HomeMy WebLinkAboutCOM 0425.001 2024-2026C. Kimo Alameda, Ph.D.
Mayor
William V. Brilhante, Jr.
Managing Director
Merrick Nishimoto
Deputy Managing Director
County of Hawaii
Kehaulani M. Costa
Housing Administrator
Keiko M. Mercado
Assistant Housing Administrator
Office of Housing and Community Development
1990 Kino`ole Street, Suite 102 • Hilo, Hawaii 96720 • (808) 961-8379 • Fax (808) 961-8685
Existing Housing: (808) 959-4642 • Fax (808) 959-9308
Kona: (808) 323-4300 • Fax (808) 323-4301 C=
July 31, 2025
Via Hand Delivery
Council Chair Dr. Holeka Inaba, Ed.D.
and Members of the Hawaii County Council Hawaii
County Council
25 Aupuni Street
Hilo, Hawaii 96720
Subject: Recommendations Report from SAS Services, LLC, for the
Homelessness and Housing Fund
Dear Council Chair Inaba and Members of the Hawaii County Council,
z—
Attached please find the Homelessness and Housing Fund Recommendation Report,
submitted by the Office of Housing and Community Development's consultant, SAS
Services, LLC.
Should you have any questions, please feel free to call Keiko Mercado at 961-8379.
Thank you,
Kehaulani M. Costa
Housing Administrator
C7
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C.p
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Comm. No. ��"•
Ref. To:
Ref. Date_ �FG- 4 2025
EQUAL HOUSING
OPPORTUNITY
C. Kimo Alameda, Ph.D.
Nfavor
William V. Brilhante, Jr.
Managing Director
Merrick Nishimoto
Deputy Managing Director
Kehaulani M. Costa
Housing Administrator
Keiko M. Mercado
Assistant Housing.9dniiniso-ator
County of Hawaii
Office of Housing and Community Development
1990 Kino'ole Street, Suite 102 • Hilo, Hawaii 96720 • (808) 961-8379 • Fax (808) 96t-8685
Existing Housing: (808) 959-4642 • Fax (808) 959-9308
Kona: (808) 323-4300 • Fax (808) 323-4301
TRANSMITTAL LETTER
July 31, 2025
TO: Holeka Inaba, Council Chair
and Members of the Hawaii County Council
0
C
i
7.7
FROM: Kehaulani M. Costa
Housing Administrator
SUBJECT: Recommendations Report for the Homelessness and Housing Fund
Submitted by SAS Services, LLC
COPIESIITEMS I DATE I DESCRIPTION
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One (1) original I 07/31 /2025 1 Recommendations Report for the Homelessness and
Housing Fund, submitted by consultant SAS Services, LLC
TRANSMITTED FOR:
® Your information and files ❑ Your approval
❑ Your signature and return ❑ Your review and comments
❑ Your signature and forwarding ❑ See remarks below
as noted below ❑ Returning to you
❑ Per your request
REMARKS:
Enclosed is the Recommendations Report for the Homelessness and Housing
Fund (HHF) , submitted by SAS Services, LLC.
Should you have any questions please contact Michelle..Hiraishi at (808) 961-8379.
Thank you.
3683pcnip
Hawaii County
Homelessness &
Housing Fund
Recommendations
Report
PREPARED FOR:
COUNTY
. of H AWA I'
. , Office of Housing and
Community Development
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PREPARED BY.
JULY 2025
Sharon Simms, CEO, MSW CPC
VernaWong
SAS SLRVIC[ S Ashley Petitt, LCSW
Jackie Ng-Osorio, DrPH
Moana Olaso
Table of Contents
Tableof Contents................................................................................................................1
ExecutiveSummary............................................................................................................1
Key findings related to the Homelessness & Housing Fund (HHF)...........................1
Key Recommendations related to the HHF Until 2027...............................................2
Key Recommendations related to the HHF Until 2027...............................................3
Background.........................................................................................................................
5
Methodology.......................................................................................................................
6
ExplorationPhase............................................................................................................ 6
EvaluationPhase..............................................................................................................8
Planning and Recommendation Phase.........................................................................9
KeyFindings......................................................................................................................
10
Homelessness: A Multifaceted View...........................................................................
10
Homelessness & Housing Fund...................................................................................19
Recommendations...........................................................................................................
23
Homelessness & Housing Fund Recommendations Until 2027..............................23
Hawaii County Recommendations Beyond 2027.....................................................32
Office of Housing & Community Development.........................................................
48
Conclusion.........................................................................................................................
51
AppendixA. References...................................................................................................
53
Appendix B. Reference Reports......................................................................................56
Executive Summary
Homelessness is a complex issue, with numerous interwoven factors impacting why
people become homeless and face barriers to obtaining and maintaining stable
housing. In addition to systemic issues, Hawai'i County faces additional burdens of
high costs of living, unique geographic challenges, and one of the most competitive
housing markets in the country.
The Hawai'i County Council recognized the significance of this issue and the
challenges of addressing the needs with existing funding. In response, the
Homelessness and Housing Fund (HHF) was approved in 2022 for a period of five
(5) years to provide funding flexibility to address the unique needs of Hawai'i
County. A Strategic Roadmap was developed, which defined thirteen (13) priorities
intended to guide decisions on how the HHF would be allocated.
In July 2024, the Office of Housing & Community Development (OHCD) Community
Engagement (CE) Division engaged SAS Services, LLC (SAS) to evaluate existing HHF
processes and outcomes, and to inform future planning. This report presents
findings and recommendations based on an evaluation of the HHF operations and
outcomes from July 2022 through June 2025.
Key findings related to the Homelessness & Housing Fund (HHF)
This section provides a high-level summary of the Key Findings about the
multifaceted complexities of homelessness and the HHF.
The initial timeline for developing and implementing the HHF was too short
to establish consensus on its purpose and intent, or to clarify how the HHF
and its Strategic Roadmap priorities would align with existing homelessness
and housing initiatives. The compressed time frame of the HHF planning and
implementation created cascading challenges that continue to impact the
fund's implementation to this day.
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Hawaii County Homelessness & Housing Fund Recommendations Report sn SERV CES
• The Homelessness and Housing Fund (HHF) is a small component of a larger
response to address the significant and complex challenges of homelessness
and housing instability in Hawaii County.
• Hawai'i County residents hold varying levels of awareness and different
perspectives as to what drives homelessness and how best to address it. This
impacts what residents would like to see the HHF prioritize and how success
is measured.
• There is a lack of truly affordable housing to meet the needs of individuals
and families experiencing homelessness. Individuals and families working
minimum wage jobs often struggle to find and maintain affordable housing.
• There is no comprehensive data system to understand the depth and
breadth of the issue of homelessness and housing instability in Hawaii
County. While there are different entities that collect data about
homelessness, they do not provide a complete understanding of the needs
and issues.
• Nonprofit providers struggle to offer programs countywide due to staffing
shortages, lack of facilities, and increasing cost. Housing shortages impact
those experiencing homelessness and housing instability, as well as, staff
working at many nonprofit organizations.
Key Recommendations related to the HHF Until 2027
The following recommendations are for the HHF until its proposed sunset data of
June 30, 2027.
Purpose & Priorities
• Clearly define how the HHF's purpose, priorities, and objectives align with the
countywide strategy. It is crucial to define the HHF's specific role as one
component of a broader response. Priorities and objectives should be scaled
to the fund's size and the cost required to achieve the intended impact.
• If it remains projected that the HHF will sunset in 2027, it is recommended
that the purpose of the HHF for 2025-2027 focus on meeting immediate
needs while building toward lasting solutions. It should decrease the number
of priorities from thirteen (13) to two (2) or three (3). Two primary focuses:
• Expanding Housing Strategies (primary focus)
• Increasing Medical & Behavioral Healthcare Access (secondary focus)
Hawaii County Homelessness & Housing Fund Recommendations Report sn SERV CES 2
Staffing, Staffing, Structure, & Capacity
• Assess Community Engagement (CE) Division's operational structure, staffing
expertise, and capacity to administer the fund more effectively, while
balancing other division responsibilities. Staffing expertise is needed in grant
and contract management, program evaluation, fiscal management, and a
background in homelessness and social services.
Fund Administration & Management Processes
• The grant selection process should take into consideration the geographical
needs and award recipients should indicate the designated service areas
being addressed in their report.
• Standardized metrics should be utilized in the application and reporting
process to better understand the overall impact of the HHF.
• A data management process to collect and report data is essential. This
process should clearly define data management practices, including grantee
and contractor reporting requirements and templates that are aligned with
the purpose and priorities of the fund. It is important to emphasize that the
HHF should not collect individual client level data from grantees nor
contractors for reporting purposes alone.
• It is recommended that the CE Division and Accounting Division collaborate
to streamline the reimbursement process for both internal and external
stakeholders, ensuring compliance with relevant policies. This includes
recordkeeping, reporting, and fiscal accountability requirements such as
adhering to general accepted accounting procedures and practices.'
Key Recommendations related to the HHF Until 2027
It is recommended that Hawai'i County continue the HHF beyond 2027. Doing so
provides the County with a flexible funding mechanism to address the growing
needs in the areas of homelessness and housing instability. The following
recommendations are for the HHF beyond its proposed sunset data of June 30,
2027.
' County of Hawaii, County Code, Ch. 2, Art. 25.
Hawaii County Homelessness & Housing Fund Recommendations Report Spa DES 3
Strategy, Purpose, & Alignment
• Extend the HHF beyond 2027 and establish an Office of Homelessness to
coordinate services and funding amongst state, county, and private agencies.
This Office could also be responsible for administering the HHF.
• Conduct a countywide needs assessment to analyze and understand both
the depth and breadth of the issue of homelessness and housing instability
and the funding landscape, including an understanding of the housing
inventory needs and gaps.
• Develop a countywide strategy for addressing homelessness that sits within
the newly established Office of Homelessness and coordinates with other
state and county departments.
• The HHF should be integrated into a broader homelessness response system
and braided with other local, state, federal, and philanthropic funds to better
meet the needs of those experiencing homelessness or at risk of becoming
homeless.
• Explore diverse ways to address the housing crisis and look at innovative
approaches like master leasing, down payment and subsidy programs, and
other types of housing solutions.
Fund Administration & Management
• To enhance the value of the fund investment, the HHF should account for the
time necessary to establish, implement, plan and manage programs, while
attempting to stabilize staffing capacity.
• The HHF should offer multi -year grants, with contingent agreements for
grantees. This will allow grantees to build up and sustain needed
programming.
• The HHF should have a reserve to address urgent priority needs that may
arise throughout the year. Due to the fund's flexibility, this fund is uniquely
designed for the County to quickly respond to needs.
• A guaranteed minimum amount of funding for the HHF should be
established to allow for funding stability.
• The HHF should focus on programs that can demonstrate the use of a
"braided funding approach" - combining a diverse portfolio of funding from
multiple sources.
n
Hawaii County Homelessness & Housing Fund Recommendations Report 4
AS ERV CES
Background
The Homelessness and Housing Fund (HHF) of Hawaii County was established on
March 23, 2022 and took effect on July 1, 2022 through Ordinance 22-26.2 It was
created to address the complex issues of homelessness and housing instability in
Hawaii County. Ordinance 22-26 annually appropriates no less than 75% of tier two
property tax revenues to a dedicated fund to support innovative approaches to
addressing homelessness and housing. The HHF was said to be an "unprecedented"
step by Hawaii County - as it was the "first and only direct County funding stream
for the purpose of addressing housing and homelessness".'
