizes, and incomes to promote sustainable, walkable, bikeable, livable communities.

Jobs/housing balance is a measure of the harmony between employment and dwelling

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units in a specific area. Striving for this balance by providing housing close to jobs can have many benefits for a community and region, including reduced congestion and commute times, reduction of carbon dioxide emissions, increased opportunities to use alternative modes of transportation, support of a more compact urban form, and reduced costs for infrastructure and services.

Assuring mobility and circulation within and between Maui’s urban areas is an important component of promoting rich urban design and human-scale form. Land use patterns and transportation have a very close relationship – land use decisions affect transportation planning, and transportation planning affects land use patterns. Coordination must exist between transportation and land use planning decisions so they are complimentary rather than contradictory. When designing new communities, expanding current communities, or increasing density in existing communities, ensuring mobility and circulation must be a top priority. Providing for efficient movement of all levels of transportation – automobile, public transit, bike, and pedestrian – is essential to assuring the livability of a community. Parking management is also an important part of assuring mobility and circulation within Maui’s urban areas. The development pattern depicted in Figure A is efficient and conducive to pedestrian mobility, while the development pattern in Figure B is shaped by large-surface parking lots that dominate the built environment and inhibit pedestrian mobility.

Self-Sufficient, Sustainable Communities

Street connectivity and parking management are key elements of promoting good urban design.

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Source: Arendt, Randall. 1994. Rural By Design. American Planning Association Planners Press. Chicago, Illinois.

Current parking requirements often result in large surface parking lots dominating urban landscapes. To effectively address the storage of automobiles in urban areas a comprehensive parking management strategy and revision of parking standards to reduce requirements for mixed-use projects, allow for joint-use parking, and payment of cash-in-lieu fees to support centralized parking would have a mitigating effect.

The layout and design of streets has a significant impact on the character, form, and

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livability of communities. As Allan Jacobs, author of Great Streets, eloquently stated:

“It is not surprising that, given their multiple roles in urban life, streets require and use vast amounts of land. In the United States, from 25 to 35 percent of a city’s developed land is likely to be in public right-of-way, mostly streets. If we can develop and design streets so that they are wonderful, fulfilling places to be, community building places, attractive public places for all people of cities and neighborhoods, then we will have successfully designed about 1/3 of the city directly and will have an immense impact on the rest.”

Streets are one of the most basic elements of urban form – they play a significant role in shaping the framework and character of neighborhoods. Inappropriate street design can encourage speeding, limit pedestrian mobility, and degrade the aesthetic quality of the built environment. Well-designed streets generally have the following characteristics:

• Proper proportion and width;
• Relationship to adjoining buildings and setbacks;
• Shade;
• Sidewalks;
• Street trees;
• Lighting;
• On-street parking;
• Parking at rear of building; and
• Bike paths, bike lanes, and greenways.

The County’s principal role in the management of the visitor industry involves regulation of land uses, including the location and number of visitor units and resort real estate, the management of commercial attractions for visitors, and the perpetuation of local culture by reviewing new project proposals for cultural sensitivity. The County also provides roads, parks, police and fire protection, and other services that benefit the visitor industry.¹

SUMMARY OF URBAN LAND USE ISSUES

• Compact, efficient, human-scale communities
• Self-sufficient, sustainable communities
• Transparent planning process

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GOAL, OBJECTIVES, POLICIES, AND ACTIONS

Goal:

7.3 Maui will have livable human-scale urban communities, an efficient and sustainable land use pattern, and sufficient housing and services for Maui residents.

Objective:

7.3.1 Facilitate and support a more compact, efficient, human-scale urban development pattern.

Policies:

7.3.1.a Ensure higher-density compact urban communities, infill, and redevelopment of underutilized urban lots within Urban Growth Boundaries.

7.3.1.b Maintain a distinct separation between communities, such as but not limited to, Wailuku and Waikapū; Wailuku and Waiheʻe; Pukalani and Makawao; Pukalani and Kula; Makawao and Hāliʻimaile; Lahaina and Kāʻanapali; Kihei and Māʻalaea; and Māʻalaea and Waikapū, to protect the character and identity of Maui’s communities.

7.3.1.c Strengthen evaluation requirements for new urban expansion, new towns, and major urban infill projects within urban growth areas. Tailor submittal requirements to reflect the impact or scale of different projects.

7.3.1.d Ensure future amendments to urban growth boundaries achieve the following: (1) provide a beneficial extension of the existing community; (2) are in areas where it is cost-effective to provide and operate infrastructure/public service facilities; and (3) do not promote automobile-oriented land use patterns.

7.3.1.e Evaluate the impact of gated communities on inter-connectivity.

7.3.1.f Encourage the development and implementation of neighborhood design standards that are environmentally friendly, such as LEED for Neighborhood Development (LEED – ND) standards.

7.3.1.g Discourage future pyramid zoning within the industrial zoning districts, while allowing accessory commercial uses and grandfathering existing uses.

