HomeMy WebLinkAboutPuna Community Development Plan - 2008
PUNA COMMUNITY
DEVELOPMENT PLAN
SEPTEMBER 2008
PUNA COMMUNITY
DEVELOPMENT PLAN
SEPTEMBER 2008
Puna Community Development Plan Steering Committee
Jon A. Olson, Chair
Greg Braun, Vice-Chair
Eddie Alonzo
Stephanie Bath
Barbara Lively
Martha Lockwood
Kim D. Tavares
Frederick R. Warshauer
Darren AhChong (former member)
JoAnne Backman (former member)
Shirley Pedro (former member)
County of Hawai'i Planning Department Staff
Christopher Yuen, Director
Larry Brown
Ron Whitmore
Consultant to the Steering Committee (PlanPacific, Inc.)
John P. Whalen, FAICP, Principal
Christopher Pramoulmetar
Kenji Salmoiraighi
Cover: The flower of the ‘öhi‘a lehua tree, which is found from mauka to makai in
Puna, and is a symbol of resilience and adaptability.
PUNA COMMUNITY DEVELOPMENT PLAN
September 2008
PROLOGUE
ŌLELO HOÄKÄKA
What we have in common is far greater than what separates us.
We need to become teachers of generosity through our compassionate deeds, actions, and
example.
We need to address globalization, environmental changes, widespread poverty, and rapid
human population growth.
Existing political and economic models need to be re-conceptualized, transformed, and
balanced.
A cosmic sense of purpose and belief, coupled with critical and creative thinking will help us see
the possibilities of the future.
It's a kakou thing - we are all connected.
Hawaiians have been here for [centuries].
The Po'e Kahiko, the People of Old, mastered environmentalism and sustainability.
In these times, if we look back to the wisdom and ways of our ancestors, we could better move
forward.
'E kuleana kakou!
It's everyone's responsibility!
Luana Jones, Puna resident
TABLE OF CONTENTS
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TABLE OF CONTENTS
CHAPTER 1 INTRODUCTION Page
1.1 THE SETTING........................................................................................................................1-1
1.2 THE PLANNING CHALLENGE..............................................................................................1-4
1.3 ORGANIZATION OF THE PLAN ...........................................................................................1-6
CHAPTER 2 MÄLAMA I KA 'ÄINA
2.1 HISTORIC, CULTURAL, AND SCENIC RESOURCES .........................................................2-3
2.1.1 GOALS ...................................................................................................................2-4
2.1.2 OBJECTIVES............................................................................................................2-4
2.1.3 ACTIONS ................................................................................................................2-4
2.2 NATIVE FORESTS AND GEOLOGICAL FEATURES...........................................................2-5
2.2.1 GOALS .............................................................................................................................2-6
2.2.2 OBJECTIVES......................................................................................................................2-6
2.2.3 ACTIONS ...........................................................................................................................2-6
2.3 AQUIFERS, COASTAL WATERS AND STORMWATER .....................................................2-8
2.3.1 GOALS ..............................................................................................................................2-9
2.3.2 OBJECTIVES......................................................................................................................2-9
2.3.3 ACTIONS ...........................................................................................................................2-10
2.4 SHORELINE AREA............................................................................................................... 2-10
2.4.1 GOALS ..............................................................................................................................2-11
2.4.2 OBJECTIVES......................................................................................................................2-12
2.4.3 ACTIONS ...........................................................................................................................2-12
CHAPTER 3 MANAGING GROWTH
3.1 LAND USE PATTERN............................................................................................................3-3
3.1.1 GOALS ..............................................................................................................................3-3
3.1.2 OBJECTIVES......................................................................................................................3-4
3.1.3 ACTIONS ...........................................................................................................................3-5
3.2 AGRICULTURE AND ECONOMIC DEVELOPMENT ............................................................3-7
3.2.1 GOALS ..............................................................................................................................3-8
3.2.2 OBJECTIVES......................................................................................................................3-9
3.2.3 ACTIONS ...........................................................................................................................3-9
3.3 SOCIAL SERVICES AND HOUSING.....................................................................................3-11
3.3.1 GOALS ..............................................................................................................................3-12
3.3.2 OBJECTIVES .....................................................................................................................3-12
3.3.3 ACTIONS ...........................................................................................................................3-12
3.4 PUBLIC SAFETY AND SANITATION SERVICES ................................................................3-14
3.4.1 GOALS ..............................................................................................................................3-14
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3.4.2 OBJECTIVES ..................................................................................................................... 3-14
3.4.3 ACTIONS .......................................................................................................................... 3-15
3.5 PARKS AND RECREATION ................................................................................................. 3-15
3.5.1 GOALS ............................................................................................................................. 3-16
3.5.2 OBJECTIVES ..................................................................................................................... 3-16
3.5.3 ACTIONS .......................................................................................................................... 3-17
3.6 ENERGY SUSTAINABILITY ................................................................................................. 3-19
3.6.1 GOALS ............................................................................................................................. 3-19
3.6.2 OBJECTIVES ..................................................................................................................... 3-20
3.6.3 ACTIONS .......................................................................................................................... 3-20
CHAPTER 4 TRANSPORTATION
4.1 TRAFFIC DEMAND MANAGEMENT .................................................................................... 4-2
4.1.1 GOALS.............................................................................................................................. 4-2
4.1.2 OBJECTIVES ..................................................................................................................... 4-2
4.1.3 ACTIONS .......................................................................................................................... 4-2
4.2 MASS TRANSIT .................................................................................................................... 4-3
4.2.1 GOALS.............................................................................................................................. 4-3
4.2.2 OBJECTIVES ..................................................................................................................... 4-3
4.2.3 ACTIONS .......................................................................................................................... 4-4
4.3 ROADWAY NETWORK ........................................................................................................ 4-4
4.3.1 GOALS ............................................................................................................................. 4-5
4.3.2 OBJECTIVES ..................................................................................................................... 4-5
4.3.3 ACTIONS .......................................................................................................................... 4-6
4.4 HIGHWAYS ........................................................................................................................... 4-6
4.4.1 GOALS ............................................................................................................................. 4-7
4.4.2 OBJECTIVES ..................................................................................................................... 4-7
4.4.3 ACTIONS .......................................................................................................................... 4-7
4.5 NON-MOTORIZED TRAVEL AND SCENIC BYWAYS ......................................................... 4-8
4.5.1 GOALS ............................................................................................................................. 4-9
4.5.2 OBJECTIVES ..................................................................................................................... 4-9
4.5.3 ACTIONS .......................................................................................................................... 4-9
CHAPTER 5 IMPLEMENTATION
5.1 NATURAL AND CULTURAL RESOURCES PROTECTION................................................. 5-1
5.1.1 BIOSPHERE RESERVE BUFFER ZONE (VOLCANO AREA) ..................................................... 5-1
5.1.2 REVISED GRADING AND GRUBBING CONTROLS (DISTRICT-WIDE)........................................ 5-2
5.2 VILLAGE CENTER FORMATION ......................................................................................... 5-3
5.2.1 ZONING DESIGNATIONS .................................................................................................... 5-3
5.2.2 CRITERIA FOR PROPOSED LOCATIONS AND BOUNDARIES .................................................. 5-4
5.2.3 USE AND DESIGN STANDARDS .......................................................................................... 5-5
5.3 IMPLEMENTATION TABLE ................................................................................................. 5-17
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LIST OF TABLES AND FIGURES
FIGURE 1-1: GENERAL LAND COVER MAP .......................................................................................1-2
FIGURE 1-2: GEOLOGIC RISK ZONES RELATIVE TO POPULATED AREAS............................................1-4
FIGURE 2-1: NATURAL AREAS UNDER FEDERAL OR STATE PROTECTION..........................................2-2
FIGURE 2-2: PROPOSED BIOSPHERE RESERVE BUFFER ZONE .........................................................2-7
FIGURE 2-3: SHORELINE SUBSIDENCE IN KAPOHO AREA..................................................................2-11
FIGURE 3-1: ALISH AND IAL LANDS IN PUNA.................................................................................3-2
FIGURE 3-2: PROPOSED TOWN AND VILLAGE CENTER LOCATIONS...................................................3-6
FIGURE 3-3: OVERVIEW OF PARKS AND NATURAL AREA NETWORK IN PUNA ....................................3-21
FIGURE 4-1: PROPOSED TRANSPORTATION CORRIDORS IMPROVEMENTS.........................................4-11
FIGURE 5-1: KE‘EAU REGIONAL TOWN CENTER...............................................................................5-8
FIGURE 5-2: PÄHOA REGIONAL TOWN CENTER................................................................................5-9
FIGURE 5-3: HAWAIIAN PARADISE PARK REGIONAL TOWN AND VILLAGE CENTERS............................5-10
FIGURE 5-4: VOLCANO COMMUNITY VILLAGE CENTER .....................................................................5-11
FIGURE 5-5: MT. VIEW COMMUNITY VILLAGE CENTER......................................................................5-12
FIGURE 5-6: KURTISTOWN COMMUNITY VILLAGE CENTER ................................................................5-13
FIGURE 5-7: ‘ÄINALOA NEIGHBORHOOD VILLAGE CENTER ...............................................................5-14
FIGURE 5-8: HAWAIIAN BEACHES NEIGHBORHOOD VILLAGE CENTER................................................5-15
FIGURE 5-9: ORCHIDLAND NEIGHBORHOOD VILLAGE CENTER..........................................................5-15
FIGURE 5-10: NANAWALE NEIGHBORHOOD VILLAGE CENTER...........................................................5-16
TABLE 5-1: GENERAL USE AND DESIGN CRITERIA BY VILLAGE/TOWN CENTER TYPE ........................5-7
GLOSSARY
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Chapter1
INTRODUCTION
1.1 THE SETTING
Puna’s natural environment is dominated by volcanic activity, unique geological events
and formations, and a variety of plant communities that provide habitat for native species.
Eruptions of Kïlauea and the nearby volcano Mauna Loa continue to shape the ecology of the
region, and even the land itself. Rainfall is higher on the windward slopes of Kilauea, while the
leeward slopes, extending into Ka‘u, are relatively arid. The wetter side is covered by thick
forests of ‘Ohi’a trees and Hapu’u tree ferns on all but the youngest of lava flows or cleared land.
On the drier side, vegetation is more open, exposing the underlying geology.
A distinguishing feature of Puna’s native forest is its interaction with repeated, relatively
recent lava flows, creating varied ages of forests underlain by different compositions of lava
flows, ash and explosion deposits. This, in turn, enriches biodiversity, especially in older stands
of forest, known as “kipuka”, that have been isolated by younger lava flows.
Some of the native animal and plant species present in Puna are endemic to Hawai'i,
found nowhere else in the world. In addition, Puna harbors many other native species, such as
the Pueo (Hawaiian Owl), the ‘Amakihi, the ‘Apapane, and various insects, some of which are
rare.
Puna’s unique lava tube caves are a notable geological feature and popular attraction.
Kazumura Cave is recognized as the world’s longest lava cave at nearly 40 miles. The lava
caves are also important as natural habitats for endemic cave-adapted species of insects and
invertebrates. In addition, some of caves were used by ancient Hawaiians as burial sites for Aliÿi
(royalty) and others.
Puna’s geology and biological resources inspired reverence for the landscape by the
original human inhabitants of Hawai’i. By cultural tradition, Kïlauea is the home of the goddess
Pele, giving the volcano and its surroundings sacred status. Ancient Hawaiians recognized Puna
as Pele’s land, with human habitation subject to Pele’s will. Makaÿaina, or commoners, were
free to relocate to other ahupuaÿa (the lands of another chief) when Pele reasserted her dominion
over the land. A map dated 1826 indicates 24 ahupuaÿa located around the entire coast of Puna. 1
While human settlement from ancient times was concentrated in a 1- to 3-mile band near the
shoreline, mauka areas near the volcano and upper reaches of forest were visited for gathering as
well as spiritual purposes.
1 Community Management Associates for the County of Hawai'i , Puna Community Development Plan Technical Report, 1995.
INTRODUCTION
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Many of the ancient trails, which are still protected as public land or with traditional
access rights, connect areas of natural beauty that have cultural significance. Even though the
19th and 20th centuries brought rapid physical and cultural changes, some of the trails lead to
remote spots that are important for traditional gathering and other cultural practices. The areas
they traverse include some stands of fairly intact native vegetation with little modern
development, offering a glimpse to the past.
Figure 1-1: General Land Cover Map
Extensive tracts of Puna’s landscape were transformed when Western contact brought
large scale resource exploitation and agriculture in successive waves. Sandalwood export began
in 1790, reaching its peak between 1810 and 1825. After Hawai‘i’s first forestry law in 1839
restricted the removal of sandalwood trees, cattle ranching and coffee cultivation became the
PUNA COMMUNITY DEVELOPMENT PLAN
September 2008
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leading commercial activities. By 1850, agriculture diversified with the cultivation of potatoes,
onions, pumpkins, oranges, and molasses.2 Soon, sugarcane was in large-scale production. The
dominant operation in Puna was the Puna Sugar Company, whose plantation fields extended for
ten miles along both sides of Highway 11 between Kea‘au and Mountain View, as well as in the
Pähoa and Kapoho areas.3
Macadamia nuts and papaya were introduced in 1881 and 1919 respectively. Since the
closure of the Puna Sugar Company in 1991, papaya and macadamia nut production have
become the leading cash crops of Puna. About 97% of the state’s papaya production occurs in
Puna, primarily in the Kapoho area. The closure of sugar production in Puna potentially opened
a large amount of agriculture land to a more diversified industry, although much of the former
plantation land lies unused and covered predominantly by non-native trees, shrubs and grasses.
A variety of growing conditions supports diversified agriculture in Puna. Presently, Puna
produces at least 40 different agricultural products including cut flowers, fruits, vegetables, and
livestock. While the district is generally a wet, warm climate, drier conditions at lowland areas
such as Kapoho are ideal for cultivating papaya, whereas wetter, cooler conditions in the
Volcano area are suitable for growing crops that cannot thrive in many other areas of Hawai'i.
Even the wettest of areas have produced well under greenhouse cover. Also, due to volcanic
activity, the age of the soils varies considerably throughout Puna, with corresponding variations
in inherent natural fertility and tendency to resist weeds.
The recent pattern of residential development and population growth in Puna is the result
of widespread land subdivision within the past half century. Between 1958 and 1973, more than
52,500 subdivision lots were created. Since that time, nearly 2,500 of these lots have been
covered by lava flows or have been rendered unbuildable by shoreline subsidence, reflecting the
risks of building on a landscape subject to volcanic and seismic hazards. Moreover, most
subdivision lots are accessed by private, unpaved roads. The streets generally lack sidewalks and
lighting, and do not meet current County standards in terms of pavement width, vertical
geometrics, drainage and other design parameters. None of the subdivisions have central sewer
systems and only a couple have private water systems. Most lots rely on individual catchment
systems supplemented with private delivery trucks for potable water. Large sections of some
subdivisions are off the power grid.
Despite the natural hazards and rudimentary infrastructure and services in these
subdivisions, build-out of the lots has been occurring, with the northeast quadrant of Puna and in
the vicinity of Volcano experiencing the highest rates of population growth. Puna is
experiencing the fastest rate of growth of all the districts in the County of Hawai‘i. The Census
population count in 2000 for Puna was 31,335. In March 2007 the estimated population was
43,071, an increase of over 37% in less than 7 years. By 2030, the population is projected grow
to approximately 75,000. Since only about one-quarter of the available lots have been
developed at present, is clear that these extensive subdivisions present formidable challenges to
2 Hawai'i ’s Agricultural Gateway website, http://www.hawaiiag.org/history.htm
3 Hawaii Sugar Planters’ Association, Plantation Archives, http://www2.hawaii.edu/~speccoll/p_puna.html
INTRODUCTION
1-4
the natural environment and the rational management of development and future population
growth.
1.2 THE PLANNING CHALLENGE
If Puna continues to develop at the present rate within the framework of the extensive
subdivisions, there will be several types of significant, long-term consequences:
• An increasing number of people and property improvements are being put at risk due
to natural hazards. All of Puna lies within the three most hazardous geological risk
zones: LF1, LF2 and LF3. About 6,400 subdivision lots lie in the highest hazard
zone, LF1, and over 500 of these are exposed to additional risks from subsidence,
tsunami and earthquakes. That 2,038 lots in the lower hazard zone LF2 have been
covered or cut off by lava flows in recent decades underscores the hazardous nature
of much of the district.
Figure 1-2: Geological Risk Zones Relative to Populated Areas and Subdivisions
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• Because Puna’s subdivisions are so large and have few arterial streets, evacuation of
residents on short notice in the event a lava flow, earthquake, tsunami or hurricane is
a significant problem with serious consequences to public safety. The potential
problem worsens as subdivision lots continue to develop and no infrastructure
improvements are made.
• As more lots are developed, an increasing number of residents expect improved
infrastructure. The cumulative impact of widespread use of cesspools on the quality
of the aquifer and coastal waters is undetermined. Retrofitting infrastructure
improvements is expensive, and not all residents are willing to either bear the cost or
accept the transition from a “rural” setting to one that is more suburban.
• Because subdivision lots were sold in their undeveloped state rather than with
dwellings, development has occurred in an uneven, “leap-frog” pattern, which makes
it even more difficult to develop infrastructure and provide services to the population.
Residents often must make long trips to employment, schools, shopping and other
destinations to meet daily needs.
• While most of these subdivisions are on agricultural-zoned lands, the actual use of
developed lots is predominantly residential. As in-fill residential development
continues, it will be more difficult for existing small-lot agricultural uses to remain
viable due to complaints from neighbors about nuisance effects of agricultural
operations and potential increases in crop theft or vandalism.
• Lot development adversely impacts the native forest in an obvious way when an
entire lot is cleared of vegetative cover to make way for buildings and yards. But
clear-cutting and pin-to-pin grading and grubbing of lots has subtler impacts, as well,
such as:
− Openings in the forest promote the spread invasive, non-native species. Non-
native plants affect the forests by changing the soil chemistry and increasing
shade, making it hard for native plants to compete and survive.
− Fragmenting the forest creates “edge” habitat that further accelerates the decline
of native organisms.
− Fragmentation also changes the microclimate of adjacent forest (i.e., increased
temperature and sunlight and decreased moisture in the understory), altering
growing regimes for plants and the suitability of nesting sites.
− Grading creates boggy areas devoid of vegetation, providing breeding habitat for
mosquitoes, a vector for avian malaria, which further threatens the native bird
population.
− Re-contouring of lots through grading and filling alters local drainage patterns
and affect adjacent properties or rights-of-way.
− Lot grading can lead to the collapse of an underlying lava tube, which in turn may
expose a unique cave ecosystem or an ancient burial site or artifact.
INTRODUCTION
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The combination of these challenges calls for bold planning initiatives to re-shape the
pattern of future growth and development in a manner that is more in harmony with the natural
setting and more supportive of a better, sustainable quality of life. These initiatives are
embodied in the three main themes of this plan.
1.3 ORGANIZATION OF THE PLAN
The Puna Community Development Plan is organized into three overarching themes that
correspond to the top three issues that face the region, as identified in the public involvement
process, including:
• Public participation and County policy, as reflected in earlier planning efforts,
including the draft Puna Community Development Plan in the early 1990’s, the
County of Hawai‘i General Plan (2005), the Puna Regional Circulation Study (2005),
and the various community-based master plans produced for several of Puna’s
subdivisions and villages.
• The 130 Small Group Meetings held throughout Puna in early 2006 to solicit issues,
concerns and ideas at the “grass roots” level.
• The two public workshops held in July and September, 2006, to provide background
information on conditions and trends and potential tools to address issues, as well as
to solicit additional comments and ideas from Puna stakeholders.
