TOWARDS CO-MANAGEMENT: THE AHUPUAʻA O KAHANA CULTURAL LIVING PARK PLANNING PRACTICUM – FALL 2012 DEPARTMENT OF URBAN AND REGIONAL PLANNING UNIVERSITY OF HAWAI‘I AT MĀNOA HONOLULU, HAWAI‘I TOWARDS CO-MANAGEMENT: The Ahupuaʻa ‘O Kahana Cultural Living Park Planning Practicum Fall 2012 Department of Urban and Regional Planning University of Hawaiʻi at Mānoa Honolulu, Hawai‘i, March 2013 Practicum Members Alex Broner Hisila Manandhar Hril Siu Lauren Esaki Maile Norman Mika Okuno Priza Marendraputra Rara KC Tamanna Rahman Faculty Participant Professor Luciano Minerbi Disclaimer: The opinions expressed in this report are those of the authors only and do not necessarily reflect the views of the resource persons or any agency or organization mentioned in this report. While efforts have been made to provide useful and reliable information, the authors of this report, and the University of Hawaii, do not assume liability for any damages, or misrepresentations caused by any inaccuracies in the data, or as a result of the use of the data, and their use on a particular system. No warranty is expressed or implied, nor does the availability of this report constitute such a warranty. The reader is encouraged to go to the original data sources, maps, and their metadata for verification, as they derive from different fields, methods, and tools. This report’s information and data are not for use in litigation. Its intent is only for education and discussion. Fall 2012 Plan 751 Practicum – Ahupuaʻa O Kahana Page 1 ACKNOWLEDGEMENT This report is written by the Fall 2012 Graduate Planning Practicum of the Department of Urban and Regional Planning, University of Hawai’i. Our practicum team consisted of nine students from different educational backgrounds and nationalities. The practicum has provided the students an opportunity to acquire valuable knowledge and experience in collaborative planning and analysis in community development. We learned about Hawaiian history, culture, archaeological sites, land and ocean resources, and the challenges involved in community planning. In particular, we reviewed plans, reports, and surveys about the Ahupuaʻa O Kahana, as well as, conducted site visits, met with key stakeholders and “talked story” with Kahana residents. Ahupuaʻa O Kahana has been an interesting and complex case for us to learn about, and we are very much honored to study this valley for the Kahana Planning Council (KPC). Overall, it has given us a practical learning experience in working together with peers, our professor, and especially the many Kahana residents and the Kahana Planning Council. We would like to express our deepest gratitude to our professor, Dr. Luciano Minerbi for guiding us through understanding the essence of the planning practicum. His patience, time, and dedication to this project have helped in creating this report. We are also grateful to the Kahana Planning Council for giving us the opportunities to attend some of their monthly meetings, and to allow us to observe the Ahupuaʻa O Kahana. In particular, we really appreciate all of the help from Renee Kamisugi, the Kahana Park Manager of the Department of Land and Natural Resources and her assistance with our site visit of Kahana. We would also like to extend our deepest mahalo to Aunty May and Uncle Nana for their mana‘o during the site visit. We also gained valuable information from respected guest speakers including: Ululani Beirne (KPC member), Lauren Tanaka (State of Hawai‘i Planner), Sunny Greer (Kahana resident), Ralph Makaiau (Former Chairperson of KPC), Ben Shafer (Current Chairperson of KPC), and Laulani Teale (KPC member) . Fall 2012 Plan 751 Practicum – Ahupuaʻa O Kahana Page 2 EXECUTIVE SUMMARY Before Western contact, the ahupuaʻa, or Native Hawaiian land division of resources from the mountain to the ocean, of Kahana was one of many ahupuaʻa on O‘ahu. However, after subsequent urban and suburban development, Kahana is one of the physically and functionally most intact ahupuaʻa, and the only State-owned and managed ahupuaʻa on the island. The circumstances surrounding Ahupuaʻa O Kahana State Park are