Hawaii Island Plan

Hawaii Island Plan » Puna » Working Groups » Land Use

Land Use Working Group

It would be particularly helpful to decision-makers to receive input from the community re:

Should there be commercial land use outside of Pahoa and Kea`au? If so, where?
Should the County be more restrictive or more lenient in granting Special Permits?
Should more than one house per lot be permitted? If so, what should be the criteria?

Preliminary Themes, Goals and Objectives from the Small Group Meetings

These themes (recurring ideas) were derived from 130 small group meetings conducted across the Puna district.

Preliminary Themes (PLAN; PLAN – CC; PLAN – GM; CTR – CH)

Preservation of Open space
Growth Management
Creation of Village/Community Centers
Concurrency (Infrastructure with Development)
Real Estate Speculation
Hazard Zone Restrictions
Rural Atmosphere
Local Character in Building Design
Place Specific Building Codes
Recognition of Neighborhood Plans (Volcano, HPP, etc.)

Preliminary Goals – To achieve the establishment of managed growth policies that facilitate the creation of village/town centers for community gathering places to shop, work, learn, live & walk while preserving open space and promoting the uniqueness of Puna.

Preliminary Objectives

These objectives have been derived from themes generated from 3,394 ideas provided by broad citizen participation. The numbers in parentheses indicates which theme or themes were used to develop the objectives.

A. Identify areas that might not be feasible for future development – green infrastructure (1, 2)

B. Investigate specific policies to slow growth (2, 4)

C. Support infill development for existing towns and villages (3)

D. Work towards the adoption of a plausible concurrency bill through the county council (4)

E. Work towards the minimization of large settlement patterns in high hazard areas (6)

F. Protect important agricultural lands to preserve the rural atmosphere (7)

G. Improve existing building codes to recognize local character, design & needs. (8,9)

H. Further develop neighborhood organizations and increase membership (10)

Excerpts from Previous Plans

Considerable time, thought, and community-wide effort has been applied to the issue of Land Use in Puna over the past decade or more, resulting in a number of plans that have made specific recommendations. Pertinent excerpts from those plans are below.

"Puna has approximately 2,677 acres of land zoned for single-family residential use with about 98% of Puna’s housing stock as single-family. This district contains thousands of non-conforming residential lots that lack the basic infrastructure necessary for development. Puna is presently considered as a “bedroom district” to Hilo, meaning that much of Puna’s residential population commute to Hilo for employment."

"Coastal areas, especially on the south flank of Kilauea, have subdivisions in areas with a history of subsidence. As a result, some houses and their wastewater systems are under water during high tide."

"The Puna district has approximately four acres zoned for multiple residential use. The predominant form of housing is single-family residential. The demand for multi-residential development may increase with the continued population growth."

"Commercial activity in Puna consists of small rural enterprises that serve the surrounding rural-residential and agricultural communities. Commercial activity is located primarily in Keaau and Pahoa with lesser activity in Orchidland Estates, Mountain View, and Kurtistown."

"Within the two primary commercial centers of Keaau and Pahoa, activities comprised of shopping centers, grocery and general merchandise, service stations, and miscellaneous retail shops and services. Puna’s proximity to Hilo negates the necessity for large retail, industrial, or commercial shops and services."

"There are approximately 490 acres of industrial zoned land in Puna. 488 of that is the W.H. Shipman Industrial Park located near the Puna-South Hilo District Boundary which is being developed as a major industrial center for East Hawaii. Uses range from warehousing to construction with plans for mixed use industrial-commercial zoned lands in close proximity to the industrial park."

"Puna includes various agricultural industrial activities including the Mauna Loa Macadamia Nut Corporation’s processing facility, flower packing, and papaya processing and packaging."