Historically, funding to address homelessness and housing had been available only
through state and federal sources, such as the U.S. Department of Housing and
Urban Development (HUD). However, these funds came with significant restrictions
that limited organizations' ability to use the money. Therefore, the HHF was
purposefully designed to be flexible and community -centered, with the intention of
amplifying the impact of local initiatives.'
Since 2022, HHF has awarded approximately $27.5 million in funds to address the
immediate needs of those experiencing homelessness, preventative measures for
those at -risk of becoming homeless, and interventions to ensure long-term housing
stability.
The HHF is currently allocated only through 2027, at which time the County Council
will re -assess its potential renewal. In an effort to evaluate the processes and
outcomes of HHF, and prepare for future planning, the Office of Housing &
Community Development (OHCD), Community Engagement (CE) Division hired SAS
Services, LLC (SAS) in July 2024.
This recommendations report is presented by SAS and outlines improvements and
suggestions for HHF. This report makes the case for the establishment of HHF as a
Z County of Hawaii, Ordinance No. 22-26.
3 County of Hawaii, Strategic Roadmap, 2022.
4 County of Hawaii, Strategic Roadmap, 2022, 3.
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Hawaii County Homelessness & Housing Fund Recommendations Report sn SERV CES 5
permanent fund to address the increasing and complex needs of homelessness
and housing instability experienced on Hawaii Island.
SAS Services, LLC has remained mindful that HHF is the co -creation of many deeply
passionate individuals and agencies. That kuleana to create and implement
innovative, locally -appropriate solutions to address homelessness in Hawaii County
has been continuously felt. It is with reverence and gratitude that SAS offers these
recommendations.
Methodology
The recommendations in this report are cumulative from a multi -phase process. A
collaborative mixed -methods developmental approach was used at each process
phase. Each phase, approaches taken, and data sources used are briefly described
below.
Exploration Phase
Community Engagement: Meetings & Material Review
Initial meetings were held with the Community Engagement (CE) Division; and
relevant materials were reviewed and analyzed. The data utilized in the following
two reports was based on information available to the SAS team as of February
2025.
Strategic Planning Analysis. A comparative analysis was conducted of five (5)
existing strategic plans to address homelessness and housing needs in Hawaii
County and statewide. The analysis identified areas of alignment and gaps across
the following plans: the Strategic Roadmap for Homelessness and Housing - County
of Hawai'i,5 Community Alliance Partners (CAP) Strategic Plan (2021-2024),6 County
of Hawaii OHCD Consolidated Plan (2020-2024),' Hawaii Interagency Council on
5 County of Hawaii. A Strategic Roadmap for Homelessness and Housing.
6 Community Alliance Partners (CAP), Strategic Plan 2021-2024.
County of Hawaii OHCD, Consolidated Plan 2020-2024.
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Hawaii County Homelessness & Housing Fund Recommendations Report sn SERV CES 6
Homelessness (HICH) Ten -Year Strategic Plan and Framework (2022-2032),8 and the
Office of the Governor - State of Hawaii - Office on Homelessness and Housing
Solutions (OHHS) - Homelessness Priorities.9
Funding Landscape Analysis. An analysis of the funding landscape related to
homelessness and housing within OHCD was conducted. Data was collected using
multiple methods. OHCD Department managers provided input on funding
respective to their divisions. Additional data was collected from sources which
included the: County of Hawai'i 2024 Action Plan of the Consolidated Plan
(2020-2024), County of Hawai'i Operating Budget FY 2024-2025, County of Hawaii
Resolutions and OHCD internal reports. Funding amounts and process methods for
OHCD and current grantees were examined.
Interviews with County Council, County Staff, Stakeholders, and
Current and Former HHF Grantees
A total of fifty-three (53) interviews were conducted with: sixteen (16) current and
former HHF grantee organizations, eight (8) of the nine (9) Hawai'i County Council
Members, thirteen (13) County Council Member identified community stakeholders,
and one (1) external consultant. Interviewees shared insights about HHF; and the
successes, challenges, and needs related to homelessness on Hawai'i island and in
their own communities. Interviewees also provided recommendations for future
HHF priorities. Some of the interviews were with one individual and others
contained more than one person.
Interviews were also conducted with fifteen (15) OHCD staff members of the
following divisions: Housing Administrator, Community Development, Community
Engagement, Grants Management, and Accounting and Human Resources to
understand division roles and functions, challenges, and visions as they related to
HHF.
8 State of Hawaii Hawaii Interagency Council on Homelessness (HICH), Ten -Year Strategic Plan and
Framework 2022-2032,
9 State of Hawaii Statewide Office of Homelessness and Housing Solutions (SOHHS). "Priorities."
Hawaii County Homelessness & Housing Fund Recommendations Report sn SERV CES 7
Community of Practice - Population, Services, Needs
The SAS team attended and co -facilitated two (2) all -day HHF Community of Practice
convenings in November 2024 and May 2025 with OHCD staff and HHF grantees.
Activities were facilitated to gather and discuss the populations served; needs
identified; services offered; and successes, barriers and challenges encountered
(client and organization) in each Hawai'i County District. This information was
organized and used to develop a Kumu.io Map,10 which is a visual mapping system
of the nonprofit landscape on Hawaii island. The map was subsequently shared
with attendees at the May Community of Practice Session.
Countywide Survey
A countywide survey was conducted to further understand the needs and priorities
across different communities throughout Hawai'i Island. These communities were
determined by OHCD and included: North and South Kona, North and South
Kohala, Hamakua, Hilo, Puna (Mauka and Makai), Ka`u and Ocean View. The survey
was sent via SurveyMonkey and disseminated widely across Hawaii Island.
Respondents were given the opportunity to provide feedback about up to three (3)
communities on Hawaii Island. The survey generated 830 unique responses from
766 respondents, with individual community response sizes ranging from
seventeen (17) to 322 participants. Sixty-four (64) respondents provided feedback
on more than one community.
Evaluation Phase
Outcome & Process Evaluation of Y1 and Y2
Process Evaluation. An evaluation of the processes involved in HHF planning,
implementation, and evaluation during its first two and a half years (March 2022 -
December 2024) was conducted. This evaluation addressed three central questions:
• How was the HHF developed and implemented, including the specific
processes that proved effective versus those that created obstacles to
achieving the intended impact?
• What were the key strengths and challenges related to the effectiveness of
these processes?
90 Kumu, "Relationship Mapping Software."
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Hawaii County Homelessness & Housing Fund Recommendations Report sn SERV CES 8
• What is the fidelity of HHF as it pertains to the investment framework
outlined in the Strategic Roadmap?
The following individual processes within these years was evaluated: the
development of the Strategic Roadmap; request for proposal (RFP) design,
evaluation, and funding distribution (Year 1, 2, and 3); contract and data
management (Year 1 and 2); and creation and oversight of the Kuawa community
project.
Outcome Evaluation. The outcome evaluation focused on the outcomes of the
programs and services funded through HHF in Years 1 and 2. This evaluation
addressed the central question: "What was the overall impact of the programs and
services funded in Year 1 and Year 2 of the Homelessness and Housing Fund?" This
outcome evaluation utilized both qualitative and quantitative tools, including
grantee and County interviews and quarterly and annual grantee reports, to
understand the impact of the individual programs and how they contributed to the
larger impact of HHF as a County initiative.
Planning and Recommendation Phase
Countywide Community Convenings
Six (6) community convenings were held, four (4) in -person and two (2) virtually.
These convenings were advertised by OHCD and were open to the public. A total of
ninety-seven (97) Hawai'i Island residents participated in the convenings. At each
convening, the following information was shared: Mayor Alameda's priorities
related to homelessness, real-time data collected by the Hawaii County Homeless
Engagement Hui, various pathways to housing, and the results from the countywide
survey conducted by SAS. Community members were invited to weigh in on the
prioritization of solutions to addressing homelessness and housing stability in
specific communities in the north, west, south and east sides of Hawaii Island.
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Hawaii County Homelessness & Housing Fund Recommendations Report 9
sn SERV CES
Key Findings
SAS Services, LLC was hired to evaluate the HHF and make recommendations for
Years 4 & 5 of the fund, as well as, to make recommendations for the continuation
of the fund beyond the 2027 sunset date. Throughout this inquiry, SAS sought to
understand the current needs, successes, and challenges of the HHF. Due to the
complexity of homelessness, evaluating HHF required examining it within the
broader context of understanding this issue and the systems in which it exists.
Information gathered through this inquiry highlighted the complexities of
understanding and addressing homelessness - from the varied views on causes and
existing needs to the diverse perspectives about viable solutions. In addition, the
HHF is one of many funding sources addressing homelessness and housing. Due to
the growing nature and complexity of the problem of homelessness, it is clear that
the HHF is important and needed, but it cannot address the issue alone.
Furthermore, the quick establishment of the fund caused challenges in its planning,
implementation, administration, and monitoring in the first two years. The HHF was
approved to begin in July 2022 and was given to a new division of OHCD, the
Community Engagement (CE) Division, to operate. The CE Division was established
in 2021 and consisted of less than three staff at the time the HHF launched. The CE
Division had limited expertise in administering a fund of this magnitude and
complexity. Limited time to establish the priorities for the fund and develop the
request for proposals (RFPs) further exacerbated this challenge.
This section provides further detail on these key findings.
Homelessness: A Multifaceted View
The Complexity of Homelessness
The homelessness and housing crisis represents one of the most complicated social
challenges facing Hawai'i Island today. The issue is complex, with numerous
interwoven factors impacting why people become homeless and face barriers to
obtaining and maintaining stable housing. Understanding this complexity requires
Hawaii County Homelessness & Housing Fund Recommendations Reports sn SERVCES10
examining both the systemic root causes, as well as the deeply personal but often
polarizing perspectives of those directly and indirectly impacted.
Systemic Root Causes
At the foundation of homelessness lies an interwoven web of systemic issues.
These root causes are not unique to Hawaii Island, but in many cases, more deeply
felt here.
Affordable Housing and Housing Crisis
Hawai'i is in the midst of a severe housing crisis, with a lack of affordable housing
and declining housing affordability serving as two of the most significant drivers of
homelessness on Hawai'i Island. "Affordable housing" is defined as housing where
households pay less than 30% of their gross income on housing costs. To qualify for
this type of housing or voucher, households must earn 80% or less of an area's
median income (AMI).
Truly affordable housing and the vouchers that support it are severely limited. Over
the past 45 years, federal funding for public housing has continuously declined,
with minimal state or county funds allocated to fill this gap. As one community
stakeholder reported, "We have case management and rental assistance, but
there's nowhere to place clients. We can do everything else right, but if we don't
have enough [affordable housing] units, we will always be playing catch-up."
Hawai'i faces the additional burden of skyrocketing rents and "[high purchase]
prices and mortgage rates [that] have made homeownership unaffordable for most
residents"." The National Low Income Housing Coalition further states that:
Across Hawaii, there is a shortage of rental homes affordable and available
to extremely low income households (ELI), whose incomes are at or below
the poverty guideline or 30% of their area median income (AMI). Many of
these households are severely cost burdened ... [and] are more likely than
other renters to sacrifice other necessities like healthy food and healthcare
" Tyndall et al., Housing Factbook, 1.
Hawaii County Homelessness & Housing Fund Recommendations Reports snsseRv�cesI I
to pay the rent, and to experience unstable housing situations like
evictions.12
The Hawai'i Statewide Office on Homelessness & Housing Solutions echoes that:
Hawai'i has become one of the most expensive and competitive housing
markets in the world and we have a desperate lack of truly affordable space
for our people. This is the root cause of homelessness here and elsewhere
across the country. The permanent solution to homelessness is creating
affordable places for our people to be housed and healed.13
Income and Economic Factors
The widening gap between the rising cost of housing and living, and stagnant
low -wages creates an insurmountable barrier for many Hawai'i Island residents.
