HomeMy WebLinkAbout2016 Analysis of Impediments to Fair Housing
S TATE OF H AWAII
ANALYSIS OF IMPEDIMENTS TO FAIR HOUSING CHOICE
WITH A FOCUS ON PEOPLE WITH DISABILITIES
November 2016
Prepared by the Center on Disability Studies at the University of Hawaii at Manoa for:
Hawaii Housing Finance and Development Authority
State of Hawaii Department of Hawaiian Home Lands
State of Hawaii Department of Human Services (BESSD)
Hawaii Public Housing Authority
City and County of Honolulu Department of Community Services
Hawaii County Office of Housing and Community Development
Kauai County Housing Agency
Maui County Department of Housing and Human Concerns
This Analysis of Impediments was prepared by the Center on Disability Studies at the University
of Hawaii at Manoa. The study team was comprised of:
David W. Leake, PhD, MPH (Principal Investigator)
Heather DeWoody, MEd
Sharene Chow, MSW
Tammy Tom, MA, MS
Eran Kong, PhD
Document Accessibility for People with Disabilities
We make every effort to ensure that our documents
are accessible to people with disabilities. Alternative
accessible formats of this report will be provided upon
request. Please contact David Leake by email at
leake@hawaii.edu or telephone at 808-956-0820.
ACKNOWLEDGEMENTS
The preparation of this report was made possible by numerous individuals whose contributions are
gratefully acknowledged. Particularly appreciated is the support provided by Lisa Wond (Hawaii
Housing Finance and Development Corporation), Steven Franco (Kauai County Housing Agency),
and JoAnn Yuen (Center on Disability Studies) in developing and implementing the Memorandum
of Agreement for the study. The State of Hawaii Fair Housing Workgroup (members listed below)
provided guidance on conducting the study and most of its members contributed directly by
participating in focus groups or individual interviews as well as identifying other key organizations
and individuals to consult. Additional agencies and organizations consulted are listed in Appendix
B. Special thanks are also due to the 15 people with disabilities who stepped forward to participate
Essential administrative
support and transcribing of audiorecorded interviews was provided by Aloha Andaya-Caitano,
Kristen Wong, and Melodi Diener.
State of Hawaii Fair Housing Workgroup
Alan Rudo, County of Hawaii, Office of Housing and Community Development
Carol Chung-Yokoyama, City and County of Honolulu, Section 8 Rental Assistance Program
Carolyn Vierra, Hawaii Civil Rights Commission
Elwin Freitas, Legal Aid Society of Hawaii
Faafeumalo Guthrie, American Samoa Department of Commerce
Howard Lesser, Hawaii Disability Rights Center
Jelani Madaraka, US Department of Housing and Urban Development, Office of Fair Housing and
Equal Opportunity
John Chang, City and County of Honolulu
Keith Ishida, City and County of Honolulu
Kiriko Oishi, Hawaii Public Housing Authority
Lori Tsuhako, Hawaii Department of Human Services, Benefits, Employment, and Support
Services Division, Homeless Programs Office
Marcus Kawatachi, Hawaii Civil Rights Commission
Niniau Simmons, Department of Hawaiian Homelands
Reyna Ramolete, Legal Aid Society of Hawaii
Stephen Karel, City and County of Honolulu
Steven Franco, Kauai County Housing Agency
Veranio Tongson, County of Maui, Housing Division
ACRONYMS
The following common acronyms have been used:
ADA Americans with Disabilities Act
ADAD Alcohol and Drug Abuse Division (Hawaii Department of Health)
ADU Accessory Dwelling Unit
ADRC Aging and Disability Resource Center
ADRD
AMHD - Adult Mental Health Division (Hawaii Department of Health)
AMI Area Median Income
ANSI American National Standards Institute
CAMHD Child and Adolescent Mental Health Division (Hawaii Department of Health)
CAPS Certified Aging-in-Place Specialist
DCAB Disability Access and Communication Board
CDBG Community Development Block Grant
DD Division Developmental Disabilities Division (Hawaii Department of Health)
ESG Emergency Solutions Grants
FHAP Fair Housing Assistance Program
FMR Fair Market Rent
HCBS Home and Community Based Services
HCDA Hawaii Community Development Authority
HHFDC Hawaii Housing and Finance Development Corporation
HOPE Housing Opportunities for People Everywhere
HOPWA Housing Opportunities for Persons with AIDS
HPHA Hawaii Public Housing Authority
HUD US Department of Housing and Urban Development
ICC International Code Council
ID/DD Intellectual and Developmental Disabilities
LASH Legal Aid Society of Hawaii
LEED Leadership in Energy and Environmental Design
LGBT Lesbian, Gay, Bisexual, and Transgender
LIHTC Low-Income Housing Tax Credit
LTSS Long Term Supports and Services
NFHA National Fair Housing Alliance
PATH Projects for Assistance in Transition from Homelessness
PHA Public Housing Authority
PSHP Permanent Supportive Housing Programs
SSDI Social Security Disability Insurance
SSI Supplemental Security Income
TOD Transit Oriented Development
US United States
TABLE OF CONTENTS
Study Team and Document Accessibility .................................................................................... i
Acknowledgements ....................................................................................................................... ii
Acronyms...................................................................................................................................... iii