"Puna Geothermal Venture (PGV) began operations in 1993. Currently, PGV produces 30 megawatts of energy from geothermal steam supplementing the Hawaii Electric Company (HECO). PGV plans to increase their out-put to 60 megawatts in the future. Activities which utilize geothermal byproducts may be established within and/or in close proximity to the geothermal resource subzone as identified on the Land Use Pattern Allocation Guide (LUPAG) map."

"The visitor industry in Puna is comprised mostly of small bed and breakfast establishments. The primary visitor attraction is the Kalapana extension of the Hawaii Volcanoes National Park.
Larger scale resorts have been proposed in the Kaimu-Kalapana, Kapoho, Pohoiki, and Opihikao areas, however, these areas are subject to volcanic activity, subsidence, and tsunami inundation. The areas also lack basic infrastructural improvements necessary for development. The only resort zoned area in Puna was covered by the 1990 lava flow in Kalapana."

The County of Hawai'i General Plan, adopted by ordinance in 2005, sets the land use and community development policy for the County of Hawai'i, and is intended to serve as a guide for state and federal government and private sector, as well.

"Courses of Action:

Re-evaluation of existing zoned areas and re-allocation of lands in appropriate locations shall be undertaken.
Appropriately zoned lands shall be allocated as the need for multiple residential development increases.
Work with community groups to explore possible avenues for financing infrastructural improvements within the non-conforming subdivisions.
Centralization of commercial activities in Pahoa Town rather than along the Pahoa By-Pass, to serve the residents of lower Puna shall be encouraged.
Expanded commercial services to meet the needs of population growth in the Puna district shall be encouraged in Keaau.
Rehabilitation of existing commercial development in appropriate locations shall be encouraged.
Appropriately zoned lands shall be allocated as need arises.
Allow the establishment of small neighborhood commercial area within existing non-conforming, residential-agricultural (rural) subdivisions.
Encourage and aid the agricultural industry in continuing to provide employee housing.
Improve and develop roadways, water, sewage, and other basic facilities necessary to encourage development of lands suitable for residential use.
Identify sites suitable for future industrial activities as the need arises.
Industrial-commercial mixed use districts may be provided in appropriate locations.
Service oriented Limited Industrial and/or Industrial-commercial used may be permitted in Pahoa although the area is not currently identified in the LUPAG map.
The development of visitor accommodations and any resort development in the district shall complement the character of the area.
Consider the development of small family or bed and breakfast type visitor accommodations and small-scale retreat resort development.
Support community initiatives to plan for and implement special regulations and designations to accommodate and integrate eco-tourism development into local community land use planning."

In 1995, the County of Hawai'i secured the services of a consultant to complete the Puna Community Development Plan. While it was not adopted, this document sets forth some specific recommendations for land use and design:

Collaborate with subdivisions to plan neighborhood centers which incorporate appropriate multi-family residential opportunities.
Support the development of alternative housing ownership strategies which provide options for low-cost and more accessible home ownership.
Consider rezoning subdivisions with lots under one (1) acre to Residential and initiating State Land Use District boundary amendments to Rural or Urban unless steps are taken to lower densities.
Collaborate with subdivision community associations to differentiate land uses according to the principals of the General Plan.
Coastal environmental quality should be protected by encouraging placement of new development inland.
Consider the use of Transferable Development Rights (TDR) to reduce residential densities in areas of subsidence and coastal pollution.
Study the use of Transferable Development Rights (TDR) to reduce residential densities in the area of subsidence and environmental pollution in Kopoho.
Consider increasing the State Conservation District and County Special Management Area boundaries in areas subject to subsidence.
Consider the use of TDR to protect important forest lands in upper Puna.
Collaborate with subdivisions containing lots smaller than one acre to educate owners about and plan for the future requirements of central sewers.
Collaborate with subdivision associations and property owners to find means to compensate landowners if open space dedications are desired which “take” the use of whole parcels or significantly lowers value and use for which there are investment-backed expectations.
Collaborate with community and landowners to make a long range master plan for a new commercial and public service center at Waikahekahe, with up to half for civic, recreation, and education, instead of encouraging expansion and centralization of commercial services in Lava Flow Hazard Zone 1 or 2.
Collaborate with Mainstreet Pahoa to develop old Pahoa as a service area for Pahoa residents and as a historic district, including alternative access via traditional trails and railroad rights-of-way.
In Keaau, Pahoa, and Volcano, encourage traditional design district guidelines for rehabilitation of existing structures and “infill” that matches the existing historic patterns, with special attention to parking and setback requirements.
In the Kilauea east rift area, encourage the distribution of community activities in a manner which minimized risk and discourages commercial development.
Encourage well-planned residential and proportionate neighborhood commercial development as part of a Rural Town District, with all supporting public facilities and services, in the W.H. Shipman, Ltd., property mauka of Shipman Park.
Designate for gradual rezoning suitable industrial lands around Keaau, including ample area for buffers and retention of natural areas to maintain a park-like environment.
Consider promulgating new zoning classifications for industrial uses which create the specialized environment attractive to desirable industries, such as communication and “back office” industries, which would provide quality employment for Puna residents.
Consider development of free trade zones in future Puna industrial areas.
Include an option for small parks for specialized industry in a new Rural Town district zone designation.
Consider designation of light industrial areas to meet the needs of the east rift area in the State lands between Pahoa and the central subdivisions, along a connector arterial from Pahoa to “Nine-and-a-Half Road.”
Neighborhood light industrial uses should be distributed to minimize risk in the east rift area.
The only regional industrial uses that should be allowed in the east rift area are those associated with geothermal development. They should be distributed in very low densities along the rift to minimize investment losses from single lava flow events.
Collaborate with subdivisions to plan neighborhood light industrial centers which provide convenient and pedestrian uses.
Consider zoning approximately 1,000 acres for new light industrial park at Waipalani, in the general area stretching mauka and makai of the Keaau Solid Waste Transfer Station. Set-aside should include sufficient buffer area as agriculture and/or open zoning to create a park like industrial environment, and to avoid conflicts between industrial uses and eco-tourism corridors which start at Hilo airport.
Encourage development of research and educational institutions in conjunction with industrial areas.
Support the development of low-impact, home-based eco-tourism facilities, e.g., bed and breakfast establishments and lodges, at appropriate locations throughout the district, instead of resort zoning.

In addition to these County-sponsored plans, there are community-initiated plans for Hawaiian Acres, Hawaiian Paradise Park and Volcano that contain recommendations for land use and design:

Hawaiian Acres Master Plan (1999):
"Limit dwellings to one farm dwelling and one additional farm dwelling per lot to keep growth in check and at a sustainable level.
This Master Plan retains our state agricultural designation and county agricultural zoning, and we encourage conformity to the permitted uses. We also encourage a limited number of special permits for non-nuisance, non-polluting light industry, home occupations, farm vehicle and light repair shops, bed and breakfast establishments, limited eco-tourism of lava caves that meet the approval of the Hawaiian Community and are of no archaeological value, as well as other services that cater to or supply agricultural."