7.3.1.h Promote agriculture by encouraging community gardening, community-supported agricultural programs, and farmers markets within and adjacent to urban areas.

7.3.1.i Discourage land use and urban design that impedes inter-connectivity between adjacent communities.

Implementing Actions:

7.3.1-Action 1 Establish minimum-density requirements and design standards within urban areas to support higher densities, infill development, and efficient land use patterns.

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7.3.1-Action 2 Update zoning and development regulations to achieve the following: (1) Facilitate environmentally friendly projects (LEED – ND); (2) Revise the application and reporting requirements in Title 19, Maui County Code (MCC), to strengthen evaluation requirements and establish design guidelines for new urban expansion, new towns, and major projects within UGBs; (3) Discourage future pyramid zoning within the industrial zoning districts, while allowing ancillary commercial uses; and (4) Consider the establishment of a new zoning category that strictly defines and limits uses for heavy industrial areas.

Objective:

7.3.2 Facilitate more self-sufficient and sustainable communities.

Policies:

7.3.2.a When developing new communities, provide sufficient lands for commercial, appropriate industrial, educational, spiritual, and non-profit uses to serve the daily needs of community residents.

7.3.2.b Site community facilities such as schools, parks, libraries, and community centers within walking and biking distance of residences.

7.3.2.c Facilitate self-sufficient communities and shorten commutes by: (1) Directing residential development to job-rich areas; (2) Allowing for appropriate commercial development and community services to shorten commutes; and (3) Allowing home occupations or home-based businesses that are compatible with surrounding neighborhoods and lifestyles.

7.3.2.d Ensure, where appropriate, that affordable employee housing and multi-modal transportation opportunities are located near major employment centers.

7.3.2.e Discourage the establishment of bedroom communities where long commutes are required to employment centers.

7.3.2.f Facilitate the development of housing by focusing projects in locations where land and infrastructure costs facilitate the development of affordably-priced housing.

7.3.2.g Provide incentives to facilitate the development of multifamily housing.

7.3.2.h Encourage the placement of rental housing projects in the same areas as for-sale housing to facilitate mixed-income communities.

7.3.2.i Develop communities that provide sufficient parks, schools, libraries, and other essential public facilities and services to serve resident needs.

7.3.2.j Promote agriculture by encouraging community gardening, edible landscaping, community-supported agricultural programs, and farmers markets within and adjacent to urban areas.

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Implementing Actions:

7.3.2-Action 1 Develop and adopt a TDR Ordinance and a formal TDR program, and identify receiving areas within urban growth boundaries.

7.3.2-Action 2 Amend the zoning ordinance to: (1) Reduce minimum lot sizes in urban areas; (2) Encourage a mix of single-family and multifamily lots within the same development; and (3) Facilitate the establishment of mixed-use towns/village centers.

7.3.2-Action 3 Update regulations to promote community gardens and edible landscapes.

7.3.2-Action 4 Consider standards to regulate the location, design, and massing of big-box retail stores.

7.3.2-Action 5 Amend the Maui County Code (MCC) to reduce parking requirements, where appropriate, in mixed-use projects, encourage joint-use parking, and allow for the use of innovative methods to meet peak parking needs.

7.3.2-Action 6 Revise the zoning ordinance to allow for mixed-use development that is appropriate in character with the existing community.

Objective:

7.3.3 Strengthen the island’s sense of place.

Policies:

7.3.3.a Protect and enhance the unique architectural and landscape characteristics of each community.

7.3.3.b Encourage Hawaiian architecture and tropical building designs.

7.3.3.c Support the continued revitalization of historic country towns, Wailuku Town, and Kahului’s commercial core and harbor-front without displacing traditional, cultural, recreational and customary uses.

7.3.3.d Strongly encourage the preservation of buildings, structures, and sites of historic significance.

7.3.3.e Require community input through Design Workshops for major new urban expansion, new towns, and major urban infill projects.

7.3.3.f Require design enhancement, landscaping, and integration of park and rides, bicycle parking areas, and mass-transit infrastructure to mitigate the effect of parking lots and structured parking on the urban landscape.

7.3.3.g Ensure that safe and attractive public spaces (e.g., plazas, parks, town/village squares) are provided throughout the island’s urban areas.

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Implementing Actions:

7.3.3-Action 1 Implement the Wailuku Redevelopment Plan, and subsequent updates, and formulate plans for other appropriate areas.

7.3.3-Action 2 Develop and adopt regulations to require Urban Design Review Board review of all major urban expansion, new towns, and urban infill, and redevelopment projects.

7.3.3-Action 3 Prepare general Urban Design Guidelines for Central, South, and West Maui.

7.3.3-Action 4 As part of the Community Plan updates, prepare streetscape, pedestrian/bikeway/transit circulation, redevelopment and infill, and greenway infrastructure and master plan elements.