The resulting consequence of a lack of affordable housing and declining housing
affordability is that a growing number of people are experiencing homelessness.
According to Glynn et al. (2020)"the expected homeless rate in a community
begins to quickly increase once median rental costs exceed 30% of median
income".14 In Hawaii County, the median rent paid as a share of household income
is 30.2%, just above the critical 30% threshold identified above. Furthermore, 50.3%
of Hawaii County renters are considered rent burdened (paying >30% of income),
while 26.6% of renters are considered severely rent burdened (paying >50% of
income).'5
The ALICE (Asset Limited, Income Constrained, Employed)16 population further
demonstrates how this gap widens as the cost of living and housing increase while
wages remain stagnant. "Housing Insecurity is Prevalent - twenty-seven (27)% of
households statewide express worry about being forced to move within a year;
forty-one (41)% of residents below the ALICE Threshold share this concern".17 More
12 National Low Income Housing Coalition (NLIHC). "Housing Needs by State: Hawaii."
13 State of Hawaii Statewide Office of Homelessness and Housing Solutions (SOHHS). "Priorities."
14 Glynn et al., "Inflection Points."
1s Tyndall et al., Housing Factbook, 28.
16 Aloha United Way, 2024 ALICE Report, 2-6.
17 Aloha United Way, 2024 ALICE Report, 3.
�.� Hawaii County Homelessness & Housing Fund Recommendations Reports snssER���E512
notably, forty-eight (48)% of Hawai'i County residents live at or below the ALICE
threshold."
BELOW THE ALICE THRESHOLD (Continued)
Percentage of ALICE
Households by County
ABOVE
Neighbor Island households ALICE 60 0 63ti 5Z%
are more likely than those on
Oahu to be living below the
ALICE Threshold. A majority of
Maui County households are
struggling to survive financially.
ALICE " 6% I'
POVERTY
STATE OF HONOLULU HAWAI'I
HAWAH COUNTY COUNTY
MAUI BAUA'I
COUNTY COUNTY
Aloha United Way ALICE in Hawaii 2025 Facts and Figures. January2025. Pg. 5
Additionally, Hawaii Island's economy relies heavily on tourism and government
employment, yet both sectors offer predominantly low -wage entry-level positions
that fail to meet the high cost of living. This economic challenge is compounded by
geographic disparities: while most employment opportunities concentrate in the
urban centers of Hilo and Kona, residents of rural areas like Puna, Ka`u, and Kohala
face severe job scarcity. The lack of consistent, reliable transportation between
these rural communities and employment hubs creates an additional barrier,
effectively cutting off many residents from even the limited opportunities that do
exist.
Social Challenges
Mental health and substance abuse challenges, domestic violence, and
trauma —compounded with the limited access to supportive services and a
"Aloha United Way, 2024 ALICE Report, 5-6.
Hawaii County Homelessness & Housing Fund Recommendations Report I s�aE513
decreasing social safety net —contribute significantly to the complexity of
homelessness. A systematic review and meta -analysis found that 89.8% of adults
experiencing homelessness had at least one adverse childhood experience (ACE)
and 53.9% had four or more ACEs, compared to only 38-39% and 3-5% respectively
in the general population.19 The study revealed that ACEs were consistently
associated with lifelong vulnerabilities including mental illness, substance abuse,
and suicidality. All of these increase the risk of becoming homeless and perpetuate
the challenges of escaping homelessness.
These factors frequently intersect with economic and interfamilial hardships,
creating compounding barriers to stable housing. The Bridging the Gap's 2024
Point -In -Time Count found that 23.4% of unsheltered individuals and families
identified "family/relationship conflict" as the primary cause of their current
housing situation —the most prevalent response aside from "Other".20
Embedded Structural Barriers
Racism, discrimination, inequities, policy constraints, and funding limitations
additionally play significant roles in perpetuating homelessness. Native Hawaiians
are disproportionately represented in counts of homeless individuals and families
on Hawaii Island. As of 2020, the majority of Native Hawaiians (53%) live on the
continent rather than at home in Hawai'i.21 As of 2024, fifty-eight percent (58%) of
Native Hawaiians fell below the ALICE threshold.22 This disheartening reality reflects
more than a statistic, it represents the profound injustice of a people priced out of
their own land. Many Native Hawaiians now face an impossible choice: to abandon
their birthright or struggle to survive in a home they can no longer afford to live in.
For too many, the inevitable outcome is homelessness in Hawaii.
19 Liu et al., "Adverse Childhood Experiences."
2° Ka Mana O Na Helu, Point -in -Time Count.
21 U.S. Census Bureau, 2020 Census DHCA.
22 Aloha United Way, 2024 ALICE Report, 2-6."ALICE Threshold: The average income needed to afford
the Household Survival Budget (in Hawai'i - $39k for a single adult, and $107.8k for a family of 4)
Households below the ALICE Threshold are unable to make ends meet and include both ALICE and
poverty -level households."
14 Hawaii County Homelessness &Housing Fund Recommendations Reports AS 1�E5
Comprehensive Data Gaps
Currently, Hawai'i County has no shared system that accurately captures daily,
weekly, or monthly fluctuations in homelessness. The annual Point -In -Time (PIT)
Count has traditionally served as the standard method for measuring
homelessness in communities. This HUD -mandated census captures demographic
trends among the homeless population through a one-night annual count.
Federally funded organizations may also use the Homeless Management
Information System (HMIS) to collect client -level data about individuals and families
experiencing or at risk of homelessness. HMIS helps organizations track and
coordinate services, manage client data, and inform funding decisions. In January
2025, the Hawaii County Homeless Engagement Hui began collecting real-time data
through daily outreach efforts. While imperfect, this approach has helped identify
unsheltered individuals and improve service coordination among providers.
Each of these data collection systems provides only a partial view. This absence of
complete data significantly hinders informed decision -making about resource
allocation, service delivery, and policy development for this vulnerable population.
Hawai'i County would substantially benefit from a comprehensive system to
measure the true scope of homelessness.
Varying and Opposing Public Perceptions
Depending where you sit at the table and how homelessness impacts you on a
day-to-day basis, you likely see the problems, and even more so, the solutions very
differently. In reality, this is part of what makes homelessness and addressing
homelessness so complex. There are multiple competing truths that range from
personal to systemic levels and no easy one -size fits all solution.
Perception of Causes and Solutions
While the above mentioned systemic root causes are widely acknowledged, the
absence of comprehensive County -specific data has in part led to varying opinions
among Hawaii Island residents about what drives homelessness and how to
address it. Instead, opinions and perspectives are largely informed by how
Hawaii County Homelessness & Housing Fund Recommendations Reports snssER���"15
individuals are or are not directly impacted by homelessness, as well their
geographical location within Hawaii County. According to SAS countywide survey
data, over half of respondents countywide, fifty-nine percent (59%), reported
homelessness as an issue that directly impacts them and/or their family. The
highest levels of agreement in these areas were reported in Hilo and North & South
Kona."
According to SAS countywide survey results and convenings, there is a high level of
agreement that many of the systemic root causes cited above, including lack of
affordable and specialized housing, increasing cost of living, and behavioral health
challenges, are the top perceived contributing factors that lead to homelessness in
Hawai'i Island communities. Poverty and employment -related factors, such as
unemployment and low -wage jobs, were also cited. This is particularly true in Ka`u,
Ocean View, Hamakua, and Puna, all of which are a considerable distance away
from urban core areas.
Perception of Barriers to Addressing Homelessness
There are also varying perceptions as to whether the barriers to addressing
homelessness are due to individual shortcomings or largely systemic in nature,
requiring solutions beyond what individuals can address on their own. There is a
perception that many homeless individuals do not want to be stably housed, do not
want to work, and would prefer to continue to remain unhoused. Many homeless
individuals counter this by explaining the paradox they face of needing income and
a job to be housed, but to work you need to have a place to wash yourself and get
ready, a place to store their belongings during the day, an address to put on
application, and a bank account to deposit checks into. One cannot be achieved
without the success of the other happening first.
Inflow of Homelessness
Many nonprofit providers believe that the in -flow of homelessness on Hawaii Island
exceeds the outflow and that more people are entering homelessness than are
getting housed. However, this is anecdotal, as the existing Point -In -Time count and
23 SAS HHF Community -wide Survey.
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Homeless Engagement Hui data only captures those already experiencing
homelessness, not individuals and families who are at -risk of becoming homeless.
One of the most polarizing perceptions about the inflow centers on the origin of
those affected. Some residents believe homelessness is primarily a local issue
affecting long-term Hawai'i residents, while others see it as being driven by an influx
of people from the continent. Though data shows that the majority of homeless
individuals have lived in Hawai'i for over 10 years, a competing perception holds
that homelessness stems largely from continent 'transplants' who either arrive
without adequate resources or are deliberately sent to the islands by other states.
These differing views about the root cause significantly shape residents' attitudes
toward potential solutions.
Resource Allocation
Another debated perception is that existing programs and services are not fairly
allocating resources islandwide and not effectively addressing homelessness in
communities. These perceptions are largely informed by how often individuals see
outreach workers in their own areas, and how quickly they perceive visibly
homeless individuals are being moved out of public areas. Nonprofit and County
providers try to provide context for this, citing the length of time it takes to build
trust with referred individuals, the limitations of funding, the inability to violate a
person's rights by committing them to a facility or mandating treatment, a
workforce that is being paid minimum wages themselves, and the lack of truly
affordable housing.
NIMBYism
Lastly, while there is a high prevalence of shared agreement that homelessness is
an issue in Hawai'i Island communities ninety-two percent (92%) and is an issue that
needs to be addressed ninety-four percent (94%), there are also people who do not
want the housing solutions to occur in their own community. "NIMBYism [Not In My
Backyard] perpetuates homelessness and we need every community to be part of
the solution by finding space for unhoused neighbors."14
24 State of Hawaii Statewide Office of Homelessness and Housing Solutions (SOHHS). "Priorities.
7
Hawaii County Homelessness &Housing Fund Recommendations Report AS 1�E5
General Awareness and Education
As demonstrated above, public awareness about homelessness varies widely
across Hawaii Island communities. While some residents understand the needs,
barriers, and available resources, this awareness does not extend to all residents.
Targeted efforts to educate the community are lacking, and in their absence the
general public often forms their perceptions based on personal encounters with
visibly homeless individuals, missing the larger picture of those living in cars,
couch -surfing, or otherwise hidden from public view. Varying levels of awareness
and understanding create fertile ground for misconceptions and conflict.
Heightened public education efforts would help correct these issues and increase
community awareness.
Nonprofit Workforce and Operational Challenges
Among the complexities of addressing homelessness and housing instability on
Hawaii Island is the reality that many nonprofit service providers face significant
barriers, including staff shortages, operational funding limits, unskilled staff, limited
space, and low wages.
Operational funding limits frequently prevent organizations from maintaining
manageable caseloads for case managers and direct care staff. When organizations
struggle to recruit and retain qualified staff, a ripple effect occurs: caseloads
increase, organizations hire inexperienced staff, and service quality deteriorates for
vulnerable individuals while existing staff well-being suffers. Additionally, frequent
staff and leadership transitions disrupt service consistency; and staff commonly
juggle multiple responsibilities beyond their original job scope.
The overlap between homelessness and SPMI (Severe and Persistent Mental Illness)
means this workforce manages heavy caseloads of individuals requiring intense,
specialized support. Responding to frequent crises, unstable behaviors, and
de-escalation efforts reduces time available for housing placement interventions.