• The analyses and recommendations in written reports prepared and submitted by the
citizen-based Working Groups.
• Comments received on the series of three Working Papers prepared by the project
consultant to address each of the three themes, drawing from the reports of the
Working Groups and the preceding planning efforts.
• Deliberations and decisions by the Puna Community Development Plan Steering
Committee in a series of meetings in September through December 2007 on
preliminary goals, objectives and actions compiled by the project consultant, based on
the results of the above work products.
At its January 18, 2007 meeting the Steering Committee adopted the following vision
statement to embrace the three themes and guide the direction of the plan:
The three themes of this plan are presented in the following order:
The Vision: Mälama Puna A Mau Loa!
Residents of Puna live in harmony with the `äina while promoting a sustainable vibrant local
economy, healthy communities, and a viable transportation system that is accessible, friendly
and safe for now and future generations.
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• Mälama I Ka ‘Aina establishes how the contextual natural, historic and cultural
features of Puna should be preserved and respected. The goals, objectives and
implementing actions under this theme address cultural and historic sites and districts;
forest lands and unique geological features; scenic resources; and drainage, aquifers
and coastal water quality.
• Growth Management addresses how the future pattern of human settlement and
land use should be shaped to respect that context and support the desired quality of
life for Puna’s residents. The goals, objectives and implementing actions under this
theme address the land use pattern; agricultural and economic development; public
services, social services and housing; parks and recreation and renewable energy and
energy efficiency.
• Transportation focuses on sustainable approaches to transportation to support the
goals of the two above themes. The goals, objectives and implementing actions under
this theme address mass transit and alternative travel modes, travel demand
management and roadway connectivity and safety.
INTRODUCTION
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Chapter 2
MÄLAMA I KA ‘ÄINA
Despite the destruction of native forest and other resources that has occurred in Puna, and
the potential for much more damage through land development in the extensive subdivisions, as
described in Chapter 1, there remains a good opportunity not only to protect what is left, but
even reverse some of the historical impacts.
Puna contains vast acreage of largely intact natural area that comes under the protection
of Federal and State regulations; for example:
• The western portion of Puna is dominated by Hawai'i Volcanoes National Park and
the adjoining upper east Hawai'i rainforest. The Park was designated by the United
Nations Educational, Scientific, and Cultural Organization (UNESCO) as an
International Biosphere Reservein 1980, reflecting its value for research and
protection of evolutionary resources, and as a World Heritage Site in 1987, citing its
geological resources.
• The State of Hawai'i designated two areas adjoining the Park as Natural Area
Reserves -- Kahauale‘a and Pu‘u Maka‘ala -- meeting the same standards of resource
quality and protective management as the Biosphere Reserve.
• The State also manages several other forest reserves in Puna comprising 131,659
acres: Upper Waiakea Forest Reserve, Waiakea Forest Reserve, Olaÿa Forest Reserve
(Mountain View Section), Nanawale Forest Reserve, Malama Ki Forest Reserve,
Keauÿohana Forest Reserve, and the recently acquired Wao Kele O Puna Forest
Reserve.4
• The State Conservation District, which encompasses almost all of the above areas as
well as some additional lands, is organized as a regulatory hierarchy under the
jurisdiction of the Hawai'i Department of Land and Natural Resources (DLNR).
There are five subzones of the Conservation District, each intended to provide a
degree of regulatory protection that reflects the intactness or relative significance of
the resources that are present in those subzones. About half of Puna’s Conservation
District is in the Protective Subzone, which is the most restrictive of the five subzones
in terms of allowable uses. The remainder is in either the Limited Subzone, which is
designated for areas with potential high risk of natural hazard, or the Resource
Subzone, which is generally applied to less intact forest reserves.
• The Conservation District also includes the submerged lands beneath coastal waters.
DLNR’s Office of Conservation and Coastal Lands therefore addresses shoreline and
4 The Wao Kele O Puna Forest Reserve is owned by the Office of Hawaiian Affairs but managed by DLNR’s Division of
Forestry and Wildlife.
MÄLAMA I KA ‘ÄINA
2-2
near-shore issues and regulations. The Hawai'i Department of Health (DOH) is
responsible for monitoring and protecting the quality of the waters themselves under
the authority of the Federal Clean Water Act.
Figure 2-1: Natural Areas Under Federal or State Protection
The remainder of Puna – about 56% of the entire land area of the district – lies
predominately within the State Agricultural District and, to a lesser extent, in the State Urban
and Rural Districts. The County has primary jurisdiction over land use and development in these
Districts and can take proactive measures to protect resources in these areas, which encompass
PUNA COMMUNITY DEVELOPMENT PLAN
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former agricultural fields and pastures, early towns and villages, extensive partially developed
subdivisions, and large tracts of native forest.
While much of the natural environment and some of the cultural heritage of these areas
has been altered and compromised, effective and timely intervention can do much to prevent
further degradation and possibly even restore some of what has been lost or undergoing change.
The theme of Mälama I Ka ‘Äina encompasses all aspects of the natural and cultural
environment, seeking to preserve and perpetuate not only the native forests and geological
formations, but also pristine waters, unspoiled, star-lit skies, serene natural habitats, and vestiges
of Puna’s historic heritage. The following sections propose specific new regulatory, incentive,
and educational programs to promote sustainable practices to preserve Puna’s natural and
cultural resources indefinitely. On a broader level, Chapter 3 will complement these proposals
with measures to reshape Puna’s development pattern and reduce the development potential of
existing subdivisions.
2.1 HISTORIC, CULTURAL, AND SCENIC RESOURCES
Only nine sites in Puna are listed on the Hawai'i and/or National Register of Historic
Places, but there are many other sites throughout the district that have been identified as having
historic significance.
Puna’s coastal areas have relatively dense concentrations of historical, cultural, and burial
sites. Burial sites and cultural artifacts are not uncommon on subdivision lots, although many
are hidden in lava tubes, making them susceptible to destruction due to grading. While the State
Historic Preservation Division (SHPD) plays a role in reviewing construction permits and State
law requires that construction activity be halted in the event of discovery of archaeological
remains, the effectiveness of these measures is limited due to a shortage of SHPD staff, lack of
information about the location of sites, and weak inspection and enforcement mechanisms.
Greater County-level involvement in this process could improve results.
Puna’s history is also evident in the architecture of its older towns and villages; namely,
Kea‘au, the Kurtistown-Mountain View corridor, Pähoa, and Volcano. Each of these places has
a distinctive design character that reflects its history and location. Volcano presently has a small,
legally recognized historic district, but otherwise there are no special design controls to preserve
the design character of these towns. Of the four towns, Volcano and Pähoa have the greatest
potential for designation as Special Design Districts, based on their existing fabric. Design
controls for Kea‘au and Kurtistown-Mountain View can be woven into the “floating zone”
approvals for the village center designations for those places, which is discussed further in
Chapters 3 and 5.
Scenic natural settings are numerous in Puna, but they are, for the most part, protected by
existing land use controls or public land agencies. Trails and scenic byways deserve special
mention, since they are continuous visual experiences along a designated corridor and are
particularly vulnerable to loss. Because they also serve a transportation function, they are
addressed in Section 4.5 as well as below.
MÄLAMA I KA ‘ÄINA
2-4
2.1.1 Goals
a. Structures and cultural sites that are significant to Puna’s history and cultural traditions
are preserved.
b. The design character and natural setting of older communities that are representative of
Puna’s historic development are perpetuated.
c. Areas of scenic and cultural interest are accessible to the public in a manner that does not
detract from their aesthetic, natural and cultural value.
d. Awareness and appreciation of the host culture is expanded.
e. The native forests of Puna are revered as part of the native culture and are provided with
permanent protection from degradation and loss.
f. Tourism in Puna is compatible with historic and natural resources and not intrusive into
the area’s communities.
2.1.2 Objectives
a. Create a County entity and adopt a process for identifying historic and cultural sites and
advocating for their preservation and/or restoration within the County’s permitting and
approval processes.
b. Adopt appropriate location-specific development standards and design guidelines for
buildings, landscape treatment and public infrastructure for communities designated for
Special Design District status.
c. Protect cultural sites from destruction by development activity.
d. Adopt “känaka” building code standards to allow structures utilizing traditional Hawaiian
building design and construction methods.
2.1.3 Actions
a. Establish a County historic preservation commission, making the County eligible for
Certified Local Government (CLG) status and Federal historic preservation funds. The
purposes of the commission are to:
− Provide historic preservation review and advice to the Planning Department,
Department of Public Works and other County, State, and Federal agencies;
− Receive preservation grants from government and other sources, such as the Historic
Hawai'i Foundation to encourage owners to inventory, preserve or restore historic and
cultural features on their property;
− Recommend to the State Historic Preservation Division on permit review criteria and
candidate sites for listing on the Hawai'i Register of Historic Places;
− Assist in development of historic and cultural interpretation programs for sites that
are planned for restoration, such as the Old Puna Trail historic corridor and Red Road
scenic byway;
− Advise the Departments of Planning, Public Works and Health on their permit
approval recommendations;
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− Notify development permit applicants about guidelines and standards for identifying
and protecting cultural and historic artifacts and features. Prior to and during
development projects, applicants should seek advice from the Departments of
Planning and Public Works about permit approval requirements;
− Assist the County and local organizations in planning and conducting cultural events;
and
− Request State funding for cultural sensitivity training and other educational programs
appropriate for County employees, realtors, tour guides, and anyone involved with
promoting or developing Puna lands.
b. Initiate Special Design District detailed planning, design standards and review procedures
for the following areas:
− Volcano Village historic core and the separate Biosphere Reserve Buffer Zone (see
Section 2.3.3 a) ;
− Pähoa Town;
− Keaÿau Town; and
− Kurtistown-to-Mountain View corridor.
Refer to Chapter 5 for implementation guidelines related to this action.
c. Amend the County building code to add standards for structures utilizing traditional
Hawaiian building design and construction methods. There may be certain limitations
placed on the occupancy or use of these structures, such as for cultural purposes,
accessory uses and/or occasional gatherings only.
d. Amend the County grading ordinance to require consultation with the Historic
Preservation Division and the aforementioned County Historic Preservation Commission
prior to the issuance of a grading permit.
2.2 NATIVE FORESTS AND GEOLOGICAL FEATURES
As mentioned in the introduction to this chapter, much of Puna’s native forests and
unusual geological features are protected by a network of Federal and State management and
regulatory controls. However, there are several important areas and features that are exposed to
significant impact from activities outside of these protected areas and require County initiatives
to protect these resources:
• Lava tubes and caves, some of which host endemic wildlife, extend throughout the
district. Collapsed tubes and caves can also protect portions of forest from fires,
enabling native vegetation to reach a climax condition. The destruction of such
features could therefore disrupt the ecological system.
• The upper Puna forests and segments of the lower Puna forest are among the finest
and most well preserved of their types in the state. Some of these areas, however, are
zoned for agriculture and urban uses and are therefore presently unprotected by
regulation.
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• The community of Volcano and surrounding subdivisions contain some of the most
extensive areas of native forest and it is situated directly between the high-quality
protected native forest areas mentioned in the introduction to this Chapter, thereby
providing a critical linkage between these native habitats. Currently, much of this
area is zoned for residential or agriculture use, without any additional regulatory
control to prevent further subdivision or excessive land clearing.
2.2.1 Goals
a. The connection between intact native forests in Volcanoes National Park and nearby
State forest reserves and natural area reserves is preserved while allowing for more
limited orderly development of the residential and agricultural areas in between.
b. Destruction of native forest through development activity is abated.
c. The spread of invasive species through abandonment of previously cleared areas is
reduced.
d. Residents, those employed in the real estate and construction industries, and the general
public are made more aware of the value of the native forest, the threats to that
ecosystem, and actions that can be taken to sustain the forest.
2.2.2 Objectives
a. Adopt a Biosphere Reserve Buffer Zone (BRBZ) and designate a BRBZ Advisory
Commission to guide development within the region’s native forest through regulatory
measures and economic incentives.
b. Adopt regulatory measures, educational programs and incentives to preserve remnants of
native ecosystems in Puna subdivisions, especially remnants at lower elevations.
c. Modify and enforce Chapter 10, Hawaii County Code (HCC), to prevent storm water
diversion to other properties.
d. Increase the County’s role in helping to sustain the native forest, primarily through tax
incentives, new regulations and zoning changes.
e. Provide tax incentives to encourage more landowners to participate in programs to
preserve native species and to remove invasive species.
2.2.3 Actions
a. Enact a BRBZ, either separately or as an overlay district for the greater Volcano area, to
include the following provisions and other supporting measures:
− Standards for maximum land disturbance within the BRBZ;
− A system to monitor the ÿOhiÿa forest canopy with the BRBZ;
− A set of economic incentives designed to reduce forest clearance and the number of
developable lots within the BRBZ and transfer development rights within or out of
the BRBZ;
− Mitigation standards and procedures that provide guidelines for the restoration and re-
planting of disturbed areas;
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− A study to mitigate localized flooding in ecologically friendly ways, such as using
vacant, forested lots to absorb floodwaters (see also Action c. in Section 2.3.3).;
− Use of “small-footprint” septic tanks to reduce lot grading;
− An expert advisory committee to assist in developing standards, project reviews and
public education programs related to the BRBZ;
− Designation of unencumbered State-owned lands near Wright Road for either Natural
Area Reserve or Forest Reserve status;
− Amendment to the General Plan to recognize the purpose and intent of the BRBZ and
designation of State-owned lands in the BRBZ to “Open”;
− Prohibition of Ohana Dwelling Units within the BRBZ; and
− Re-zoning agricultural- and residential zoned lots to an appropriate designation to
prevent further subdivision.
Refer to Chapter 5 for implementation guidelines related to this action.
Figure 2-2: Proposed Biosphere Reserve Buffer Zone
MÄLAMA I KA ‘ÄINA
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b. Amend the grubbing and grading ordinance and/or the zoning code to protect native
species, geological and historic features outside of the BRBZ by preventing pin-to-pin lot
grading, clearing and grading encroachments onto adjacent lots and water diversions into
adjoining properties. The new regulations should provide standards for the preservation
of native vegetation, review and public notice procedures for grading permits, and
penalties for violations.
Refer to Chapter 5 for implementation guidelines related to this action.
c. Establish an Office of County Ecologist within the Planning Department to administer the
new regulatory provisions and foster partnerships to provide public education and
technical support for forest conservation, such as:
− Assisting other County agencies such as Department of Public Works and
Department of Parks and Recreation in their programs and facility planning and
maintenance as they relate to native species habitat preservation;
− Engaging in collaborative relationships with Federal and State agencies, educational
institutions and non-profit organizations that conduct research or administer programs
for the protection of native species habitat and the abatement of invasive species; and
− Launching and sustaining a public education and outreach program to enlist
community support and involvement in forest protection and to raise awareness of
invasive species and practices that threaten the native forest.
d. Provide indirect County support for native vegetation preservation via land conservation
trusts by offering real property tax reductions for conservation easements and
contributing County land, where appropriate, to a trust for native habitat management.
e. Reduce the minimum lot size to qualify for the native forest preservation tax reduction
and allow it in any zoning district. Enrollment of a lot in this program is voluntary, but it
is binding and permanent, and attached to effective measures to prevent significant
clearing or other adverse alterations of the forest cover.
f. Encourage the County and the State to investigate and implement alternatives to the use
of herbicides for weed control on public properties.
2.3 AQUIFERS, COASTAL WATERS AND STORMWATER
The fresh water basal lens underlying Puna floats or flows on sea water and has been
measured to reach up to 30 feet above sea level and has an estimated lens thickness of up to
1,200 feet. The aquifer, due to the porosity of the substrate and the extensive forested watershed,
is believed to contain huge flows of high quality ground water even at very low elevations.
The most extensive centralized water service area in Puna is the County’s Olaÿa-
Mountain View system, composed of eleven service areas extending along the Highway 11 from
the former Puna Sugar Company mill to the Olaÿa Reservation Lots, and along Highway 130 to
Kaloli Drive. The County also maintains smaller water systems serving the Pähoa and Kalapana
areas. The Hawaiian Beaches subdivision is served by a private system installed by the
developer. However, nearly all residents, including farmers, in other inhabited areas that are not
presently serviced by water systems depend upon catchment systems to supply their water needs,
including fire-fighting.
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Water demand is likely to increase at a faster rate in lower Puna than in mauka areas
because it is experiencing greater population growth and has a drier climate. To reduce delivery
costs during dry periods, the aquifer at lower elevations, particularly in the presently
undeveloped Maku‘u area, could be tapped as a future source of potable water development.
Therefore, it is important to maintain the water quality of that aquifer. One of the potential
threats is the cumulative impact of additional individual wastewater disposal systems, especially
cesspools, in the subdivisions that overlie the makai portion of the aquifer. As the aquifer
approaches the coast, it is more likely to be susceptible to pollution from individual wastewater
systems because of the relative proximity of groundwater to the surface. Close proximity of
groundwater to the surface reduces the amount of filtration that can occur before effluent reaches
the groundwater. The widespread distribution of individual wastewater systems and current
Department of Health regulations combine to limit the areas where municipal potable water
wells can be sited, despite the abundance of ground water.
The near-shore environment may also be affected because of reduced filtration. All of
Puna’s coastal waters are classified as “AA” waters, meaning that they are regulated as the most
unspoiled in Hawaii. State law mandates that Class AA waters “remain in their natural pristine
state as nearly as possible with an absolute minimum of pollution or alteration of water quality
from any human-caused source or actions.”5 For this reason, wastewater disposal in the coastal
zone requires special precaution.
Polluted stormwater runoff is not a significant concern at present, although there are areas
in Puna – specifically, Volcano-to-Mountain View and Hawaiian Acres-to-Orchidland – where
stormwater has created persistent localized flooding problems in populated and agricultural
areas. This appears be attributable to land use alterations. Due to complex drainage patterns on
a lava landscape that lacks natural surface drainage systems, remedies for this problem would
have to be studied from a localized drainage management perspective.
2.3.1 Goals
a. Aquifers that could be used for future community wells in high growth lower elevation
areas are protected from pollution by untreated wastewater disposal systems.
b. Coastal waters maintain and increase their quality.
c. There is a strategy to address storm water runoff and localized flooding problems.
2.3.2 Objectives
a. Plan for future potable and irrigation water demand and preserve a contamination-free
zone in the portion of the aquifer in lower Puna for future development as a potable water
source.
b. Improve wastewater treatment methods and standards in areas designated for future
aquifer use and in coastal areas.
c. Address the special challenges of managing storm water runoff on Puna’s lava terrain on
a watershed basis.
5 Hawaii Administrative Rules, Section 11-54
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2.3.3 Actions
a. Encourage State legislation to prohibit the use of cesspools as a means for wastewater
disposal in areas below 1,000 feet Mean Sea Level, with the objective of protecting both
water quality in coastal areas, as well as in the aquifer, particularly the portion underlying
State-owned lands in the Maku‘u area, where there is potential to develop the source for
community potable water wells and agricultural irrigation purposes.
b. Seek State Department of Health acceptance of small-footprint septic wastewater
treatment designs; for example, those using drip irrigation or low-pressure pipe and
double-tank no-leach field designs. Also, seek acceptance of small decentralized
treatment systems and clustered septic systems for wastewater treatment in village/town
centers, clustered residential development and other special circumstances.
c. Prepare watershed management plans for the Volcano-to-Mountain View and Hawaiian
Acres-to-Orchidland areas to address localized flooding problems.
d. By agency agreements and control of zoning and building permits, ensure that a corridor
of the Puna watershed at least two miles wide between Wao Kele O Puna forest area and
the ocean to the northeast is protected from uses that might contaminate groundwater.