7.3.3-Action 5 Develop community planning processes to establish standards and priorities for streetscape beautification, public amenities, pedestrian and bicycle circulation, parking, redevelopment target areas, transit amenities, and sense of place and building form/design guidelines.

Objective:

7.3.4 Strengthen planning and management for the visitor industry to protect resident quality of life and enhance the visitor experience.

Policies:

7.3.4.a Discourage the conversion of hotel units to timeshares and fractional ownership.

7.3.4.b Monitor and manage the amount of, and impacts from, timeshares and fractional ownership.

7.3.4.c Manage short-term rentals and bed-and-breakfast homes through a permitting and regulatory process in accordance with adopted ordinances and community plan policies.

7.3.4.d Limit large-scale resort development to the four existing resort destination areas of Wailea, Mākena, Kapalua and Kāʻanapali. “Large Scale Resort” is defined as complexes that include multiple accommodation facilities, activity businesses, retail complexes, and other amenities.

Implementing Action:

7.3.4-Action 1 Define and map the Resort Destination Areas of Wailea, Mākena , Kapalua, and Kāʻanapali.

Objective:

7.3.5 Ensure that Maui’s planning and development review process becomes more transparent, efficient, and innovative.

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Policies:

7.3.5.a Encourage greater community involvement in land use planning and decision making.

7.3.5.b Establish a predictable and timely development review process that facilitates the approval of projects that meet planning and regulatory requirements.

7.3.5.c Increase inter-agency coordination between the Department of Planning and all State and County agencies responsible for infrastructure and public facilities provision, particularly as it relates to the mitigation of long-term cumulative impacts resulting from development projects.

7.3.5.d Provide greater certainty and transparency in the development review process.

7.3.5.e Expand and maintain land use and geographic information system databases for improved decisions, and make data and products available to the public.

Implementing Actions:

7.3.5-Action 1 Develop and adopt regulations that: (a) mandate early consultation with communities affected by planning and land use activities; and (b) establish efficient and realistic review timelines.

7.3.5-Action 2 Update the MIP and Community Plan land use designations and zoning maps with each update of the General Plan.

7.3.5-Action 3 Evaluate the establishment of time limitations on unused development entitlements for projects which have not commenced within a reasonable time period.

HOUSING

Chapter 5: Housing

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Traditional neighborhood, Wailuku.

H ousing is one of our most basic human needs. It is one of the fundamental building blocks in our communities and it is where our families gather and find shelter. All segments of our island have particular needs, whether it is the first home or apartment for young adults, or to accommodate the specified needs that come with age. Housing is not always treated as a human right. When adequate or appropriate housing is unattainable to a large portion of the population, it negatively impacts the entire community and decreases overall quality of life. We can do many things to promote an adequate and permanent supply of affordable for-sale and rental housing to meet resident needs. To meet our island’s housing needs, we must rethink Maui’s paradigm. Due to numerous factors, Maui’s housing prices have escalated dramatically in the last decade. With some of the highest housing prices in the nation, many Maui residents are struggling to afford housing on the island.

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Background Information

The Housing chapter refers to, and is based on, the following studies and reports created specifically for the MIP:

1. Socio-Economic Forecast: The Economic Projections for the Maui County General Plan 2030, June 2006;
2. Land Use Forecast, November 2006; and
3. Maui Island Housing Issue Paper, December 2006.

The Maui housing market has been volatile in recent years, as illustrated in Figure 5-1.¹ There were significant variations in the price of new and existing single-family homes and condominiums on Maui between 1979 and 1999, but nothing like the swings that occurred after 1999. More recently, the real estate market on Maui has tended to stabilize but housing prices still remain significantly higher than housing prices in the 1990s.

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Figure 5 - 1. Maui Median Home Prices, Current Dollars.

Maui residents, by almost any measure, face a critical housing situation:

• They spend a higher percentage of their income on housing than almost anyone else in the United States;
• The cost of housing on Maui makes home ownership very unaffordable, as compared to the national average;
• The median price for single-family homes and condos, whether new or existing units, has been exceedingly above what people can afford, in recent years; and
• The home ownership rate for Maui is significantly lower than for the rest of the United States.

The dynamics of housing production and pricing are extremely complex. Many key drivers are far beyond the control of local government, including:

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• National and international economic cycles;
• Federal Housing policies such as the reduced federal income tax for the well-to-do and mortgage interest deductions on second homes;
• Low interest rates that contribute to rising prices;
• Consumers’ willingness to accept higher levels of household debt through "creative financing" mechanisms;
• Overall cost of construction;
• Offshore demand;
• High levels of speculation in some economic cycles; and
• The geographic and land constraints inherent with an island environment.¹

These points suggest that relatively high prices are longstanding and will probably continue to be high as long as the State and Maui remain desirable and accessible to large offshore markets.

Maui County relies primarily on inclusionary zoning to increase the supply of affordable housing. Simply put, inclusionary zoning requires a developer of new housing to build a specified number of affordable dwelling units.