Organizations also face infrastructure challenges. Securing affordable office space
proves difficult, with some organizations unable to find any office space while
others struggle with rising rent and maintenance costs. Staff housing presents
Hawaii County Homelessness & Housing Fund Recommendations Report AS ERVIC 8
similar challenges, particularly on the island's West side, where low wages and
limited availability compound the problem.
These factors create high burnout levels, secondary trauma, and rapid staff
turnover ultimately undermining service effectiveness. Significant training needs
exist at all levels in the following areas: data management, program management,
accounting, legal, cultural sensitivity, and working with special populations.
Organizations also need stronger in-house supervision to provide staff with
necessary guidance and resources.
Homelessness & Housing Fund
HHF is a Small Piece of a Larger Response
In the complexity of this situation sits the Hawaii County Homelessness and
Housing Fund (HHF). The HHF was said to be an "unprecedented" step by Hawai'i
County, as it was the "first and only direct County funding stream for the purpose of
addressing housing and homelessness"." It was purposefully designed to be
flexible and community -centered, and to amplify the impact of local initiatives.
It was established in response to the County Council's recognition that the
homelessness and housing crisis was severely impacting Hawai'i Island residents
and required more dedicated resources to address this urgent issue. It has also
been reported that there was a presumption of some that there were community
providers who could solve the problem of homelessness within the decade if
appropriate funds were allocated toward this goal.
While advantageous, HHF alone could never, and will never, resolve homelessness
for Hawai'i County in singularity. The issue is far too complex, the financial needs
are far too great, and the coordination needed is beyond the scope of the small
team of OHCD staff who oversee this fund. There are a limited number of local,
state, federal, and philanthropic funds that are dedicated to address the growing
issue of homelessness and HHF is just one piece of a larger puzzle. While the HHF
alone cannot solve homelessness, it can and has provided a more flexible funding
zs County of Hawaii, Strategic Roadmap, 2022.
Hawaii County Homelessness & Housing Fund Recommendations Reports sAssER���E519
opportunity allowing Hawai'i County to identify and develop programs to meet its
specific and unique needs.
HHF Planning, Staffing & Expertise
The compressed timeframe of HHF planning and implementation created cascading
challenges that continue to impact the fund's implementation to this day. At the
onset of the fund, a Strategic Roadmap was created that outlined 13 priorities for
the fund to address.26
Purpose and Alignment
There was insufficient time to develop shared understanding on the intention,
purpose, and clarity of how the HHF or the Strategic Roadmap priorities aligned
with existing County homelessness and housing priorities and initiatives. As a
result, the breadth of priorities identified made it challenging to navigate what can
reasonably be addressed within the limitations of approximately $10 million in
annual funds and single -year grants.
For example, increasing the supply of affordable housing was one of the top five
priorities in the Strategic Roadmap. While low -barrier, truly affordable housing is
certainly a piece of the puzzle to addressing homelessness, it is a piece that
requires extensive planning, money, and long-term investment to create. Funding
building projects during a single -year grant cycle with roughly $10 million would be
exceedingly challenging. The timeline alone required for permitting, planning, and
construction makes housing development prohibitive for HHF. As a result, some
stakeholders concluded within the first two years that the Strategic Roadmap was
not an effective framework for HHF allocation.
In addition, in Year 3 of the fund, the Hawaii County administration changed with
the election of the new Mayor and subsequently a new housing administrator. As
part of this change, also came the Mayor's Working Group to address
homelessness. Within the first couple months of the new administration, Mayor
Alameda outlined three (3) specific priorities to address homelessness. Some, but
26 County of Hawaii, Strategic Roadmap, 2022.
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not all, of these aligned with the priorities of the prior administration, including
those being addressed through the HHF. This has led to on -going discussions and
revisions to the defined purpose of HHF.
The Planning Process
The HHF was structured to be allocated and awarded to nonprofits through a
competitive RFP process on an annual basis. This funding has served as a lifeline for
many nonprofits to be able to develop new or continue existing programs on
Hawai'i Island. However, the single -year grant cycle has created unintended
consequences for several nonprofits.
For organizations seeking to build new or expand existing programs, having only a
year of guaranteed funding limits what the organization can do. This is particularly
true for smaller nonprofits that may pilot a program dependent on HHF funds.
Nonprofits have the opportunity to re -apply annually, but if selected one year and
not the next, this can and has led to organizations needing to scramble to keep
programs going. For some this has resulted in programs needing to downsize,
subsequently reducing the number of quality programs available for those in need.
Annually, any unused HHF awarded funds are returned to the Hawai'i County
General Fund. This adds pressure for nonprofits to spend every last dollar so that
they will not be lost. As a result, in Years 1 and 2, OHCD offered no -cost extensions
to many grantees, requiring the small staff to extend grant timelines and manage
multiple overlapping grant cycles. This process has since been amended with Bill
50. Introduced by County Council Members Inaba and Kagiwada, Bill 50 will allow
HHF to become a revolving fund, with "any remaining balance ... at the end of the
fiscal year [being] designated for this purpose.""
Staffing & Expertise
As previously stated, when created, HHF was housed in the OHCD Community
Engagement (CE) Division. The mission of OHCD "is to provide for the development
of viable communities through decent housing, suitable living environments and
Z' County of Hawaii, Bill No. 50.
n
21
Hawaii County Homelessness & Housing Fund Recommendations Reports AS ERVCE5
expanded economic opportunities." CE role in this is to develop and implement
community engagement programs that will inform and provide resources related to
OHCD's mission.
The HHF offers program -specific funding for nonprofits addressing the
homelessness and housing instability crisis. While OHCD has extensive experiences
with housing -specific initiatives, the causes and solutions to addressing
homelessness expand beyond their core areas of expertise. Many of the HHF
funding priorities identified, such as detoxification and behavioral health treatment
options, are areas that fall outside the scope of OHCD's specialized knowledge.
To meet the demands of rapid implementation, the CE Division contracted two
additional staff. However, the division experienced significant disruptions while
simultaneously designing, implementing, and refining the HHF. Frequent staff
turnover and leadership transitions left the division without historical knowledge or
a clear decision -making process. This included the fund's management staff
changing every year. The division's capacity remains strained by the barries of
limited staffing and expertise.
Application and Request for Proposals
CE approached the development and implementation of the new HHF application
and RFP process with commitment, despite a steep learning curve. As the team
identified areas for improvement, modifications were made to enhance the
process. However, these ongoing changes sometimes caused confusion, leaving
grantees uncertain about expectations. Definitions and terminology related to
homelessness and housing were sometimes used interchangeably, or defined
differently. This lack of clarity contributed to the confusion.
Hawaii County Homelessness & Housing Fund Recommendations Reports SAIIEMM22
Recommendations
The information gathered through this inquiry yielded many recommendations for
the future of the HHF. It is important to note that this report is being written
midway into Year 3 of the HHF. SAS has been providing recommendations to OHCD
throughout this process and OHCD has already implemented some of the
recommendations stated below. OHCD is also in the process of making additional
changes based on the recommendations presented in this report. Not all changes
have been captured at the time of this report.
Recommendations address three areas: HHF operations through its proposed
sunset date of June 30, 2027; continuation of HHF beyond 2027; and broader
County strategies for addressing homelessness post-2027.
Homelessness & Housing Fund Recommendations Until
2027
This section highlights recommendations for the HHF until its existing sunset date
of June 30, 2027. These recommendations are made with the acknowledgement
that OHCD was in process of launching the Year 4 RFP at the time that this report
was drafted.
Purpose and Alignment
The HHF's purpose, objectives, and priorities should align with the County's
homelessness and housing strategic mission, objectives, and priorities. The County
must clearly define the scope, purpose, and priorities of the Homelessness and
Housing Fund (HHF) to achieve measurable and impactful outcomes, considering
the scale and complexity of its homelessness and housing challenges.
HHF Fund Alignment. It is also important for the County to articulate how the HHF
integrates with the broader funding landscape, identifying both alignment and gaps
between program needs and available funding. In Year 5, it will be essential to
understand how the HHF relates to or is aligned with the Mayor's workgroup
priorities.
Hawaii County Homelessness & Housing Fund Recommendations Reports AS SERVICEs23
Funding Objectives. Since the HHF is currently deemed to sunset in 2027, it will
need to focus on short-term goals that can be achieved with the estimated $10
million in years four (4) and five (5). The short-term goals should align with the
County's long-term priorities and objectives.
Purpose and Priorities for 2025 to 2027
This inquiry recommends that from 2025 to 2027, the HHF's purpose focus on
meeting immediate needs while making progress toward lasting solutions. It is
recommended the fund focus on the following priorities:
• Expanding Housing Strategies (Primary Focus)
o Permanent Housing
■ Permanent Supportive Housing / Housing with Supports
■ Affordable housing (30-80% AMI and below 30% AMI)
o Bridge & Interim Housing
■ Recovery housing with supports
■ Non -congregate shelters
■ Rapid re -housing
■ Rental assistance
o Temporary Housing
■ Emergency shelters (including DV)
■ Cot -sleeping
■ Safe -parking sites
• Increasing Medical & Behavioral Healthcare Access (Secondary Focus)
o Street Medicine
■ Preventative care and health screening
■ Chronic disease management
■ Behavioral health services
o Location -based Treatment
■ Residential detox and medical respite
■ Counseling and medication management
Funded programs that address the above priorities should also directly provide or
closely refer to one or more of the following pathway to housing services:
24
Hawaii County Homelessness & Housing Fund Recommendations Reports AS ERVCES
Housing Pathways & Support Services
o Housing readiness (life skills, financial education, employment training,
health insurance enrollment, legal system navigation)
o Financial assistance for housing applications and fees
o Case management and housing navigation
o Resource centers and outreach
It will be important to ensure that funding is allocated with equity across the
County and not concentrated only in urban areas. The HHF should also prioritize
programs that address multiple strategic priorities and/or needs simultaneously to
maximize the investment of getting people stably housed.
Staffing Roles, Structure, and Capacity
Assess Staffing and Operational Structure. It is recommended that until the 2027
sunset date, OHCD assess the staffing and operational structure of the CE Division
to ensure that there are adequate and qualified staff, training, and processes in
place to administer the fund more effectively. These factors are essential for
successful execution, evaluation, and communication about the outcomes for the
fund; and will lead to improved clarity for the administration of the HHF. An
suggested initial approach is to clearly define the CE Division's existing structure,
functions, processes, roles, and responsibilities. This includes specifying the
decision makers specifically within the CE Division. This will ensure that staff are
provided with the guidance and support needed to make good decisions about the
management and evaluation of the fund.
Needed Skillsets and Areas of Expertise. It will be essential to assess the skillset
and expertise needed to manage a revolving fund and to staff a team who can
successfully administer and manage the fund. It will be critical to ensure that staff
have expertise in grant, contract, data, and project management; program
evaluation; and fiscal management. Staff should also be well -versed in best
practices of homeless and social service delivery.
The staff administering the fund would benefit from legal experts in real estate,
contract, and data as well as knowledge of County policies, procedures, and
Hawaii County Homelessness & Housing Fund Recommendations Reports sAssER���E525
practices (i.e. procurement procedures and grant/contract management). Staff
working to administer and manage the fund should also be aware of other funding
sources at the federal, state, and local levels that address homelessness and
housing -related issues.