No wastewater discharge from cesspools, septic systems, or sewage treatment plants
would be allowed within this corridor, nor would disposal of surface runoff. All
development within the corridor through Maku‘u and Keonepoko (Nui and Iki ahupua‘a)
would be required to utilize centralized sewage treatment plants and/or self-contained
pumped septic systems in order to preserve the purity of the groundwater.
e. In areas below 100 feet above Mean Sea Level, require all black wastewater disposal
systems to be contained, pumpable units or be connected to a collective treatment facility.
Explore the use of Special Management Area regulations to require this as part of permits
for new development.
2.4 SHORELINE AREA
Land use development in Puna’s shoreline area is vulnerable to significant physical risk
due to a couple of factors:
• The lack of reef protection for most of the Puna shoreline allows significant wave
energy to impact its coast and for noticeable shoreline overwash and retreat during
storms to be realized, even where the coastline consists of elevated bluffs. Current
Shoreline Setback (SLSB) rules and practices do not adequately take into account
these natural processes, nor do they protect development, natural resources or public
shoreline access.
• The coastal areas of southeast Puna, as particularly evident in Kapoho, are subsiding
at varying rates, up to as much as 0.7 inches per year. Extrapolated over a 50-year
period – which is a reasonable lifespan for a house – the subsidence would be nearly
3 feet. As evidence of this phenomenon, many of the lots in the Kapoho area are
already submerged. Adding to the risk, the continuing subsidence allows periodic
storm waves to rush ever greater distances inland, depending on the slope and
exposure. Already within the Vacationland Hawaii subdivision, these waves have
been observed to reach back to at least the third row of houses and parcels.
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Current coastal flood zone maps are often not reflective of the dynamic changes that are
occurring in Puna, and the extent of actual wave wash hazard.
Figure 2-3: Shoreline Subsidence in Kapoho Area
Foreground shows lots that have submerged. Photo credit: G. Shiroma
Important coastal resources – biological, historical and access trails – are also at risk of
degradation or loss due to development and erosion. Traditionally, coastal trail alignments
moved inland as the shoreline retreated, but contemporary legal practice often leads to the loss of
trail segments. Similarly, coastal vegetation naturally tracks inland with shoreline erosion,
unless the vegetation line is artificially maintained. Present Special Management Area (SMA)
rules and review practices do not adequately take these change factors into account. New
technologies in remote sensing and Geographic Information Systems (GIS) can be applied as
tools to improve the evaluation of historical data.
2.4.1 Goals
a. Exposure of development to the risks of shoreline subsidence and coastal flooding is
reduced.
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b. Shoreline biological, historical and cultural resources are adequately protected.
2.4.2 Objectives
a. Improve data collection and analysis related to present and historic changes in shoreline
conditions and resources.
b. Expand the scope of regulations and review procedures for shoreline development to
consider dynamic and interrelated potential hazards to development.
c. Strengthen the capacity of the County to identify important shoreline resources and
evaluate development regulations and proposed developments in the shoreline area.
d. Support actions consistent with the State of Hawai'i Ocean Resources Management Plan.
2.4.3 Actions
a. Draw upon coastal zone and geological expertise and technological resources in State
agencies, the University of Hawai'i, and the U.S. Geological Survey, as well as informed
public comment, to expand and improve the database, reference material and interpretive
skills at the County level for the review of shoreline area development proposals.
b. Retrieve and record information on trails and historic resources in the coastal zone,
including the research of old survey and plat maps and various records of the Mahele,
Land Commission and Royal Patents.
c. Conduct historical and biological surveys, either permit-by-permit or on a region-wide
basis, to improve the quality of decision-making on SMA and SLSB applications and
State Shoreline Certifications. Do not grant SMA permits to subdivide property when it
is probable under current trends and projections that it will be submerged at high tide
within 100 years.
d. Take into account special subsidence and storm wave conditions found in Puna, as
identified by research and informed public comment, in the determination of State
Shoreline Certifications.
e. Perform a collaborative study among County, State, Federal and University regulators
and researchers to observe and delineate the limits of inland wave wash following each
large storm and extra high tide event, and use these studies, in addition to informed
public comment, to develop and implement refined flood zone maps.
f. Develop and adopt special zoning and development regulations for the greater Kapoho
area (Kipu Point to Pu‘ala‘a) to take into account the problems associated with ongoing
and catastrophic subsidence and property loss, pressure to develop lots for residential and
commercial use, and increasing demand for access to the shoreline area for recreational
use. Request the State to make some of their Kapoho area accreted lands available for
integrated solutions, including relocation/land exchange and new recreational
opportunities.
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Chapter 3
MANAGING GROWTH
Chapter 1 (Section 1.2) lists numerous reasons why unabated build-out of Puna’s
subdivisions would have very negative, if not potentially disastrous, consequences. Puna
contains nearly 45% of the islands’ total subdivided lots, a low build-out percentage, and the
highest growth rate, all on a landscape that is exposed to the highest risk of volcanic and seismic
activity. It would be prudent to reduce the risk to future residents and properties by transferring
development rights on vacant lots in high risk zones to other, less hazardous locations elsewhere
on the island.
Within Puna, the vision is to reshape the development pattern by moving away from the
sprawl effects of the existing subdivisions and toward the formation of village and town centers.
Over the long term, this will improve the feasibility of developing supporting infrastructure for
populated areas, give residents better access to public and commercial services, stimulate local
employment opportunities, and reduce dependence on the automobile for transportation. It will
also help preserve natural and cultural resources by limiting the spread of the development, as
noted in the previous chapter
Some village and town centers already exist in the form of older settlements that were
built prior to the creation of the extensive subdivisions a few decades ago. There are
opportunities to create new village centers within existing subdivisions that are experiencing
higher rates of development, primarily on lands that had been set aside by the subdivider for
community or commercial purposes. Tools such as “transfer of development rights” (TDR) and
“land pooling” need to be employed to facilitate the development of housing in the village
centers in order to make them viable communities.
In addition, zoning maps should be reassessed and revised to greatly reduce the
subdivision potential of larger undeveloped parcels throughout Puna. The zoning code should be
revised to prevent increased density in a random fashion through the ‘ohana dwelling and
additional farm dwelling permit process.
Land pooling may offer expanded opportunities for commercial agriculture in
subdivisions with small lots by creating larger parcels for agricultural production. While small
lots can be used by residents to produce food for their own consumption, larger lots tend to
support a wider range of commercially viable agriculture production because of economies of
scale, reduced potential for real or perceived nuisance effects on immediate residential
neighbors, and lower real estate values per square foot, when compared to small parcels.
While more than half of its land area is zoned for agriculture, and Puna is a center for
agricultural activity, current mapping systems present an unclear picture of the productivity
potential of agricultural land in the district. There are three inconsistent mapping systems in
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effect. The only system that has regulatory effect is Land Study Bureau (LSB) soil
classifications, which are referenced in the State Land Use Law, Chapter 205, Hawaii Revised
Statutes. This system is more than four decades old and reflects a pattern of plantation
agricultural use that has dwindled to insignificance in Hawai'i. There are no “A” or “B” lands in
the entire district of Puna, which implies incorrectly that Puna’s lands have lesser agricultural
value.
The State has not formally adopted a system to replace the LSB classifications, but the
State Department of Agriculture has prepared maps depicting Agricultural Lands of Importance
to the State of Hawai'i (ALISH) that reflect more accurately than the LSB maps the value of
lands to support diversified agriculture. ALISH maps are therefore used more often than the LSB
maps when evaluating agricultural lands. The County’s LUPAG adopted a similar, but not
identical, mapping system for areas deemed to be Important Agricultural Lands (IAL.) While
there is some correspondence between the ALISH and IAL maps, there is by no means an exact
match (see Figure 3-1).
Figure 3-1: ALISH and IAL Lands in Puna
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ALISH lands cover a total of approximately 75,596 acres in Puna, whereas IAL lands
cover only about 51,653 acres. Moreover, the omission of ALISH lands from the IAL
designation to create large “urban expansion” areas surrounding Kea‘au and Pähoa when there is
still much unused development capacity in Puna’s subdivisions is hard to justify. It would be
helpful to have a mapping system for agricultural lands that is relevant to Puna’s agricultural
activities so that they can be adequately preserved and planned for future use.
The Puna Community Development Plan seeks to manage growth by: encouraging a
more efficient, environmentally sustainable land use pattern; reducing the number of and
rearranging previously-approved subdivision lots; requesting the County to change the zoning of
lots now inappropriately zoned for present and future use and growth; promoting agricultural use
and other “green” employment in the district; promoting the use of renewable energy; improving
the delivery of social services and housing assistance; and providing the necessary public
services, parks and recreation opportunities in a manner that supports community-building and
an improved quality of life.
3.1 LAND USE PATTERN
“Village centers” (or “town centers” for the larger settlements) are the model on which
Puna’s future land use pattern will be based, redirecting Puna’s extensive subdivisions from their
present course of sprawl development. Three types of village centers are proposed to provide
varying levels of services based on location, size, and functional attributes. Regional village
centers are located at Puna’s largest existing urban settlements – Kea’au, Hawaiian Paradise
Park, and Pähoa – and are meant to provide a wide range of services and amenities. Keaau and
Pähoa already have a nucleus of region-serving facilities, so they take on more of the
characteristics of a town rather than a village. Community village centers provide a more limited
range of services in smaller existing urban settlements and subdivisions that are experiencing the
greatest rates of population growth. Community centers are projected for Volcano, Mountain
View, Kurtistown, Hawaiian Paradise Park, and ‘Äinaloa. Neighborhood village centers serve
smaller or more remote communities with relatively small lot sizes. Neighborhood centers are
projected for Glenwood, Orchidland Estates, Hawaiian Paradise Park, Hawaiian Beaches,
Nanawale Estates, Leilani Estates, and Kapoho.
The principal tools to reshape future land use in Puna include: (1) TDR to re-distribute
development rights of subdivision lots that are located in high hazard zones or high-value native
forests; (1) land pooling to form village centers and grow town centers while preventing sprawl
development; (3) adjustments to County and State tax codes to discourage land speculation and
provide tax relief for long-time homeowners and renters and to provide an incentive for
removing development rights from property; (4) district-wide rezoning and tighter restrictions on
variances from subdivision standards to discourage further subdivision of properties that are not
within designated village/town centers; and (5) amendments to the County zoning code to
discourage excessive lot clearance and speculative building practices.
3.1.1 Goals
a. Puna retains a rural character while it protects its native natural and cultural resources.
b. The quality of life improves and economic opportunity expands for Puna’s residents.
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c. Services and community facilities are more accessible in village/town centers that are
distributed throughout the region, including the underserved subdivisions that have been
experiencing higher levels of development growth.
d. Exposure to high risk from natural hazards situations is reduced.
e. Inappropriate and disproportionate County zoning can be adjusted in order to maintain
and increase the quality of life and to preserve valued natural and cultural resources in the
district.
f. Native vegetation, coastal and historic resources are provided new forms of protection.
g. Reduced overall number of buildable lots in Puna.
h. Incentives, disincentives, regulations and other methods are used to diminish land
speculation in Puna.
3.1.2 Objectives
a. Implement tools for re-shaping the pattern of future development to prevent further
sprawl, such as land pooling and transfer of development rights.
b. Develop a typology for existing and proposed village/town centers, including criteria for
their location, scale, uses and design.
c. Enhance the role of existing and new village/town centers by allowing expanded
commercial uses, facilitating the development of farmers markets and community
gathering places, opportunities for special needs housing, and infrastructure to support
more compact development form and multi-modal travel.
d. Create new village/town centers as necessary, in or near presently underserved
subdivisions, beginning with those experiencing higher rates of population growth so
residents of those areas will have community activities and more convenient access to
services.
e. Target investments in public services and infrastructure to promote the development of
village/town centers and, secondarily, to serve the peripheral subdivision areas.
f. Limit the size of dwellings and accessory uses that are allowed in non-conforming,
agriculturally-zoned subdivisions to discourage excessive lot clearance and speculative
building practices.
g. Identify a supporting role for the County in land assembly for the formation of
village/town centers.
h. Explore additional methods to protect native species habitat and historic features from
development by use of economic incentives, development restrictions, and district-wide
rezoning.
i. Provide tax relief for properties whose development rights have been reduced through
conservation easements, transfer of development rights and similar measures.
j. Explore innovative methods to reduce property speculation, such as elevated tax rates
associated with rapid resale, and/or district-wide rezoning.
k. Where possible, reduce density and build-out within the district by various means
including selective rezoning.
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3.1.3 Actions
a. Adopt enabling legislation for a transfer of development rights program.
b. Provide County support for land use entitlements and land assembly for village center
formation and voluntary land pooling projects by:
− Creating a “floating zone” in the County zoning code that allows parcels in a land
pooling project to be treated as a joint use development containing a mix of uses
pursuant to a single site development plan;
− Initiating a special use permit request or petition for a land use district boundary
amendment for uses that would require such designations under State law;
− Seeking an amendment to the State Land Use Law (Chapter 205, Hawai‘i Revised
Statutes) that would enable the adoption of special “rural town/village” standards for
locations meeting certain criteria in the State Agriculture District or State Rural
District, subject to a review and approval process that is simpler than the present
method of boundary amendment;
− Seeking State enabling legislation to allow County retention of lots that are in
foreclosure for delinquent real property tax payments rather than having them
auctioned for sale to the highest bidder, so that they can be used for relocation
purposes when other properties are acquired for future rights-of-way, public facilities,
land assembly related to village/town center development, or other objectives of the
community development plan; and
− Extending technical assistance and advice to a community-based land pooling
association concerning legal and financial aspects of land pooling as they relate to
County or State legal requirements and tax policies.
c. Establish the following general classifications and locations for village and town centers
in Puna:
− Kea‘au, Pähoa, and Hawaiian Paradise Park shall serve as Regional Town Centers to
provide a wide range of services for the Puna district;
− Community Village Centers shall provide a more limited range of services in smaller
existing urban settlements and in large subdivisions that are experiencing the greatest
rates of build-out; namely, at ‘Äinaloa, Kurtistown, Mountain View, two or more
locations in Hawaiian Paradise Park, and at Volcano; and
− Neighborhood Village Centers shall be the smallest in scale and located in
underserved remote communities and in subdivisions with relatively small lot sizes
and significant rates of population growth.
Refer to Chapter 5 for more detailed implementation guidelines on this proposed action.
d. Facilitate land use entitlements and other tools for the development of existing and future
village/town centers and special design districts by:
− Approving commercial zoning or use permits for existing commercial uses in
designated village/town centers that do not presently have appropriate entitlements,
and for proposed uses at appropriate nearby locations, provided that the size and use
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of the expansion area conforms to the criteria applicable to the type of village/town
center at that location; and
− Denying zone changes for commercial or light industrial use on sites that are not
within designated village/town centers.
Refer to Chapter 5 for more detailed implementation guidelines on this proposed action.
Figure 3-2: Proposed Town and Village Center Locations
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e. Facilitate land use entitlements and financing for the development of new village/town
centers by:
− Creating a “floating zone” for new village/town centers with pre-determined
development standards based on village/town center type that can be applied to the
village/town center once its location has been determined; and
− Providing loan guarantees or making grants to community associations or
partnerships for the development of necessary infrastructure for the village/town
center.
Refer to Chapter 5 for more detailed implementation guidelines on this proposed action.
f. Amend the zoning code and/or apply district-wide rezoning to limit allowable building
footprint on residential and agricultural-zoned lands, except for sites designated as
village/town centers or for land pooling projects.
g. Require County agencies to establish Level of Service standards for County infrastructure
and services and report periodically on the degree to which these standards are being met
in Puna and proposed steps towards meeting those standards, if they are not being
achieved.
h. Urge the Department of Hawaiian Home Lands (DHHL) to conform to the goals and
objectives of the Puna Community Development Plan (PCDP) with respect to the use and
development of its lands.
i. Reduce property tax assessments and payments to token amounts for properties whose
development rights have been removed or significantly and permanently reduced by
means of a conservation easement, transfer of development rights, land pooling or similar
measure.
j. Conduct a study on the impacts from subdivision build-out based on predictions related
to: native ecosystems; potential potable water well sites; and flooding due to loss of
forest.
k. Require that notice of pending applications for special permits, variances and zoning
changes be given to property owners within a greater distance from the affected site than
is now required by law.
3.2 AGRICULTURE AND ECONOMIC DEVELOPMENT
Puna is primarily an agriculture district with high diversification of production. Even
with the demise of sugar cane production in Puna, agriculture remains a viable economic land
use, both for commercial export of products and for local consumption.
With the transition in recent decades from plantation-based agriculture to smaller-scale,
diversified agricultural operations, Puna faces several challenges. Below are those that the Puna
Community Development Plan attempts to address in some way:
• Rising land costs, especially within subdivisions where residential dwellings are the
principal use, make it difficult for new farmers to acquire land for a viable
agricultural operation.
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• Despite an abundance of vacant subdivision lots for residential use, agricultural-
zoned lands continue to be further subdivided, primarily through a variance process
from the provision in the subdivision code that requires a water system (sec. 23-84)
and with variances from County-standard roads. Allowing a proliferation of such
subdivisions creates more lots with poor infrastructure and adds residential growth in
areas that already have more lots than can be served. Such subdivisions should be
limited in scale.
• Many areas formerly in sugar cane production and highly suitable for diversified
crops are not available for small farming operations.
• While Puna’s high rainfall generally supplies agricultural needs through economical
catchment, during dry spells growers need other water sources. Even if the lot is
within a County water service area, there is inadequate capacity to provide for
agricultural uses because the County lines are designed for domestic use only.
• Small-scale, independent operations face several additional challenges: (1) finding
efficient, cost-effective ways to get products to market, whether for export or local
consumption; (2) acquiring and maintaining specialized equipment, facilities, and
other infrastructure; (3) providing security to prevent pilferage of products; (4)
securing labor assistance at the times when needed.
There are opportunities, as well as challenges, for the growth of economic activity in
Puna:
• Agricultural tourism is emerging as part of a mix of attractions that draw visitors to
Puna. With the rebirth of native Hawaiian culture and new appreciation for nature,
Puna has established itself as a premier natural and cultural attraction, with Hawaii
Volcanoes National Park as a main draw. Eco-tourism generates income by providing
community-based services to visitors of natural and cultural sites in a way that
protects and nurtures the natural and cultural systems, in a manner that is
economically sustainable.
• Given Puna’s combination of resources and geographic location, new employment
can be generated in other “green” industries, such as alternative energy research and
development and natural resources management.
• The development of village/town centers, as described in Section 3.1, will create new
local employment opportunities and provide farmers with new local market venues
for their products.
These challenges and opportunities are addressed in the following goals, objectives and
actions.
3.2.1 Goals
a. Lands for agricultural use are preserved.
b. Quality agricultural land is dedicated to agricultural use in perpetuity.
c. Opportunities for diversified agriculture increase.
d. Puna’s agricultural production emphasizes environmentally-friendly methods.
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e. Puna agricultural products represent an increasing local market share.
f. There are more agriculture-related employment training and local job opportunities for
youth.
g. Local job growth is primarily in “green” industries such as agriculture, alternative energy,
communications technology, eco-tourism and natural resources management.
3.2.2 Objectives
a. Discourage urban growth and further subdivision on lands that have been identified as
having potential value for agricultural use through appropriate zoning re-designations and
new code provisions.
b. Create larger lots for agricultural use in existing small-lot subdivisions through land
pooling and other methods.
c. Acquire unused agricultural lands to create opportunities for new farm operations.
d. Discourage real estate speculation on agriculturally-zoned lands.
e. Provide County tax incentives to promote and preserve agricultural use of lands that are
currently or historically in agricultural use.
f. Provide sites and infrastructure for farmers markets at County parks and proposed
village/town centers.
g. Form partnerships with local businesses and educational institutions to advance education
and training in two sectors:
− 'Green' sector, to include agriculture, alternative energy, resource recycling and
recovery, and other related areas; and
− The information technology sector.
h. Support agricultural tourism with emphasis on events such as orchid celebrations, papaya
festivals, locally-produced food festivals (i.e., “Taste of Puna”.)
i. Promote farm business such as local food stores and “farm stay” bed and breakfasts.