There is no one policy that by itself can lead to an adequate supply of affordable housing. Policies that may work well during times of economic growth may not be well suited to periods of financial downturn. Strategies that are focused on local residential use may not function well unless the vacation home and transient vacation rental markets are taken into consideration. Programs that are ideal when applied to large developments may be counterproductive when imposed on homeowners or small-scale builders.

CHALLENGES AND OPPORTUNITIES

Need for Improved Economic Housing Cycle Monitoring There are some significant gaps in data currently available to county planners addressing affordable housing issues, especially as it relates to the interrelation between housing production and the economic cycle. Furthermore, the current reporting system needs to distinguish between housing used for the tourism and second-home markets and housing used by Maui residents. In addition, data on new housing sales are not as readily available as resale data. There is also a need for data exploring the use of offshore investment homes that remain unoccupied.²

A reduction in the supply of housing available for long-term residential use occurs when any owner – offshore or local – converts residential housing stock into non-residential uses. Non-residential uses can include vacation homes or transient vacation rentals (TVRs). The supply problem is compounded because many TVRs are also part-time vacation homes, with owners defraying mortgage costs by TVR use, thereby driving up housing costs.³

Competition From the “Offshore The presence of affluent, non-resident buyers influences the housing market in several ways, all of which put upward pressure on prices. First, non-residents seeking a second home can typically outbid residents for houses and apartments being resold. Second, in a

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Market”

strong market, developing higher-priced units generally produces greater profit per unit. Therefore, a relatively large proportion of new residential units and lots are being developed for upper-end buyers. Finally, when the building industry is focused on the upper-end market there are fewer resources for affordable housing.

Property taxation may be one tool to mitigate the impact of non-resident demand on Maui’s housing prices. Property tax rates in Maui County and throughout the State are low compared to rates and supplementary fees charged by mainland municipalities, school districts, and public facility districts. Relatively low property taxes for single-family and multifamily residences make Maui properties more attractive to the offshore buyer. Property taxes can be made more progressive by increasing property tax rates and simultaneously increasing the home exemption to neutralize the rise in the tax for resident property owners and including a similar offset for owners of rental properties leasing to residents.¹

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Sand Hills, Wailuku.

Maintaining the Stock of Affordable Housing

The conveyance tax can also be used to fund the development of affordable housing. Through the enactment of State enabling legislation, Maui County could impose a surcharge on the conveyance tax with the proceeds to be deposited in the County’s Affordable Housing Fund. Such legislation could permit the County to utilize a graduated scale so that the sellers of multi-million dollar homes pay a higher percentage surcharge than do those conveying more modest or affordable dwellings.

A great deal of affordable housing has been built in Hawai`i over the years. Much of it has slipped back into the market housing stock in relatively short periods of time, as the original buyers resell at market prices. Preserving affordable housing in perpetuity will be extremely important to help increase and maintain the supply of affordable housing units and reduce housing prices for Maui residents.

Compact, Mixed-

At the island and regional scale, increasing the density of housing is a more efficient use of land. It also saves on linear miles of roads, water lines, and other utilities that need to be

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Income Communities with Expanded Housing Choices

built and maintained. Increasing the density of housing also preserves more land for agriculture and open space. At the project scale, increased density can reduce land and building costs and thereby result in more affordable sale and rental prices. There are two general ways to increase density: (1) to develop a multifamily housing type rather than a single-family housing type; and (2) to increase the number of units per acre in either category.¹

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Figure 5 – 2. 2005 Single-Family and Multifamily Dwelling Units by Maui Island Community Plan Area. Source: Existing Land Use Database, 2005.

In 2005, single-family dwellings comprised 78 percent of the total housing stock on Maui.² Multifamily dwellings are typically less expensive than single-family dwellings and are often attractive to seniors and young adults. The limited supply of multifamily units has constrained consumer choice and exacerbated housing prices. Figure 5-2 illustrates the mix of single-family and multifamily dwellings in Maui’s community plan areas. The Makawao-Pukalani-Kula, Pāia-Haikū, and Wailuku-Kahului community plan areas offer limited multifamily housing opportunities.

Accessory or `ohana dwellings can also play a significant role in increasing the affordable housing stock on Maui, whether such units are used to house family or become long-term rental units.

The dangers of concentrating people with few economic resources and limited educational skills in a single project are well known. The placement of rental housing projects in the same areas as for-sale housing provides for more diverse communities. The desired outcome is mixed income communities, which in turn contribute to the social well-being of the larger community.