I. Introduction and Executive Summary .....................................................................................1
A. Purpose of the Analysis of Impediments ................................................................................1
B. Who Conducted the Study ......................................................................................................2
C. How the Study Was Funded ...................................................................................................2
D. Methodology Used .................................................................................................................3
E. Conclusions .............................................................................................................................4
1.Impediments Found............................................................................................................4
2. Actions to Address Impediments ........................................................................................5
II. Jurisdictional Background Data............................................................................................11
A. Demographic Data ................................................................................................................11
B. Income Data ..........................................................................................................................20
C. Employment Data .................................................................................................................22
D. Housing Profile .....................................................................................................................24
1. Housing Market Impacts of the Military, Tourism, and Out-of-State Investors ..............29
a. Housing Market Impacts of Military Personnel ...........................................................29
b. Housing Market Impacts of Tourists ............................................................................30
c. Housing Market Impacts of Home Buyers from Outside Hawaii ................................31
2. Future Housing Needs.......................................................................................................34
3. Housing Affordability .......................................................................................................36
a. Overview of Housing Affordability..............................................................................36
b. Projections of Future Housing Needs ...........................................................................38
c. Strategies to Increase the Stock of Affordable Housing ...............................................39
4. Public Housing Authorities (PHAs) .................................................................................42
5. Public Housing Stock ........................................................................................................42
6. Section 8 Housing Choice Voucher (HCV) Program .......................................................42
7. Disability-specific Housing Support Programs ................................................................44
8. Housing for Seniors and Frail Elders ................................................................................45
9. Olmstead Decision and Community Housing for People with Significant Disabilities ...46
a. People with Intellectual and Developmental Disabilities .............................................48
b. People with Psychiatric Disabilities and/or Substance Use Disorders .........................50
..........................................50
10. People Housed in Institutions .........................................................................................52
E.Other Relevant Data: Homelessnessand Transportation Challenges....................................54
1. The Homeless Population .................................................................................................54
2. Transportation Challenges for People with Disabilities ...................................................57
III. Evaluation of Current Fair Housing Legal Status .............................................................59
A. Fair Housing Complaints or Compliance Reviews ................................................................59
1. Overview of Fair Housing Complaints .............................................................................59
2. Fair Housing Complaints for Which Disability Was the Primary Basis ..........................63
3. Fair Housing Testing.........................................................................................................66
B. Fair Housing Discrimination Suits .........................................................................................67
C. Reasons for Any Trends or Patterns .......................................................................................68
D. Discussion of Other Fair Housing Concerns or Problems .....................................................69
1. Requests for Housing Modifications and Accommodations............................................69
2. Service Animals ................................................................................................................70