These can be coupled with youth training programs for low income youth.
j. Provide infrastructure support for youth education and job training in the technology and
agricultural sectors.
k. Protect quality agricultural lands, especially fallow agricultural lands, through purchase
or lease by County, State or community land trust, and provide long term leases for
community use.
l. Create new “green” employment opportunities in the agricultural, alternative energy, and
natural resources management in Puna.
3.2.3 Actions
a. Prohibit variances that allow subdivisions that rely on water catchment or roads that do
not meet subdivision road standards to a maximum of six lots, unless the subdivision
results in lots averaging at least twenty acres in size, and averaging at least four times the
minimum lot size allowed by zoning, up to an absolute limit of twenty lots. There shall
be no further variances to permit re-subdivision of lots created by such variances. Where
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lots were created by previous variances allowing catchment, and the variance provided
that further variances should not be allowed, enforce those provisions by denying further
variances on such lots.
b. Downzone all Agricultural (A) zoned parcels in the State Agricultural District in Puna as
follows:
− Lots of 100 acres or more to A-20a;
− Lots of 50 acres or more but less than 100 acres to A-15a;
− Lots of 5 acres or more but less than 50 acres to a designation that would allow no
more than a two-lot subdivision; and
− Lots of less than 5 acres to A-5a.
c. Rescind the Urban Expansion Area designations in the County of Hawai'i General Plan
LUPAG, except where they correspond to the recommended Village Center boundaries
for Kea‘au and Pähoa, as illustrated in Chapter 5.
d. Seek State legislation to impose a higher conveyance tax rate and/or capital gains taxes
on Puna properties that are re-sold within a short period, with exceptions for properties
providing affordable housing.
e. Seek State legislation to allow the County to hold onto properties that are in foreclosure
due to property taxes in arrears rather than immediately auctioning them to the highest
bidder in order to:
− Discourage speculative re-sale and/or building;
− Allow the use of these properties in land pooling projects in nonconforming
subdivision that would create larger lots committed to agricultural use;
− Protect unknown natural and cultural sites or features;
− For educational programs for agriculture, forestry and natural resources management;
and
− For use in community land trusts and land exchanges.
f. Provide land and infrastructure for farmers’ markets within village/town centers.
g. Seek State legislation or rule-making to allow local agricultural producers to make direct
sales to consumers at County-designated farmers markets at the 0.5% general excise tax
rate rather than the 4.0% rate that applies to retail sales.
h. Develop an agri/eco-tourism policy, including necessary zoning legislation. Provide
County assistance and support for agri-tourism, emphasizing and prioritizing off-farm
agri-tourism opportunities such as farmers markets, special events; restaurants
specializing in local food products; and fusion of local agricultural products with cultural
and arts events in Puna. As a second priority, the agri/eco-tourism policy would promote
on-farm opportunities, but only where infrastructure exists, and not in private
subdivisions with private roads.
i. Develop business incubator districts in Keaÿau, Pähoa and Mountain View where small
businesses can, for a start-up period of two to three years, occupy spaces at subsidized
rent, share receptionist and other common support services and facilities, and have access
to business mentoring, marketing skills training, and product promotion programs.
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j. Promote use of the incentives offered by the designation of an Enterprise Zone within
Puna to attract businesses to establish in the area and employ Puna residents.
k. Support the partnership of the Hawaii Community College (HCC) and The Bay Clinic to
establish a youth business center in Keaÿau to develop entrepreneurial spirit in youth,
increase employment options and job readiness, and increase college enrollment, with a
focus on technology skills.
l. Support the development of a community-based organic farming operation and training
facility in or near Puna, in cooperation with the University of Hawai'i at Hilo (UH Hilo)
and HCC.
m. Develop job opportunities in Puna in renewable energy generation, especially solar power
installations, but also bio-fuel crops and direct-use geothermal applications.
n. Conduct a study to define and identify important agricultural lands in Puna, recognizing
the district’s unique soil and climate conditions and opportunities for diversified
agricultural enterprises.
o. Create a fund to purchase or receive identified important agricultural lands and facilitate
the formation of a community land trust to manage those lands and leasing them for
farming and agricultural support facilities.
p. Create a real property tax exemption (perhaps 4 to 6 years) for farmers entitled to Federal
crop loss insurance.
q. Encourage organic farming and gardening by establishing a Puna agriculture scholarship
with HCC and UH Hilo.
3.3 SOCIAL SERVICES AND HOUSING
Social services include not only programs to provide assistance to special needs
populations, but also health and medical facilities to serve the entire community. “Medical
facilities”, in this instance, does not apply to County emergency paramedical services, which are
covered in the following Section 3.4. With a growing population, Puna clearly needs more social
and health care services within the district. Yet, there are two major challenges to making them
accessible to residents:
• As a rural area with a rudimentary transportation system and dispersed population, it
is difficult for residents in need to reach the services; and
• Puna’s high percentage of low-income residents tends to increase the need for social
services, yet discourages private health care providers from locating in Puna due to
insurance issues.
Schools are also an important social resource, serving not only as educational institutions,
but also as de facto community centers and recreation areas in rural areas where few other
venues are available for meetings, events and organized or informal sports. Unfortunately,
current policies of the Department of Education (DOE) do not favor smaller schools at dispersed
locations, which would enable them to be more conveniently accessed by walking, bicycling, or
at least a shorter vehicle trip. Also, the availability of school facilities after hours for community
activities varies at the discretion of the school principal. Although County influence over public
education and school facilities is quite limited, the Puna Community Development Plan can try
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to influence changes in DOE policies to better integrate schools within the fabric of Puna’s
communities.
As mentioned above, Puna has a high percentage of lower-income residents, and the
district is regarded as place of opportunity for affordable housing. The subdivision lots offer
some of the lowest-price sites in Hawai'i for owner-built housing. Approximately 85 percent of
the island’s Section 8 low-income rental housing certificate holders are Puna residents.
Nevertheless, there are still many residents without adequate housing, and opportunities for
retaining and expanding the stock of affordable housing are narrowing as land values rise in
Puna and government housing subsidies shrink. New approaches are needed to respond to this
challenge, such as stimulating the development of multi-family, self-help, and congregate
housing.
3.3.1 Goals
a. Puna residents have improved access to emergency and primary medical care and
preventive public health programs.
b. Substance abuse, domestic violence and other social problems are reduced.
c. Puna residents have increased access to assistance programs to develop, repair or rent
affordable housing.
d. Programs are available to assist those seeking housing in Puna.
e. Public education is better integrated into Puna’s communities.
3.3.2 Objectives
a. Seek additional locations for medical/substance abuse/senior home care treatment
facilities in both lower and upper Puna.
b. Provide effective and readily accessible substance abuse treatment and prevention
services within Puna.
c. Provide transitional shelter and programs to assist homeless Puna residents in moving
toward self-sufficient status.
d. Support initiatives by DHHL to develop appropriate projects for housing and job
opportunities for Native Hawaiians in Puna.
e. Increase the availability of accessible and affordable housing through self-help programs,
government assistance and innovative housing tenure arrangements, such as co-housing,
limited equity cooperatives, and community land trusts.
f. Increase opportunity for community involvement in public education.
g. Urge the State to locate its community facilities, such as public schools, in designated
village/town centers, and to design them in conformance to the criteria applicable to the
type of village/town center at that location.
3.3.3 Actions
a. Develop a centrally-located, 24-hour, full-service medical facility, with trauma care, in
Puna. Establish multiple clinic level facilities offering primary medical and dental
services in village centers in Upper and Lower Puna. Expand existing County-funded
transportation services to carry people from subdivisions to medical facilities.
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b. Establish “one-stop centers” at Pähoa, Keaÿau, Volcano, Mt. View, Hawaiian Paradise
Park and Kurtistown to provide referrals, support and advocacy related to the following
issues:
− Substance abuse treatment and prevention;
− Assistance for housing, special needs housing, homeless persons, and community
development;
− Teen pregnancy prevention/birth control;
− Child care and elder care options;
− Transportation and service coordination;
− Employment;
− Serving clients with disabilities;
− Domestic violence screening/abatement/prevention;
− Access to medical services and complementary health services, including nursing
programs for homebound clients; and
− Access to clean water and education on catchment water.
c. Build partnerships between the County and non-profit organizations to increase the range
of social services and economic development opportunities.
d. Seek State enabling legislation to allow homeowners and organizations such as Habitat
for Humanity to do their own plumbing and electrical work on modest-sized dwellings in
order to lower self-help housing construction costs.
e. Offer educational programs, through the County Office of Housing and Community
Development, to develop financial skills of renters who seek opportunities for home
ownership, and to develop awareness of effective rental strategies for owners and tenants.
f. Sponsor, through the County Office of Housing and Community Development, programs
to increase homeownership opportunities, such as the Home Investment Partnerships
Program for mutual self-help housing development and limited-equity cooperatives.
g. Promote multi-family housing – especially for those with special needs, such as the
elderly – in designated regional or community village/town centers.
h. Provide low-interest loans, on a sliding scale according to household income, for the
repair and renovation of existing housing.
i. Amend building codes to allow occupancy of residential dwelling before final inspection
and to facilitate bringing non-conforming structures up to the code effective at the time of
their initial construction.
j. Urge the State to increase local control over public schools in Puna by measures such as:
− Changing the structure of school boards to provide greater local representation and
decision-making;
− Changing Department of Education (DOE) policy to allow smaller schools at more
dispersed locations; and/or
− Removing the cap on the formation of new charter schools.
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See, also, Section 3.5, Action c, calling for community access to school facilities.
3.4 PUBLIC SAFETY AND SANITATION SERVICES
Public safety and sanitation services in Puna have needed to adapt to the widely dispersed
settlement pattern in the district and poor road conditions in most of the subdivisions. It is
neither cost-efficient nor practical for the County to provide a sufficient number of police, fire
and paramedical facilities with associated staffing and equipment to provide coverage to all
populated areas with the response times that are typical of urban or most suburban areas.
Therefore, County services are supplemented with community policing programs and volunteer
fire stations, usually with at least some degree of County assistance in the form of training,
equipment and/or personnel.
While police and fire stations are essential community facilities, they do not necessarily
need to be located directly within town or village centers. The most important criterion for
locating these facilities is the response time to respond to emergencies within the service area.
Consequently, direct access to a major highway is an advantage. At present, the police and fire
stations at Pähoa and Kea‘au are near the center of town, although the County is planning to
replace these with facilities that are slightly outside of town on sites with direct highway access.
As noted earlier, there are no public wastewater treatment systems in Puna. Similarly,
there is no municipal house-to-house solid waste collection service. The County provides solid
waste transfer stations located in Pähoa, Glenwood, Volcano, Kalapana, and Kea‘au. Until
recently, all solid waste was disposed in landfills. Following previous upgrades to the Kea`au
solid waste transfer station the County upgraded the Pähoa, Glenwood, and Volcano facilities in
late 2007 to support recycling, including an improved redemption center for bottles and cans,
collection bins for scrap metal, mixed recyclables, and green waste.
Adaptive strategies to improve public safety and sanitation services will need to evolve as
Puna’s population grows and the land use pattern is gradually reshaped into the village/town
center model.
3.4.1 Goals
a. All residents have an equitable level of service access to police, fire, and paramedical
services.
b. Free wireless internet is available district-wide.
c. Infrastructure investments facilitate the growth management strategy described in Section
3.1.
3.4.2 Objectives
a. Provide additional locations for emergency services to reduce the response time to a
larger percentage of residents.
b. Improve and broaden communications access for a larger number of residents.
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3.4.3 Actions
a. Develop permanent fire stations at Hawaiian Beaches/Shores, Hawaiian Paradise Park,
lower Volcano, and Mountain View, with emergency paramedical services.
See, also, Section 3.3, Action a, relating to emergency medical facilities.
b. Provide additional volunteer fire stations and expanded programs for training community
emergency/readiness volunteers in all large subdivisions as suitable sites become
available and the growth in the subdivision warrants.
c. Provide free wireless internet services to Puna’s subdivisions, starting with those that
lack cable service.
Refer to Section 4.1 for related discussion and Action c.
d. Provide more emergency call boxes along State highways.
e. Encourage enhancement of cell phone service to expand coverage to more remote areas.
f. Boost the Department of Environmental Management (DEM) recycling budget to
develop an economy and to create more jobs related to recycling.
g. Relocate the Kea‘au and Pāhoa solid waste transfer stations to sites more suitable to serve
the major populated areas that they were intended to serve.
h. Increase County resources to handle the abandoned/derelict car removal program.
i. Provide public financial support for the development of utility and potable water
connections, and wastewater treatment facilities, within approved village/town centers
where they are desired by residents or needed to support planned and approved
development.
3.5 PARKS AND RECREATION
Puna contains most of Hawaii Volcanoes National Park, which is the premier nature park
in the Islands. Added to the inventory of nature parks are the State-owned: MacKenzie State
Recreation Area (13.1 acres), located between Pohoiki and Opihikao at the edge of the Malama-
Ki Forest Reserve; and Lava Tree State Monument (17.1 acres), located near the junction of
Kapoho-Pahoa Road and Pohoiki Road. There is also a 78.3-acre undeveloped State parcel
located adjacent to Honolulu Landing along the Puna Coast Road between Kapoho and Hawaiian
Shores subdivision that at one time had been provided to the County of Hawai‘i by the State
through Executive Order for development as a park.
The County owns smaller shoreline parks: two undeveloped sites within Hawaiian
Paradise Park; Isaac Hale Beach Park, located adjacent to Pohoiki Bay; and the nearby Ahalanui
Park site, which was purchased in 1993 to replace the two former parks (Kaimū Beach Park and
Harry K. Brown Park) that were destroyed by lava flows.
There are few community parks in the district for active recreation. The largest public
facilities are the County’s Shipman Park in Kea‘au and Pāhoa Park, which includes a pool and a
neighborhood center for meetings, programs and indoor recreational activities. The County
maintains a gymnasium at Mountain View, outdoor basketball courts at Kurtistown and
Hawaiian Beaches, and tennis courts at Kurtistown and Kea‘au.
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The Department of Education maintains recreational facilities at their schools in Kea‘au
and Pähoa and Mountain View, but these are primarily for use by students and not always
available for general community use.
There are also some recreational facilities that are owned and maintained by community
associations. Some of the subdivisions contain undeveloped parcels that have been set aside for
future community use, including parks. However, funds have not been available to develop
significant facilities on them, either from private or public sources.
Puna will clearly need to expand its parks and recreation facilities as the population
grows. There is a particular need to develop community parks in underserved large subdivisions,
such as Hawaiian Paradise Park, where development is occurring at a relatively fast pace.
3.5.1 Goals
a. Puna offers a variety of public recreational areas, reflecting the beauty and diversity of
the natural setting, and recreational programs for people of all ages and physical abilities
that are not currently available.
b. There is an equitable dispersal of parks and recreation facilities readily accessible to most
Puna residents.
c. The development of future parks supports the growth management goals, objectives and
actions set forth in Section 3.1 of this plan.
3.5.2 Objectives
a. Adopt the following classification for expansion and improvement of parks in Puna:
− Camp Ground: An area with potable water and restroom facilities for overnight tent
camping, which may be available on a permit or fee-for-service basis.
− Coastal Activity Area: A shoreline recreational area that is accessed by a park or a
public easement
− Community Park: A recreational park or facility intended to be used primarily by
residents of the area that is owned and maintained by the County or by a private entity
with unrestricted public access.
− Linear Park: A recreational, non-motorized pathway (except motorized wheelchairs),
which may be inter-connected or within a right-of-way of an existing or new
roadway, and is separated from travel lanes and adjacent properties by a landscaped
buffer, with occasional rest stops or viewing spots.
− Preserve: A site with features of significant natural or historic value that provides
minimal facilities for public visitation, such as interpretive signage, a walking trail
and small parking area, and is maintained by a stewardship program.
b. Encourage the collocation of schools, parks and senior centers to promote interactivity
between community members of all ages.
c. Identify lands to be used for parks in connection with subdivision interconnectivity.
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3.5.3 Actions
a. Consider expanding the Camp Ground at MacKenzie State Park to include public
property south of MacKenzie.
b. Improve and expand Coastal Activity Areas as follows:
− At Ahalanui Beach Park: (1) accessibility improvements; (2) screened changing area
next to showers designed to blend with natural surroundings; (3) repairs to parking lot
surface; and (4) added picnic tables.
− Consider hand-developed modifications to the tidepools east of Pohoiki Bay beyond
the area known as “Shacks” for use as “keiki pools”, but retain traditional fish-netting
use.
− Pursue development of a camp ground and/or ocean recreation park with potential
boat launch ramp and marina facilities on State–owned accreted land at Cape
Kumukahi, provided that Hawaiian burial sites are adequately protected and
respected.
− Consider acquisition and development of Honolulu Landing, Kapoho Crater (Green
Lake) and Sand Hill.
− Develop support facilities for the use of the State-owned park at Kehena Beach.
− Encourage the development of a hiking and coastal trail and camp system to provide
for pedestrian recreational opportunities.
c. Improve and expand Community Parks as follows:
− Develop new Community Parks in:
⋅ Hawaiian Acres, at three sites approximately 1) near the mauka terminus of
Orchidland Drive, 2) between 6th and 7th Roads and D and F Roads, and 3) near
Fern Acres at the mauka end of E Road;
⋅ The North Kulani Road area, between Ihope and Huina Roads;
⋅ Glenwood, on makai side of South Glenwood Road;
⋅ Nanawale Estates subdivision;
⋅ Leilani Estates subdivision;
⋅ Orchidland Estates subdivision; and
⋅ The mauka portion of Hawaiian Beaches subdivision.
− Pähoa Regional Park: (1) Convert the existing fire station into a senior center with
certified kitchen for congregate meals program and activities/dining room; (2) Repair
pump and provide solar heating system and heat-retaining cover for swimming pool;
(3) Provide art center and covered performance stage; (4) Provide children’s museum
and playground; (5) Develop skateboard park; (6) Provide sheltered picnic areas; (7)
Build loop access road to lessen traffic on Pähoa main street; and (8) Provide lighted
parking areas and walking paths linked to Pähoa village center.
− Shipman (Kea‘au) Regional Park: (1) Interior fencing and re-arranging parking layout
to reduce safety hazard to children chasing balls; (2) More shade, seating, and picnic
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tables for attendees at games and events; (3) Large pavilion for team and family
activities; (4) Additional fields for football and baseball; and (5) Additional lighting
and restrooms. Develop new gym at Shipman Regional Park or acquire the National
Guard Armory for this use.
− Develop a new District Park on a 20-acre parcel owned by Hawaiian Paradise Park
Owners’ Association at 16th Avenue and Maku‘u Drive. Improvements would
include a swimming pool, a gym, field complex and community center.
− Develop recreational programs to complement use of Cooper Center and Volcano
Community Park in partnership with the Volcano Community Association.
− Provide accessibility, playground and other improvements at Mountain View
Community Park and A. J. Watt Gym.
− Expand hours of operation and night lighting for some outdoor activities at regional
and larger community parks to serve working adults and young retirees.
− Develop a new senior center in Mountain View with a certified kitchen for a
congregate meals program, room for activities and dining, restrooms, and van vehicle
and staff.
− Provide in each village center a recreational park and village green that is scaled and
designed to fit the needs of the community that the village center serves.