With the number of people over age 65 growing in the coming decades, there is a need

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Housing for Seniors and Those with Special Needs | to work with the State, Federal government, community groups, landowners and others to find ways to provide affordable housing to senior citizens and those with special needs. Reduce Developers’ Cost to Build Affordable Housing | Hawai‘i is the only state in the nation to have both State and County level zoning. Developers understand that it takes years to get all the necessary permits for a major project and that it will involve multiple jurisdictions. Getting through the regulatory process takes time and money. County policy can state that projects that provide for a specified percentage of affordable for-sale or rental housing units shall be fast tracked. | | Lack of adequate infrastructure is frequently an impediment to the development of affordable housing. The County can play a proactive role in resolving infrastructure bottlenecks by working with developers to coordinate the planning and development of infrastructure within the Urban Growth Boundaries. The County can also adopt minimum and desirable infrastructure level-of-service standards so that the development process is more predictable and transparent.

GOAL, OBJECTIVES, POLICIES, AND ACTIONS

Goal:

5.1 | Maui will have safe, decent, appropriate, and affordable housing for all residents developed in a way that contributes to strong neighborhoods and a thriving island community.

Objective:

5.1.1 | More livable communities that provide for a mix of housing types, land uses, income levels, and age.

Policies:

5.1.1.a | Promote livable communities (compact/walkable/bikeable, access to transit) that provide for a mix of housing types and land uses, including parks, open space, and recreational areas.

5.1.1.b | Promote planning approaches that provide a mix of multifamily and single-family housing units to expand housing choices.

5.1.1.c | Discourage gated communities.

5.1.1.d | Provide incentives for the rehabilitation or adaptive reuse of historic structures to facilitate more housing choices.

5.1.1.e | Use planning and regulatory approaches to provide higher housing densities.

Implementing Actions:

5.1.1-Action 1 | Amend development codes to facilitate different types of housing, including mixed use, mixed housing types, clustering, and conservation subdivisions.

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5.1.1-Action 2 Do a study to determine optimum permit processing times on affordable housing development approvals while ensuring that community and environmental standards are addressed.

5.1.1-Action 3 Establish the rules and mechanisms to establish a Maui “master list” of affordable housing projects and land entitled for affordable housing so that residents will be able to obtain an affordable unit in a fair and expeditious manner.

5.1.1-Action 4 Study successful models of affordable housing projects/units and adopt appropriate minimum design standards that satisfy the needs of Maui’s residents.

5.1.1-Action 5 Amend zoning and historic preservation ordinances/rules to support adaptive reuse opportunities.

5.1.1-Action 6 Develop incentives to promote projects that achieve the Leadership in Energy and Environmental Design (LEED) Silver or Gold certification.

Objective:

5.1.2 Better monitoring, evaluation, and refinement of affordable housing policy in conjunction with the economic cycle.

Policies:

5.1.2.a Improve data on resident and nonresident housing.

5.1.2.b Utilize the following approaches to promote resident housing and to minimize offshore market impacts: (1) Ensure that the future housing stock is composed of a mix of housing types (multifamily, small lots, ohana units, co-housing, cottage houses, etc.); (2) Encourage new housing in proximity to jobs and services, in places that are conducive/affordable to island residents; and (3) Explore taxation alternatives and building fee structures.

Implementing Actions:

5.1.2-Action 1 Develop appropriate incentives to encourage the production of required affordable housing during the different stages of an economic cycle.

5.1.2-Action 2 Develop and maintain a reporting system/database and related maps for the following: (1) Existing/newly constructed housing units that are affordable to very low-, low-, and moderate-income households; (2) The location and quantity of housing that is used by visitors/second home; and (3) Property tax information, including property land use designations, tax rates, acquisition price, and market value assessments.

5.1.2-Action 3 Explore the benefits and costs of revising the County’s property tax rates to make them more responsive to the needs of the citizens in the area of affordable housing.

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5.1.2-Action 4 Develop incentives for locating new workforce housing in proximity to jobs and services.

Objective:

5.1.3 Provide affordable housing, rental or in fee, to the broad spectrum of our island community.

Policies:

5.1.3.a Consider regulations that can help keep affordable housing available at affordable rents.

5.1.3.b Seek to have ownership of affordable for-sale and rental housing vested in a non-profit community land trust, or other qualified housing provider, committed to keeping such housing affordable in perpetuity.

5.1.3.c Facilitate the use of public lands in urban areas that are suitable for affordable housing.

5.1.3.d Develop or support partnerships and initiatives that provide housing-related education/outreach.

5.1.3.e Support the continuing efforts of the County and its community partners to: (1) Disseminate information on different housing/financial assistance programs (loans, grants, etc.) including information on housing rehabilitation/restoration/adaptive reuse; (2) Provide housing-related counseling including budget, credit, and financial planning assistance; and (3) Create and maintain a comprehensive/master list of available affordable housing to help residents secure a unit that satisfies their need.