unique, and therein lies its many challenges. The 1970 purchase of the entire ahupuaʻa of Kahana by the State of Hawai‘i Legislature served as a way to prevent large scale commercial developments in the area, and also established it as a “cultural living park.” The cultural living park concept aimed to protect Kahana’s natural resources while allowing residents to continue living in Kahana, under the condition that they maintained their traditional Hawaiian culture and shared it with visitors. Since the establishment of the park, various plans for its management have been created, though none were formally adopted. In the 1970s and 1980s there was contention over a number of issues which led to the State Legislature intervening in 1987 with Act 5. Act 5 called for DLNR to issue 65-year residential leases to qualified individuals, and for residents to participate in the park’s “cultural interpretive program” in lieu of cash payment for leases. Act 5 established the fundamental character of the relationship between the State and Kahana residents and specifies that in exchange for the lease, each household is required to contribute 25 hours a month of labor towards the Cultural Interpretive Program (CIP). However, since the passing of Act 5, a number of issues and controversies have developed. Over the years, communication difficulties have created challenges between park personnel and residents to the detriment of the cultural interpretive program. Some residents are fully up to date in their required hours, some have partially fallen behind, while others are not participating in the program at all. Various physical improvement projects such as fishpond restoration, a community center, and stream clearance that were identified in the past have not yet been fully completed for a number of reasons including lack of funding. Furthermore, while Act 5 does address the issue of intergenerational transfer of existing leases, the ability to grant new leases to these households was found to have expired. These households found Fall 2012 Plan 751 Practicum – Ahupuaʻa O Kahana Page 3 themselves living in Kahana under “revocable permits” with no guarantee that they would not be evicted in the future. For all of these reasons the State Legislature passed Act 15 in 2009. Act 15 provided for: • A 2 year moratorium (subsequently extended) on evictions for evictions from the park • Authorized the Department of Land and Natural Resources to issue long-term residential leases to qualified persons; and • Established the Kahana Planning Council to develop a master plan park that will provide a framework, proposes rules, measurements for success, and planning process. In support of Act 15 and the work of the Kahana Planning Council, a team of graduate students with the Department of Urban and Regional Planning at the University of Hawai‘i conducted research and wrote this report under the guidance of Professor Luciano Minerbi, who is a non-voting member of the Kahana Planning Council. After analyzing numerous documents on Kahana, the team developed a set of conclusions and recommendations that touch on the acknowledgement of Kahana’s complex history and demographics, approaches to natural resources and environmental management, and strategies to effective co-governance. We hope this report can serve as a reference for residents, stakeholders, and decision makers in their efforts to construct a master plan that is reflective of the people, history, and future vision of Kahana. Fall 2012 Plan 751 Practicum – Ahupuaʻa O Kahana Page 4 LIST OF ABBREVIATIONS AKAC Aha Kiole Advisory Committee BLNR Board of Land and Natural Resources CIP Cultural Interpretive Program CZM Coastal Zone Management DBEDT Department of Business, Economic Development and Tourism DOH Department of Health DLNR Department of Land and Natural Resources EIS Environmental Impact Statement GIS Geographic Information System GPS Global Positioning System HACBED Hawaii Alliance of Community-Based Economic Development HAR Hawaii Administrative Rules HB House Bill HoLIS Honolulu Land Information System HRS Hawaii Revised Statute KAB