− To supplement Community Parks, make recreation facilities and meeting rooms at
public schools available for community use after school hours, whether through direct
requests from a community representative to a school principal or a formal standing
agreement between the County and the Department of Education.
− Create small parks as part of right-of-way acquisition for new connecting road
segments between subdivisions (see Section 4.3.) This may consist of lot remnants
that are not needed for the right-of-way.
d. Create and improve Linear Parks as follows:
− When acquiring rights-of-way for constructing new roadways or improving existing
major roadways, make provisions for parallel multi-use recreational trails with
appropriate landscaped buffers on either side and provide connections to other such
existing or planned trails, to the extent possible.
− Complete development of Old Volcano Trail as a pedestrian and bicycle pathway.
− Acquire the former railroad right-of-way from Kapoho through Hawaiian Paradise
Park and develop it for hiking, bicycling and horse-back riding.
− Plan for the acquisition and development of the former railroad right-of-way from
Hawaiian Paradise Park to Railroad Avenue in Hilo for bicycle, pedestrian and horse-
back riding, provided that measures are taken to protect agricultural uses of adjoining
lands.
− Plan for public access along Old Government Road (coastal trail) as a bicycle and
hiking trail with a natural and cultural resource interpretive program.
e. Create and improve Preserves as follows:
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− For designated preserves, assess the appropriate level of site visitor usage and
implement self-guided or steward-led interpretative tours through the site.
− Improve conditions at Waiÿöpae Tidepools and the Marine Conservation District by:
(1) Offering tax credits to nearby private landowners as incentive to convert existing
cesspools, where they exist, to septic tanks with a pump-out system; (2) Providing
public sanitary facilities, including a toilet and trash receptacle; (3) Providing off-
street parking that does not encroach into private lands; and (4) Providing permanent
public access.
− Consider acquiring Green Lake and adjacent land for native plant/habitat restoration
and a nature center with activities and interpretive programs for school-aged students
and the general public.
− Consider hiking trails through Nanawale Forest Reserve, provided that areas with
intact native forest are adequately protected.
− Pursue development of a passive cultural resources and ethno-botanical park in
Hawaiian Paradise Park, to include the rock wall, native and introduced plants and
exceptional trees.
3.6 ENERGY SUSTAINABILITY
Puna’s energy demand continues to rise because of rapidly increasing residential
development. The cost of installing and maintaining the electrical grid is very high because of
weather, vegetation, and the relatively great distances from house-to-house.
Many people live “off-the-grid”; that is, where dwellings, particularly in more remote
locations, are not connected to the electrical power service provided by the local utility company,
Hawaiian Electric Light Company (HELCO). While many residences remain unconnected to the
power grid, some choose to connect to the grid to supply at least a portion of their power needs
or to provide back-up power. Solar power is cost-competitive with electricity provided by the
utility company, so this is appears to be the most promising renewable source of power at
present, especially when combined with the tax incentives for the installation of alternative
energy devices and direct assistance to reach the lower-income homeowners or renters who
could most significantly benefit from lower utility costs. The County can also play a direct role
in the use of alternative energy and promotion of energy conservation by incorporating these
features into the design of public improvements and by amending building codes.
There are two power generation facilities in Puna. HELCO’s Puna Steam Plant and the
geothermal power generation source at Kapoho operated by Puna Geothermal Venture (PGV). It
is unlikely that large-scale expansion of geothermal power generation within the eastern rift zone
of Puna will occur within the time horizon of the Puna Community Development Plan. On the
other hand, there is potential to capture excess heat for direct use in agricultural applications, if
the PGV plant undergoes a modest pending expansion.
3.6.1 Goals
a. Puna has made significant progress towards achieving energy self-sufficiency by 2020.
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b. A significant percentage of Puna households continue to live completely or partially off
the electrical power grid.
c. Puna lowers its dependence on fossil fuel as an energy source, becoming a demonstration
area for alternative sources, systems and fuels.
d. There are incentives for the use of renewable energy sources.
3.6.2 Objectives
a. Promote use of solar technologies, such as solar water heaters and photovoltaic power
systems.
b. Employ energy-efficient design standards for public building and residential
development, including ventilation and cooling.
c. Recognize, when establishing regulatory standards, that while energy efficiency yields
long-term cost savings for low-income households, it may impose added initial
construction cost on housing. Accordingly, reduced property tax assessments for self-
powered homes and businesses should be implemented.
3.6.3 Actions
a. Apply Leadership in Energy and Environmental Design (LEED) standards for public
buildings, with a minimum goal of silver level.
b. Investigate the use of ground-water cooling systems for public buildings.
c. Require energy efficiency standards for larger residences. Applicable standards might
include better insulation for the outer walls, low-emissivity windows and doors, reduction
of roof heat gain, and use of energy-efficient appliances.
d. Incorporate energy-efficient features into the construction of lower-cost homes with the
use of public subsidies.
e. Establish a Renewable Energy Research & Development fund with University of Hawai'i
at Hilo.
f. Apply the Public Utilities Commission Public Benefits Fund to incentives to homeowners
and landlords to retrofit dwellings for alternative energy devices and systems, using a
sliding scale to provide greater subsidies to low-income households. The County may
augment this with matching grants and low-interest loans.
g. Negotiate a direct use of geothermal agreement for agricultural uses as part of any
expansion of the capacity of the Puna Geothermal Venture plant.
h. Promote biomass energy and fuel production using wood chips from exotic trees.
i. Pursue the development of new renewable energy sources such as Ocean Thermal Energy
Conversion (OTEC), wave-energy generation and solar energy capture as the technology
advances to make an investment in such a demonstration and production facility in Puna
feasible.
− To facilitate this, pursue an ocean energy subzone or enterprise zone designation for a
section of coastal land in Puna, preferably on State land, in order to encourage
research and production of ocean-based alternative energy systems and facilities.
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− In addition to energy generation, cold water aquaculture and agricultural processing
should be encouraged and accommodated, including refrigerated warehouse and
processing facilities, hot-water treatment of agricultural products, and agricultural
product washing and packing facilities.
Figure 3-3: Overview of Parks and Natural Area Network in Puna
MANAGING GROWTH
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PUNA COMMUNITY DEVELOPMENT PLAN
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Chapter 4
TRANSPORTATION
Sprawl development is increasingly evident in the travel patterns of Puna residents. At
present, most of Puna’s workforce commutes by personal vehicle to employment locations
outside of the district, primarily to Hilo. Residents also make frequent trips to Hilo for shopping
and services. About a quarter of the workforce carpools, but congestion is growing along Puna’s
principal corridors during peak commute periods.
State highways are the primary transportation routes. Highway 11 between Kurtistown
and Hilo and Highway 130 between Pähoa and Keaÿau carry the greatest amount of traffic during
peak commuting periods. Most roads in Puna’s nonconforming subdivisions are privately
owned, often in poor physical condition and not designed for through traffic. There are many
missing connections between the road networks of adjacent subdivisions. The present
circulation network, combined with the district’s sprawl development pattern, results in a number
of problems:
• There is a lack of alternative routes for emergency access, especially when highways
are blocked by a traffic crash or downed utility pole, or when there is a natural
disaster such as a hurricane, tsunami, lava flow or earthquake that requires
evacuation;
• Highways become more congested during peak periods due to the lack of alternative
roadways;
• Highway intersections with substandard private streets are dangerous due to
inadequate lighting or intersection controls, combined with high traffic speed along
the highway;
• It is difficult for the County’s Mass Transit Agency (MTA) to operate an efficient
Hele-On Bus service that offers a viable travel option for a large number of Puna
residents, especially those in more remote areas;
• There are few facilities for walking or bicycling, even in more built-up areas; and
• It can be life-threatening to cross Highways 130 and 11 on foot. This is particularly
true for youth, the elderly and the disabled.
The Puna Community Development Plan seeks to promote more efficient and
environmentally responsible travel by limiting demand for commuting and other trips; promoting
mass transit and alternative travel modes; and providing alternate routes to reduce trip lengths
and travel time.
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4.1 TRAFFIC DEMAND MANAGEMENT
The long-term remedy for the problem of commuter traffic is to transform the pattern of
land use and economic activity to reduce the travel demand to Hilo and other destinations
beyond Puna. Making this shift is a key goal of the Puna Community Development. Shorter-term
relief from the crush of commuting traffic can be achieved by diverting some of this travel to
mass transit and ride-sharing or by reducing peak period traffic volumes via telecommuting and
staggered work hours.
Communications technology can do much to reduce the need to travel, particularly in
rural areas like Puna. For example, the provision of free wireless access to the Internet can
enable more home occupations, provide back-up for emergency and everyday communications,
and expand the spectrum of quality life experiences for Puna residents. County, State and/or
Federal expenditures to provide free wireless access are justifiable as a means to avoid or defer at
least some of the cost and environmental impact of making very expensive and extensive
improvements to Puna’s deficient roadway network.
4.1.1 Goals
a. The percentage of single-occupancy vehicles during peak commute periods is reduced.
b. The percentage of residents who commute to employment or travel for services outside of
Puna is reduced.
c. Reliance on fossil fuels for transportation is reduced.
4.1.2 Objectives
a. Promote ride-sharing, van-pools, and car-pooling.
b. Expand telecommuting opportunities.
c. Provide more services and employment within Puna’s village and town centers.
d. Create new employment opportunities in Puna in order to reduce long commuting.
4.1.3 Actions
a. Promote van pool and ride-sharing alternatives more actively by working through major
employers and large institutions such as UH Hilo and HCC, which can offer incentives
such as preferential parking for ride-share vehicles.
b. Promote staggered work hours and telecommuting with major employers and institutions
as a means to reduce peak period traffic, focusing on the following:
− Researching and implementing telecommuting and staggered work hours for County
and State employees; and
− Researching feasibility of starting UH Hilo classes no earlier than 9:30 a.m.
c. Facilitate telecommuting by developing a wireless communications network that enables
most Puna residents to gain free access to the Internet.
Refer to related Action c in Section 3.4.
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4.2 MASS TRANSIT
Poor road conditions, combined with incomplete connectivity in the street system and a
dispersed pattern of development, make it challenging to devise and sustain a viable mass transit
system for Puna. The County’s Hele-On bus operates a Hilo-Pähoa route along Highway 130
five times a day, and a Hilo-Ka‘u route along Highway 11 once a day. These are long, circuitous
routes that, while providing reasonably good coverage to more remote areas, also results in high
operating costs and lengthy trip time that discourages ridership. While the 2000 Census
indicated that less than 1% of Puna’s workforce commuted by bus, ridership more than doubled
after the County initiated a free fare service between Pähoa and Hilo in 2005. This demonstrated
the potential demand for transit service that could be expanded with other improvements and
initiatives, such as more convenient routes and schedules, marked stops, park and ride facilities,
transit centers, and marketing programs.
The County Mass Transit Agency (MTA) is currently planning significant system
improvements by converting to a “hub-and-spoke” system, consisting of the following elements:
• Large Hele-On coaches operating frequent runs on a shorter route between Hilo and a
primary Puna “hub” at Kea‘au and secondary hubs at Pähoa and other village centers
near highways.
• Paratransit vans to pick-up passengers who have called in from outlying areas to be
brought to one of the transit hubs.
• Central coordination by MTA of all paratransit services, including those operated by
social service agencies for designated residents with special needs.
• Park-and-ride lots at transit hubs and possibly other locations.
4.2.1 Goals
a. Mass transportation options are increased for all Puna residents.
b. Transit service and improvements reinforce and complement the development of
village/town centers.
c. A greater percentage of commuters use mass transit.
4.2.2 Objectives
a. Convert the present Hele-On Bus routes and services to a “hub-and-spoke” system, with
paratransit vehicles bringing passengers from outlying areas to Hele-On Bus hubs and
also distributing passengers within the Hilo area.
b. Coordinate County transit services with special needs paratransit services and school
transportation.
c. Provide park-and ride lots at key regional sites to promote commuter ridership.
d. Strengthen County capability and resources to operate the transit system and increase
ridership.
e. Ensure that pedestrians can access bus stops safely.
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4.2.3 Actions
a. Prepare a County-wide Transit Master Plan to provide an overall framework for transit
improvements while incorporating user input from each district.
b. Improve transit service operations by:
− Increasing transit service to a minimum of two additional runs during peak hours;
− Establishing demand responsive transit in subdivisions;
− Providing commuter express bus service from Pāhoa to Hilo and Volcano to Hilo;
and
− Establishing a hub-and-spoke transit system, in which transit circulators are teamed
with trunk routes on major highways.
c. Develop transit hubs at the following locations:
− Kea‘au (Primary Hub): In-town location near commercial centers or on State lands
adjacent to the soccer fields; second site could include a new Mass Transit Agency
(MTA) baseyard and headquarters;
− Pāhoa (Secondary Hub): On County-owned sites, either adjacent to Pāhoa
Community Center or on Highway 130 near Kahakai Boulevard where the new fire
and police stations are planned;
− Volcano (Secondary Hub): Either at Cooper Center or on other available land; and
− Mountain View or South Kulani (Secondary Hub).
d. Provide park-and-ride lots at the transit hubs and within Hawaiian Paradise Park at one or
two of the proposed village/town center sites, where the community-owned parcel could
serve as a parking lot for commuters, as well as a location for farmers’ markets.
e. Provide express bus service for commuters from Pāhoa to Hilo and Volcano to Hilo.
Local buses or paratransit services could feed into selected stops in order to service
broader areas.
f. Develop a cooperative program with the Department of Education and private schools to
provide student passes for the Hele-On Bus.
g. Launch a public education campaign promoting transit services, tailoring them to target
populations such as youth, commuters, and the elderly.
h. Cultivate public/private partnerships, such as employer-sponsored bus passes.
i. Expand the staff of the Mass Transit Agency to provide greater support for public
relations, route planning and coordination, technical operations and fleet management.
j. Investigate other incentives to increase ridership, such as continuance of free fare
program, convenient bus ticketing systems, reduced monthly rates for residents and
special needs populations, adding airport and post office service and tourist passes.
a. Work with Hawaii Department of Transportation (DOT) in creating safe pedestrian
conditions for using mass transit
4.3 ROADWAY NETWORK
The principal routes in Puna are two State-owned highways, which are covered in the
following section. Presently, the County maintains nearly 188 miles of roads in Puna, including
PUNA COMMUNITY DEVELOPMENT PLAN
September 2008
4-5
some that serve as collector roads and emergency access routes, as well as some local paved
streets in a limited number of subdivisions.
Roads within most subdivisions are privately-owned and maintained by community road
maintenance associations. Most of the roads are narrow and lack paving, lighting, traffic control
signs and drainage systems. In many sections, there is inadequate sight distance due to sharp
curves or irregular road gradients.
There is also poor roadway connectivity between most subdivisions, which means that
one must take a circuitous route to travel from one subdivision to another. This, in turn, puts an
additional strain on the highways and the few collector streets in the network. Of greater
concern to public safety in an area prone to natural hazards, there are few alternative routes for
emergency access and evacuation.
The rapidly developing subdivisions whose principal access is Highway 130 are of
particular concern. To help alleviate traffic congestion along Highway 130 during peak periods
and provide an alternate route, the County of Hawaii General Plan and the Puna Regional
Circulation Plan (2005) propose a Puna Makai Alternative Route (PMAR). However, these
plans did not resolve the alignment and design for PMAR through Hawaiian Paradise Park
(HPP). While the concept of a limited access parkway has merit, it would be very difficult to
acquire right-of-way for this through a large subdivision such as HPP in a timely and cost-
effective manner. Therefore, a shorter route through HPP is a more practical and less disruptive
alternative to implement within the time-frame of this plan.
4.3.1 Goals
a. There are adequate emergency and evacuation routes and connectivity throughout Puna’s
roadway network.
b. Improvements are phased so that short-term actions support and lead toward projects that
will take a longer time to implement.
c. Roadways are pedestrian and bicycle friendly.
d. Traffic congestion and traffic-related health risks are reduced.
4.3.2 Objectives
a. Create alternative, redundant routes for existing Highways 11, 130 and 132 utilizing
existing routes wherever possible.
b. Develop PMAR along the general route shown in Figure 4-1, with the specific design and
alignment to be determined based on an environmental impact study that identifies a
project having the least environmental and socio-economic impact.
c. Designate new connectivity points for local traffic and emergency and evacuation routes
within the existing roadway network.
d. Develop a phased implementation plan for coordinated actions by County and State
transportation and public works departments.
e. Improve appropriate “roads in limbo” that are used widely for public access.
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4.3.3 Actions
a. Short Term (2008-2012)
− Plan and design the PMAR alignment through an environmental impact statement
process that meets Federal Highway Administration (FHWA) standards and therefore
qualifies the project for FHWA funding;
− Require building setbacks within HPP lots along the designated PMAR alignment, as
necessary, to reserve the potential for a future PMAR extension through the
remainder of HPP;
− Establish emergency routes, using mostly existing road beds;
− Include pedestrian and bicycling requirements in all projects; and
− Create connectivity alignments between the following subdivisions: Hawaiian Acres
and Fern Acres, Fern Acres and Kopua Farm Lots, Eden Rock and Fern Forest,
Orchidland and Hawaiian Acres, Nanawale and Hawaiian Beaches/Shores, Hawaiian
Beaches and HPP, Kea‘au Agricultural Lots and a site adjacent to Kea‘au Elementary
School, Ohia Estates and Royal Hawaiian. These inter-subdivision roads should be
staggered, low-impact, and multi-modal. The general locations are indicated as ovals
in Figure 4-1.
b. Medium Term (2012-2017)
− Construct a two-lane PMAR roadway that connects Kaloli Drive between
approximately 16th Avenue and 10th Avenue in HPP to either Highway 11 or
Highway 130 in the vicinity of Keaÿau;
− Construct a two-lane, unpaved, gated emergency access roadway between Kahakai
Boulevard to HPP which can later be converted into a future extension of PMAR; and
− Construct a two-lane roadway between Nanawale and Kahakai Boulevard that can be
used as both an emergency access route and a future extension of PMAR.
− Study the need, desirability and feasibility of adding an alternative route between
Pähoa and Highway 11 and between Highway 11 and Stainback Highway in the
stretch between Glenwood and Kurtistown, as generally depicted on Figure 4-1.
c. Long Term (2017-2030)
− Construct Phase II segments of PMAR, as generally depicted in Figure 4-1.
− Acquire additional right-of-way via land pooling, exchanges, and other means to
extend PMAR through Hawaiian Paradise Park;
− If increased traffic demand indicates, construct the PMAR extension through the
remainder of HPP, as depicted generally in Figure 4.1, and convert the emergency
access route from Kahakai Drive to HPP as a PMAR extension by removing the gate
and paving the surface;
4.4 HIGHWAYS
There are four highways within the district of Puna:
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• Volcano Road (Highway 11), which provides access to and from Hilo, serves the
upper Puna region, and connects Puna to Ka‘u;
• Puna Road (Highway 130), which runs from Kea‘au to Kalapana-Kaimu, providing
access from upper to lower Puna;
• Kapoho Road (Highway 132), which spans between Pāhoa and Kapoho; and
• Puna Coast Road (Highway 137), which links Kapoho to Kalapana-Kaimu.
Highways 11 and 130 are under the jurisdiction of the State of Hawai'i Department of
Transportation (DOT). Generally speaking, these highways are designed to facilitate efficient
vehicular travel according to standards that are based on operational characteristics, including
speed limits, projected traffic volumes at various periods, and locations where vehicles enter and
exit the highway. Pedestrian, bicycle, and mass transit travel have been typically secondary
considerations, although Federal programs and funding are available to address the specific
needs for these travel modes and incorporating them into the design and improvement of State
highways.