IV. Identification of Impediments to Fair Housing Choice......................................................72
A. Public Sector..........................................................................................................................72
1. Zoning and Site Selection ................................................................................................72
a. Accessory Dwelling Units (ADUs) .............................................................................72
b. Disallowance of Multiple Kitchens in House Design ..................................................73
................73
2. Neighborhood Revitalization, Municipal and Other Services, Employment-Housing-
Transportation Linkage ................................................................................................75
a. Honolulu High-Capacity Transit Corridor Project .......................................................75
b. Kakaako Community Development District ................................................................76
c. Affordable Housing Requirements ...............................................................................77
d. LEED for Neighborhood Development........................................................................79
e. Aging-in-Place and Livable or Age-Friendly Communities ........................................80
f. HUD Programs to Deconcentrate Public Housing ........................................................82
3. PHA and Other Assisted/Insured Housing Provider Tenant Selection Procedures;
Housing Choices for Certificate and Voucher Holders ...............................................83
a. Public Housing Tenant Selection Procedures ...............................................................83
b. Housing Choices for Certificate and Voucher Holders ................................................83
4. Sale of Subsidized Housing and Possible Displacement ..................................................84
5. Property Tax Policies ........................................................................................................84
6. Planning and Zoning Boards .............................................................................................84
7. Building Codes (Accessibility) ........................................................................................85
a. Accessibility Requirements ..........................................................................................85
b. Standards for Accessible Housing ................................................................................86
c. Universal Design ..........................................................................................................87
B. Private Sector Lending Policies and Practices .......................................................................87
C. Public and Private Sector .......................................................................................................88
1. Fair Housing Enforcement ................................................................................................88
2. Informational Programs ....................................................................................................88
a. Fair Housing Information Resources and Educational Events .....................................88
b. Information about Long-term Services and Supports ..................................................89
3. Visitability in Housing ......................................................................................................90
a. Overview of Visitability ...............................................................................................90
b. Status of Visitability in Hawaii ....................................................................................92
D.Actions to Remedy Discriminatory Conditions.....................................................................93
V. Assessment of Current Public and Private Fair Housing Programs and Activities .........94
1. Interview Responses of People with Disabilities ..............................................................94
a. Experiences of Discrimination .....................................................................................94
b. Submission of Fair Housing Complaints ......................................................................95
c. Accessibility for Wheelchair Users ..............................................................................95
d. Affordable Housing ......................................................................................................95
e. Recommendations of People with Disabilities .............................................................96
2. Interview Responses of Personnel ....................................................................................96
a. What Kinds of Housing Discrimination Do People with Disabilities Often Face? ......96
b. How Are People with Disabilities Affected by the Issue of Affordable Housing? ......97
c. How Well Are Needs for Accessible Housing Being Met? ........................................98
d. What Assistance Animal Issues Are Often Faced by People with Disabilities? ..........98
e. Can People with Disabilities Get the Reasonable Accommodations They Need? ......99
f. What Housing Barriers Are Likely for People with Psychiatric Disabilities? .............99