Hawaiian Paradise Park Master Plan (2005 revision):
"The light industrial area indicated on previous drawings has decreased in size from 175 acres to 20 acres and moved from near Highway 130 to a parcel owned now by the original developer and located two miles northeast of the intersection of Highway 130 and Kaloli Drive on Kaloli Drive and 14th Avenue. The reason for this change is that it would not change zoning in an area that has already 75 homes and that it would remove it from a strip along the highway to prevent strip development. It would also prevent a dispute between any developer and the county because the county has consistently fought development along major highways. This change also brings it more to the center of the subdivision, providing easier access by residents and connects it to one of the stops on our proposed shuttle route. These previous advantages outweigh major disadvantages of not being on a highway and therefore users must transit via a private road and that there is currently no county water distributed to the site. The size decrease is a plus to those who want no light industrial area at all but a disadvantage to a larger commercial enterprise who may employ some of our residents.
The initial map and concept included residential zoning on many lots surrounding village centers and in ever increasing circles, larger lots up to 3-acre agricultural lots. This concept would have decreased the possibility of population growth to 60,000 (each of the nearly 9,000 lots has an ohana house) by increasing the size of agricultural lots in the majority of the subdivision. It also would have insured more green space with the idea that most of the larger 3 acre lots would have been landscaped or be orchard crops. This was to be accomplished by a concept of “transfer of development rights.” This concept, although it may work, is not currently legal in Hawai’i and was not understood by the majority of participants in our presentation meetings of the plan. Therefore, all existing Ag 1 lots that surround the village centers will remain Ag 1 lots and there will be no expansion to Ag 3 lots. The concept of limiting our growth potential needs to be addressed by an effort to convince the state and county officials that ohana housing is a fine idea where infrastructure can support it but in Puna where there are so many areas where there is no infrastructure, it can only cause severe problems. We also encourage the county to provide incentives to combine parcels; if a lot owner acquires an adjacent property, the two properties could be combined to make one tax map key property, thereby decreasing real property taxes. The Paradise Hui Hanalike Corporation can also provide an incentive by charging only one road maintenance fee for a combined property where there is only one residence. With cooperation we can limit the growth potential to 30,000."

Volcano Vision 2020:

Preserve the forested environment by reducing, or mitigating the amount of forest which would have to be removed for any development
Encourage the sharing of access roads and parking especially for contiguous commercial development.
Explore ideas such as transfer of parking requirements, which would allow businesses to avoid removing forest for parking by the establishment of a village parking lot on already cleared lots, appropriately located and designed.
Continue to lobby the County to defer enforcement of the requirements for curbs, gutters, and sidewalks.
Encourage the preservation of the native landscape and the replanting of unused or vacant cleared lands with native species.
Strongly encourage the utility companies to share the same poles to prevent the proliferation of overlapping pole lines; and encourage underground utilities wherever possible.
Encourage the installation of underground utilities in commercial corridors.
Work to enforce litter laws in the Volcano Community.
Preserve the historic structures and, in future construction, the flavor and feel of the core area of the Village.
Encourage the establishment of a new zoning category, “CR-Rural Commercial,” to include and amended set of permissible uses, setbacks, minimum lot size, etc.
Encourage the establishment of a set of design guidelines for Rural Commercial, which would contain: restrictions on use, and stipulations for buffers, setbacks, lighting and building height; consideration of landscape elements, roof line, building materials, issues of compatibility with surrounding uses and structures, appearance, colors, etc.
Encourage the preparation of a design workbook for Rural Commercial zoning based on the existing structures in the Village to act as a guide for landscaping, site planning, designing and building commercial structure that would merely be suggestions of how structures could look in order to be well-integrated into the community; and the creation of a community design review committee, which would be available for consultation about the design guidelines.
Explore the creation of a Special Design District, which would set new standards in the commercial corridor.
Develop and implement special Design Guidelines for all commercial buildings in Volcano Village. The guidelines should establish a consistent theme in keeping with the traditional character of the Village:
Guidelines would be for site preparatioin and access, landscaping, setbacks, parking areas, building design and height, materials, lighting, ect.,
A Design Review Committee should be established to help implement these guidelines including at least one person with a design background.
Identify a preliminary commercial zone between Wright Road and the Post Office on both mauka and makai sides of Old Volcano Road, approximately five-hundred (500) feet deep on the mauka side and through to the state buffer on the makai side.
Reinforce the state buffer on Highway 11 by restricting any new access onto this road I order to preserve a green belt.
Consider the establishment of a commercial/light industrial area on the makai side of Highway 11 between Ohia Estates and Royal Hawaiian Estates as needed.
Consider the planning of commercial/pedestrian cores in any of the Volcano area subdivisions as needed.