While the County does not have control over State highways, the Puna Community
Development Plan urges DOT to integrate multi-modal travel, emphasize safety and traffic
calming over efficient travel speed, and incorporate aesthetic features into the design and
improvement of highways.
4.4.1 Goals
a. Highways have design features that improve traffic safety and reduce collisions,
particularly at intersections.
b. Highway design is more aesthetically pleasing and compatible with the natural and rural
character of Puna.
c. Increased County and community influence over highway planning and design decisions.
4.4.2 Objectives
a. Make intersection improvements along highways that allow safer access from
intersecting streets as a priority over traffic speed on the highway, giving preference to
the use of roundabouts.
b. Consider roundabouts as a means to control private driveway access to major highways
with higher traffic volumes, such as Highway 130.
c. Use native landscaping for highway improvements and connectivity points, emphasizing
the retention of native vegetation.
d. Incorporate traffic-calming features into highway design in preference to signage and
signalization, where possible.
4.4.3 Actions
All the following are recommendations to DOT.
a. Short Term (2008-2012):
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− Make interim intersection improvements on Highways 11 and 130;
− Reduce speed limit on Highway 130 to 45 mph between the Kea`au bypass and
‘Äinaloa Boulevard;
− Conduct a study to determine the most efficacious way to create greater highway
safety for all travel modes, including a cost benefit analysis for each studied method,
and consideration of a wide range of traffic calming features, the use of frontage
roads and various types of intersection controls; and
− Implement the Shoulder Lane conversion project between the Kea`au Bypass and
Shower Drive/Pohaku Drive as a reversible lane to accommodate AM and PM peak
periods.
b. Medium Term (2012-2017)
− Increase capacity on Highway 130 between the Kea`au Bypass road and ‘Äinaloa
Boulevard, utilizing the results of the study of highway safety alternatives described
above;
− Construct an exit right lane on Highway 11 below Kea‘au Agricultural lots to Kea‘au
Village using the existing Old Volcano Road right-of-way; and
− Create a right hand turn lane from Highway 132 onto Highway 130.
4.5 NON-MOTORIZED TRAVEL AND SCENIC BYWAYS
Within Puna, bicycle and pedestrian facilities are very limited. Two multi-use trails of
significant length are planned. One is the restoration and improvement of Old Volcano Trail,
which roughly parallels Highway 11 for a length of about 14 miles between Kea‘au and Volcano.
The other is Puna Railroad Bikeway, which, as the name implies, follows the alignment of the
former railroad and a portion of Railroad Avenue, and would extend between Kapoho and Hilo,
traversing Hawaiian Paradise Park (HPP). The first project is now underway, but the second
project requires acquisition of a substantial amount of right-of-way from private owners before it
can proceed. When completed, these trails will offer not only a recreational opportunity, but
also a safe and attractive route for alternative travel modes between populated areas and places
of employment and commercial and community services.
Scenic Byways are somewhat of a hybrid between a highway and a trail. Typically, they
are not used for heavy vehicular traffic or primarily for utilitarian purposes. They incorporate
pullover areas for vehicles at scenic spots and usually make provisions for bicycling or hiking.
There also special design controls on signage, landscaping and other roadway features. Federal
funds are available for corridors that are designated as a Scenic Byway. Puna’s Highway 137
(Red Road) is a good candidate for this designation.
Section 4.3 pointed out that lack of road connectivity between subdivisions discourages
direct travel routes and impairs access in event of emergencies, but lack of connectivity is also
problem within many of the internal subdivision street networks. In HPP, for example, the
length of blocks between the mauka-makai collector streets is about one mile. This discourages
walking and bicycling to make short trips from one block to another because there are no
pathways that cut through the mile-long block to allow a more direct route. If village centers are
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September 2008
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created within existing subdivisions, which is a central part of the vision of the Puna Community
Development Plan, then there will be more local trips. Consequently, new routes need to be
created within subdivisions to facilitate these shorter trips – not just by vehicle, but also walking
and bicycling. If land pooling is used to create the village center, the same process can be used
to obtain rights-of-way for the new pathways. Alternatively, the subdivision owners’ association
could acquire 10-20 foot wide easements straddling lots line for these passageways, but County
financial and/or legal assistance would probably be necessary to do this.
4.5.1 Goals
a. There are safe walking and bicycling routes to schools, parks and bus stops.
b. There are safe pedestrian crossings on Highways 130 and 11, particularly Highway 130.
c. Puna has a network of contiguous scenic trails between and within subdivisions for
walking, bicycling, and horseback-riding.
d. Village/town centers incorporate walking and bicycling paths.
e. Routes are designated and improved as scenic byways.
4.5.2 Objectives
a. Implement a Safe Routes to School (SR2S) programs for all schools in Puna.
b. Survey, acquire rights-of-way for, and develop historic trails for non-motorized travel,
which may also be used partially as emergency vehicle or evacuation routes, when
needed.
c. Identify and develop improvement plans for scenic byways.
d. Encourage the identification and preservation of historic trails throughout the district.
4.5.3 Actions
a. Request that the State allocate in the State Transportation Improvement Plan (STIP) a
larger share of Federal “flex funds” (i.e., the Section 402 program funds) for projects in
Puna from highway capacity improvements to transit-related and alternative travel mode
improvements, including pedestrian and bicycle safety.
b. Allocate funding to the County Department of Public Works to make improvements such
as sidewalk and crosswalks, traffic signage and acquisition of access easements based on
recommendations of a safe routes to schools/parks assessment. A priority project is the
construction of a walkway/bikeway between Kea‘au Agricultural lots and the Kea‘au
Elementary and High Schools.
c. Invest in walkways, bicycle facilities, “park-once” lots, landscape improvements, themed
signage programs and transit stops in approved village/town centers.
d. Allocate additional funding to the County Police Department to consistently monitor
traffic operations along safe routes to schools/parks and enforce against traffic code
violations.
e. Complete surveys, acquisition of right-of-way, maintenance agreements, planning and
design, and construction for multi-purpose trails, including:
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− Old Volcano Trail, extending between points near Volcano and the Puna Railroad
Bikeway;
− Railroad Avenue (portions of which are known as Railroad Right-of-Way), extending
between points near Kapoho and Panaewa;
− Old Puna Trail (portions of which are known as Old Government Road or Beach
Road), extending between points near Kapoho and Hilo; and
− All coastal trails.
Trails may also be used as emergency access routes, where appropriate.
f. Improve Highway 137 (Red Road) as a scenic corridor by:
− Requiring a 15-foot easement along the frontage of private properties along the
corridor within which native and mature trees of non-invasive species must be
retained, unless they are in poor health due to natural conditions, not due to malicious
acts, and/or pose a threat to public health and safety;
− Preserving Mango, Kamani, and Monkeypod groves and tree tunnels;
− Providing property tax relief to owners who maintain the easement in the manner
intended and State tax credits to those who replant easements with non-invasive plant
material approved by the County;
− Adding interpretive markers and small visitor parking areas at historical sites, such as
the two Kehena sites listed in the General Plan;
− Providing pullouts along the highway at intervals so that travelers can stop to enjoy
the scenery without conflict with traffic in travel lanes;
− Delineating and maintaining physical access to the shoreline at appropriate locations
on the makai side of the road;
− Minimizing tree pruning by using special, shielded cable for overhead utility lines or
by undergrounding sections of the line;
− Minimizing excessive lighting by limiting street lights to major intersections and
informing residents along the corridor about how to reduce illumination of driveways;
− Adding a restroom and emergency phone below Seaview before Kehena Beach;
− Creating a simple walking trail on the lava and new parking area with restrooms on
the State owned accretion land at the new Kaimü Beach;
− Posting warning signs, where appropriate, in newly realigned sections; and
− Covering old section of road with cinder soil to allow Naupaka to reclaim the land.
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Figure 4-1: Proposed Transportation Corridor Improvements
Note: The ovals representing “Street Connectors” in the above map indicate the general areas
where road connections between existing streets in adjoining subdivisions will be located,
subject to a planning, site selection and design process involving the owners and residents of the
affected subdivisions (see Section 4.3.3 a.)
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Chapter 5
IMPLEMENTATION
The County shall create a community-based body to advocate for the implementation of
the actions proposed in this plan. This chapter provides more detailed guidance for the
implementation of key elements of the plan – i.e., strategies for the protection of natural and
cultural features and the formation of village centers as a growth management tool. At the end of
the chapter is a matrix that lists each of the actions set forth in the previous chapters, identifies
the lead and supporting organizations responsible for implementing the action, and the estimated
cost of the action, if it is a major capital improvement.
5.1 NATURAL AND CULTURAL RESOURCE PROTECTION
5.1.1 Biosphere Reserve Buffer Zone (Volcano Area)
Below are suggested provisions for regulating and monitoring uses and activities in the
proposed Biosphere Reserve Buffer Zone (BRBZ) that is described in Section 2.2, Action a.
• Establish standards for maximum land disturbance within the BRBZ, including
building footprints, impervious surface, and clearance of vegetation within setbacks.
rights-of-way or easements for utility lines, roadways, driveways and trails with the
objective of allowing reasonable use of property and structures while not diminishing
the larger goal of protecting the natural resources and ÿOhiÿa canopy of the Biosphere
Reserve Buffer Zone District;
• Develop a system to monitor the ÿOhiÿa forest canopy of the BRBZ to be used as a
measure of success in conservation of the region’s forest resources;
• Adapt and develop a set of economic incentives designed to reduce forest clearance,
reduce the number of developable lots, reduce total development rights within the
BRBZ and transfer development rights within or out of the BRBZ;
• Establish mitigation standards and procedures that provide guidelines for the
restoration and re-planting of recently developed areas, including those that were
disturbed by unauthorized activity;
• Adopt an ordinance that would direct and fund the Public Works Director to
commission a study to identify the flood paths and source areas in the BRBZ, and to
design and recommend ordinance language to implement innovative ways to reduce
the scale and impacts of flooding, including the acquisition of or rights to strategic
vacant, forested lots to use for absorbing floodwaters;
• Establish provisions for “small-footprint” designs for septic tanks to reduce the need
for lot grading;
• Create and appoint a nine-member advisory committee with expertise in the area’s
ecology, natural areas, and history to assist in developing standards, project reviews
and public education programs related to the BRBZ;
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5-2
• Request, via County Council resolution, that the State Department of Land and
Natural Resources (DLNR) consider designating its unencumbered lands near Wright
Road for either Natural Area Reserve or at least Forest Reserve status;
• Amend the General Plan to recognize the purpose and intent of the BRBZ and
acknowledge its role as part of an integrated Federal, State and County strategy to
protect a unique natural resource of global significance; and
• Re-zone agricultural- and residential zoned lots to zoning districts that closely match
their present lot size to discourage further subdivision and development within the
BRBZ.
5.1.2 Revised Grading and Grubbing Controls (District-wide)
Below are suggested revisions to County grading and grubbing regulations to protect
native forests and geological and cultural features.
• Support ongoing vegetation mapping projects to identify areas where good quality
native forest exists. When reliable mapping is available, establish protected areas of
existing good quality native forest where grading, grubbing, and other land clearing
would be limited to reasonably accommodate a homesite, some open areas for yards,
gardens, or landscaping, and driveways, with preservation of a perimeter forested
area. Allow additional clearing only for bona fide agricultural activities, and verify
that agriculture is actually being conducted.
• Support efforts by the State Historic Preservation Division (SHPD) to create a
Geographic Information System (GIS) database of known archaeological and
historical sites. Once the database is available, require implementation of protective
measures, such as fencing, for all grading and grubbing in the vicinity of known sites,
except where prior SHPD authorization has been obtained.
• Require that applications for grading and grubbing permits contain the following
property authorizations and certifications:
− Written authorization of the lot owner and proof of ownership, such as a real
property tax record or deed.
− Certification by a licensed surveyor that: (1) the lot being prepared for
development is the right Tax Map Key (TMK) parcel; (2) the proposed
development area (size) is correct; and (3) all required building setbacks are
outside of the planned site development prior to approval to begin site work.
• Require that yards and native trees at other locations on the site that are designated
for preservation be clearly staked or flagged prior to and during land preparation,
clearing and construction, and that notice of the grading and grubbing work be posted
on the property frontage, visible from the access road.
• Establish stiffer penalties for violations of these grading and grubbing restrictions
than for other types of zoning or grading violations because, while most of the latter
types of violations can be corrected by remedial work, it is difficult to restore cultural
PUNA COMMUNITY DEVELOPMENT PLAN
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sites, unique geological features or native forests, especially the removal of a
significant stand of mature trees.
5.2 VILLAGE/TOWN CENTER FORMATION
5.2.1 Zoning Designations
Village and town centers are expected to include a mix of uses, including small-lot and
higher density residential, retail and office commercial, service-type light industrial, and public
and quasi-public facilities, such as schools, churches and parks.
Some of the proposed centers already contain many of these “urban” uses, and even a
limited amount of zoned area to accommodate expansion of these uses. Other proposed village
centers – namely, those within most of the nonconforming subdivisions – have no urban-type
zoning and little or no existing commercial activity or public facilities. Most of the larger
subdivisions, however, contain community-owned lots that have been designated for community
uses. While these lots provide a potential location for a Village center of suitable size, they lack
the zoning – and usually the infrastructure – to fulfill this potential.
Because the formation of village and town centers is a keystone of the Puna Community
Development Plan’s growth management theme, and many of the proposed village centers
require land assembly and significant infrastructure improvements, the maps defining the
location of the village centers are not meant to imply that the landowner(s) of the affected area
may apply directly for re-zoning in the conventional way. Instead, the following approaches will
be used for the zoning of village/town centers:
• All commercial, light industrial, residential and quasi-public uses within village
centers shall be authorized under the “floating zone” method; i.e., where the village
center zoning district is defined in zoning code, but is not applied to a specific parcel
or group of parcels until an application is made for approval of the zoning map by the
County.
• The village/town center floating zone may supersede existing zoning designations,
provided that the uses are located within the areas designated as village center.
• The floating zone may also allow mixed use within a building and establish special,
place-appropriate development and design standards, including for public facilities.
• If the village center site is on land that is owned by an entity that owns at least 50
acres of land elsewhere in Puna, the intensity of uses in the village/town center may
be augmented by the amount of development potential that is transferred from nearby
agricultural-zoned and residential-zoned properties that lie outside of the designated
village center. Development potential will be measured by “Potential Dwelling
Units” (PDUs); i.e., the number of dwelling units that could be developed on the
agricultural-zoned or residential-zoned land under its zoning classification, as
determined by minimum allowable lot area, assuming one dwelling per lot.
IMPLEMENTATION
5-4
• More intensive residential development, including multi-family dwellings, within and
in the immediate vicinity of village/town centers may be allowed by the transfer of
development rights from other areas using a variety of mechanisms, including the
process described above, land pooling, planned unit development and development
agreements.
• Public and quasi-public uses, such as schools, churches and community centers, may
be developed within village centers without the transfer of PDUs. The development
of such uses outside of a village center by Special Permit will be discouraged, unless
there is a compelling reason to locate the facility in an outlying area due to its
particular characteristics or circumstances.
• Existing buildings with existing commercial, industrial and residential zones in
village/town centers may be repaired, replaced or expanded without a floating zone
review procedure. However, vacant parcels and new buildings within these zoning
districts will require review for compliance with the applicable floating zone
standards.
5.2.2 Criteria for Proposed Locations and Boundaries
The Puna Community Development Plan (PCDP) defines three types of centers –
regional, community, and neighborhood – which differ in size and range of uses according to
their intended function (see Table 5-1.)
The maps toward the end of this chapter indicate the suggested locations for the village
centers in greater detail, based on the following criteria:
• Size of the village/town center according to its intended type and purpose. Land areas
need to be large enough to accommodate their intended purpose. Regional Town
Centers are estimated to require more than 30 acres of commercial land use;
Community Village Centers an estimated 10 to 30 acres; and Neighborhood Village
Centers about 5 to 10 acres. In addition, there should be land available for
community and residential uses within the village center.
• Urban zoning and/or uses of an urban character. A State Urban District designation,
existing commercial and/or residential zoning, and the visible presence of built form
sometimes indicate at least an embryonic form of a village center. Within some of
the non-conforming subdivisions, however, these conditions are lacking or minimal.
• Public uses or facilities, especially those that people frequently visit. Where possible,
village centers should either encompass or be located adjacent to existing community
facilities such as churches, schools, parks, and community centers to promote
convenient walking, bicycling and transit access to these uses.
• Consistency with an applicable community-based plan. The locations of proposed
centers in Volcano, Orchidland and Hawaiian Paradise Park were identified in plans
that were prepared by their respective community associations.
PUNA COMMUNITY DEVELOPMENT PLAN
September 2008
5-5
• Land owned by a community or subdivision association. Several subdivisions and
communities have land that is owned by either a community association or the
County that offers an opportunity to develop and use as part of a center.
• Availability of vacant private lots for development of clustered housing or new
pathways. Groups of adjacent vacant lots in nonconforming subdivisions may
sometimes be incorporated into a potential village center or be used to create
improved access to the village center from surrounding lots. The use of vacant lots
minimizes the displacement of homeowners and reduces complications in land
assembly.
• Ease of access to village center from surrounding populated areas. Village and town
centers should have convenient to access to travel routes. The larger town centers
generally need to be located near, but not necessarily directly on, highways. Smaller
village centers may be located at some distance from highways, but there should be
convenient walking and bicycling, as well as driving, routes to the village center for
the people living in the communities that the village centers support.
The maps shown in this chapter are not meant to be precise or strictly interpreted, but
rather as guidelines for reviewing the requests for village center floating zone designation, at
which time the boundaries will be fixed.
5.2.3 Use and Design Standards
Land uses, design themes and architectural and site design standards for each
village/town center will be determined through the floating zone site approval process. Table 5-
1 provides guidance on the scale, uses, and general site and design characteristics for three types
of town/village centers.
Some existing locations are proposed for possible Special Design District treatment, as
noted in Section 2.1.3, Action b. A Special Design District would provide more detailed design
guidance on the development of village centers that exhibit historic development patterns that
define a unique “sense of place.” The strongest candidates for Special Design District
designation in Puna, in relative order, are:
• Volcano Village presently has a small, legally recognized historic district.
According to a 1993 inventory by the Hawai‘i State Historic Division, Volcano has
a high concentration of historic structures, mostly residential dwellings. Most of
these are outside of the designated historic district. The inventory can serve as a
basis for establishing both the boundaries of the Special Design District and the
design parameters for development within it.6 A major decision to make, with the
involvement of affected property owners and residents, is the extent to which the
demolition, renovation and addition to existing historic dwellings will be
controlled by design standards, and what those standards will be. In addition
design standards for new developments need to be identified and described.
6 Boone Morrison Architects, Inc., for the Department of Land and Natural Resources, Historic Preservation
Division, Volcano Village Historic Building Inventory, 1993.
IMPLEMENTATION
5-6
Landscape standards are also appropriate for Volcano, although issues related to
lot clearance could also be addressed in regulatory controls other than the
Special Design District.
• Pähoa Town has a main street – the former highway route before the
construction of the by-pass road – that still retains much of the original
streetwall of plantation-era structures, as well as some significant stand-alone
buildings. Most of the uses are commercial or civic. There has been no historic
structure inventory on the scale or level of detail as the Volcano inventory. Some
of the older buildings in Pähoa appear to be in deteriorated physical condition.
Also, Pähoa does not enjoy the same level of prosperity as Volcano, so a low-
interest loan program for businesses and building owners would probably be
needed to complement a Special Design District. The County has acquired a
large tract of land within Pähoa Town, which presents a significant opportunity
for community revitalization and a possible catalyst for economic activity.