Kahana Advisory Board KGC Kahana Governance Council KAC Kahana Advisory Council KPC Kahana Planning Council KVAB Kahana Valley Advisory Board KVLP Kahana Valley Living Park KVSP Kahana Valley State Park LUC Land Use Commission NASS National Agricultural Statistics Service NPDES National Pollutant Discharge Elimination System ORMP Ocean Resources Management Plan QLCC Queen Lili‘uokalani Children’s Center SIA Social Impact Assessment SB Senate Bill SCR Senate Concurrent Resolution SMA Special Management Area SR Senate Resolution USC United States Code Fall 2012 Plan 751 Practicum – Ahupuaʻa O Kahana Page 5 TABLE OF CONTENTS Title Page & Disclaimer 1 Acknowledgements 2 Executive Summary 3 List of Abbreviation 5 CH.1 INTRODUCTION 9 1.1 Purpose of the Report 9 1.2 Structure of the Report 9 1.3 Methodology 10 1.3.1 Data Collection: 10 1.3.2 Data Analysis & Synthesis: 11 1.4 Limitations 11 CH.2 OVERVIEW OF HISTORY, PAST PLANS, BILLS AND ACTS 12 2.1 Pre Park History 12 2.1.1 Pre-Western Contact 12 2.1.2 Western Contact 12 2.1.3 The Great Mahele of 1848 13 2.1.4 The Kuleana Act of1850 13 2.1.5 Land Tenure Transactions 14 2.1.6 Robinson Agency Development Plan for Kahana Valley (1955) 16 2.2 Post Park History 17 2.2.1 The Comprehensive Plan for Hawai‘i State Parks (1962) 17 2.2.2 The Report Covering the Proposed Park Development of Kahana Valley (1965) 17 2.2.3 Division of State Park commissioned Tongg Association Master Plan 18 for the development of Kahana Valley (1970) 18 2.2.4 Educational Program Plan by Department of Education and DLNR (1972) 19 2.2.5 Mogi Plan for Kahana Valley State Park (1974) 20 2.2.6 Mogi Revised Environmental Impact Statement (EIS) (1978) 21 2.2.7 The Living Park Plan for Kahana People by the ʻOhana Unity Council (1979) 23 2.2.8 Kahana State Park Development Plan (Draft 7) (1985) 24 2.2.9 Kahana Valley Preliminary Project Plans by Hui Mālama ‘Āina o Kahana (1987) 26 2.2.10 Social Impact Assessment (SIA) of Kahana Valley State Park by Lewin (1992) 27 2.2.11 Environmental Assessment and Restoration/Revitalization Plan by Carol (1995) 28 2.3 Chronology of Kahana Valley 29 2.3.1 Chronological Table of Pre-Park and Post-Park History 29 2.3.2 Concluding Remarks 33 2.4 Bills and Acts 35 2.4.1 SR # 186 (1970) 35 2.4.2 Act 5 (1987) 36 2.4.3 Act 15 (2009) 38 2.4.4. H.B. # 1210 41 2.4.5 Analysis 41 2.5 Chronology of Bills and Acts 46 2.5.1 Sequential study of the Legislature Bills and Acts of Kahana Valley 46 2.5.2 Concluding Remarks 48 CH. 3 CURRENT CONDITIONS 50 3.1 Kahana’s Environmental Setting 50 Fall 2012 Plan 751 Practicum – Ahupuaʻa O Kahana Page 6 3.1.1 Description of Place 52 3.1.2 Land Tenure 58 3.1.3 Ahupuaʻa Zones 61 3.1.4 Conservation District 63 3.1.5 State Coastal Zone Management Program 66 3.1.6 Climate 68 3.1.7 Water Sources 68 3.1.8 Soil 74 3.1.9 Agriculture 83 3.1.10 Fishponds 86 3.1.11 Hazards 90 3.1.12 Population 94 3.1.13 Resource Potential 94 3.2 Socio-Economic Conditions 102 3.2.1 Population/ Demography 102 3.2.2 Socio-Economic Resources 104 3.2.3 Cultural Resources 110 3.2.4 Promotion of Socio-Cultural Resources 114 3.2.5 Challenges 117 CH. 4 GOVERNANCE 119 4.1 Importance of Governing Systems 119 4.1.1 Governance in the Past: A Brief Overview 119 4.2 Working towards Effective Governance 122 4.2.1 Resident Relationship with DLNR: Ho‘oponopono and Negotiation 122 4.2.2 Creating a Clear Understanding between Parties 123 4.2.3 Multi-Party Governance and Cooperation 124 4.2.4 Resident Self-Governance 124 4.3 Ahupuaʻa Management in Modern Times 128 4.3.1 Ahupuaʻa Management and Ecosystems Based Management 129 4.3.2 Developing an Ahupuaʻa Management Model for Kahana in Modern Times: 129 4.4 The ‘Aha Council 131 4.4.1 Reconciling the ʻAha Council with Western Governance Institutions 132 4.4.2 Traditional Ahupuaʻa Economy, Capitalism, and the Interpretive Hour Economy 132 4.4.3 The Market Economy and Traditional Resource Use 135 4.5 CONCLUSION: The Future in the Balance 136 CH. 5 NEXT STEPS 137 5.1 Ahupua´a Management in Modern Times 137 5.2 Hoʻoponopono 139 5.3 Implementation as Adaptation 140 5.4 Community Based Economic Development 141 5.5 Reconciling