g. Most Critical Needs to Further Fair Housing Choice for People with Disabilities? ..100
VI. Conclusions and Recommendations ..................................................................................102
1. Impediments to Fair Housing Choice for People with Disabilities ...............................102
2. Recommendations to Further Fair Housing Choice for People with Disabilities ...........102
a. Impediment: Lack of Awareness of Fair Housing Laws and Resources ....................103
b. Impediment: Severe Shortage of Affordable Accessible or Visitable Housing .........105
c. Impediment: Lack Attitudes, Skills, Knowledge to Serve People with Disabilities ..108
d. Impediment: Service Systems Are Not Well-Coordinated ........................................109
e. Impediment: Many with Serious Cognitive Disabilities Face Added Barriers ..........110
3. Action Plan to Affirmatively Further Fair Housing Choice for People with
Disabilities .................................................................................................................111
a. Goal 1: Enhance Public Awareness of Fair Housing..................................................112
b. Goal 2: Increase the Availability of Affordable and Accessible or Visitable
Housing ...................................................................................................................112
c. Goal 3: Enhance Housing Options for People with Serious Cognitive Disabilities ...116
d. Responsibilities for Action Steps ...............................................................................116
VII. References ...........................................................................................................................117
APPENDICES
Appendix A Additional State and County Data ...................................................................134
1. State of Hawaii Affordable Housing Inventory .................................................................134
2. Multifamily Inventory of Units for the Elderly and Persons with Disabilities in Hawaii ....134
Appendix B Agencies Contacted............................................................................................159
Appendix C Study Materials Approved by University of Hawaii at Manoa IRB ............160
1. Approval of Proposed Fair Housing Study by UH Human Studies Program ....................161
2. Brochure on Fair Housing Study for People with Disabilities ..........................................163
3. Script for Use by Agency Personnel Assisting in Recruiting People with Disabilities .....164
4. Consent to Participate in Research Study by People with Disabilities ..............................165
5. Fair Housing Study Interview Questions for People with Disabilities ..............................167
6. Oral Informed Consent for Housing Personnel to Participate in Research Study .............168
7. Fair Housing Study Interview Questions for Housing Personnel ......................................169
Appendix D Housing Resources for People with Disabilities at Hawaii ADRC Website ...170
Appendix E Fair Housing Complaints with Disability as Primary Basis ..........................177
1. Department of Justice Explanation of Housing Discrimination Based on Disability ........178
2. Complaint Alleging HPHA Does Not Meet Percent Accessible Units Requirement ........180
Appendix F Federal Notices, Memoranda, and Statements Related to Fair Housing .....184
1. Multiple Chemical Sensitivity Disorder and Environmental Illness as Handicaps ...........185
2. Non-Discrimination and Accessibility for Persons with Disabilities ................................205
3. Reasonable Modifications under the Fair Housing Act .....................................................229
4. ADA 2010 Revised Requirements: Service Animals (US Department of Justice) ..........247
5. New ADA Regulations and Assistance Animals as Reasonable (HUD) ..........................250
6. Promotion of Integrated Pest Management to Address a Major Resident Concern ..........253
7. The Role of Housing in Accomplishing the Goals of Olmstead 2013 ..............................258
8. Accessibility Requirements for Covered Multifamily Dwellings .....................................269
Appendix G Notes Receivable for Sale of Kuhio Park Terrace Towers ............................294
Appendix H Visitability ..........................................................................................................296
1. Letter from Pima County Chief Building Official on Benefits of Visitability Mandate...297
2. Resolution 28 Passed by 2005 US Conference of Mayors in Support of Visitability .......298
2. Expanding Implementation of Universal Design and Visitability(AARP Fact Sheet) ....299
LIST OF TABLES
Table 1. Number of State Population, 1900-2010 ...12
Table 2. -2014 .................................14
Table 3. Percentage of People with Disabilities by Age Group for United States and State of
Hawaii and Its Counties ...........................................................................................................14
Table 4. Number and Percentage of People with Disabilities by Age and Sex for United States and
State of Hawaii and Its Counties ..............................................................................................16