Staff to Meet the Demand. It will be critical to have adequate staffing to support
each year of administration of the fund. This includes the current grants, past
grants, preparing for the next round of grants. Adequate staffing will allow for the
creation of new grants and contracts, monitoring of existing grants and contracts,
fiscal management of the existing contracts, and the evaluation and reporting of
the fund's outcomes. Furthermore, staff managing the grant should receive ongoing
supervision, support from a division manager, and training on grant administration
best practices and stakeholder communication.
Application and Request for Proposals
Modifications. While continuous improvement is a positive approach to
maintaining a solutions -focused environment, OHCD should consider the
implications of on -going modifications to the application and RFP process on both
grantees and internal stakeholders. It is recommended that a decision making
process for any modifications to the grant process be implemented. The process
should determine when a modification is necessary before making changes at the
beginning of a new grant cycle.
Definitions. Consistency and clarity is key. It is recommended that OHCD adopt
standard definitions for concepts related to homelessness and housing. It is
recommended these definitions align with existing definitions used on federal,
state, and local levels. This will improve understanding throughout the process.
Training. It is recommended that a grantee award packet and training for grantees
be offered. The award packet should contain key information regarding the award
and reimbursement process. Onboarding training should be offered to all grantees,
covering billing for services, outcome reporting, and other pertinent funding
information.
Hawaii County Homelessness & Housing Fund Recommendations Reports sAssER���E526
Assessment & Planning
Clarifying the Purpose. Understanding the changing, complex, and unique needs
of individuals and families experiencing homelessness and housing instability, and
the resources available to address those needs is key to designing the HHF as a
flexible tool to address homelessness. Once the purpose of the HHF is clearly
defined, it will be essential to ensure that the HHF is allocated to address
countywide needs.
Geographical Specific Needs. It is important to get a clear understanding of
specific geographical needs across Hawaii island, which are varied and unique.
When grants and/or contracts are awarded, they should address specific
geographical needs and award recipients should indicate the designated services
areas being addressed in their proposals and reports. This will improve clarity and
consistency in reporting and allow OHCD to better understand how funding is
distributed across the County.
Advertise the Opportunity Broadly. To ensure that organizations are aware of
the fund and its purpose, it is suggested that OHCD advertise the fund broadly.
Continue to hold Request For Information (RFI) sessions prior to the RFPs to provide
opportunities to learn about the fund and answer questions, prior to applying.
Monitoring & Evaluation
As stated previously, OHCD experienced many challenges in the administration and
monitoring of the HHF due to staffing changes and gaps in staff expertise. These
challenges impacted their ability to monitor and evaluate the fund on an annual
basis. In addition, the flexible nature of the fund and the 13 strategic roadmap
priorities, made it challenging to explain the overall impact of the fund.
A Logic Model. Once the purpose and priorities of the HHF are identified and
clearly defined, it will be essential to develop a theory of change or logic model to
document how the fund is intended to work. This visual tool clarifies the
relationship between resources, activities, and goals by mapping out inputs,
activities, outputs, and outcomes. This practice would enable OHCD and the
nonprofits to more clearly understand and articulate the impact of the fund. A logic
Hawaii County Homelessness & Housing Fund Recommendations Reports sn SERVc s27
model would also help to guide the design of the evaluation for the fund moving
forward.
Outcomes, Impact, and Evaluation. OHCD should clearly identify intended
outcomes for the HHF and develop a data collection and management system that
enables effective impact reporting. The first two (2) years of administration of the
HHF were fraught with data collection and management challenges. It will be
imperative for the HHF to develop a continuous performance management system
to evaluate and monitor the fund and the work of the grantees and contractors. It
may be beneficial to hire an outside evaluation consultant to conduct annual
evaluations of the HHF.
Any changes made to the evaluation process of the HHF should focus on telling the
collective story of the work of the grantees. Changes made should take into the
consideration the reporting burden for grantee organizations, as the HHF is one
fund of many that they need to manage and report on. The following
recommendations will be essential to understand the overall impact of the HHF:
Standardized Metrics. It will be important to identify standardized measures
that each grantee and/or contractor applies to and reports on related to the
fund. This would allow for the collection of standardized data to better
understand the overall performance of grantees and impact of the fund.
Ample measures may include the following, at a minimum:
o Number of individuals and families experiencing homelessness
o Number of individuals and families at -risk of homelessness
o Length of time individuals and families experience homelessness
o Types of housing needed
o Number of individuals and families housed within 30, 60, 90 days
o Number of individuals and families housing ready with no available
units
o Types of housing created or number of beds created
Hawaii County Homelessness & Housing Fund Recommendations Reports sAssER���E528
This information should be included in the Request for Proposals (RFPs) and
the award contract. Grantees and/or contractors could also be permitted to
identify additional goals and outcomes that their work will address.
Data Collection and Standardize Reporting. It will be essential for the HHF to
develop a data collection and management process. This process should
clearly define data management practices, to include reporting requirements
and reporting templates to capture outcomes from grantees and/or
contractors that are aligned with the purpose and priorities of the fund.
At minimum, the HHF grantee and/or contract reports should consist of:
o Quarterly Activity Reports
o Annual Summative Report
o Annual Site Visits
o Fiscal Reports
Reports should include both quantitative and qualitative data to tell the story
of the impact of the fund. This includes, but is not limited to: standardized
measures, program goals and outcomes, program achievements and success
stories, challenges related to grant management and addressing housing
needs, and adjustments needed. All site visits should be structured and be
documented by the CE Division.
In Year 4, OHCD is looking to implement a new data system to track program
outcomes that is based on collecting client level data. OHCD must be mindful
that implementing a new system in the next two (2) years of the fund will
create a learning curve for grantees who are receiving one-year grants. In
addition, introducing a new system to track individual client data has the
potential to create an extra reporting burden on grantees, who may be using
other systems to track data internally.
It is not recommended that the HHF collect individual client level data from
grantees and/or contractors for reporting purposes alone. The collection of
Hawaii County Homelessness & Housing Fund Recommendations Reports sn SERVc s29
program level data that captures aggregated, unduplicated information from
grantees and/or contractors based on the standard measure mentioned
above is instead recommended. If the fund is extended beyond 2027, the
fund administrator can explore the integration of a new system that could be
used to support care coordination across providers.
Privacy and Confidentiality. It is crucial that all data collection and storage
processes adhere to privacy and confidentiality requirements, including
Health Insurance Portability and Accountability Act (HIPAA). This would
protect the County from liability related to potential breaches of protected
health information (PHI).
Reimbursement Process
The HHF reimbursement process has been identified by some grantees, the CE
Division, and Accounting Division as cumbersome and time-consuming. In Years 1 -
3, there was some confusion regarding the classification of costs as either
administrative or program -related, given that certain program functions are
administrative in nature. The CE Division included the Hawaii County Code
definitions for administrative and program costs. As a result, in Year 4, the HHF
FY2025 - 2026 Request for Grant ApplicationS21 more clearly defines the differences
between administrative costs and program costs.
Standard Operating Procedures (SOPS). It is recommended OHCD establish
Standard Operating Procedures (SOPS) in alignment with Hawaii County codes and
processes. SOPS should contain procedures for training new and existing staff on
procedural changes. Any changes to budgeting and financial processes, and the
purpose of changes, should be thoroughly explained to grantees, and done so in a
timely manner. Whenever possible, changes to the budgeting and financial
processes should take into account any potentially resulting impact to grantees.
Intradepartment Collaboration. A formal method to increase collaboration
between the CE Division and the Accounting Division within OHCD should also be
developed. Collaboration is encouraged to streamline the processes for both
28 County of Hawaii, RFP FV2025-2026, sec. 4.1.
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internal and external stakeholders, ensuring compliance with relevant policies. This
includes recordkeeping, reporting, and fiscal accountability requirements such as
adhering to general accepted accounting procedures and practices.29 Collaboration
is also necessary for accounting staff to increase their understanding about the
HHF purpose and function; and CE staff to increase understanding of fiscal
management practices.
Well-defined policies, processes, and procedures would ensure an efficient and
reliable reimbursement process while enabling OHCD to better evaluate nonprofit
effectiveness in utilizing HHF awards.
Grant Modifications
It is recommended that no changes be made to administrative expenses for
existing grants once awarded to ensure consistency and minimize administrative
burden. Any necessary adjustments can be incorporated into the next grant cycle.
In previous years, mid -cycle modifications led to budgetary challenges for nonprofit
organizations, often requiring them to adjust their budget, seek additional funding
to make up for the shortfall, and invest extra administrative effort. This suggested
approach aims to support more stable and predictable planning. Before decisions
are made, it is important to understand the implications of those decisions: who
will be affected and how they will be affected.
Coordination and Communication among HHF Grantees
HHF has been successful in bringing together nonprofit organizations who directly
serve individuals and families experiencing homelessness.
Community of Practice. It is recommended that HHF continue the Community of
Practice and identify ways to make these sessions more actionable and focused on
addressing barriers and challenges grantees are experiencing. It would be
beneficial to invite other divisions within OHCD and the Mayor's Working Group to
participate in these sessions. This will allow the County to share their resources and
expertise to support the work of the grantees. It may also be helpful to create
29 County of Hawaii, County Code, Ch. 2, sec. 2-142.
�.�J
Hawaii County Homelessness & Housing Fund Recommendations Reports sAssER� ,,31
subgroups within the Community of Practice for grantees servicing similar
subpopulations and/or working in a particular district to come together to share
their experiences and resources. Regional community of practices by district could
also support better coordination and collaboration between grantees. It would also
be helpful to continue outreach to non-HHF grantees to encourage their
participation.
Kumu.io Mapping. Through this inquiry, SAS created an interactive Kumu.io map
featuring the HHF grantees. Kumu.io30 is a spreadsheet -based visualization tool
often used by nonprofit networks and academics to visualize networks of
collaboration and systems of change. SAS used this tool to develop a map of Year 2
grantees and other nonprofits who were present at the November 2024
Community of Practice Session. The map provides information about the grantee
organizations, who they serve and the types of services they offer in different
locations across the island. It can also be updated in real-time and overtime can be
converted to a geo-location map that identifies the exact location of programs and
services across Hawai'i Island.
It is recommended that the County continue to develop this resource and make it
publicly available. Expanding access would enable the County, HHF grantees, and
the general public to better understand the programs and services available across
different geographic areas of the island.
Hawaii County Recommendations Beyond 2027
At the outset of this inquiry, SAS's project scope was to examine HHF. However, as
previously stated, the evaluators determined that adjustments to HHF alone would
not effectively address the changes stakeholders sought without broader
countywide adjustments.
Additionally, SAS was honored by the extensive community participation from
Hawaii Island residents who shared their perspectives on addressing
homelessness. Their input spanned to cover the full continuum of care, from
3' Kumu, "Relationship Mapping Software."
�.� Hawaii County Homelessness & Housing Fund Recommendations Reports sAssER���E532
preventing housing instability to serving those experiencing chronic homelessness.
While many suggestions exceed HHF's current scope, this valuable community
input warrants inclusion in the recommendations being offered.
The following recommendations address both HHF's potential extension beyond
2027 and broader County initiatives to combat homelessness on multiple fronts.
Extension of Homelessness & Housing Fund Beyond 2027
There is overwhelming agreement and support by multiple stakeholders that the
HHF should be continued beyond its current sunset date of June 30, 2027. In
addition, Mayor Alameda has identified homelessness as a critical issue plaguing
the County and stated that the HHF is an important investment in addressing the
issue. "This fund is an investment in the well-being of our residents and in the
strength of our island," said Mayor Kimo Alameda. "Homelessness is a critical issue,
and our administration is committed to ensuring that we maximize the fund's
impacts so that we house more individuals and families."31 This inquiry found that it
will be critical for Hawai'i County to continue the HHF beyond 2027.