• Kea‘au Town also has roots as a plantation town, but has lost many of the
buildings and other physical features of that era. Nevertheless, it retains some
of the character of an older rural town with the informal arrangement of
buildings and scale, roof forms, exterior materials and colors of buildings. It also
includes some notable landscape features, including mature canopy trees and the
line of towering roadside palms between Ola‘a Community Center and Kea‘au
High School. As noted earlier, since most of the land in Kea‘au is held by a
single owner (Shipman Estate), there is an opportunity to carry an integrated
design theme throughout the town without necessarily adopting a Special Design
District. The landowner has retained planning and design consultants who are
presently engaged in developing design guidelines.
• Mountain View-to-Kurtistown is a corridor that includes small settlements dating
from plantation days and earlier that have been historically connected to Volcano and
Keaÿau by transport routes. There are still some buildings and small areas where
there is evidence of an historic development pattern. A limitation is that
Highway 11 bisects Mountain View, which makes it difficult to preserve the
design integrity of an older settlement. The more generic design guidelines for
Community Village Centers, in addition to some direct measures – such as
relocating Mountain View Elementary School away for the highway, as
recommended by one of the Working Groups – may be a more effective strategy
for this corridor than Special Design District designation.
PUNA COMMUNITY DEVELOPMENT PLAN
September 2008
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Table 5-1
General Use and Design Criteria by Village/Town Center Type
Regional Town Center Community Village Center Neighborhood Village Center
Service Area
Population 20,000 to 50,000 residents 7,000 to 15,000residents 3,000 to 6,000 residents
Typical Uses
More than 40 tenant spaces
for full range of retail and
personal services, repair
shops and other light
industrial uses
20 to 40 small tenant spaces
for retail and personal
services, repair shops
5 to15 small tenant spaces
for convenience retail and
personal services
Commercial
Land Area More than 30 acres 10-30 acres Up to 10 acres
Commercial
Floor Area
Up to 250,000 square feet
aggregate, but no tenant
spaces larger than 50,000
square feet.
Up to 150,000 square feet
aggregate, but no tenant
spaces larger than 25,000
square feet.
Up to 50,000 square feet
Other Uses
Regional park; schools (all
grades); community hall,
theater; outdoor events area;
bed-and-breakfast homes
and small inns; elderly or
other special needs housing;
transit hub; medical facility
with emergency room;
police and fire station;
walking and bicycling paths.
Community park, elementary
or middle school,
community center and
outdoor events area; bed-
and-breakfast homes and
small inns; elderly or other
special needs housing; transit
stop; medical clinic; walking
and bicycling paths.
Neighborhood park,
elementary school, multi-
purpose meeting room or
(minimum) place to
congregate or post
community notices; outdoor
events area (e.g., barbeques
and farmer’s markets); small
bed-and-breakfast homes;
transit (or paratransit) stop;
connections to walking and
bicycling paths.
Design
Character
Vernacular architecture that
respects the historic context
and scale of the community;
light industrial uses on
periphery to avoid building
forms or activities that
conflict with the pedestrian-
oriented character in the
Town Center core; small
repair shops in Town Center
core subject to
performance/design criteria.
Informal, vernacular
architecture that utilizes
natural exterior materials and
earth-tone colors and
respects the context and
scale of the community,
especially where historic
structures are present, such
as in Volcano Village and
the older area of Mountain
View.
Informal, vernacular
architecture that is small in
scale and reflects a rural
residential ambience, using
natural exterior materials and
earth-tone colors.
Access
Access to one or more paved
roads; commercial or public
uses without direct driveway
access to Highway 11 or
Highway 130.
Access to one or more paved
roads; commercial or public
uses without direct driveway
access to Highway 11 or
Highway 130; no “drive-
thru” commercial use.
Access to a paved road,
except that there should be
no direct access or visibility
from either Highway 11 or
Highway 130; no “drive-
thru” commercial use.
IMPLEMENTATION
5-8
Kea‘au Regional Town Center
The Kea‘au Town Center consists of two parts. The area bounded by Highway 11 and
the Highway 130 By-Pass, including the original plantation village, for uses that are oriented
primarily to residents of the Kea‘au community itself. The exceptions are the middle and high
school and the post office next to Kea‘au Shopping Center, which are region-serving facilities.
Most uses of a regional orientation – e.g., Shipman Park, the areas already zoned for commercial
and light industrial uses, and proposed new police, fire, transit, and medical facilities – are to be
located north of Highway 11 to provide convenient vehicular access.
The area designated for community-oriented use is 597 acres, approximately 24% of
which has been zoned and/or developed for commercial, residential and public/quasi-public use.
The area for region-oriented uses covers 331 acres, approximately 50% of which is now zoned or
developed for commercial, industrial or public use. Nearly all of the designated village center is
within the State Urban District.
There is no community-based plan for Kea‘au, but the principal landowner, Shipman
Estate, has a master plan that indicates not only the development of the area within the
designated village center, but, in the long-term, much of their land beyond. Control of most of
the land by a single owner facilitates the planning and development of the proposed village
center.
Figure 5-1: Kea`au Regional Town Center
PUNA COMMUNITY DEVELOPMENT PLAN
September 2008
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Pähoa Regional Town Center
Like Keaÿau, Pähoa’s village center is divided into two parts. The northern portion
straddling Highway 130 at the intersection with the Bypass Road is intended for regional uses
and services – e.g., areas already zoned for commercial and light industrial uses; proposed new
police, fire, and ambulance facilities; and a proposed transit hub. The area straddling Pähoa
Village Road from ÿApaÿa Street to the intersection of Kapoho Road and Pähoa-Kalapana Road,
is intended to contain uses that are oriented primarily to residents of the Pähoa community itself.
The exceptions are the post office in the center of town and the intermediate and high school at
the southern tip of town, which are region-serving facilities.
The area designated for community-oriented use is 280 acres, approximately 66% of
which has been zoned and/or developed for commercial, residential and public/quasi-public use.
The area for region-oriented uses covers 78 acres, approximately 16% of which is now zoned or
developed for commercial, industrial or public use. Nearly all of the designated village center is
within the State Urban District.
The County has recently acquired a 50 acre parcel near the center of town, which presents
a good opportunity to expand the regional park and provide other facilities to stimulate the
development of the town core.
Figure 5-2: Pāhoa Regional Town Center
IMPLEMENTATION
5-10
Hawaiian Paradise Park Regional Town Center and Village Centers
Hawaiian Paradise Park contains 8,804 parcels; 99% of which are 1 acre or less in size.
The subdivision is also developing at a relatively rapid rate because of its proximity to Hilo and
affordability of parcels. Six 40-acre areas of land were set aside by the original subdivider for
potential future community and commercial uses. Three of these 40-acre areas have been
identified for development as a town or village center. The sites are distributed in a triangular
pattern to optimize their accessibility throughout the subdivision. All are adjacent to one of the
principal mauka-makai streets in the subdivision.
The site closest to Highway 130 is designated as a Regional Town Center, primarily
because of the high rate of growth in this quadrant of the subdivision. Land pooling and transfer
of development rights to encourage a greater clustering of residential use near this town center is
encouraged. The other two sites are designated for the development of a Community and
Neighborhood Village Center. The latter is 20 acres in size.
The intention in the future is to have all service and community uses located within
either the town center or one of the two village centers to reserve outlying properties for
residential and agricultural use, create activity centers for community and commercial uses, and
to promote greater efficiency in travel and infrastructure development.
Figure 5-3: Hawaiian Paradise Park Regional Town Center and Village Centers
PUNA COMMUNITY DEVELOPMENT PLAN
September 2008
5-11
Volcano Community Village Center
As suggested by the Volcano Community Association, the village center in Volcano is
split into two locations. The larger of the two sites, along the Old Volcano Highway between
Haunani Road and Wright Road, is within the historic core of Volcano. It is roughly 43 acres
and entirely within the State Urban District. Portions of this site have County commercial
zoning, but the community association’s Vision 2020 Update proposes the creation of a Rural
Commercial (CR) district with specific design guidelines to respect Volcano’s historic character.
The description of the CR zoning resembles the criteria for a village center.
The second, and smaller, portion of the village center would be at a presently
undeveloped site on the other side of Highway 11 between the Maunaloa Estates and Ohia
Estates subdivisions. This portion of the village center is intended for more service-oriented
businesses. While this site does not contain historic structures, businesses should not be
prominently visible or have direct vehicular access to Highway 11. Instead, access to the second
portion of the village center would be via a parallel right-of-way remnant of the Old Volcano
Highway.
Figure 5-4: Volcano Community Village Center
IMPLEMENTATION
5-12
Mountain View Community Village Center
Mountain View already has a commercial-zoned area of more than 3 acres, so its village
center is focused on this existing core. The area shown for the village center in the map below is
approximately 85 acres and encompasses the existing elementary school, community park,
Historical Mountain View Theater, A.J. Wyatt Gym and some relatively small residential lots, as
well as the commercial core.
Highway 11 runs through the village center, providing access from the east and west.
Lauko Road runs perpendicular to Highway 11, with the intersection near the middle of the
village center. Measures to make crossing Highway 11 safer in this area should be considered,
such as a bypass route or signal-controlled crosswalk.
Some have proposed the relocation of Mountain View Elementary School so that the
facility can be converted into a senior community center. Ideally, the new school location would
be closer to the community park, gym, and small-lot residential area. Having the school closer to
the gym and park, would make the community more walkable, with more convenient and safer
access for frequent users.
Figure 5-5: Mountain View Community Village Center
Kurtistown Community Village Center
The Kurtistown Community Village Center, which is aligned along Highway 11,
encompasses approximately 35 acres. Approximately 15 acres or 44% of the area is already
PUNA COMMUNITY DEVELOPMENT PLAN
September 2008
5-13
developed. Roughly half of the designated area lies within the State Urban District A little
more than 15 acres is zoned for residential use and is occupied by single family dwellings.
Approximately 9.5 acres is zoned for commercial use. The largest parcel, at nearly 7 acres, is
owned by the County. As part of the village plan, a controlled crosswalk or a by-pass route
should be considered in order to make it safer and more convenient to cross Highway 11.
Figure 5-6: Kurtistown Community Village Center
‘Äinaloa Neighborhood Village Center
The ‘Äinaloa Community Association owns three 8.25-acre sites distributed evenly
throughout the subdivision. Two of the sites are vacant. The most central of these is suggested
as the site for the village center. The site consists of two parcels – one 5.5 acres and the other
2.75 acres – separated by a road. The typical lot size in the subdivision is 0.275 acres. All of the
lots immediately surrounding the proposed village center are vacant, so the village center could
conceivably be expanded without displacing homeowners.
Primary access to the village center would be Tree Fern Drive, Ginger Lane, and
Rainbow Drive. These streets, like all the others in ‘Äinaloa, provide access to the center of the
subdivision from the two main paved roads that span the outside edges of the subdivision.
IMPLEMENTATION
5-14
As part of the formation of the village center, it would be useful to consider the creation
of a pedestrian way that could also be used for bicycles to provide better access to the village
center. The potential alignment is illustrated in the map below. The pedestrian way could be
created by acquiring a 5-foot to 10-foot wide easement from properties along their common
boundaries.
Figure 5-7: `Āinaloa Neighborhood Village Center
Hawaiian Beaches Neighborhood Village Center
The Hawaiian Shores Community Association owns nearly 12 acres at the entrance to the
subdivision across the street from the Keonepoko Elementary School. The largest of the
association's parcels already contains a 2,304 square foot building, presumably used as a
community center. The combined area is suitably sized and situated for a village center. Access
to the center would be provided along A‘ama Street, Kahakai Boulevard, and Naha Wele. Four
vacant parcels across A‘ama Street totaling 2.19 acres could be acquired for expansion of the
village center. The entire site is within the State Urban District.
PUNA COMMUNITY DEVELOPMENT PLAN
September 2008
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Figure 5-8: Hawaiian Beaches Neighborhood Village Center
Orchidland Neighborhood Village Center
The Orchidland neighborhood village center location was identified by the community
association to be “located along Orchidland Drive from Highway 130 to halfway between 34th
and 35th Avenues”, which encompasses 15 parcels and an area of about 16 acres. The area is
outside the State Urban District.
Figure 5-9: Orchidland Neighborhood Village Center
IMPLEMENTATION
5-16
Nanawale Neighborhood Village Center
The Nanawale Community Association owns a 23.23-acre vacant parcel at the center of
the subdivision that is adequate to serve as a neighborhood village center.
Access to the parcel is provided for on all four sides of the parcel. The only special use
permitted within the subdivision is a church/school facility located in the northwest corner of the
subdivision. The majority of parcels within the subdivision are less than a quarter acre in size.
The road network through the subdivision is extensive making the proposed village center
accessible and convenient. The proposed village center lies within the State Urban District.
Figure 5-10: Nanawale Neighborhood Village Center
PUNA COMMUNITY DEVELOPMENT PLAN
September 2008
5-17
5.3 IMPLEMENTATION TABLE
The Implementation Table on the following pages identifies, for each of the proposed
actions in the Puna Community Development Plan, the organization(s) responsible for taking the
lead or supporting role for implementation, the projected timeframe for implementation, and the
estimated cost, in 2007 dollars, of implementing the action, if it is a major capital improvement
project. In some cases, the cost could not be determined until further planning work and
feasibility study has been completed to better define the scope of the project. Those instances
are noted by “TBD” (to be determined.) A key to the organizations referenced in the table is
below. Where organizations are co-equal partners in a role, they are separated by a comma.
Where one has relatively greater responsibility or authority, they are separated by a diagonal line.
When implementing the actions listed in the following table, the Working Group and
Working Paper report that addresses the relevant topic(s) shall be considered as a reference to
provide greater specificity on the location, description and intention of the proposed action.
Key to Acronyms in Implementation Table
BD County of Hawai'i Building Department
CA Community Association (or subdivision homeowners’ association)
CC County of Hawaii Corporation Counsel
COU County of Hawaii Council
DBEDT State of Hawai'i Department of Business, Economic Development & Tourism
DHHL State of Hawai'i Department of Hawaiian Home Lands
DLNR State of Hawai'i Department of Land and Natural Resources
DOE State of Hawai'i Department of Education
DOT State of Hawaii Department of Transportation
DPW County of Hawai'i Department of Public Works
DWS County of Hawai'i Department of Water Supply
EMPL Employers (referring to large institutions)
FED Federal agencies (various, depending on function)
FIN County of Hawai'i Department of Finance
HCC Hawaii Community College
HELCO Hawaii Electric Light Company
HFD County of Hawai'i Department of Public Works-Building Division
HFDC Hawaii Housing Finance & Development Corporation
HPD County of Hawai'i Police Department
DEM County of Hawaii Department of Environmental Management
DPR County of Hawaii Department of Parks and Recreation
LEG Hawaii State Legislature
MTA County of Hawai'i Mass Transit Agency
NGO Non-governmental organization (non-profit community association, etc.)