Table 5. Number and Percentage of People with Disabilities by Ethnic/Racial Heritage for United
States and State of Hawaii and Its Counties ............................................................................18
Table 6. Rough Estimates of Numbers and Percent of Total Population of Special Needs
Subgroups in State of Hawaii and Its Counties, 2011 .............................................................19
Table 7. Total Median Earnings for Last 12 Months of People with and without Disabilities in
the United States and State of Hawaii and Its Counties, by Sex..............................................20
Table 8. Poverty Rates for People with and without Disabilities in the United States and State of
Hawaii and Its Counties ...........................................................................................................21
Table 9. Monthly Expenditures Needed by a Family of Four for a Modest Lifestyle ..................22
Table 10. Number and Percent of Individuals with and without Disabilities in the Labor Force,
Employed, and Unemployed for United States and State of Hawaii and Its Counties ............23
Table 11. Increase in Housing Units for State of Hawaii and Its Counties, 2000-2015...............25
Table 12. Hawaii Housing Stock Characteristics, by County, Average over Period 2009-2013..26
Table 13. Hawaii Housing Stock Unit Numbers and Occupancy, by County, 2010 ....................28
Table 14. Accommodations of Visitors to Hawaii, 2014 ..............................................................30
Table 15. Number of Individually Advertised Vacation Rental Units in 2014, by Island ............31
Table 16. Out-of-State Ownership of Housing Units in Hawaii, 2010.........................................32
Table 17. Average Housing Unit Sale Price, by County and Location of Buyer, 2008-2015 ......32
Table 18. Projected Growth in Population and Need for New Housing Units, 2015 to 2025 ......34
Table 19. Fair Market Monthly Rents at the 40th Percentile Rent Level for 2016, by County ....36
Table 20. Affordability Indicators for Different Area Median Income Categories, 2014 ............37
Table 21. Housing Affordability for People Receiving Supplemental Security Income (SSI),
2014..........................................................................................................................................37
Table 22. Housing Problems for Households with Members with Mobility and Self-care
Limitations, by Percent of Area Median Income, 2009-2013 .................................................38
Table 23. Projected Housing Need from 2014 to 2020 for State of Hawaii and Its Counties, by
Percent of Area Median Income ..............................................................................................39
Table 24. Number of Affordable Housing Units by Unit Type, Management, and County,
August 2015 .............................................................................................................................43
Table 25. Number of Affordable Housing Developments and Units Funded through the
Low-Income Housing Tax Credit (LIHTC), Section 202, Section 515, and Section 811, by
County ......................................................................................................................................45
Table 26.Change in Number and Percent of Medicaid Recipients Receiving Long-term Services
and Supports Who Reside in Community-based Settings versus Institutions in Hawaii, 2009-
2013..........................................................................................................................................48
Table 27. Institutionalized Population, by Type of Institution and County, 2010 ........................53
Table 28. Homeless Population Estimates Based on Point-in-Time Count (January 2015) and
Analysis of Use of Homeless Services (July 1, 2014June 30, 2015), by County ..................55
Table 29. Homeless Adults Identified with Serious Disabling Conditions by Hawaii Point-in-
Time Count, January 2015 .......................................................................................................56
Table 30. Reasons for HUD-HCRC Case Closure, by Primary Basis of Fair Housing Complaint,
2001 through April 2016 ..........................................................................................................61
Table 31. HUD-HCRC Fair Housing Complaints with Different Disability Basis Combinations,
2005-2015................................................................................................................................64
Table 32. Fair Housing Infraction Testing for the Disability Protected Class by Legal Aid
Society of Hawaii during 2015 ................................................................................................67
Table 33. Current and Proposed Affordable Housing Requirements for Honolulu County .........77
Table 34. Recommendations for Raising Public Awareness ......................................................104
Table 35. Recommendations for Accessible Information Resources .........................................104
Table 36. Recommendations for Educational Activities .............................................................105
Table 37. Recommendations to Increase the Stock of Accessible and Visitable Housing .........106