If HHF is extended beyond 2027, the following adjustments to HHF are recommended.
Purpose and Alignment
Beyond 2027, the HHF should be integrated into a broader homelessness response
system and braided with other local, state, federal, and philanthropic funds to
better serve individuals and families experiencing or at risk of homelessness. Given
potential federal funding cuts, state and federal challenges, growing homeless
populations, and Hawai`i's increasing cost of living, the HHF will be integral to
addressing homelessness and housing instability on Hawaii Island.
HHF Fund Alignment. Beyond 2027, the fund's purpose should align with the
County's strategic objectives and priorities. It is crucial to understand the funding
landscape for homelessness and housing initiatives, and the potential role the HHF
can play. This understanding should consider the fund's size relative to the scope
31 County of Hawaii. "News Release: Homelessness and Housing Grants Awarded."
�.� Hawaii County Homelessness & Housing Fund Recommendations Reports sAssER���E533
and cost of addressing these priorities. With this information, the County will be
better informed when prioritizing which issues to address with the HHF.
Funding Structure & Approach
A Braided Funding Approach. It is recommended that HHF administrators invest
in programs that can demonstrate use of a "braided funding approach"- combining
a diverse portfolio of funding from multiple sources (i.e., HHF and HUD) to fund a
single program. For example, federal, state and county grants and funds (i.e., HUD,
Grant in Aid (GIA), USDA, Veterans Affairs, Administration for Native Americans,
Department of Hawaiian Home Lands, Office of Hawaiian Affairs); contracts with
Department of Health (DOH), Department of Human Services (DHS), Adult Mental
Health Division (AMHD) and judiciary; private and philanthropic funders;
investment interest; and billable revenue. No organization should report that HHF
is their sole source of funding. Consider funding program expansions that allow
organizations to scale up to turn long -held visions into operational realities.
Multi -Year Fund Cycles and Contingent Funding. The structure of the HHF fund
should account for the time necessary to successfully establish, implement, plan,
and manage programs. It is recommended that multi -year fund cycles with
contingency agreements be implemented to allow nonprofits to build trust with
participants and focus their efforts on providing quality services.
As stated previously, annual funding cycles can lead to the premature termination
of programs, particularly those that are new, developing, or are attempting to grow
service capacity. Short funding cycles increase uncertainty, which leads to fears of
job insecurity, and challenges with the retention of skilled staff. Staff turnover
affects the quality and consistency of services. Additionally, a vital component to
program success is for those who are experiencing homelessness to be able to
trust service providers to help them. Due to past trauma and experiences with
people working in the system, many people experiencing homelessness have a
distrust of providers and take time to build trust over time.
If HHF offers multi -year grants, it should require that the grant awards include a
contingent agreement that requires grantees to meet specific performance criteria
Hawaii County Homelessness & Housing Fund Recommendations Reports sn SERV CE534
at the end of each year in order to receive further funding. For example, the HHF
could provide a one (1) year award with the opportunity to renew for up to five (5)
years based on grant performance. If the performance criteria is met, the funding
will continue to be awarded. If the performance criteria is not met, the funding for
the next year will cease, and be returned to the HHF.
There is a benefit to incentivizing and rewarding performance and accountability to
nonprofits. There is also a built in assurance that the program will be funded for
multiple years. If the fund investment was underperforming, the fund administrator
will be able to award the underperforming investment to another organization
during the next RFP process.
Fund Reserve Flexibility. It is recommended that part of the HHF be reserved to
address urgent priority needs that may arise during a grant cycle. The
homelessness and housing environment is complex. It is also fluid. These reserves
will offer a means for the County to quickly respond to those needs.
Fund Stability. It is recommended that the County guarantee a minimum amount
of funding for the HHF that will be available for granting and/or contracting with
nonprofit organizations. It is also recommended that the remaining fund balance at
the end of each fiscal year remain in the HHF account rather than being reallocated
to the General Funds. Increased funding stability helps to develop long-term
strategies to address homelessness and reduces uncertainty for nonprofits that
rely on the HHF to provide community services.
Council Members Inaba and Kagiwada proposed Amendment Bill 5032 to the HHF
ordinance. The recommended changes are to establish a minimum annual funding
baseline of $9M until the fund ends in 2027. The bill was adopted in June 2025.
Funding Cap for Grantee Awards. It is recommended that the funding
administrator establish predetermined award ceilings to better allocate resources.
These ceilings could be tiered based on service type. For example, temporary
housing solutions would have higher limits than showering services. The
32 County of Hawai'i, Bill No. 50.
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administrator should analyze current and trend data to set appropriate guidelines
and implement partial funding awards, an approach already being adopted for the
Year 4 RFP.
In Years 1 and 2, applicants could request up to the total amount approved by the
County Council for each HHF grant cycle, and selected grantees received their full
requested amounts. In Year 3, one grantee received only partial funding, receiving a
percentage of their requested amount. This resulted in HHF funding comprising
approximately 70% of grantees' total funding, which is an unsustainable model.33
As noted earlier, the demand for services far exceeds available resources, and
stakeholders perceive that HHF funds could be distributed more equitably across
geographic areas and priority needs. Implementing maximum award amounts and
partial funding would encourage nonprofits to diversify their funding sources,
optimize operations, and enable more equitable distribution across the island's
geographic areas and priority needs.
Staffing Roles, Capacity and Expertise
Staffing and Operational Structure. As emphasized above, it is recommended
that there is a sufficient amount of qualified staff and a clear operational structure
in place to administer the fund more effectively. Adequate staffing is necessary to
administer and monitor current grantees and any extended past grantees, while
also preparing for the next grant cycle. Any new staff managing the grant should
receive ongoing supervision and support from a division manager, and training on
grant administration best practices and stakeholder communication.
Needed Skillsets and Areas of Expertise. Recommended areas of expertise
needed include:
• Grant, contract, data and project administration and management;
• Program evaluation;
• Fiscal management; and
• Best practices related to homelessness and social services.
33 OHCD Community Engagement Division, Data.
Hawaii County Homelessness & Housing Fund Recommendations Reports 1AI1EMM36
It is also recommended that expertise be sought from the following specialized
areas: legalities in real estate; contract and data management; federal, state, and
local levels that address homelessness and housing -related issues; and county
policies, procedures, and practices.
Development of a Countywide Office of Homelessness
It is recommended that Hawaii County develop an Office of Homelessness to serve
as the central coordinating body for all homelessness initiatives across the island.
This office would be responsible for mapping the full landscape of needs and
coordinating the tapestry of solutions to address homelessness across Hawai'i
County.
As previously stated, homelessness is a complex, long-term issue that requires
coordinated action and sustained funding. Addressing homelessness extends far
beyond creating housing. It involves multiple interwoven factors which need to be
addressed, and singular efforts will not get us to a sustainable solution. It also
requires collaboration across multiple state and county departments, including but
not limited to: the Mayor's Office, Office of Housing, Parks and Recreation, Planning,
Police, Public Works, Statewide Office on Homelessness and Housing Solutions
(OHHS).
By centralizing coordination, this office would break down the silos that currently
fragment our understanding and response. This would allow Hawaii County to
more efficiently maximize resources, eliminate costly duplication, and
systematically identify and respond to the needs of its most vulnerable residents. It
is further recommended that this office house HHF beyond 2027, integrating it as
one essential component of a comprehensive countywide strategy.
Comprehensive Assessment of Needs & Resources
Countywide Needs Assessment
Defining the Need. To address a problem, one must first understand it. To this
point, it is recommended Hawai'i County conduct a comprehensive countywide
Hawaii County Homelessness & Housing Fund Recommendations Report s sA s 1,37
needs assessment targeted at better understanding the root causes of
homelessness, needs of those experiencing and at -risk of homelessness, inventory
of resources and housing available, and existing gaps. There are currently multiple
entities gathering pieces of this information. It is essential that this tapestry of
information be woven into one cohesive story to better understand the depth and
breadth of the need.
Designing the Assessment. In designing this assessment, it will be critical to first
specify: the questions the County wants to answer, and by who and how this
information will be gathered. The Culturally Responsive Evaluation and
Assessment-Hawai'i (CREA-HI) - Aloha Framework34 is being offered as a
recommended framework for engaging in this assessment process. It is also
recommended that efforts be made to better capture:
The unique nuanced needs and suggestions of each Hawai'i Island
community, as well as the County as a whole;
• Those who are considered "unseen" or who are not acutely visible due to
incarceration, hospitalization, or for other reasons; and
• The in -flow of homeless individuals and families.
These last two are populations that remain largely invisible in official counts while
being highly visible to community misconceptions. More accurate data in each of
these areas can optimize strategies and help determine where resources are
needed most.
Analysis of Funding
Simultaneously to assessing the need, it is recommended the County conduct a
comprehensive analysis of all funding (i.e., federal, state, county, private,
philanthropic, insurance) that is currently being put toward homelessness solutions
and funding that exists but is not currently being utilized. Understanding the full
landscape of available resources is critical to developing an effective strategy.
" Lili`uokalani Trust and CREA-HI. "A Framework for Working in Native Hawaiian Contexts."
��
Hawaii County Homelessness & Housing Fund Recommendations Reports snsse,vic,,38
The specifications of each funding source needs to be fully understood. This
includes the scope of what funds can be used for, fund length, and qualifying
entities. This detailed analysis will reveal opportunities for more strategic use of
existing resources and identify gaps where additional funding may be needed.
As the needs of the community are more clearly understood, this analysis should
include the development of a plan that takes into account how various funds can be
braided together to more holistically meet the needs on Hawaii Island. By
strategically combining different funding streams, the County can create more
comprehensive and flexible solutions that address the full spectrum of needs
rather than being limited by the restrictions of individual funding sources.
A Cohesive Countywide Strategic Approach
It is recommended that Hawai'i County develop a comprehensive strategy to
ensure equitable distribution of homelessness resources and services across the
island. While needs assessments and funding analyses should guide this strategy's
development, the following high-level approaches merit consideration:
• Coordination Across the Continuum. Employ a multi -layered, coordinated
approach that addresses homelessness at every stage of the continuum.
• Prevention and Diversion. The most effective interventions occur at the
earliest stages of housing instability.
• Flexible, Responsive Solutions to Real-time Needs. Acknowledge that no
single approach works for everyone experiencing homelessness.
• Proactive Planning for Future Needs. Move beyond reactive measures to
embrace a proactive approach that builds capacity now in anticipation of the
potential growth in homelessness driven by economic and demographic
trends.
• A Kako`o Effort. Homelessness is a community issue and everyone's efforts
in the community are needed to address it, this includes both the public and
private sectors.
Hawaii County Homelessness & Housing Fund Recommendations Reports IAI1EMM39
Countywide Priorities for Addressing Homelessness
The following community -identified priorities are recommendations for Hawaii
County to consider when developing its comprehensive homelessness and housing
strategy. These include specific programmatic suggestions as well as suggestions
for the ways in which programs are designed and delivered.
Truly Affordable Housing & Housing Solutions to Meet the Needs
There is a need for a coordinated plan to eliminate gaps between the types of
housing needed and what is available. This will require the implementation of
innovative approaches to housing along all steps of the continuum that
accommodate for a diversity of demographic and geographic needs. The following
are specific housing -specific solutions for consideration:
Affordable Housing Development. One of the key solutions for addressing
homelessness is having a robust supply of truly affordable housing that individuals
and families who live on limited or fixed income and/or have minimum wage
employment can afford. This includes people whose incomes are at or below the
poverty guideline or thirty percent (30%) of their area median income (AMI).