Ahupuaʻa and Contemporary Management 142 5.6 Finding Allies 145 5.7 Asset Mapping 147 5.8 Summary of Overall Recommendations: 148 5.9 Conclusion: Challenges and Opportunities 148 REFERENCES 149 APPENDIX A: TEMPLATE OF BUSINESS PLAN 154 APPENDIX B GEOSPATIAL ANALYSIS OF AHUPUA’A O KAHANA 158 APPENDIX C STUDENTS PRESENTATION 167 Fall 2012 Plan 751 Practicum – Ahupuaʻa O Kahana Page 7 LIST OF TABLES AND FIGURES Table 1 Chronological Table of Pre-Park and Post-Park History 29 Table 2 Chronologies of Bills and Acts 44 Table 3 Subzone Descriptions of Conservation Districts 62 Table 4 Soil and Land Condition Map of Kahana (1953) 76 Table 5 Important Laws and Regulations 87 Figure 1 Act 5 and Residential Leases 37 Figure 2 H. B. # 1450: Related to State Park 42 Figure 3 Arial view of Ahupuaʻa O Kahana 48 Figure 4. The ancient land divisions of Oʻahu with Kahana highlighted 49 Figure 5 Park Distribution Map 51 Figure 6 Government Plan 53 Figure 7 Residents Plan 54 Figure 8 Building Structure of Ahupuaʻa O Kahana in 1829, 1936 and 1992 55 Figure 9 Changes in Ownership Pattern 56 Figure 10 Land Tenure of Ahupuaʻa of Kahana 1913 58 Figure 11 Indigenous Management Models and Protection 60 Figure 12 State of Hawaii Conservation District Subzone 61 Figure 13 Special Management Area Map of Kahana 65 Figure 14 Streams in Kahana. (Hammond 1989) 67 Figure 15 Stream Corridor Concept 69 Figure 16 Permit Chart for Non-Governmental Activities in Streams and Wetlands 70 Figure 17 Hand Labor and Equipment Comparison Chart 71 Figure 18 Dominant Soil Types in Kahana 73 Figure 19 Soil Characterstics in Ahupuaʻa O Kahana 74 Figure 20 Sketch Map of 1953 Kahana Land Condition 79 Figure 21 Georeferenced Map of 1953 Kahana Land Condition 80 Figure 22 1953 Archaelogy Map 83 Figure 23 Map of Huilua Fishpond in 1920 (Apple 1975) 85 Figure 24 Location of three Known Fishponds 86 Figure 25 Flood Zones and Contour Lines 89 Figure 26 Tsunami Evacuation Zone 96 Figure 27 Land Use Map in 1953 93 Figure 28 Vegetation Map 1974 94 Figure 29 Household Income Distribution in Kahana Ahupuaʻa 103 Figure 30 Educational Attainment Chart (in Kahana and Hawaii) 106 Figure 31 Kahana Archaelogical Sites Map 110 Figure 32 Archaelogical and Histrocial Structures 111 Fall 2012 Plan 751 Practicum – Ahupuaʻa O Kahana Page 8 CHAPTER 1 1 INTRODUCTION Kahana is a unique place representing the last mostly intact Ahupuaʻa on O‘ahu. Kahana’s residents represent a culture and lifestyle which still has strong links to traditional Hawaiian and plantation era customs. Kahana was established as the State of Hawai‘i’s only “cultural living park” in order to preserve, promote, and learn from Kahana and its residents. The uniqueness of Kahana does however lead to some challenges which must be addressed if the vision of the cultural living park and the aspirations of its residents are to be achieved. 1.1 Purpose of the Report The primary purpose of this research is to produce a document or some supportive deliverables that would help the Department of Land and Natural Resources (DLNR), the Kahana Planning Council (KPC) and the residents of Kahana Valley in making Kahana Valley a thriving cultural living park. We hope that this research will serve as a useful reference in formulating a master plan for the cultural living park. Additionally, this research assists the students of this Planning Practicum in learning about community planning. The project has helped us in understanding a process that involves local residents, social organizations, and government agencies. 1.2 Structure of the Report This report consists of five chapters. Chapter one explains the purpose of this report, structure of the report, and research methodology. Chapter two summarizes and analyzes history, past plans, bills, and acts in order to contextualize past and current planning efforts in Kahana Valley, while assessing the opportunities and challenges that are also present. Chapter three describes the existing environmental and social conditions in Kahana in order to identify strengths, areas for improvement. Fall 2012 Plan 751 Practicum – Ahupuaʻa O Kahana Page 9