Table 38. Recommendations to Enhance Options and Supports for Aging-in-Place .................107
Table 39. Recommendations to Increase Homeownership by People with Disabilities .............108
Table 40. Recommendations for Workforce Enhancement ........................................................109
Table 41. Recommendations to Improve Service Systems .........................................................109
Table 42. Recommendations Specific to High-need Subpopulations .........................................110
Table 43. Five-year Action Plan to Affirmatively Further Fair Housing Choice for People with
Disabilities .............................................................................................................................115
LIST OF FIGURES
Figure 1. Map of the State of Hawaii ............................................................................................11
Figure 2. Growth in Populations of Counties Relative to Each Other, 1900-2010.......................12
Figure 3. -2013 ......................................13
Figure 4. Average Household Size ...............................................................................................13
Figure 5. Percent of Population with Disabilities in the Counties of Hawaii ...............................15
Figure 6. Population of Hawaii and Number of Housing Units, 1950-2015 ................................25
Figure 7. Housing Unit Vacancy Rates by County .......................................................................27
Figure 8. Homeownership, Rental Vacancy, and Owner Vacancy Rates for Hawaii, 1998-
2014..........................................................................................................................................29
Figure 9. Number Housing Units Sold to Local, Other US, and Foreign Buyers, 2008-2015.....33
Figure 10. Changes in Age Structure of Hawaii Resident Population, 1980 Projected to 2040 ...35
Figure 11.Types of Residence for People Served by the Developmental Disabilities Division in
Hawaii, by Age (N = 405)........................................................................................................49
Figure 12. Average Number of Days to Close HUD-HCRC Fair Housing Complaints, by
Primary Basis, 2001-2015 ........................................................................................................62
Figure 13. Average Number of Days to Close Fair Housing Complaint, by Year Submitted and
Disability Primary Basis versus All Bases, 2001-2014 ...........................................................62
Figure 14. Top 10 Reasons for Filing Disability-based Fair Housing Complaints with HUD-
HCRC, 2005-2015 (N = 200)...................................................................................................63
Figure 15. Percent of Fair Housing Complaints for Which Primary Basis Was Disability versus
Other Than Disability, by Year and Whether Processed by LASH or HUD-HCRC, 2005-
2015..........................................................................................................................................64
Figure 16.Primary Bases for Fair Housing Complaints to HUD-HCRC, 2001-20015................65
Figure 17. Number of Fair Housing Complaints for Which Disability Was the Primary Basis,
over the Periods 2001-2015 for HUD-HCRC and 2014-2015 for LASH, by County .............66
I.E.1. Impediments Found
I.E.2. Actions to Address Impediments
II.D.1. Housing Market Impacts of the Military, Tourism, and Out-of-State Investors
II.D.2. Future Housing Needs
II.D.3. HousingAffordability
II.D.4. Public HousingAuthorities (PHAs)
II.D.5. Public Housing Stock
II.D.6. Section 8 Housing Choice Voucher (HCV) Program
II.D.7. Disability-specific Housing SupportPrograms
II.D.8. Housing for Seniorsand Frail Elders
II.D.9. Olmstead Decision and Community Housing for PeoplewithSignificantDisabilities
II.D.10. People Housed in Institutions
II.E.1.The Homeless Population
II.E.2.Transportation Challenges for People with Disabilities
III.A.1. Overview of Fair Housing Complaints
III.A.2. Fair Housing Complaints for Which Disability Was the Primary Basis
III.A.3. Fair Housing Testing
III.D.1.Requests for Housing Modificationsand Accommodations
III.D.2.Service Animals
IV.A.1.Zoning and Site Selection
IV.A.2.Neighborhood Revitalization, Municipal and Other Services,Employment-Housing-
Transportation Linkage
IV.A.3.Public Housingand Other Assisted/Insured Housing Provider Tenant Selection
Procedures; Housing Choices for Certificate and Voucher Holders
IV.A.4.Sale of Subsidized Housing and Possible Displacement
IV.A.5.Property Tax Policies
IV.A.6.Planning and Zoning Boards
IV.A.7.Building Codes (Accessibility)
IV.C.1.Fair Housing Enforcement
IV.C.2.Informational Programs
IV.3.Visitability in Housing
V.1. Interview Responses of People with Disabilities
V.2 Interview Responses of Personnel
VI.1.Impediments to Fair Housing Choice for People with Disabilities
VI.2.Recommendations to FurtherFair Housing Choice for People with Disabilities
IV.3. Action Plan to Affirmatively Further Fair Housing Choice for People with Disabilities
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as of November 14, 2016
ANALYSIS OF IMPEDIMENTS TO FAIR HOUSING CHOICE IN HAWAII WITH A Focus ON PEOPLE WITH DISABILITIES
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