This type of development is typically not attractive to developers as housing below
sixty percent (60%) AMI is not profitable. It is recommended that the County
identify and develop strategies for the creation of affordable housing units that
meet the needs of ALICE (Asset Limited, Income Constrained, Employed)
households. Consider how to optimize collaboration between county and
state -level departments, as well as private developers to achieve meaningful
progress in this area.
Innovative Approaches to Homeownership. Increase pathways to
homeownership that go beyond conventional means, such as through down
payment and subsidy programs, or rent with option to purchase arrangements.
Master Leasing. Explore alternative housing strategies for individuals and families
unable to meet standard rental requirements. Master leasing programs enable
Hawaii County Homelessness & Housing Fund Recommendations Reports AS SERVIM40
organizations to secure properties and sublet them at reasonable rates, creating
immediate housing without lengthy development processes.
This approach has proven particularly effective for justice -involved individuals who
face court -ordered obligations, substantial fines, and housing barriers due to
background checks. As one HHF grantee noted: "This affordable housing model
allows them to take care of those fines, pay driving infractions, get their licenses
back - opening up a whole new world. Having permanent affordable housing
empowers people to address life expenses that had been on the backburner."
Permanent Supportive Housing and Housing with Supports. Increase the supply
of permanent supportive housing and housing with supports. These types of
housing are essential to ensure those with mental health, substance abuse,
developmental and/or physical challenges have the embedded support needed to
remain stably housed. For many of these individuals with complex needs, standard
affordable housing is often insufficient. Supportive services need to be embedded
into the affordable housing model that create supportive living environments that
go beyond just providing housing.
These supportive affordable housing approaches should encourage engagement,
activities, relationship building, and mental health support, all allowing individuals
the opportunity to create a new life off the street. For those with a history of
substance use disorder, these homes should seek to provide a safe place and
opportunity for individuals to find their identities as sober adults and have a peer
community with a shared common goal. Collectively, they can support each other's
sobriety and this contributes to a safer community for everyone.
Temporary Rental Housing Vouchers. It will be important to consider allocating
some funds to help individuals and families with temporary rental assistance. This
may include direct subsidies or vouchers that can be used to supplement housing
costs.
Rent Stabilization or Rent Control. The County may need to explore instituting a
rent stabilization program that caps the amount landlords can charge for rental
Hawaii County Homelessness & Housing Fund Recommendations Reports SAS SERvic,,41
units. This measure could address the rental gouging practices which are
happening across the County.
Housing Applications and Fees. A barrier to accessing housing for many
individuals and families is the application and eligibility process and associated
fees. To get people into housing, it would be helpful to create fee waivers and/or a
standard application that can be used across realtors and landlords to streamline
the application process and associated application fees. Low -barrier requirements
should also be considered.
Prevention and Diversion Initiatives
Homelessness prevention requires addressing the root causes of why Hawai'i Island
residents become homeless. This means strengthening prevention efforts for those
who are at -risk of homelessness or unstably housed by tackling the systemic issues
such as employment inequities, rising cost of living, and trauma. While the County
cannot alone unravel any number of these issues, they can and should play a role
in identifying how these contribute to a growing homeless population and
assessing methods to address them in collaboration with other entities. This could
include:
• Targeting solutions for those working full-time at minimum wage (30% AMI),
who represent a growing segment of those at risk;
• Expanding rental assistance, subsidy, and housing repair programs that
support people remaining housed;
• Facilitating opportunities for residents to reestablish and strengthen vital
connections to community, culture, land and to practical support and
services;
• Spearheading workforce development opportunities and expanding county
transportation routes, hours, and reliability for improved access from rural
areas to employment hubs;
• Educating and advocating for legislative housing policy changes; and
• Creating spaces for cross -sector strategizing.
Hawaii County Homelessness & Housing Fund Recommendations Report) sn S*"JC,'42
By focusing on prevention efforts for those at -risk or unstably housed, the County
can stop homelessness before it starts for some individuals and families.
Infrastructure and Capacity Building
Given the long-term nature of the homelessness crisis, building a sustainable
infrastructure and expanding the capacity of County and nonprofit providers must
be a priority. Without this foundational investment, our response will remain
inadequate to the scale and duration of the challenge. This may include:
• Using a multi -prong funding approach to support resource capacity building
for homelessness and housing programs. With this approach, a certain
percentage of the funding can be designated towards program maintenance
and investment in capacity building.
• Developing a talent retention strategy to address nonprofit staff shortages
due to low wages and the lack of affordable housing, particularly for
locations with critical needs. To meet anticipated increases in future service
demand, offering subsidized housing or affordable housing units, along with
wage increases or stipends for nonprofit staff could enhance service
capacity.
• Considering how the County maybe able to use its existing facilities and/or
secure facilities to offer outreach and other housing related services. This
would allow organizations to have sites to offer services at less than market
rate rental prices. This could also allow for and encourage organizations to
share sites to co -locate services.
• Providing training and technical assistance to nonprofits in key areas
including grant writing and management, workforce development, real estate
acquisition, property management, and housing finance. Strategic
partnerships between nonprofits and public entities, who could provide
access to land, financing, and technical expertise, should be fostered. Several
nonprofits are stepping beyond traditional service provision to become
housing developers and master lease operators, filling critical gaps in our
housing infrastructure. This evolution requires targeted support from the
County to ensure their success.
Hawaii County Homelessness & Housing Fund Recommendations Report) sn S*"JC,'43
Support & Treatment Services
Through this inquiry, stakeholders uplifted a number of models and ideas for
addressing homelessness, highlighting the need for individualized services to meet
the unique needs of individuals and families experiencing homelessness. Programs
and services must be strengths -based; utilize a community -forward approach;
provide consistent positive interactions that lead to trusting relationships; provide
communication based on transparency and safety; and focus on the goal of
permanent housing. Examples include:
• One -Stop Resource Centers: The establishment of regional based "one -stop
housing and services resource centers" stands out as a promising
opportunity. These centers offer high impact potential for a moderate
financial investment. This is also an area that OHCD already has vested
involvement in. To maximize effectiveness, it is recommended that funding
be allocated to grantees who can build partnerships, build upon existing
projects and/or address critical gaps. These centers could offer:
o Temporary shelter utilizing County land and/or County property;
o Centralized intake and tracking process;
o Co -location of providers within a specific geographic region to provide
supportive services; and/or
o Outreach to providers and community members to support the needs
within their District (i.e. churches, schools, etc.).
These one -stop community -based resource and housing hubs could support
people until they are more permanently housed. Through these
regional -based centers, public awareness efforts could be made to address
stigma and inform residents about the needs and services available. In
addition, community of practices could be established with providers
working within the centers to better coordinate services and improve the
overall quality of services provided to those experiencing homelessness.
• Funding to support collaboration: Another suggestion is to offer funding to
incentive the development of collaborations and partnerships between
organizations to address homelessness. This may include providing small
collaboration grants to support the operational and/or administrative cost to
start and maintain these partnerships or collaborations.
Hawaii County Homelessness & Housing Fund Recommendations Reports AS SERVIM44
Healthcare Integration
There is a well -documented link between housing instability and poor health
outcomes. This underscores why many consider housing itself a healthcare
intervention. Given that individuals experiencing homelessness require flexible and
innovative approaches to care, the County should consider approaches to make
healthcare more accessible. This may include:
• A Mobile Outreach Health Team, as originally proposed in 2020.35 Improving
Hawaii County's response system, including creating a mobile health crisis
team, is a priority initiative of Mayor Alameda and the Mayor's Homeless
Task Force is currently investigating the feasibility of this program. If deemed
feasible, this team could serve as an entry point connecting individuals and
families with medical and behavioral health services.
• Strengthening partnerships between existing County programs and
statewide initiatives focused on behavioral health services for individuals
experiencing homelessness. This may include leveraging established
infrastructure, funding, and expertise of entities such as the Department of
Health, Department of Aging, MedQuest, individual Quest contracted
providers, community health centers, and nonprofit providers.
Unsheltered and Visible Homelessness
Most public outcry about homelessness focuses on individuals and families who are
visibly homeless: those who are unsheltered and living in parks, on streets, in
vehicles, and other public spaces. Some of these individuals have severe behavioral
or medical health conditions which makes them even more noticeable to the public.
Addressing the needs of those experiencing unsheltered homelessness should be a
priority of the County.
This could include ensuring there are adequate shelters, safe -sleeping, and
safe -parking spaces, as well as programs and services to get people off the streets.
Successfully implementing these solutions will require time and additional support
35 County of Hawaii OHCD, Consolidated Plan 2020-2024.
n
Hawaii County Homelessness & Housing Fund Recommendations Reports ASERVCES45
for providers to build trust with participants, meet their basic needs, and prepare
them for long-term stable housing.
It is important to remember that to successfully address homelessness it is not
enough to simply place individuals and families into shelters. Shelters are
temporary living environments that should serve as a bridge until individuals and
families can secure longer -term permanent housing. While shelters are an
important and needed part of the continuum, they are not permanent housing.
However, due to the lack of affordable housing options, many individuals and
families languish in shelters or return to homelessness. Strategies to address
homelessness need to ensure that shelter services offer housing readiness support
services, as well as, collect data on the number of individuals and families who are
housing ready but are not able to locate or secure permanent affordable housing.
Community Engagement and Trust Building
Approaches to address homelessness need to be community -informed and built,
with trust, transparency, and relationship -building as its foundation. It is also
essential to align funding of programs and services to community and geographical
specific needs and trends. This may include:
• Training and advocacy to ensure that all interactions with those experiencing
homelessness are trauma -informed, emphasizing consistency, transparency,
safety, mutual positive regard, and respect. When at all possible, the newly
established Office of Homelessness should seek to remove any power
differential that may interfere with forward movement.
• Increasing public awareness through education, training, and messaging.
Messaging should be consistent and offered through multiple platforms,
including in -person engagement, social media, news and print, etc. Types of
public awareness promotion may include:
• Educating the community about the complexity of homelessness, and
programs and services that exist to address homelessness.
• Providing information on how to refer to and/or access services.
Providing readily available updates as programs and services change.
• Creating opportunities for the general public to routinely engage in
outreach and initiatives to be part of the solution.
Hawaii County Homelessness & Housing Fund Recommendations Reports AS SERVICEs46
Collaborative and Transparent Communication
Addressing homelessness will require coordinated action, transparency and timely
communication. To better coordinate services it is recommended to:
• Engage all stakeholders who address and/or are impacted by homelessness,
directly or indirectly, including: state and county departments/employees,
nonprofits, businesses, churches, developers, community members, and
most importantly, those who are facing homelessness, in the
decision -making process.
• Facilitate care coordination meetings with providers to better understand
and meet the individualized needs of those experiencing homelessness.
• Facilitate quarterly Community of Practice convenings for departments,
agencies, and organizations to engage in in -person networking,
collaboration, and problem -solving. Consider creating a regional community
of practice convenings by district to bring together providers in specific areas
to better coordinate, collaborate and address the needs.
• Increasing transparency around how County -funded programs are measured
for effectiveness.
Data Tracking and Sharing
It is recommended that a centralized methodology for data collection and analysis,
and dashboard for centralized sharing, be developed. This would be particularly
beneficial to break cycles of frequent service usage, offer coordinated interventions
that support stabilization, and provide empirical data to inform decision -making.