Implementing Actions:

5.1.3-Action 1 Consider the following actions in housing-related code amendments: (1) Give a higher priority to the construction of actual units and a lower priority to the provision of land, over the current alternative in-lieu fee payment; (2) Require recordation of a covenant to ensure that the required affordable units in a project remain affordable for perpetuity; (3) Consider that affordable houses be developed and available concurrently with market units; (4) Encourage the development of affordable “for-sale” and rental housing through incentives; (5) Consider a rent stabilization program to ensure that rental housing remains affordable; (6) For the sale prices of required affordable housing units, evenly distribute prices over the range of the subject income category; and (7) Expedite permitting for affordable housing projects approved pursuant to the residential workforce housing ordinance.

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5.1.3-Action 2 Support/help in the creation of Community Development Corporations to facilitate the development and maintenance of affordable housing.

5.1.3-Action 3 Enhance our existing affordable housing financing program to include the following elements: (1) An affordable housing assessment on commercial and residential properties. (2) A real estate transfer tax imposed on visitor units, TVRs, and residential housing that is not affordable for residents with household incomes of up to 200 percent of the island median household income.

5.1.3-Action 4 Explore flexible funding for the affordable housing fund/program based on County tax revenues.

5.1.3-Action 5 Actively pursue appropriate Federal, State, County, and private grants/subsidies to facilitate affordable housing projects.

Objective:

5.1.4 Provide infrastructure in a more timely manner to support the development of affordable housing.

Policies:

5.1.4.a Prioritize the development of infrastructure that supports the development of affordable housing.

5.1.4.b Utilize appropriate financing approaches and assistance tools to encourage the development of infrastructure and public facilities.

5.1.4.c Tailor infrastructure requirements to correspond with appropriate level-of-service standards to help control housing costs and to maintain safety.

Implementing Actions:

5.1.4-Action 1 Prioritize Capital Improvement Projects that commit to building appropriately planned affordable housing-related projects.

Objective:

5.1.5 A wider range of affordable housing options and programs for those with special needs.

Policies:

5.1.5.a Ensure that residents with special needs have access to appropriate housing.

5.1.5.b Encourage housing to be built or rehabilitated to allow the elderly and those with special needs to live in their homes.

5.1.5.c Ensure and facilitate programs to assist those with special needs from becoming homeless.

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Implementing Actions:

Objective:

Policies:

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Implementing Actions:

5.1.6-Action 1 Develop a comprehensive, flexible system of incentives to develop affordable housing, including: (1) Reduction or waiver of impact, assessment, and permit fees; (2) Density bonuses; (3) Exemptions from subdivision and zoning standards; (4) Building code modifications while maintaining health and safety; and (5) Possible use of publicly owned lands.

5.1.6-Action 2 Streamline the permitting process as follows: (1) Within one year of this plan’s adoption, adopt new administrative rules that streamline and clarify the permitting process; (2) Consider using outside consultants (third-party review); (3) Implement a one-stop permitting process; and (4) Adopt a set of standards so permitting is administrative and as ministerial as possible.

Objective:

5.1.7 Increased preservation and promotion of indigenous Hawaiian housing and architecture.

Policies:

5.1.7.a Preserve, promote, and give priority to Hawaiian housing/architecture forms to preserve Hawaiian culture.

5.1.7.b Provide for indigenous architecture as an allowable structure for native Hawaiian uses to include hula and lāʻau lapaʻau.

Implementing Actions:

5.1.7-Action 1 Revise regulations to allow for indigenous Hawaiian architectural practices, styles, customs, techniques, and materials, in accordance with Section 46-1.55, Hawaiʻi Revised Statutes.

5.1.7-Action 2 Encourage the use of alternative building materials (e.g., bamboo).

NATURAL HAZARDS

Chapter 3: Natural Hazards

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A wildfire burns across the pali, Mā`alaea.

Maui’s pristine waters, lush mountainsides, dry brushland, and dormant volcano offer an awe-inspiring variety of landscapes to explore. The different extremes in climate and terrain can come with a price: the potential for numerous natural hazards that could affect any part of the island. Chronic hazards, such as coastal erosion, flooding, and vog (volcanic smog), may persist or recur over long periods of time. Tsunamis, hurricanes, wildfires, and earthquakes vary in frequency and intensity and are difficult to predict. With the impacts of climate change superimposed on Hawai`i’s existing risk from these hazards, communities may be exposed to more severe and frequent hazards, increasing risk; and potentially affecting our economy and eroding the quality of life.

NATURAL HAZARDS

Background Information

Natural hazards must be considered when planning for the future. Maui’s shorelines, beaches, and near shore coastal waters are highly susceptible to damage from coastal hazards such as tsunamis, storm surge, and erosion. Inland areas can sustain wind damage, flooding, fires, and drought. These dangers pose a significant threat to life and property.

The University of Hawai`i, the National Oceanic and Atmospheric Administration, and others are working to model the likely impact of a typical tsunami event on the island of Maui. There are several densely populated areas near the coastline and/or in low-lying areas that are vulnerable to tsunami damage.

These same areas are also in danger of periodic hazards such as high surf and storm surge. During the time horizon of the MIP, it will be important to understand how sea-level rise and shoreline changes may affect low-lying areas.