OHCD County of Hawaii Office of Housing & Community Development
PD County of Hawai'i Planning Department
PUC State of Hawai'i Public Utilities Commission
R&D County of Hawai'i Department of Research and Development
UH University of Hawaii at Hilo
IMPLEMENTATION
5-18
Responsibility Timetable Est. Cost
Section Action Item Lead Supporting 2008-12 2013-17 2018-30 $1,000 (2007)
MÄLAMA I KA ‘ÄINA
2.1.3 Historic, Cultural, and Scenic Resources
(A) Establish a county historic preservation commission COU PD X
(B)
Initiate Special Design District designations for the following
areas:
– Volcano Village PD COU X
– Pãhoa Town PD COU X
– Kea‘au Town PD COU X
– Kurtistown-Mountain View corridor PD COU X
(C) Amend the county building code for traditional Hawaiian
building design and construction methods DB COU/PD X
(D) Amend the county grading ordinance to require consultation
with the Historic Preservation Division and County Historic
Preservation Commission
COU PDW/PD X
2.2.3 Native Forests and Geological Features
(A) Enact a BRBZ Design District COU PD/DPW X
(B) Amend County code to protect native species, geological
and historic features outside of the BRBZ COU DPW/PD X
(C) Establish an office of County Ecologist within the Planning
Department COU PD X
(D) Provide County support for forest preservation by offering
real property tax reductions and contributing land COU FIN,DPW X X X
(E) Reduce the minimum lot size to qualify for the native forest
preservation tax reduction and allow it in any zoning district COU FIN X
(F) Investigate alternatives to herbicides for weed control on
public lands DOT,DPW DOE, DPR,DLNR X
2.3.3 Aquifers and Coastal Waters
(A) Encourage State legislation to prohibit the use of cesspools
as a means for wastewater disposal in areas below 1,000
feet Mean Sea Level
LEG DOH/DLNR X
(B) Seek state Department of Health acceptance of small-
footprint septic wastewater treatment designs and clustered
septic systems
LEG DOH X
(C) Prepare watershed management plans for the Volcano-to-
Mountain View and Hawaiian Acres-to-Orchidland areas to
address localized flooding problems
DPW DW/PD X
(D) Ensure that a corridor of the Puna watershed at least two
miles wide between Wao Kele O Puna forest area and the
ocean is preserved for future potable water use
LEG DOH/DLNR X
(E) Require blackwater wastewater disposal systems to be
contained or connected to a collection system in areas
below 100 feet Mean Sea Level
PD DOH, DPW, DEM X
2.4.3 Shoreline Area
(A) Expand and improve database, references and skills at
County level to review shoreline permit applications PD UH,DBEDT,FED X
(B) Research and record information on trails and historic
resources DLNR PD X
(C) Conduct historic and biological surveys for review of
shoreline permit applications and certifications and prohibit
SMA permits for subdivision of properties likely to be
PD,DLNR NGO X
PUNA COMMUNITY DEVELOPMENT PLAN
September 2008
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Responsibility Timetable Est. Cost
Section Action Item Lead Supporting 2008-12 2013-17 2018-30 $1,000 (2007)
underwater in 100 years
(D) Take into account subsidence and storm waves in shoreline
certifications DLNR PD X
(E) Study storm wave and high tide patterns to develop refined
coastal flood zone maps FED,UH,DLNR DPW X
(F) Implement special zoning and development controls for
Kapoho area to address subsidence issues PD UH,DBEDT,FED X
MANAGING GROWTH
3.1.3 Land Use Pattern
(A) Adopt enabling legislation for a transfer of development
rights program COU CC X
(B) Provide county support for land use entitlements and land
assembly for voluntary land pooling projects by:
– Creating a "floating zone" in the County zoning code PD CA X
– Initiating a special use permit request or petition for land use
boundary amendment PD LUC X X
– Seeking amendment to State Land Use Law to enable "rural
town/village" standards PD LUC X
– Seeking State enabling legislation to allow County to retain
lots delinquent in real property taxes PD FIN X
– Extending technical assistance and advice to community-
based land pooling associations CC, FIN NGOs X X X
(C) Establish the following general classifications for village and
town centers: Regional, Community and Neighborhood PD CA X
(D) Facilitate land use entitlements and other tools for the
development of existing and future village/town centers and
special design districts by:
– Approving commercial zoning or use permits for existing
commercial uses in designated village/town centers PD COU X
– Denying zone changes for commercial or light industrial use
on sites that are not within designated village/town centers PD COU X X X
(E) Facilitate land use entitlements and financing for the
development of new village/town centers by:
– Creating a “floating zone” classification for new village/town
centers PD CA X
– Providing loan guarantees or grants to community
associations or partnerships for infrastructure development COU FIN X X
(F) Amend the zoning code and/or apply district-wide rezoning
to limit allowable building footprint on residential and
agricultural-zoned lands
COU PD X
(G) Require County agencies to establish and report on Level of
Service standards for infrastructure and services COU PD,DPW,HFD,HPD,
DWS,DPR X X X
(H) Urge the Department of Hawaiian Home Lands (DHHL) to
conform to the goals and objectives of the PCDP COU/LEG DHHL X
(I) Consider fixing the real property tax assessments of
voluntarily enrolled property owners COU FIN X
(J) Conduct study on the impacts from subdivision build-out PD DLNR, DW X
(K) Require wider notice of pending applications for special
permits, variances and zoning changes
PD COU X
IMPLEMENTATION
5-20
Responsibility Timetable Est. Cost
Section Action Item Lead Supporting 2008-12 2013-17 2018-30 $1,000 (2007)
3.2.3 Agriculture and Economic Development
(A) Limit water system and road standard variances for new
subdivisions on agricultural-zoned land PD COU X
(B) Initiate down-rezoning of lands in Agricultural zoning districts
to discourage further subdivision into small lots PD COU X
(C) Rescind Urban Expansion Areas on the LUPAG, except
where they correspond to designated village centers COU PD X
(D) Seek State legislation to impose higher conveyance and/or
capital gains taxes on short-term property re-sales LEG FIN X
(E) Seek state legislation to allow the county to hold onto
properties that are in foreclosure due to property taxes in
arrears rather than immediately auctioning them to the
highest bidder
PD FIN X
(F) Provide land and infrastructure for farmers’ markets within
village/town centers R&D DPW X X
(G) Seek State authorized lower General Excise Tax rate on
local agricultural products sold at County farmers markets LEG R&D X
(H) Develop an agri/eco-tourism policy, necessary zoning and
other County assistance farmers markets, special events,
restaurants specializing in local food products, and similar
promotions of local agriculture
R&D PD X
(I) Develop business incubator districts in Kea'au, Pähoa, and
Mountain View R&D DBEDT/DP X X
(J) Promote use of the incentives offered by the designation of
an Enterprise Zone R&D DBEDT X X X
(K) Support the HCC-The Bay Clinic partnership to establish a
youth business center in Kea'au UH, NGO DBEDT, R&D X
(L) Support the development of a community-based organic
farming operation and training facility in cooperation with UH UH R&D X
(M) Develop job opportunities in Puna in renewable energy
generation R&D DBEDT X X
(N) Conduct a study to define and identify important agricultural
lands in Puna PD R&D X
(O) Create a fund to purchase or receive identified important
agricultural lands R&D FIN X
(P) Create a real property tax exemption (perhaps 4 to 6 years)
for farmers entitled to Federal crop loss insurance COU FIN X
(R) Encourage organic farming and gardening by establishing a
Puna agriculture scholarship with HCC and UH Hilo
UH LEG/COU X X X
3.3.3 Social Services and Housing
(A) Develop a centrally located full-service medical facility
based on a non-profit model NGO LEG/DOH X X X
(B) Establish “one-stop" social services assistance centers at
various locations NGOs DSSH, OHCD X X
(C) Build partnerships between the County and non-profit
organizations for social services and economic development COU NGO,OHCD,R&D X X X
(D) Seek State enabling legislation to help lower self-help
housing construction costs LEG COU/OHCD, DB X
(E) Offer educational programs to develop financial skills of OHCD HFDC X X X
PUNA COMMUNITY DEVELOPMENT PLAN
September 2008
5-21
Responsibility Timetable Est. Cost
Section Action Item Lead Supporting 2008-12 2013-17 2018-30 $1,000 (2007)
renters and rental strategies for owners and tenants
(F) Sponsor programs to increase homeownership opportunities OHCD HFDC X X X
(G) Promote multi-family and special needs housing in
village/town centers HFDC/OHCD PD X X X
(H) Provide low-interest, sliding-scale loans for housing repair
and renovation OHCD COU X X
(I) Amend building code to allow occupancy of residential
dwelling before final inspection COU BD X
(J) Urge the State to increase local control over public schools LEG COU X X
3.4.3 Public Safety and Sanitation Services
(A) Develop permanent fire stations at, Hawaiian
Beaches/Shores, Hawaiian Paradise Park, lower Volcano,
and Mt. View
COU HFD X X
(B) Provide additional volunteer stations in subdivisions as sites
become available and growth warrants HFD NGOs X X X
(C) Provide free wireless internet services COU,LEG FED X X
(D) Provide more emergency call boxes along State highways DOT X
(E) Encourage enhancement of cell phone service to cover
remote areas LEG PUC X
(F) Boost Department of Environmental Management recycling
budget COU DEM X X X
(G) Relocate Kea‘au and Pãhoa solid waste transfer stations DEM X
(H) Increase County resources to handle abandoned/derelict car
removal COU DEM X X X
(I) Provide public financial support for infrastructure
development within approved village/town centers COU/FED DEM, DW X X
3.5.3 Parks and Recreation
(A) Consider expanding the Camp Ground at MacKenzie State
Park to include public property south of MacKenzie DLNR DPR X 450
(B) Improve and expand Coastal Activity Areas as follows:
– Ahalanui Beach Park DPR COU X 925
– Consider modifications to tidepools beyond “Shacks” for use
as “keiki pools” DLNR X 185
– Pursue development of a camp ground and/or ocean
recreation park with potential boat launch ramp and marina
facilities at Cape Kumukahi
DLNR LEG X TBD
– Consider acquisition and development of Honolulu Landing,
Kapoho Crater and Sand Hill
DLNR, DPR,
COU DPR, DLNR X TBD
– Develop support facilities for Kehana Beach State Park DLNR DPR X TBD
– Encourage development of hike/camp coastal trail system DLNR, DPR NGO X TBD
(C) Improve and expand Community Parks as follows:
– Develop new community parks in Hawaiian Acres,
Glenwood, Nanawale Estates, Leilani Estates, Orchidland
Estates, and Hawaiian Beaches subdivision
DPR COU X TBD
– Various improvements to Pahoa Regional Park DPR COU X X X 3,750
– Various improvements to Shipman (Kea‘au) Regional Park DPR COU X X X 3,300
– New regional park and various improvements at Hawaiian
Paradise Park DPR COU X X X 9,400
– Develop recreational programs for Cooper Center and
Volcano Community Park DPR COU X
IMPLEMENTATION
5-22
Responsibility Timetable Est. Cost
Section Action Item Lead Supporting 2008-12 2013-17 2018-30 $1,000 (2007)
– Provide improvements at Mountain View Community Park
and A. J. Watt Gym DPR COU X 185
– Expand hours of operation at regional and larger community
parks DPR COU X
– Develop a new senior center in Mountain View DPR OHCD X 185
– Provide in each village center a recreational park and village
green DPR,NGOs COU X X TBD
– Make recreation facilities and meeting rooms at public
schools available for community use after school hours DOE DPR,NGOs X
– Create small community parks as part of right-of-way
acquisition for new connecting road segments between
subdivisions
DPW NGOs X X
(D) Create and improve Linear Parks as follows:
– When acquiring rights-of-way for constructing new roadways
or improving existing major roadways, make provisions for
parallel multi-use recreational trails
DPW,DOT COU X X
– Complete development of Old Volcano Trail as a pedestrian
and cycle pathway DPW COU X
– Acquire former railroad right-of-way from Kapoho through
Hawaiian Paradise Park for hiking, bicycling and horse-back
riding
DPW DLNR X
– Plan for acquisition and development of the former railroad
right-of-way from Hawaiian Paradise Park to Railroad
Avenue in Hilo
DPW DLNR X
– Plan for public access along Old Government Road (coastal
trail) as a bicycle and hiking trail DLNR DPW X
(E) Create and improve Preserves as follows:
– Assess appropriate level of site visitor usage and implement
self-guided or steward-led tours DLNR DPR X
– Improve conditions at Wai‘ıpae Tidepools DLNR LEG X 600
– Consider acquiring Green Lake and vicinity for native habitat
restoration and nature center DLNR LEG X TBD
– Consider hiking trails through Nanawale Forest Reserve DLNR X 300
– Pursue development of passive cultural/botanical park in
Hawaiian Paradise Park DLNR DPR X TBD
3.6.3 Energy Sustainability
(A) Apply LEED standards for public buildings, with a minimum
goal of silver level BD COU X
(B) Investigate ground-water cooling for public buildings DBEDT DPW X
(C) Require energy efficiency standards for larger residences BD COU X X
(D) Incorporate energy-efficient features into the construction of
lower-cost homes with the use of public subsidies OHCD,HFDC PUC X X X
(E) Establish a Renewable Energy Research & Development
fund with UH-Hilo UH DBEDT/R&D
(F) Apply the PUC Public Benefits Fund to retrofit dwellings for
alternative energy, with sliding scale to reach low-income
households
PUC COU,OHCD X X X
(G) Negotiate a direct use of geothermal agreement for
agricultural uses as part of any expansion of the capacity of
the Puna Geothermal Venture plant
HELCO,PUC R&D X
PUNA COMMUNITY DEVELOPMENT PLAN
September 2008
5-23
Responsibility Timetable Est. Cost
Section Action Item Lead Supporting 2008-12 2013-17 2018-30 $1,000 (2007)
(H) Promote biomass energy and fuel production using wood
chips from exotic trees PUC DBEDT,R&D X X X
(I) Pursue new renewable energy sources (OTEC, wave
energy, solar capture) as technology advances PUC DBEDT,R&D X X
– Pursue and ocean energy or enterprise subzone R&D DBEDT,PD X
– Pursue other applications besides energy capture (e.g.,
aquaculture and agricultural product washing) R&D DBEDT X X
TRANSPORTATION
4.1.3 Traffic Demand Management
(A) Promote VanPool and ride-sharing alternatives more
actively DOT R&D,EMPL X
(B) Promote staggered work hours and telecommuting with
major employers and institutions COU,UH EMPL X
(C) Facilitate telecommuting by developing free Wi-Fi reception
in Puna COU,LEG FED X X TBD
4.2.3 Mass Transit
(A) Prepare a county-wide Transit Master Plan MTA FED TBD
(B) Improve transit service operations by: MTA FED
– Increasing transit service to a minimum of two additional
runs during peak hours MTA FED X 1,200
– Establish demand responsive transit in subdivisions MTA FED X TBD
– Provide commuter express bus service from Pahoa to Hilo
and Volcano to Hilo MTA FED X TBD
– Establish a hub-and-spoke transit system MTA FED X TBD
(C) Develop transit hubs at the following locations:
– Kea‘au (Primary Hub) MTA FED X TBD
– Pähoa (Secondary Hub) MTA FED X
– Volcano (Secondary Hub) MTA FED X
– Mountain View (Secondary Hub) MTA FED X
(D) Provide park-and-ride lots at transit hubs and HPP MTA FED X X
(E) Provide express bus service for commuters from Pahoa to
Hilo and Volcano to Hilo MTA FED X
(F) Develop a cooperative program with public and private
schools to provide student passes for the Hele-On Bus MTA DOE,LEG,NGOs X
(G) Launch public education campaign promoting transit
services MTA NGOs X X X
(H) Cultivate public/private partnerships, such as employer-
sponsored bus passes MTA NGOs, EMPL X X X
(I) Expand MTA staff to provide greater support for transit
operations COU FIN,MTA X X
(J) Investigate other fare/ticketing incentives to increase
ridership MTA FED X
(K) Work with DOT in creating safe pedestrian conditions for
using mass transit MTA DOT X X
4.3.3 Roadway Network
(A) Short Term (2008-2012)
– Plan and design PMAR alignment DPW DOT X
– Require building setbacks in HPP for potential PMAR
extension PD DPW X
– Establish emergency routes using mostly existing road beds DPW NGOs X
IMPLEMENTATION
5-24
Responsibility Timetable Est. Cost
Section Action Item Lead Supporting 2008-12 2013-17 2018-30 $1,000 (2007)
– Include pedestrian and bicycling requirements in all projects DPW NGOs X
– Create connectivity alignments between various
subdivisions DPW NGOs X
(B) Medium Term (2012-2017)
– Construct a two-lane roadway between Kaloli Dr and Kea’au DPW NGO X 19,200
– Construct unpaved two-lane roadway between Kahakai Blvd
and HPP DPW DLNR,NGO X 4,400
– Construct a two-lane roadway from Nanawale to Kahakai
Blvd DPW NGO X 4,000
– Study need/feasibility of Pahoa-Hwy 11 and Hwy 11-
Stainback Highway alternative routes DPW DOT X
(C) Long Term (2017-2030)
– Construct Phase II segments of PMAR DPW DOT X 33,500
– Acquire additional right-of-way through HPP to extend
PMAR DPW DOT X 1,700
– If traffic demands, construct PMAR extension through HPP
to connect to Kahakai Boulevard DPW DOT X 23,000
4.4.3 Highways
(A) Short Term (2008-2012)
– Intersection improvements on Highways 11 and 130 DOT LEG/FED X 5,500
– Reduce speed limit on Hwy 130 to 45mph (Kea`au Bypass
to Ainaloa Blvd) DOT LEG/FED X
– Determine most effective ways to improve highway safety
for all travel modes DOT LEG/FED X
– Implement the Hwy 130 shoulder lane conversion project
between Kea`au Bypass and Shower Drive and consider
using the 3rd lane as a reversible lanefor peak periods
DOT LEG/FED X 6,500
(B) Medium Term (2012-2017)
– Increase capacity on Hwy 130 between bypass road and
Ainaloa, based on optimal safety DOT LEG/FED X 28,000
– Construct a right exit lane on Hwy 11 below Keaau Ag lots to
Keaau Village using the existing Old Volcano Rd ROW DOT LEG/FED X
– Create a right hand turn lane from Hwy 132 onto Hwy 130 DPW LEG/FED X
4.5.3 Non-Motorized Travel and Scenic Byways
(A) Request that the STIP allocate a larger share of federal “flex
funds” to transit-related and alternative travel modes COU DOT,FED X X X
(B) Allocate funding to DPW for safe routes to schools/parks
improvements, with Kea'au improvements as a priority COU DPW X X X
(C) Invest in pedestrian-, bicycle- and parking-related
improvements in approved village/town centers COU DPW X X X
(D) Allocate funding to the HPD to monitor traffic operations
along safe routes to schools/parks COU HPD X X X
(E) Complete surveys, acquisition of right-of-way, maintenance
agreements, planning and design, and construction for multi-
purpose trails
DPW,DLNR COU,LEG X X 10,700
(F) Designate and improve Highway 137 (Red Road) as a
Scenic Byway DPW X X 1,100
PUNA COMMUNITY DEVELOPMENT PLAN
September 2008
i
GLOSSARY
Action – A specific recommendation, such as a project or program, intended to implement a
policy or achieve an objective.
Community Village Center – An area intended for public/civic uses, or community-oriented
commercial uses and some higher density residential development within or immediately
surrounding the village center.
Density – The ratio of the number of dwelling or rental units to the gross land area of gross land
area.
Development Agreement – A written agreement for specified periods of time between the
County, any governmental entity or agency made a party thereto, and any person having a legal
or equitable interest in real property for the purpose of vesting the right to develop such property
in accordance with laws, ordinances, resolutions, rules, and policies of any governmental entity
or agency made party to the agreement in effect at the time such agreement is executed, and for
the purpose of delineating development requirements that may include, but are not limited to,
affordable housing, design standards, water allocations, dedications of real or personal property,
on-site and off-site infrastructure and other development related improvements and government
services, which shall be approved by resolution of the County Council and executed by the
Mayor on behalf of the County.
Emergency Access – Unpaved public or private roadways that are accessible to the public only
during an emergency when the normal roadway infrastructure is closed or an emergency
evacuation is necessary
Environmental Impact Statement (EIS) – An informational document prepared in compliance
with Chapter 343, Hawaii Revised Statutes, and/or the National Environmental Policy Act
(NEPA) that discloses the environmental and social impacts of a proposed action on the
community and state, measures proposed to minimize adverse effects, and provides alternatives
to the action.
Goal – A desired outcome expressed in simple terms that describes the desired end state.
Important Agricultural Lands – LUPAG designation for lands with better potential for
sustained high agricultural yields because of soil type, climate, topography, or other factors.
Important agricultural lands were determined by including the following lands:
- Lands identified as “Intensive Agriculture” on the 1989 General Plan Land Use Pattern
Allocation Guide Maps.
- Lands identified in the Agricultural Lands of Importance to the State of Hawaii (ALISH)
classification system as “Prime” or “Unique.”
- Lands classified by the Land Study Bureau’s Soil Survey Report as Class B “Good” soils.
There are no Class A lands on the Island of Hawai'i.
- Lands classified as at least “fair” for two or more crops, on an irrigated basis, by the
U.S.D.A. Natural Resource Conservation Service’s study for suitability for various crops.
- State agricultural parks.
IMPLEMENTATION
ii
Känaka – Hawaiian term for “people”, which in modern context is shorthand reference to
“känaka maoli”, meaning to people who trace their ancestry to the period prior to Hawai'i’s
contact with the West.
Keiki – Hawaiian term for “children” or “child”.
Land Pooling – A technique whereby a group of neighboring landowners enter into a
partnership for the unified planning, servicing, and subdivision of their lands; with the project
costs and benefits shared among the landowners.
Land Use Pattern Allocation Guide (LUPAG) – The LUPAG Map in the County of Hawai'i
General Plan indicates the general location of various land uses in relation to each other.
L.E.E.D (Leadership in Energy and Environmental Design) – A certification program that
confers awards for buildings that conserve resources such as energy, water, and open space.
Makai – Hawaiian term for “towards the sea.”
Mauka – Hawaiian term for “inland, upland, towards the mountain.”
Mixed Use – A land use pattern that integrates compatible residential, commercial, industrial,
office, institutional, or other land uses.
Neighborhood Village Center – An area intended for public/civic uses, or small scale
neighborhood oriented commercial uses. The commercial uses are of a small scale and are
intended to serve the needs of the village residents.
Off-the-Grid – Buildings that are not connected to the public utility electrical system. These
structures typically use on-site renewable energy sources, such as solar panels or wind turbines
to generate their own electricity.
Objective – An objective is a desired endpoint that leads toward accomplishing a goal.
Open Space – Undeveloped land or water body which is free of structures and equipment,
except for those that are ncidental to the land’s open space uses. Open space may include the
following: flood protection, creating a sense of special separation fro incompatible land uses,
areas for agricultural operations, passive recreation, active recreation, conservation uses, or
historical site preservation.
Park-Once Lots – Parking lots that serve several uses within convenient walking distance,
reducing the necessity to drive in order to make short trips between the uses.
Pedestrian Way – This is a public right-of-way through a block between lots for pedestrian
traffic. The right-of-way has a maximum width of twenty feet and may also be used as a utility
easement.
Policy – A deliberate plan of action to guide decisions and achieve rational outcomes.
Potential Dwelling Units – The number of dwelling units that can be developed on a piece of
property based on the zoning classification.
Regional Town Center – A concentrated area intended for mixed use, higher density residential,
retail, commercial employment, and/or regional one-of-a-kind facilities such as major civic,
medical, education, and entertainment facilities.
PUNA COMMUNITY DEVELOPMENT PLAN
September 2008
iii
Ride Share (Van Pooling) – Transportation of more than one person for commute purposes in a
motor vehicle, with or without the assistance of a commuter matching service.
Right-of-Way – A strip of land acquired by reservation, dedication, prescription, or
condemnation and intended to be occupied by a street, trail, water line, sanitary sewer, and /or
other public utilities or facilities.
Roads in Limbo – Roads over which there is a jurisdictional dispute between the County and the
State of Hawai'i concerning responsibility for repair, maintenance and operation. The problems
resulting from this dispute are documented in a 1989 study by the State of Hawai'i Legislative
Reference Bureau's titled Roads in Limbo: an Analysis of the State-County Jurisdictional
Dispute.
Transfer of Development Rights – The transfer of allowable dwelling units or other
development unit from one parcel of land to another, in exchange for open space.