Data Collection and Sharing. Data collection and sharing should be mutually
beneficial for all, including the County, organizations providing information, and the
individuals and families whose information is being collected. Clear guidelines that
ensure data collection is obtained with consent and stored using HIPAA compliant
means are essential. An additional initiative may include maintaining the Kumu.io
Map developed in this process to enhance cross -agency collaboration through
data -focused approaches that aim to inform systemic change.
n
47
Hawaii County Homelessness & Housing Fund Recommendations Reports AS ERVCE5
Capture the inflow. As previously emphasized, one particular area where data
collection needs to be more robust is capturing the inflow of people entering
homelessness. This must also include capturing populations that often cycle
between homelessness and medical and correctional facilities, who are often
missed in traditional counts. Investment in a system that can adequately and
comprehensively track the inflow of homelessness will allow the County to more
deeply understand the true scope of homelessness, as well as where preventive
efforts can be focused.
Office of Housing & Community Development
OHCD plays a vital role in meeting Hawai'i Island's housing and infrastructure
needs. Their active collaboration within the County is essential to achieving lasting
solutions. The department's purpose and mission, along with its priorities and
objectives should align with the County's strategic initiatives, as it relates to housing
solutions.
Structure and Systems
One Team
As previously mentioned, interviews were conducted with OHCD staff. The
Interviews revealed that divisions largely operated in silos, with limited
understanding of each other's work. Despite this, a strong desire for increased
collaboration and improved public service was expressed by the team members.
To strengthen collaboration and improve outcomes, OHCD would benefit from a
clear understanding of each of its division's roles, programs, and beneficiaries. This
insight could help identify service gaps, promote resource sharing, and encourage
cross -divisional collaboration. By leveraging shared talent and expertise, the
department could operate more cohesively and enhance overall performance. One
method is for the team to work together to design a systems map for OHCD.
OHCD Systems Map
OHCD would benefit from developing a systems map that visually depict topics
such as the department's functions, the interconnectivity of divisions within the
Hawaii County Homelessness & Housing Fund Recommendations Reports SAS SERvic,,48
department, potential service and operational gaps, and collaborative
opportunities. It could also help to identify potential gaps in services and
operations, as well as redundancies.
It is recommended that each OHCD division have specific priorities, goals, and
objectives that align with OHCD's purpose and strategic initiatives. The right
processes and rightly skilled talent is essential to execute well. The map would be
helpful in this process.
OHCD Fund & Program Landscape
OHCD supports housing solutions through various funding sources, each with
unique requirements and schedules. Larger, long-term projects often necessitate
multiple funding streams, leading to complex compliance timelines. Funding may
originate from federal, state, or county levels. Furthermore, the Community
Development division's partnerships with General Contractors can lead to funds
becoming unavailable if key milestone timings fall out of alignment.
It is recommended OHCD develop a funding landscape map to identify funding
sources, purposes, gaps, and redundancies. This effort could be enhanced by
incorporating shared project management methodologies such as project
management platforms or GANTT and PERT charts. Consistent practices across
divisions and the department would enable OHCD to make informed decisions
regarding optimal funding combinations. Additionally, it is recommended OHCD
analyze existing decision -making processes and ensure the operational structure
aligns with appropriate processes and skilled personnel for execution.
Cross -Functional Partnership
To optimize resources, closer partnerships are recommended across County
departments. Specifically, seeking support from County departments like Parks and
Recreation and Community Policing would be beneficial. Should the HHF continue
within OHCD beyond 2027, a stronger collaboration between the County, the
Department of Health, and Department of Human Services would prove
advantageous. Overall, enhanced collaboration among all stakeholders would
Hawaii County Homelessness & Housing Fund Recommendations Reports SAS SERvic,,49
significantly improve resource optimization and lead to a greater return on
investment for OHCD and other participating departments.
Community Engagement Division's Role
The Community Engagement (CE) Division's primary responsibility is to develop and
implement programs that inform the community and provide resources aligned
with OHCD's mission. Management of the HHF has consumed a significant portion
of CE Division's time. OHCD's goal is for the CE Division to return its focus to
broader community engagement efforts that support the entire department, as
resources and time permit.
Internal & External Communication
Also noted earlier in this report, OHCD divisional teams seek to understand what
other divisions within OHCD do, indicating a gap of internal and external
communication.
External Communication Action Plan
Following the development of a systems map and a clear understanding of
departmental roles and functions, it is recommended OHCD create a
Communication Action Plan. This external plan should aim to: a) inform the public
about available services and how to access them, b) educate the community on
housing -related topics, and c) transparently share the impact OHCD has made in
the community.
Internal Communication Action Plan
An internal Communication Action Plan is also recommended for OHCD. Each of
OHCD divisions' plans should focus on three key objectives: 1) fostering a "one
team" mentality where individuals understand their contributions to the overall
OHCD mission, 2) strengthening relationships and collaboration across divisions,
and 3) ensuring intentional and purposeful internal communication to achieve
alignment. The team would benefit from developing an onboarding process that
would support these behaviors and expectations.
Hawaii County Homelessness & Housing Fund Recommendations Reports sAssER���E550
OHCD should also broaden its communication reach to intentionally engage with
the Mayor's office, County Council and other government agency partnerships. The
objectives would be to: 1) strengthen relationships to encourage collaboration, 2)
ensure frequent and transparent two-way communication, and 3) inform and
educate about its role, and its contribution to the County.
Conclusion
The HHF has been a significant investment in addressing homelessness and
housing instability on Hawai'i Island. The fund has created new opportunities for
nonprofits to expand their programs, services, and staffing to better address the
complex needs associated with homelessness. HHF is also only one piece of a larger
puzzle and a broader countywide approach is necessary to optimize impact.
The County of Hawaii should consider continuing the HHF beyond 2027 and
making it a part of a broader countywide strategy and approach to addressing
homelessness. Mayor Alameda has identified homelessness as a significant issue
and has established a working group that is exploring potential short-term and
longer term solutions. With both Mayor Alameda and Governor Green prioritizing
homelessness as a critical issue, Hawaii County should capitalize on this
momentum by establishing a dedicated office to coordinate its homelessness
response. This office could bring together state and county departments, nonprofit
providers, developers, businesses, and other key stakeholders to develop a broader
more comprehensive approach. This approach can identify and braid the
resources, expertise, and capabilities of key stakeholders to better address
homelessness and housing in the County. In addition, this office could manage the
HHF to ensure that funds remain flexible and are appropriately allocated to meet
needs not met through other funding sources.
The HHF is an innovative way for the County to invest in an issue that is plaguing
many residents across Hawai'i Island and the state. The HHF remains a flexible fund
Hawaii County Homelessness & Housing Fund Recommendations Reports sn SERV CE551
to address homelessness, especially in light of the changing economic and political
landscape. Through HHF, Hawaii Island can model how other counties can leverage
existing resources to develop tailored strategies for complex local needs.
Hawaii County Homelessness & Housing Fund Recommendations Reports sAssER���E552
Appendix A. References
Aloha United Way. "2024 ALICE Report: Facts and Figures." January 2025.
https://www.auw.org/wp-content/uploads/2025/01/2024 ALICE-Report Facts-and-Fi
gu res v-25-01-09. pdf.
Community Alliance Partners (CAP). "Strategic Plan: 2021-2024." May 2021.
https://communityalliancepartners.org/wp-content/uploads/2021 /05/CAP-2021-24-
Strategic-Plan FINAL-5 24 21.pdf.
County of Hawaii. Bill No. 50. Date to Mayor or Adoption: June 17, 2025.
https://records.hawaiicounty..izov/weblink/DocView.aspx?dbid=0&id=l 106803&pa2e
=1 &cr=1.
County of Hawaii. "Homelessness & Housing Fund Request for Grant Applications
FY2025-2026." July 22, 2025.
https://www.housing.hawaiicounty.2ov/home/showpublisheddocument/309390/63
8884336719561709.
County of Hawaii. Hawaii County Code, Chapter 2, Article 25. "Appropriation of
Funds to Nonprofit Organizations." July 2021.
https://www.hawaiicounty.gov/home/showpublisheddocument/302516/638630375
811170000.
County of Hawaii. "News Release: Homelessness and Housing Grants Awarded."
January 31, 2025.
https://www.hawa iicounty.gov/Home/Components/News/News/3908/720.
County of Hawaii. Ordinance No. 22-26. Approved March 23, 2022.
https://www.housing.hawaiicounty.gov/home/showpublisheddocument/306499/63
8266533381570000.
County of Hawaii. "A Strategic Roadmap for Homelessness and Housing."
September 1, 2022.
Hawaii County Homelessness & Housing Fund Recommendations Report 1 s�aE553
https://records.hawaiicounty.,izov/weblink/l /edoc/l 17991 /2022-09-01 %20Strategic
%20Roadma °/p o20(2).pd .
County of Hawaii OHCD. "Consolidated Plan (2020-2024)." Approved May 6, 2000.
https://records.hawaiicounty.,c�ov/WebLink/DocView.aspx?dbid=1 &id=135489&pie
=2&cr=1.
County of Hawaii OHCD Community Engagement Division. Data provided by the
Community Engagement Division. 2025.
Glynn, Chris, Thomas H. Byrne, and Dennis P. Culhane. "Inflection Points in
Community -Level Homeless Rates." 2019.
https://g_-lynn.,aithub.io/files/GlynnByrneCulhane 2019+.pdf.
Ka Mana O Na Helu. "Bridging The Gap CoC Homeless Point -in -Time Count." March
2025.
https://www.btghawaii.org/media/uploads/2025 btg sheltered pit report.pdf.
Kumu. "Kumu: Relationship Mapping Software." Accessed [Month Day, Year].
https://kumu.io/.
Lili`uokalani Trust and CREA-HI. "A Framework for Working in Native Hawaiian
Contexts." 2019.
https://qIt-trust.cdn.prism ic.io/qlt-trust/e4b5f162-598f-4878-9614-6dbedf7db4ba 3
094 AlohaFramework Report v2 PAGES.pdf.
Liu, M., et al. "Adverse Childhood Experiences and Related Outcomes among Adults
Experiencing Homelessness: A Systematic Review and Meta -Analysis." The Lancet
Public Health 6, no. 10 (2021): E836-E847.
National Low Income Housing Coalition (NLIHC). "Housing Needs by State: Hawaii."
https://nlihc.org/housing-needs-by-state/hawaii.
State of Hawaii Hawaii Interagency Council on Homelessness (HICH). "HICH
Ten -Year Strategic Plan and Framework to End Homelessness (2022-2032)." May 16,
2022.
�.�J
Hawaii County Homelessness & Housing Fund Recommendations Reports sAssER���E554
https://homelessness.hawaii._ov/wp-content/uploads/2022/05/HICH-Ten-Year-Plan-
FINAL-05-26-22.pdf.
State of Hawaii Statewide Office of Homelessness and Housing Solutions (SOHHS).
"Priorities." https://homelessness.hawaii.gov/priorities/.
Tyndall, Justin, et al. The Hawaii Housing Factbook 2025. Honolulu: University of
Hawaii Economic Research Organization, 2025. May 14, 2025.
https://uiiero.hawaii.edu/wp-content/uploads/2025/05/HawaiiHousingFactbook202
5.pdf.
U.S. Census Bureau. "Detailed Demographic and Housing Characteristics File A."
2020 Census. Released September 2023.
https://www.census.gov/library/stories/2023/09/2020-census-dhc-a-nhpi-populatio
n.html.
Hawaii County Homelessness & Housing Fund Recommendations Reports sAssER���E555
Appendix B. Reference Reports
The following are individual reports produced by SAS as part of this inquiry.
• Funding Landscape Analysis
• Strategic Plan Comparative Analysis
• Grantee Interviews
• County Interviews
• Kuawa Evaluation Report
• Countywide Survey
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