Mitigation, risk, and vulnerability should be addressed for the hazards listed in Table 3-1 when planning for the long term.

Table 3 – 1: Maui’s potential natural hazards

NATURAL HAZARDS

NATURAL HAZARDS

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Aerial view of the destruction caused by a Kona storm, Kula.

Property damage resulting from natural hazards has become exceedingly costly for both the disaster victims and the American taxpayer. According to the Maui County Multi-Hazard Mitigation Plan (HMP), from 1989 to 1993, the average annual loss from natural disasters was $3.3 billion nationally. Over 6,000 people have been killed and 50,000 injured from natural disasters in the past 25 years (FEMA, 1998). Nationally, extreme weather caused approximately $23.9 billion in combined property and crop damages in 2011, more than double the $9.9 billion in 2010. Property damages were estimated at $20.9 billion, almost triple the 2010 total of $7 billion and 2009 total of $6.8 billion. As in 2010, flooding was a major culprit, accounting for more than $9 billion in losses. Weather-related deaths also more than doubled in 2011, reaching 1,091 victims, up from 490 in 2010. According to the National Weather Service, this number is well above the 10-year average (2002-2011) of 641.

The HMP identifies hazards and risks posed by natural disasters, and provides an action plan to reduce loss if such disasters occur. FEMA requires that this plan be updated every five years. The MIP advocates for the implementation and updating of the HMP.

CHALLENGES AND OPPORTUNITIES

Fragmented Agency Coordination

Although the Maui County Civil Defense Agency is responsible for HMP implementation, the agency cannot be successful in its mission without the cooperative efforts of many County, State, and Federal agencies. To be prepared for any hazard event, all relevant agencies have to be communicative and coordinated; this will help to ensure community resilience before, during, and after a hazard event.

In the context of social and physical systems, resilience can be described as a way to cope with uncertainty or risk. Natural hazards, such as earthquakes, severe storms, or shoreline erosion, pose a variety of risks to communities that cannot be fully described or predicted. Communities manage these risks by building the capacity to avoid or minimize the impacts of hazards, and rebound quickly from disasters.

NATURAL HAZARDS

Guiding Principles for Resilient Communities

Various communities in Hawaii have defined six principles to plan for resilience. These principles, adapted from the Hawaii Coastal Zone Management Program (2007), include:

• Community-based: engage communities in planning and implementation.
• Place-based: consider unique characteristics (natural resources, weather, and demographics) of each place.
• Ecosystem-based: recognize connections between land and sea and other components of the ecosystem.
• Culture-based: honor the host culture and values.
• Risk-based: incorporate hazard risk knowledge in all elements of planning.
• Collaborative: promote collaboration between stakeholders at all stages of the planning process.

Guiding principles can be applied in all stages of the planning cycle. Specific steps to plan for resilience in a community:

• Step 1: Characterize hazard risk
• Step 2: Define resilience goals and status
• Step 3: Develop actions and partnerships

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Figure 3 - 1: Goals of resilient communities (U.S. Indian Ocean Tsunami Warning System Program).

Hazard mitigation is action taken to permanently reduce or eliminate long-term risk to people and their property from the effects of natural hazards.

The purpose of multi-hazard mitigation is two-fold: 1) protect people and structures from harm and destruction; and 2) minimize the costs of disaster response and recovery. Hazard mitigation planning is the process that analyzes a community's risk from natural hazards, coordinates available resources, and implements actions to reduce risks.

NATURAL HAZARDS

In 1995, FEMA introduced a National Mitigation Strategy to ensure the national focus on mitigation. The National Strategy promotes the partnership of government and the private sector to “build” safer communities. Hazard mitigation encourages all Americans to identify hazards that may affect them or their communities to take action to reduce risks. Mitigation actions help safeguard personal and public safety. Retrofitting bridges, for example, can help keep them from being washed out, which means they will be available to fire trucks and ambulances in the event of a storm. Installing hurricane clips and fasteners can reduce personal and real property losses for individuals and reduce the need for public assistance in the event of a hurricane. Increasing coastal setbacks reduces the risk of deaths and property losses from tsunamis, storm surge, and sea-level rise.

Limited Routes For Safe Evacuation

In several areas of the island there is only one access to get into or out of a region. For years this has been a problem for Lahaina travelers when there is a wildfire or a rockslide, and this limitation could be disastrous if a tsunami impacted the south- and/or west-facing shores. Likewise, Hāna and East Maui are prone to being cut off from the rest of the island in the event of earthquakes or rockslides.

Property owners, businesses, service providers, and government have a tendency to

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Warning sign posted after 2006 earthquake, Kīpahulu.

Improved Public Outreach and Education

delay the preparation for natural dangers until there is a crisis. This lack of preparation puts both life and property at risk.

Increasing awareness through public forums that educate communities about natural hazards will empower the public with solutions that will enable the entire community to work together when a crisis strikes. School programs can also be implemented to teach children how they can respond to an emergency situation.

NATURAL HAZARDS

Another important benefit of hazard mitigation and education is that public investment in disaster preventative measures can significantly reduce the impact of disasters in the future, including the cost of post-disaster cleanup.

SUMMARY OF NATURAL HAZARDS ISSUES

• Fragmented agency coordination
• Lack of plans to protect life and property
• Limited routes for safe evacuation
• Need to improve public outreach and education
• Development and/or redevelopment located in hazardous areas

GOAL, OBJECTIVES, POLICIES, AND ACTIONS

Goal:

3.1 Maui will be disaster resilient.

Objective:

3.1.1 Increased inter-agency coordination.

Policies:

3.1.1.a Reinforce the island’s preparedness capacity by: (1) Applying the latest data-gathering techniques/technology; (2) Pursuing funding opportunities; (3) Improving monitoring and advance warning systems; (4) Fostering public awareness; and (5) Working with external agencies to coordinate disaster mitigation and response.

Implementing Actions:

3.1.1-Action 1 Consolidate and update the geographic information systems (GIS) hazards data bank in the Maui County Emergency Operations Center. Allow for the use of outside data to be included in the data bank.

3.1.1-Action 2 Acquire the latest GIS technology in hazard, risk, and vulnerability assessments.

3.1.1-Action 3 Establish a standing County Hazard Mitigation Committee, comprised of representatives from all levels of government and the private sector.

NATURAL HAZARDS

Objective:

3.1.2 Greater protection of life and property.

Policies:

3.1.2.a Identify critical infrastructure, lifelines, roads, and populations that are vulnerable to coastal hazards, and encourage strategic retreat and relocation to safer areas.

3.1.2.b Consider the location of dams, reservoirs, holding ponds, and other water-containing entities that are upstream of inhabited areas to anticipate, avoid, and mitigate inundation risks, and discourage new development in areas where possible inundation hazards may exist.

3.1.2.c Strengthen current development standards to minimize destruction of land and property.

3.1.2.d Encourage the use of construction techniques that reduce the potential for damage from natural hazards.

3.1.2.e Increase the County’s resilience to drought.

3.1.2.f Increase food and energy security through local production and storage.

Implementing Actions:

3.1.2-Action 1 Develop an Emergency Management Center in Central Maui.

3.1.2-Action 2 Implement the HMP, and subsequent updates, to the extent it is consistent with MIP.

3.1.2-Action 3 Develop a Post-Disaster Recovery and Reconstruction Plan that will ensure Maui’s resilience to coastal hazards.

3.1.2-Action 4 Develop plans and/or incentives to do the following: (1) Encourage rebuilding inland as an alternative to shoreline hardening; (2) Streamline the reconstruction of structures that are moved substantially inland; (3) Encourage the relocation of existing structures so they are away from shoreline areas; and (4) Encourage the relocation of vulnerable coastal roads that are susceptible to destruction from natural hazards, such as a portion of North Kihei Road and the Pali to Puamana realignment.

3.1.2-Action 5 Periodically update the shoreline rules to enable the Maui Planning Commission to provide safe setbacks from the shorelines and incorporate best management practices.

3.1.2-Action 6 Use and update the Federal Emergency Management Agency-Digital Flood Insurance Rate Maps (DFIRM) in the permitting process to minimize development in flood-prone areas.

NATURAL HAZARDS

3.1.2-Action 7 Following each coastal erosion disaster, identify and document the new shoreline position to be used for reviewing future development.

3.1.2-Action 8 Following each natural disaster, gather data to plan for future disaster events.

3.1.2-Action 9 Update coastal-planning requirements to factor in incremental effects of rising sea levels.

3.1.2-Action 10 Increase water storage and development of additional capacity in Upcountry Maui and other areas susceptible to drought and encourage efficiency in conservation programs.

Objective:

3.1.3 A more coordinated emergency response system that includes clearly defined and mapped evacuation routes.

Policies:

3.1.3.a Identify and expand shelter facilities and evacuation routes away from areas susceptible to natural hazards.

Implementing Actions:

3.1.3-Action 1 Develop an island-wide evacuation routes plan.

3.1.3-Action 2 Identify and develop required shelter capacity.

3.1.3-Action 3 Plan for opening and staffing the shelters to ensure that the facilities are made available at the time of evacuation orders.

Objective:

3.1.4 A more educated and involved public that is aware of and prepared for natural hazards.

Policies:

3.1.4.a Promote public education and involvement related to natural hazards awareness and preparedness.

3.1.4.b Coordinate a multi-agency effort to establish and promote a comprehensive public education program that will focus on practical approaches to preparedness, damage prevention, and hazard mitigation.

Implementing Actions:

3.1.4-Action 1 Develop regularly scheduled mitigation training for public and private emergency responders and establish volunteer groups to elevate public awareness of emergency procedures.